EDITORIAL Debate about Clinton's test plan overlooks
fallacy of local control
During the Cold War, debates over disarmament often had a surreal
quality to them: Did we need to be able to blow up the world 30 times or only
20 before we could feel safe?
Lurking in the background, obvious and yet frequently unspoken,
was the real question: Do we need that capacity at all?
Today's debate over national education testing has some of the
same "emperor has no clothes" flavor to it. President Clinton has argued that
his proposal for voluntary national tests in reading for fourth-graders and
math for eighth-graders will enhance local control of schooling by giving
parents another way to hold their schools accountable. Conservative critics,
chief among them Rep. Bill Goodling (R-Pa.), have denounced the plan as
unacceptable federal intrusion into local control.
Again, the situation begs a deeper question: Is local control of
schools such a great idea to begin with?
It is important to remember why the push for national testing
arose. Clinton is responding to a widely held perception that there is a
"crisis" in American education -- that students just aren't learning what they
should. In fact, there's little evidence to support that claim. As scholars
David Berliner and Bruce Biddle established in the 1995 book The Manufactured
Crisis, most of the hard data indicate increases, not decreases, in
performance, especially among minority groups. When pollsters ask Americans
what they think of their local schools -- as opposed to the education system
generally -- positive responses are the norm, suggesting that although the
situation could always be better, students in most communities are indeed
learning something.
So where is this perception of a crisis coming from? Many
observers believe that the well-publicized problems of a few urban school
districts -- the state takeover of the Cleveland public schools, for example,
or the overcrowding in the New York system -- are to blame. These massive urban
systems are coping with a disproportionate share of America's poor and minority
children, nonnative English speakers and "special needs" students. Schools in
these systems have nowhere near the resources necessary to do the job. In many
cases, the strain is overwhelming, with students' low test scores and malaise
among personnel the inevitable result. Given intense media focus on the
problems of these mega-districts, it's only natural for people to feel that
"the system" isn't working.
Which brings us back to local control of schools, because how
effective the "system" is in America depends in large part upon where you live.
If you live in a wealthy suburb, local control works in your favor -- your
children probably attend a safe, well-equipped, attractive school staffed by
caring, qualified educators. If you live in the inner city, the "system" hasn't
been so kind. Your school is probably dilapidated, your technology primitive
and your teachers under-qualified or inexperienced.
Why? Because local control of education, as it's presently
structured, entails at least partial reliance on local funding. Schools
situated in districts with lots of property wealth are likely to be much better
off financially than schools located in depressed urban centers. Measured in
per-pupil terms, suburban systems often have more than twice as many dollars at
their disposal to educate kids already advantaged in myriad ways.
The naked truth is that local control is a systematic way of
ensuring inequality in educational opportunity. Kids in wealthy areas get more
of it; poor kids get less.
Minority activists who have criticized Clinton's testing program
are right about one thing: We don't need new tests to tell us which schools
have problems. What we need is a national commitment to improving troubled
schools. Such a commitment could take many forms, but all of them would entail
an expanded federal role in education, at least on the funding end. Despite
charges of waste and mismanagement on the part of urban systems, the truth is
that these schools need more of everything -- more in salaries to attract
qualified educators, more in technology for kids who don't have computers at
home, more in facilities for children whose lives outside school are unbearably
drab.
Moreover, a genuine national commitment to improve schools would
have to work for all kids, not just the lucky few who might benefit from
proposals such as vouchers. Treating vouchers as the centerpiece of one's
education program is like making lifeboats the basis of ship safety. It's a
rescue operation, not a way to fix the underlying problem.
Despite the romantic appeal of local control of schools, rooted in
America's traditional wariness about the concentration of power, the truth is
that "local control" means very little for communities without the resources to
deliver even basic educational services to their children. Tackling this basic,
structural flaw -- a system that allocates opportunity on the basis of local
wealth -- must be the cornerstone of genuine education reform.
If Clinton's testing proposal somehow calls attention to the
fallacy of local control of schools -- at least to the extent that it means
local funding -- it will have served a useful purpose. If not, the country will
have missed an opportunity to end one of its last and most pernicious forms of
de jure discrimination.
As every teacher knows, for a test to be of value, all students
must have had an equal opportunity to succeed. As long as local control of
schools remains the shibboleth of America's approach to education policy, that
can't happen. Let's hope this point gets a hearing in the testing debate.
National Catholic Reporter, September 26,
1997
|