Pandemic-Era Changes in Urban School Leadership - Superintendent Characteristics, Turnover, and Salaries

Oct 15, 2026

Uploaded by Callum

Examines how urban school district superintendents’ characteristics, demographic composition, and district context relate to base salaries and turnover during the COVID-19 pandemic era. Uses data from 77 of 78 Council of the Great City Schools member districts, compiling enrollment, free or reduced-price lunch rates, and student racial demographics across 2018–2019 and 2022–2023. Also links superintendent demographics and district leader turnover patterns to salary levels and board structure to support stability and effectiveness in urban leadership.

LanguageEnglish

CategoryResearch & Report

FormatPDF

Pages20

Reading Time50 min

AccessFree to download

Introduction

Research Questions

Methodology

Executive Summary of Findings

Results

Superintendent Demographics

Superintendent Turnover

District Leader Salary

District Leader Turnover

Summary

Limitations

Conclusion

References

Appendix A: Supplementary Tables and Figures

PANDEMIC-ERA CHANGES IN URBAN SCHOOL LEADERSHIP: Superintendent Characteristics, Turnover, and Salaries Chester Holland, Ph. D. Mary M. Oewel CaseyA. Crews Kyuna Sims Akisha Osei Sarfo, Ph. D. Brian Garcia Ray Hart, Ph.D. CONTENTS 3 Introduction Background 4 Research Questions Methodology 5 Executive Summary of Findings 6 Results Superintendent Demographics Superintendent Turnover 8 Superintendent Turnover 9 Race/Ethnicity Gender 10 Pre-Superintendency Role 11 District Leader Salary Superintendent Salary by Student Population Size 12 Superintendent Salary by Student FRPL Rate 13 Superintendent Salary by Gender Superintendent Salary by School Board Type District Leader Turnover Superintendent Turnover by Student Population Size 14 Superintendent Turnover by Student Population Racial/Ethnic Demographics Superintendent Turnover by Student FRPL Rate 15 Superintendent Turnover by Gender and Race 16 Superintendent Turnover by School Board Type Superintendent Turnover by Salary 17 Summary 18 Limitations Conclusion 19 References 20 Appendix A: Supplementary Tables and Figures 2 | Pandemic-Era Changes in Urban School Leadership: Superintendent Characteristics, Turnover, and Salaries INTRODUCTION The COVID-19 pandemic, which began in the 2019-2020 academic year, continues to challenge school district operations across the United States. Much of the conversation regarding the pandemic’s impact on schools and learning focuses on the work being done in classrooms. Some discussions have emphasized the role of testing and curricula as key components of gauging student success, as well as other district ‘inputs’ such as educator hiring and retention and the availability of technology for internet-based remote learning. BACKGROUND The Council of the Great City Schools (Council or CGCS) has studied the extent to which some of our large school districts overcome the impact of low socioeconomic, English learner, and special education status for our students. The CGCS report, Mirrors or Windows: How well do large city public schools overcome the effects of poverty and other barriers, describes the importance and unique challenges of educating our nation’s students in abject poverty and other factors that influence student outcomes. The study found that strong and effective educational leadership, particularly through the role of superintendents, is critical in shaping the trajectory of school districts. As key figures overseeing administrative operations and policy implementation, superintendents are responsible for driving organizational excellence and student success. Over time, the superintendent's role has evolved from mere administrative oversight to strategic leadership, encompassing community engagement and crisis management. However, the advent of the COVID-19 pandemic has catalyzed a paradigm shift, necessitating adaptive leadership to navigate unprecedented challenges, foster innovation, and prioritize the well-being of students and staff (Love, 2023) . In this context, superintendents serve as chief executives, guiding districts through complex terrain, balancing fiscal responsibilities, stakeholder expectations, and educational imperatives to cultivate inclusive, equitable learning environments. This study updates historical reports on the superintendency conducted by the Council and aims to uncover trends in superintendent pay and turnover in system leadership by examining the characteristics of urban school district superintendents within the Councils’ current 78 member districts. This study focuses on understanding the racial and gender demographics of superintendents, the prevalence of turnover within demographic groups as well as the relationship between superintendent and district characteristics and superintendent’s base salaries. By addressing these questions, the Council seeks to provide some insight that may inform conversation on the challenges facing u

FAQs

What is the document’s main focus?

It analyzes pandemic-era changes in urban school leadership by examining superintendent characteristics, turnover, and salaries across Council member districts.

Which districts and data sources are used in the study?

The study uses 77 of 78 Council member districts and draws on student enrollment, free or reduced-price lunch percentages, and racial demographics from NCES Common Core of Data.

How do superintendent and district characteristics relate to outcomes?

The research investigates whether superintendent demographics and district characteristics influence base salary and whether they also affect superintendent turnover rates during the examined period.

Oct 15, 2026

Uploaded by Callum