Catholic
Education
Milwaukees experiment
By ERIK GUNN
Special to the National Catholic Reporter
Milwaukee
One year after Milwaukees
religious schools became the first in the nation to participate in a publicly
funded vouchers program, tough questions persist here about whether private
schools can take public dollars without the strings usually attached.
The biggest unresolved dispute centers on state and federal civil
rights laws, which religious schools in Milwaukee -- including Catholic schools
-- say shouldnt apply to them. State education officials think otherwise,
and some observers believe it may take a lawsuit to settle matters.
A potential threat to the religious identity of faith-based
schools also looms in the form of an opt-out provision in the
vouchers law, allowing parents to exempt their children from religious
activities.
So far, the provision has not been tested. But observers warn that
should a parent really push the limits of the law, it could raise hard
questions about how much religious identity schools are willing to compromise
in order to hang on to public funding.
Since 1990, Milwaukee has been front line in Americas
escalating national debate over school choice. While some forms of choice
operate exclusively within public school systems, Milwaukees program
gives parents public dollars to send their children to any school, public or
private. This year for the first time that choice includes religious
schools.
African-American Democratic state Rep. Polly Williams was the key
figure in creating the program, working in concert with business groups and
conservatives. Williams was motivated by what she saw as decades of neglect of
impoverished urban schools. If wealthy and middle-class parents could flee
these dysfunctional schools, she argued, why shouldnt poor parents have
the same option?
Her supply-side allies, meanwhile, saw competition as a cudgel to
force public schools to reform. The former Republican governor of Wisconsin,
Tommy Thompson, was the leading exponent of this view.
Initially restricted to low-income families in the Milwaukee
public school district, the voucher program opened in September 1990 with 341
students. A lower court judge restricted the program to secular private schools
on the basis of church/state separation, but after the Wisconsin Supreme Court
overturned that ruling, the program expanded to include religious schools. In
early November, the U.S. Supreme Court declined to review the case.
Reviews of how effective vouchers have been in Milwaukee are
mixed; two studies prior to the decision to include religious schools reached
opposing conclusions. One said vouchers boost student achievement; another
found they have little impact.
That ambiguity has done nothing to slow the demand for choice,
however. Since the ban on religious schools was lifted, the number of children
drawing vouchers in Milwaukee has quadrupled to 6,155 (4,000 in religious
schools), and the number of participating schools has tripled to 87, including
40 Catholic schools.
Despite the repeated promises of voucher advocates that religious
schools would be free to operate just as they always had, a dispute over civil
rights has rekindled doubts that private schools can take public money and
evade the mandates that have always encumbered public schools.
The issue is not just a legal matter, educational experts say. If
private schools dont have to face the same restrictions as public
schools, it skews the vouchers experiment -- which is supposed to be about how
competition stimulates excellence -- by giving an unfair advantage to one
side.
The Wisconsin circuit court judge who wrote the original decision
allowing choice to go ahead asserted that as recipients of taxpayer funds,
participating schools would have to comply with state and federal
nondiscrimination laws.
The state Department of Public Instruction put out a list of such
laws, including ones barring discrimination on the basis of sex, age and
handicap. The list included laws governing access to and release of
students records and would have obligated schools to observe state and
federal constitutional guarantees of freedom of religion, expression,
association, equal protection and due process, as well as freedom against
unreasonable search and seizure.
In theory, these rules could have required religious schools to
provide special services for disabled students or to not discriminate against
homosexuals in hiring.
The department told school administrators to sign and return
statements vowing to uphold these laws. But when religious schools were faced
with doing so, they balked.
We didnt feel that that was part of the choice
program, says Roger Laesch, superintendent of schools for the Wisconsin
branch of the Lutheran Church-Missouri Synod, which has nine schools in the
vouchers system. Laesch said religious schools concluded that the rules were
being advanced to hamper our schools from participating.
Fear of litigation
Capuchin Br. Bob Smith, president of Messer High School, a
Catholic school on Milwaukees north side, said religious schools feared
exposing themselves to litigation over alleged violations, ranging from
due-process provisions to handicap discrimination laws. Indeed, Smith said
state officials initially questioned whether single-sex schools would
automatically violate the regulations but backed down from that position.
Smith said religious schools worried that where handicapped
students were concerned, each private school was being treated by the state as
if it were an entire school system. In the public schools, individual schools
have the right not to admit certain students with handicaps that they cannot
serve; its the entire district that has an obligation to operate special
programs for the disabled (or contract with private agencies to do so).
Smith said the Catholic schools are now discussing establishing a
special school for students with disabilities in order to meet that demand
within the choice program.
Public officials deny that enforcing existing civil rights
provisions would have placed any new demand on religious schools.
Nonsectarian schools have been subject to those student rights since the
beginning of the program, said Charlie Toulmin, who oversees the vouchers
program for the state. Toulmin told NCR that there was no indication
that secular private schools had objected in the seven years they have had to
comply.
Nonetheless, religious schools got the ear of the
Republican-controlled state legislative committee empowered to amend the rules.
In a public hearing in the summer of 1998, the religious schools turned out in
force to argue for an exemption to the civil rights provision. By all accounts,
Catholic lobbyists and spokespersons played a key role in the campaign.
It worked. The committee voted along party lines to suspend the
requirement, meaning that religious schools were not compelled to sign anything
promising to uphold civil rights laws.
Undeterred, state officials still maintain that those laws apply
to the choice schools. In practical terms, Toulmin says, exempting them from
the promissory note most likely means that parents wanting to challenge a
school for violations would have to sue in federal court instead of state
court.
Vouchers in the South
Chris Ahmuty, executive director of the ACLUs Wisconsin
chapter, says religious schools ought to be conscious of the history of similar
efforts to wriggle out from under civil rights requirements. The nations
first vouchers programs sprang up in the South in the 1950s to fund whites-only
private academies as the public schools were desegregated. The same kind of
racism, he said, has benefited Catholic schools in Milwaukee.
I think its fair to argue that even if not by
intention, in practice the parochial school system has been the recipient of
white flight from Milwaukee public schools, Ahmuty said.
In that context, Ahmuty said that Catholic schools face a special
responsibility to uphold the full range of civil rights laws.
John Huebscher, executive director of the Wisconsin Catholic
Conference, says the comparison of Milwaukees choice schools with
segregated Southern private schools fails on several grounds.
For one thing, the private schools were created -- sometimes by
state law -- expressly in response to integration, while parochial schools
have been there for decades.
Moreover, he said, while the Southern schools were created for
whites to avoid blacks, what you see in Milwaukee is substantial support
for choice from the African-American population. They want schools where their
children can do well.
Huebscher said there was ample reason for parochial schools to
fear the enforcement of civil rights laws. He cited cases in which church-run
programs that conducted pregnancy prevention counseling or fed the homeless or
otherwise met social needs with government grants faced what he characterized
as undue scrutiny over their religious content or even the presence
of religious symbols in their facilities.
With all of that in the background, we want to focus on the
education of children and not on arguing about the character of the school and
what someones interpretation of a regulation is going to be, he
said.
Huebscher said the Wisconsin Supreme Court decision treated money
paid on behalf of children to attend private schools as a direct grant to their
parents, who then made their own choice as to where to spend it -- not a form
of payment to the schools themselves. Therefore, the allocation may not subject
the schools to regulation as recipients of government funds, Huebscher
said.
Random admission
In at least one instance, religious schools have been brought to
heel by state authorities on the question of random admission for voucher
students.
In February, an alliance of voucher opponents -- the NAACP and the
People for the American Way Foundation -- complained in a letter to Wisconsin
State Superintendent of Public Instruction John Benson that 35 schools appeared
to violate the choice laws requirement that participating schools use
random selection in choosing which choice students they enrolled. Some failed
to submit a random selection plan; others, including several Catholic schools,
improperly gave preference to parish members or sought to exempt them from the
random selection process.
The organization asked the state to withhold funds from offending
schools until they corrected the situation.
Instead, state officials sent a letter to all 90 choice schools
reiterating the random selection requirement and proffering a model random
selection policy. In boldface type, the letter said:
A choice school, in accepting students into the choice
program, may not use as a criterion any information about an applicant such as
the applicants race, ethnic background, religion, previous test scores,
grades, membership in the parish, relation to school or church staff, agreement
to the schools policies or having a conference with the school.
Toulmin, the letters author, told NCR:
Were certainly not going to go back and take money away from
schools that may not have followed a true random selection process last summer,
but before schools will receive payment in the future and be in the program for
next year, theyll have to have a random selection process that I will go
through line by line and then approve. If the process doesnt meet my
approval, they will not be included in the program for next year.
Maureen Gallagher, director of Catholic education for the
Milwaukee archdiocese, said that religious schools accepted the outcome,
although they would have liked more flexibility. Where it gets difficult
for a parish is when they have people who qualify for choice who are also
parishioners. The schools would like to give those people first choice and they
cant do it, she said.
Opt-out provision
Religious schools taking voucher money in Milwaukee also face
pressure on another front: the laws opt-out provision, which
allows parents to insist that their children be exempted from religious
activities.
What constitutes religious activities, has never been
clearly defined. Schools say theyre making little or no change in what
they require of their students in the way of religious instruction or
activities. Officials from the state, from private schools and even from the
American Civil Liberties Union -- which had fought unsuccessfully in court to
block religious schools from the program -- all report that they have not
encountered a single instance of parents seeking to exercise the
opt-out provision.
Concern over the potential impact of the clause, however, has made
some schools wary of choice. Pius XI High School, for instance, has had a
long-standing requirement that all students must attend monthly Mass, though
non-Catholics were not required to actually participate in it.
Is that appropriate under the statute? Principal Rick
Pendergast asked rhetorically in an interview last summer. Some say yes,
some say no.
The opt-out clause helped lead one denomination to skip choice
almost entirely: the Wisconsin Evangelical Lutheran Synod. Like the much larger
Missouri Synod, the Wisconsin Synod is an independent, conservative wing of
Lutheranism separate from the mainline Evangelical Lutheran Church in America.
(Mainline Lutherans do not operate any parochial schools in the Milwaukee
area.) While the Missouri Synod schools lined up to take part in choice, only
one Wisconsin Synod school did.
Dan Schmeling, administrator for parish schools at the
Milwaukee-based Wisconsin Synod, said the synods schools already enrolled
low-income students who qualified for $100,000 in privately funded
scholarships. But schools didnt like requirements that they select choice
students randomly and allow them to opt out of religious activities.
Its our mission and purpose to make lifelong disciples
for Jesus Christ, Schmeling says. We would be saying to people our
purpose is to make you disciples of Jesus Christ, but you can opt out of
that.
Random selection, meanwhile, might end up bringing in students
from families who may or may not be that interested in what we believe is
important in the Christian education of young people.
Both the ACLU and many of the schools agree that so far, the
opt-out clause has turned out to be a non-issue, although they dont
entirely agree on why.
School leaders say its because parents who choose religious
schools for their children have done so in full appreciation of the religious
instruction that comes along with it.
When people apply for school, they know what that school is
about, Smith said. If you want religion, you go to a Catholic,
Lutheran or Baptist school. If you dont, you go to a public
school.
Ahmuty argues that sectarian schools have been marketing to
their own members who qualify for vouchers, reducing the likelihood that
those families would seek to exercise the opt-out provision.
Ahmuty also says, however, that its not clear how well
informed choice families are about their opt-out rights, and what to do should
they be violated.
There have been complaints in the past of parochial schools
pressuring families with children enrolled to increase their own church
attendance, Ahmuty told NCR. So far, no such case has surfaced among
choice participants.
Its also true, however, that it would only take one set of
parents aggressively pursuing an exemption under the opt-out provision, and one
school to resist that claim, to set the stage for litigation that would raise
fundamental issues of church/state separation.
Some Catholic observers believe the opt-out provision is
symptomatic of a larger problem, which is that Catholic schools cant have
it both ways: They cant claim to be pervasively religious and at the same
time take public money.
In our documents, the bishops of the United States have
always claimed that religion pervades every aspect of our schools,
Auxiliary Bishop Thomas J. Curry of the Los Angeles archdiocese told
NCR. Currys academic background is in church/state relations, and
he has written on the implications of voucher plans for religious schools.
We cant expect public funding to support a pervasively
religious activity. Therefore, the bulk of what we do in our schools will be
entirely secular, with perhaps some religious component before or after the
school day.
Im not saying Im against vouchers, Curry
said, but I am for being clear about what they mean. He added that
when he has voiced these concerns at bishops meetings, he has been surprised at
the response -- bishops from across the usual ideological divides, he said,
have approached him to say they share his views.
For educational theorists, the ultimate question about vouchers
remains: Do they work? The lack of stringent oversight in the Milwaukee
program, some critics say, makes getting an answer to that question
difficult.
The choice legislation calls for a small degree of oversight by
the Department of Public Instruction, and no curriculum requirements. Indeed,
for choice backers that was part of the point: to let parents be the direct
arbiters of quality, rather than saddling private schools with the sort of
mandates that were blamed for stifling innovation in public schools.
The law implementing choice did require that, for schools to
continue participating from one year to the next, they would have to meet one
of four standards: Have at least 70 percent of choice students advance one
grade level; maintain an average attendance rate of at least 90 percent for
choice students; show that at least 80 percent of choice students demonstrate
significant academic progress through whatever means the school
chooses; or show that at least 70 percent of families of pupils in the program
meet the schools own parental involvement criteria.
Practically speaking, the criteria are so broadly drawn that
everyone gets back in to the program, according to Brad Adams, who
oversaw the choice program for the state Department of Public Instruction until
this past summer. These are private schools, and theres virtually
no oversight.
The relative lack of oversight means that no public agency is
responsible for making sure that vouchers work. It is a reality that scares
some opponents, who argue that the state ought to exert at least as much energy
regulating the quality of the nations schools as it does its meat and
airplanes.
Yet for voucher supporters, it is precisely the caveat emptor
approach -- letting parents, not the government, make the decisions --
thats appealing.
Sr. Monica Fumo, principal of the all-girls St. Joan Antida High
School in Milwaukee, said that under vouchers, Our concern was Gee,
is somebody going to be in our face and down our throat every week here?
So far, she said, that fear hasnt been realized.
As for religious identity, Fumo reports it has been a non-issue.
We truly dont force any Catholicism down anyones
throat, she said. With a student body that is about 3 percent Muslim, the
school arranged for a local imam to lead a prayer service on one occasion.
We can all learn from someone else, Fumo reasons. God is God.
We all have different ways of looking at the specifics.
In the end, though, it is a different set of specifics -- of the
legal and political sort, not theological -- that leave the fate of the voucher
program still an open question. If a conflict between civil rights laws and the
religious freedom of schools ends up in court, for example, it could be another
decade or so before the ultimate shape of the program emerges.
If that happens, it will be a long time before the results of the
Milwaukee experiment are clear.
National Catholic Reporter, March 26,
1999
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