We use data from the applications North Carolina public school districts and charter schools submitted for Elementary and Secondary School Emergency Relief (ESSER) to investigate the sense that educational leaders made of the pandemic as it unfolded. LEAs understood the pandemic as a multifaceted problem. Nearly all applications addressed four problems: (1) public health, (2) academics and learning loss, (3) student and community well-being, and (4) instructional access. However, we document considerable variation in problem emphasis over time, across LEAs, and across organizational sector. The pandemic was not a single organizational problem, but many simultaneous problems posed in varying and shifting combinations. We argue this multi-faceted organizational view should be a starting point for assessments of LEAs’ pandemic response.
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