An examination of the authority, the structure, and the activities of school councils, as revealed through relevant literature, field visits, workshops, interviews, and other channels open to the Institute for Responsive Education, reveals that most councils have little responsibility or power to affect educational decision-making, and rarely are given the opportunity to use such power when they do have it. The gap between what is expected from councils and what they actually achieve is due largely to "environmental forces" in the councils' relations with such groups as principals, school boards, and traditional parent groups, many of which are reluctant to share power. Still, councils have the potential to contribute greatly to education if they receive support in six areas: (1) authority must be decentralized so that councils can participate effectively at the building level; (2) councils must have adequate resources; (3) educators must have access to opportunities to improve their skills at working with parents and councils; (4) councils and other agencies must be encouraged in the coordination of their efforts; (5) councils should represent all aspects of the educational community, preferably by election; and (6) council activities should be well documented and carefully evaluated yearly. (Author/PGD)