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The Vulnerability of Urban Elementary School Arts Programs : a Case Study

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THE VULNERABILITY OF URBAN ELEMENTARY SCHOOL ARTS PROGRAMS: A CASE STUDY By Ryan D. Shaw A DISSERTATION Submitted to Michigan State University in partial fulfillment of the requirements for the degree of Music Education—Doctor of Philosophy 2015 ABSTRACT THE VULNERABILITY OF URBAN ELEMENTARY SCHOOL ARTS PROGRAMS: A CASE STUDY By Ryan D. Shaw In the post-NCLB accountability era, researchers have found consistent evidence of curriculum narrowing in school districts across the country. While macro-level studies have examined the redirection of instructional time and resources toward tested subjects (e.g., mathematics and reading) and have shown cuts to school arts programs, little research has focused on how school districts decide to make arts instruction cuts. With the intent of improving our understanding of cuts to elementary arts programs, the purpose of this research was to investigate how one urban school (Lansing School District in Lansing, Michigan) eliminated its elementary arts specialists. Research questions were: (a) What policy conditions enabled the Lansing School District’s decision to cut its elementary arts specialists? (b) How did the decision-making process unfold? (c) How do people involved with the decision describe the subsequent impacts of the cuts? This instrumental case study drew on policy analysis to investigate how macro-level policy conditions interact with micro-level decision-making processes to cause arts education policy changes. Data sources included 18 interviews with former Lansing School District teachers, current employees, and community arts provider representatives, as well as related documents and researcher memos. Data were collected over the course of six months. After interviews were coded emergently for themes, I used the Advocacy Coalition Framework (Sabatier & Jenkins-Smith, 1993) to organize findings by research question. Trustworthiness was enhanced through researcher reflexivity, collection of multiple data sources, prolonged engagement with the research site, participant member checks, and peer review of analysis. Findings showed that a confluence of macro- and micro-level policy conditions enabled the cuts. Conditions included declining enrollment and budget problems spurred by school choice laws and other factors, faltering school achievement performance, and a negative perception of elementary arts teachers and subject areas. The elementary arts programs had also been weakened through teacher layoffs, permissive teacher certification/assignment policies, poor oversight, and lapsed grant funding. Analysis showed that the decision-making process was characterized by rival coalitions whose membership was defined by belief systems. These coalitions engaged in framing/imaging tactics, policy-oriented learning, “devil shift” blaming, and coordination to advance their agendas. Elementary arts teachers were likely weakened by a diversity of coalition membership and a lack of a parental/community coalition. I also found that when a community arts provider coalition surfaced after the cuts were announced, its influence was hindered by internal disagreements. Finally, analysis suggested that in the wake of the cuts to specialist positions, elementary students in Lansing have received inconsistent arts education experiences. Because of classroom teachers’ lack of efficacy and ability, loss of daily planning time, and the inconsistent visits from community arts groups and small contingent of arts coordinators employed by the district, little or no curricular arts education is occurring for students in grades kindergarten through sixth grade. Based on the findings, I offer critical reflection on a number of topics and offer general recommendations as well as implications for researchers. Copyright by RYAN D. SHAW 2015 For our little family. v ACKNOWLEDGMENTS I first want to thank the teachers and community arts providers who were willing to speak with me about this important topic. Your desire to speak out and fight for Lansing’s health as a district and for the artistic opportunities Lansing students deserve will always be an inspiration. Trusting an unknown doctoral student to tell your stories was undoubtedly difficult and required a leap of faith. Thanks for inviting me in. To my advisor, Dr. Mitchell Robinson: thank you for everything. You have mentored me and brought me into the profession, and I cannot fully express my gratitude in a short paragraph. Over the last three years, your open door and ability to let me forge my own path have meant the world to me. Thanks for being “prickly” and standing your ground about important issues. I have learned so much from the way you care about music teachers’ well being. Thank you to the rest of my dissertation committee for your willingness to read my work, and ask tough questions, and push me to consider multiple angles. When it seemed this study might have needed to be abandoned, your guidance kept the research on track. Thank you especially to Dr. Josh Cowen for introducing me to the world of education policy, and to Dr. Cynthia Taggart for the unbelievable care you have provided. Thank you to my support system. My friends at MSU and my family helped to keep me on an even keel. Finally, to my wife and best friend, Melanie: you let me quit my job and pursue what I loved. I am still not sure how we did this the last three years. I love you and I am the best version of myself because of you. vi TABLE OF CONTENTS LIST OF TABLES ......................................................................................................................... xi LIST OF FIGURES ....................................................................................................................... xii CHAPTER ONE: INTRODUCTION ............................................................................................. 1 Equity and Opportunity in Urban Schools .......................................................................... 4 Magnet Arts Education Programs ....................................................................................... 7 The Effects of the Accountability Era on Music Curricula ................................................. 8 Specialists vs. Generalists: Teacher Certification ............................................................... 9 Changing Definitions of Arts Education ........................................................................... 12 School Funding Structures ................................................................................................ 15 Labor Laws and Politics .................................................................................................... 16 Summary and Reflections .................................................................................................. 18 Purpose and Research Questions ....................................................................................... 19 CHAPTER TWO: REVIEW OF LITERATURE ......................................................................... 20 Curriculum Narrowing ...................................................................................................... 21 National Studies ..................................................................................................... 21 State/Large City Studies ........................................................................................ 23 Qualitative Studies ................................................................................................. 25 Targeted Cuts for Accountability-Based Subgroups ............................................. 27 Disproportionate Cuts for Minorities and Students in Poverty ............................. 29 Narrowed Pedagogical Options in Urban Schools ................................................ 31 Summary ................................................................................................................ 32 The Status of the Arts in Schools: Federal Core? .............................................................. 33 Generalists, Specialists, and Teacher Certification ........................................................... 34 Changing Definitions of Arts Education ........................................................................... 38 Cuts to Arts Specialist Positions ........................................................................................ 43 Need for Present Study ...................................................................................................... 45 Purpose and Research Questions ....................................................................................... 47 CHAPTER THREE: METHODOLOGY ...................................................................................... 48 Design ................................................................................................................................ 48 Case Study ............................................................................................................. 48 Policy Analysis ...................................................................................................... 49 Sampling ............................................................................................................................ 51 Description of the Research Site ....................................................................................... 52 Theoretical Lens ...............................................................................................................
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