Democratic Education to Reduce the Divide Diana Hess

Democracy Education Democratic Education to Reduce the Divide Diana Hess

We should laud the Partnership for 21st Century Skills for highlighting civic good at teaching students about the admi- literacy. Today, we have a much more robust understanding of what constitutes high- rable progress of our nation across time, quality democratic education than we have ever had in the past, and this framework such as scientific and technological dis- represents an opportunity for improving the civic and political literacy of our nation’s coveries, standard of living improvements, youth. At the same time, we are witnessing an increasing “democracy divide” among and the extension of political rights and young people based on educational quality and attainment. This divide presents a educational opportunities. However, that grave challenge to the very foundation of our democratic way of life. If left unchecked, history also includes a period when the it threatens to overwhelm the many positive elements of the Partnership’s framework federal government used the “rule of law” and other efforts at improving democratic education. to deny suffrage to millions of people. Moreover, at some points in U.S. his- What constitutes robust and powerful ideas that seem particularly important tory, portions of the population actually democratic education is clear. Due to based on my experiences as a teacher and lost civic and political privileges. Recall, the hard work of teachers, researchers, researcher. First, students should study too, that at one time in the United States, and democratic education programs, we and deliberate the contested meaning thousands upon thousands of people ral- know more about the influence of various of democracy. On both theoretical and lied around the concept of “workplace approaches to democratic education than practical levels, people disagree about democracy”—a potential advance in we did in the past. The Civic Mission of what democracy does and should mean. democratic life that we hear little about Schools (CMS) report—compiled by a However, the glory of the very concept of today, when most people are at-will wide variety of stakeholders and inter- democracy rests in the reality that it has employees. Unfortunately, things do not est groups, ranging from the Heritage yielded great benefits in the past and has always get better. Creating a national nar- Foundation to the American Civil the potential to continue to do so in this rative of pure progress is disingenuous Liberties Union—identified six research- new century. Consequently, the meaning and, consequently, does young people based components that constitute “best of democracy deserves careful and sys- no favors. Much of a democracy’s policy practice” in democratic education: (1) tematic teaching, not mere sloganeering. work involves preventing conditions from instruction in important content; (2) The dynamism inherent in the concept getting worse. If people have the false discussions of current events and con- of democracy explains why its meaning belief that the nation always moves in a troversial issues; (3) service learning; (4) has changed over time and will continue forward direction, they are not likely to participation in extra-curricular activities to do so in the future, which is precisely act politically so as to prevent harm. that teach civic skills; (5) participation in why it is so important to invite young The developers of the framework of school governance; and (6) simulations people into the conversation about what the Partnership for 21st Century Skills of democratic processes.1 it should mean. identified three important goals for civic Although the report does not delineate We also need to teach that a dynamic literacy: “participating effectively in the precise content in component one democracy is capable of both great prog- civic life through knowing how to stay that students should learn, there are two ress and stunning defeats. We are very informed and understanding governmen-

N o v e m b e r /De c e m b e r 2008 373 High school students work to get out the vote in a heavily Latino neighborhood of Boston as part of a class civics program, November 2, 2004. (AP Photo/Michael Dwyer) tal processes”; “exercising the rights and stand governmental processes,” but also of political movements and public poli- obligations of citizenship at local, state, to “participate effectively in political life cies that are needed to effectively solve national and global levels”; and “under- by staying informed about events and problems. Finally, it emphasizes the need standing the local and global implica- issues that animate political decisions for action. Being informed but not doing tions of civic decisions.” Although these in their communities, understand the anything with that knowledge creates a objectives are reasonable and desirable procedures and processes used to create culture of bystanders, not enlightened aspirations for U.S. students, they are and enforce political decisions, and influ- and politically engaged citizens. also potentially important for students ence those decisions. This suggests three Second, it might be helpful to reverse in nations that are not democratic. And important revisions. It clarifies the dif- the order of the locales mentioned in the so, in light of democracy’s dynamism, ference between staying informed about next two recommendations: “exercising as discussed above, and the demands of popular news (the escapades of celebri- the rights and obligations of citizenship democracy in a globalized world, how ties, for example) and keeping abreast of at local, state, national and global levels;” can we evaluate the definition of civic lit- what is happening politically. In addition, and “understanding the local and global eracy in the framework of the Partnership it substitutes the more powerful concept implications of civic decisions.” That is, for 21st Century Skills? I suggest revi- of “political” participation for simple lead with “global” rather than local. The sions to each of the goals. “civic” participation, which can easily be inclusion of global sends the message that First, we should expect students not limited to volunteerism or “being a good the framework authors intended a vision only to participate effectively in “civic neighbor.” Although the latter goals are of participation that extends well beyond life,” to “stay informed,” and to “under- important, they rarely result in the kind national borders, which is vital for the

S o c i a l Ed u c a t i o n 374 reasons that Merry Merryfield convinc- improvements cannot be felt by young clearly that the elements of high quality ingly explains in her article in this issue.2 people who have dropped out or been democratic education recommended in We have ample evidence to suggest that pushed out of the school system, or by the CMS report are much less likely to people in the United States have a dif- students who are not given the oppor- be experienced by students who are poor, ficult time thinking of themselves as tunity to participate in the substantive African American, or Latino. As just one part of a global community. Perhaps, forms of democratic education that example, students in classes with higher then, beginning instead of ending with many of their wealthier peers routinely average socio-economic status (SES) lev- global politics is in order. However, many experience. This is a serious, persistent, els are 1.42 times more likely to report democratic education experiences and and growing “democracy divide” in participating in debates or panel discus- courses also ignore the state and local, the United States. Evidence suggests sions in their social studies courses than concentrating only on the national gov- that young people with low educational students in lower SES classes.4 ernment. I am not therefore suggesting attainment are not “aging into” politi- A 2007 study of the federally funded that we focus only on global concerns. cal participation in the way many did in We The People program also illustrates Rather, we need to teach young people the past. On virtually every measure of the damage done by inequality in access how to be political actors on multiple political and civic activity (e.g., voting, to high quality democratic education.5 states: global, national, state, and local. attending meetings, buy/boycotting, pay- Researchers compared students who par- Armed with the findings of recent ing attention to the news, or deliberating ticipated in the We The People curriculum research and the vision of the Partnership with others about public issues), young with those who did not. Statistically sig- for 21st Century Skills, we know what to people who graduated from high school nificant differences were found between ask when we enter a school to find out participate at a much higher level than what the We the People and high school whether or not students are learning what those who did not, and the participation comparison students learned with respect they need for democracy. Is there deep, rate for those who attended college is to important democratic knowledge (of rich, sustained, and rigorous content? higher still. During the 2008 presidential topics such as democratic principles and Do students interrogate and deliberate primary season, for example, one in four constitutional limits on governmental about what democracy means? Does con- eligible young people with college expe- institutes) and the development of civic tent focus on the contemporary world rience voted on Super Tuesday, while skills. There is also solid evidence in this writ large, not just what is happening in only one in fourteen of the non-college study to support the claim that this kind our local communities, states, and the youth did so.3 Although the relation- of program can have powerful effects nation? Are students being taught the ship between education and political on all students—not just those who have skills needed for a robust democracy? participation is not a new story, never historically been provided the most That is, can they write well? Can they before has educational attainment been high quality educational opportunities construct an argument? Can they advo- so predictive of whether young people in democratic education. In this study, cate for their interests in public and listen will participate politically. the We the People students scored sig- respectfully while others do the same? What should be done to reduce the nificantly higher on most outcomes than Do they have the courage to question, democracy divide? Given the contribu- comparison students after controlling for critique, and be critiqued? Can they forge tion of education to civic and political pre-survey scores, variations in class- common goals and shared plans out of engagement, it is clear that changes are room effects, ethnicity, and enrollment in disparate interests, needs, and dreams? needed in schooling to reduce these an advanced civics/government or other Can they examine a community problem disparities. We need to fight hard to social studies class. This is clearly good and think about how to solve it and, more make sure that all students—but espe- news. importantly, think about how they can cially poor students—are not shut out But the bad news is that students are be part of the solution? of democratic education. We know such much more likely to have access to this While it is good that the Partnership disenfranchisement is happening in many program if they are white, in advanced for 21st Century Skill’s framework helps schools, and we can’t stand for it. We classes, and have parents with more edu- us ask these questions, in addition to the must argue that this exclusion is anti- cation (which is one marker of wealth). suggested revisions of the goals listed democratic and dangerous. Recent and Moreover, the We The People teachers above, the framework’s success also powerful evidence supports the claim were different than the comparison teach- depends on bridging the “democracy that democratic education opportuni- ers in key ways that likely enhanced their divide.” Much of the attention in our field ties are meted out in a manner that privi- students’ learning. These teachers were concentrates on improving the quality leges wealthier students, who are also more likely to have had recent profes- and quantity of democratic education more likely to be white. Most notably, sional development in social studies, in K-12 schools. But it is also crucial to a series of recent studies by Kahne and they taught more content about the acknowledge that the impact of these Middaugh (2008) have demonstrated Constitution, and used more high quality

N o v e m b e r /De c e m b e r 2008 375 instructional practices. Similar to what in and with organizations that run these We can own up to, investigate, and work Kahne and Middaugh have found, we competitions be let off the hook. Our to remediate this democracy divide or learn from this study that high quality standard needs to be quality and equal- face its lasting, harmful effects. The teaching and learning opportunities are ity. High-quality programs that do not effects are real, as illustrated by which more likely to be meted out to students serve a broad cross-section of youth fail sectors of U.S. society have influence who are already on the privileged side to meet that standard on the political system, access to health of the democracy divide. Third, we need to recognize the care, and higher education. These effects A number of changes are needed to consequences of tracking, particularly undermine our democracy. They also address the democracy divide that so in arenas such as Advanced Placement challenge all of us in democratic edu- powerfully correlates with education. (AP) government classes. Enrollment in cation to concentrate our efforts on First, educators should be deeply con- these classes is increasing at a fast pace— ensuring that all students have access cerned about the recent increase in the a development that many applaud—and to what we know enhances political and high school drop out/push out rate, an there are many exceptionally talented civic participation. While the goals for increase that is especially dramatic in teachers who have created fabulous AP civic literacy in the Partnership for 21st urban schools. There are way too many government courses. But the reality in Century Skills framework have drawn young people on the wrong side of the many schools is that just as students even more attention to democratic edu- schoolhouse gates. Most obviously, are tracked, so, too, are teachers. One cation, high-quality education that does serious and sustained attention must administrator recently told me that he not serve the goals of equality is really be directed toward reducing this rate, had to make sure those who taught AP not high quality at all. given the powerful connection that exists “really knew their stuff” because test between educational attainment and scores depended on it, and powerful Notes civic and political participation. We must parents demanded it. Just as unfortunate 1. Carnegie Corporation of New York and the Center for Information and Research on Civic Learning and recognize that effective dropout preven- as this kind of teacher tracking, which Engagement (CIRCLE), The Civic Mission of Schools tion programs are a form of democratic often rations the most experienced and (New York: Carnegie Corporation of New York, 2003). education, even if they focus more on capable teachers to those students who 2. Merry Merryfield, “Scaffolding Social Studies for academic achievement than democratic are routinely privileged in many schools, Global Awareness,” Social Education 72, no. 7 literacy. AP government classes rarely mirror the (2008). 3. For information about youth voting in the 2008 Second, it is important to quit spend- larger student body from which they are presidential primaries, see www.civicyouth.org/ ing such a disproportionate share of the drawn. Policies and problems differen- PopUps/FactSheets/FS_08_NH_FL.pdf. resources in the field on the youth who tially impact diverse groups in the United 4. Joseph Kahne and Ellen Middaugh, “Democracy for Some,” CIRCLE Working Paper 59 (2008): 16. already are on the privileged side of the States, and in democracy education, we 5. See the November 2007 Evaluation Report con- democracy divide (and who are most should expose students to the differing ducted by RMC Research Corporation of the We The People program of the Center for Civic Education. likely to attain high levels of education). views and experiences that exist in their The Report can be accessed at www.civiced.org/pdfs/ We need a Marshall Plan for education in schools. This is especially important in research/wtpEvaluation121207.pdf. this country, but in the meantime we must courses where the interchange between triage the resources we have. Competitive students demands different social posi- programs such as the interschool mock tioning in order to be authentic and help- Diana Hess is an associate professor of Curricu- trials and “We The People” Constitution ful. If AP government classes do not con- lum and Instruction at the University of Wisconsin- Madison. Her email address is dhess@education. program are often very powerful forms tain diversity of race and class, we may wisc.edu. She wishes to thank Keith Barton, Joe of democratic education, as the study I be thwarting the democratic process in Kahne, Ellen Middaugh, Chris Evans, Beth Rat- described above shows. However, rela- the very place it could do the most good: way, Abigail Janowiec, and Laurel Singleton for tively few urban schools participate in social studies classrooms. their helpful feedback on the ideas in the article. them. Additionally, in schools that spon- By looking carefully and critically sor such programs, they typically impact at what is taught and to whom, we can a small number of students. We need to better assess how to distribute effective work harder to open these events to more forms of democratic education in equi- students, especially those who have not table ways. Such an assessment serves as previously had the opportunity to par- a democracy divide audit. We can use ticipate. No longer can we afford to say it to gauge whether we are standing on we are doing a good job with democracy the right side of history as this nation education in a school because a handful approaches one of the most serious chal- of students won a competition. Moreover, lenges it has ever faced: the disparate no longer should those of us who work education that our youth are receiving.

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