Comment by Nevermark

The answer to that is relatively simple to identify, difficult to acheive.

School system leadership at the very top. Instead focusing on fixes or specific initiatives at the top, needs to understand their job as creating the culture, climate and support for improvement by lower levels of leadership, with strong emphasis on everyone working to enable and support teachers support students.

That is how accountability and responsibility, and initiative get distributed together to everyone who can contribute. And power doesn't "choose" what is expedient.

But given education at the State and Federal levels is highly politicized, this necessity of enabling and supporting the organization, as apposed to controlling it, is hard to accomplish directly.