Much confusion exists today among board of education members and superintendents about governance roles, especially when a district is low performing and the public is demanding bold reform. Part of the confusion comes from the definition of reform. To many Americans, school reform means fine-tuning what education historian David B. Tyack calls The One Best System. To others it means fundamentally new structures, processes and incentives. Lack of clarity about what governance is and is not creates additional confusion. Some superintendents and board members believe that superintendents lead and boards follow. Yes, boards approve policies, but they have little role in developing them. Superintendents are active. Boards are reactive. This view of governance, however, creates great frustration among some board members, especially those in large urban districts. They want rapid improvements in student achievement. The author discusses different ways the work can be divided between boards and superintendents.