Wednesday, January 8, 2025

Spillane, James P. (2004). Standards deviation: How schools misunderstand education policy. Reviewed by Adam Lefstein, King's College, London

 
Education Review/Reseñas Educativas/Resenhas Educativas



Spillane, James P. (2004). Standards deviation: how schools misunderstand education policy. Cambridge, Massachusetts: Harvard University Press.

Pp. xi + 205
$45     ISBN 0674013239

Reviewed by Adam Lefstein
King’s College, London

December 15, 2004

Educational reform efforts that seek to deeply and positively change classroom practices have been notoriously unsuccessful. James Spillane’s Standards Deviation: How schools misunderstand education policy adds an important perspective to study of this problem: how National and State policies are understood and implemented at the local district and classroom levels.

Reading Standards Deviation reminded me of a John Trever cartoon (Note 1) about the No Child Left Behind Act. In the first frame President Bush hands an Education Bill to the States, announcing, “No child left behind!” Next, a State policymaker exclaims, “Leave no child behind!” to a District superintendent, who passes the message, “Don’t let any child fall behind!” to a school principal. The latter then instructs a teacher, “Don’t let any child fall behind and fail!” The teacher exhorts parents to “Don’t fail to get behind your child!” Finally, the parents warn their child, “Don’t fail or it’s your behind!”

The cartoonist has captured one of Spillane’s main ideas, namely, that policy messages are distorted as they filter down through the various levels of educational administration. However, Spillane might argue, the cartoonist has mistakenly depicted local educational administrators as relatively passive conduits of National policy. Spillane claims that this simplistic approach to local policymaking is common also in the scholarly literature, which has largely overlooked the role of school districts in educational reform. Standards Deviation is an attempt to fill this gap, by demonstrating the active and critical roles played by local policy-makers in interpreting and shaping National and State initiatives. In this review I first give a general overview of the book and then critically discuss what I see to be its primary advantages and shortcomings.

Spillane explores the implementation process of standards-based reforms of Mathematics and Science teaching in Michigan between 1992 and 1996. He adopts a cognitive perspective, which foregrounds how agents in the implementation process make sense of the policies upon which they act. Spillane offers a vivid analogy for how this process can be conceptualized:

Policy implementation is like the telephone game: the player at the start of the line tells a story to the next person in line who then relays the story to the third person in line, and so on. Of course, by the time the story is retold by the final player to everyone it is very different from the original story. The story is morphed as it moves from player to player – characters change, protagonists become antagonists, new plots emerge. This happens not because the players are intentionally trying to change the story; it happens because that is the nature of human sense-making. (p. 8)

The book follows the “stories” of the Mathematics and Science standards as they are picked up by Michigan Department of Education officials from National agencies, and passed on to district and classroom level players. The organization of its eight chapters reflects this progression: chapter one provides an introduction to and overview of the book; chapter two discusses the context and content of State policy-making with regard to Mathematics and Science standards; chapters 3-5 explore how policymakers in nine school districts interpreted, responded to and incorporated the standards into their instructional policies; chapters six and seven examine how teachers in those districts understood the standards and enacted them in their classroom practice; and the final chapter discusses implications of the study for policy analysis, research and design.

In the late 1980s two loose coalitions of state officials, academics and school professionals in Michigan sought to significantly transform the teaching of Science and Mathematics in the state. Whereas previous policy – embodied in the State’s statement of “Essential Goals and Objectives” and in the Michigan Educational Assessment Program (MEAP) – had emphasized basic skills, the reformersendeavoured to join a National movement for more intellectually challenging standards. Spillane emphasizes that this program did not involve merely superficial modifications, but an ambitious and substantial shift in how Science and Mathematics education should be conceived.

These mathematics and science standards sought tremendous changes in Michigan classrooms. The successful implementation of these ideas about mathematics and science education would involve much more than adding to, subtracting from, or shuffling around mathematics or science topics. The standards required a reconceptualization of science and mathematics education. (p. 29)

Spillane summarizes this reconceptualization as a shift from an exclusive emphasis on procedural knowledge (i.e. “following predetermined steps to accurately compute correct answers”) to a curriculum that balances procedural and principled knowledge (i.e. conceptual understanding). Spillane expects this shift to be manifested in fundamental changes in the academic tasks given to students and in the way students and teachers discuss Mathematics and Science.

State policymakers faced multiple challenges, including severely limited resources, an unstable political environment and a fragmented governmental system. Some of these problems led to inconsistencies in the policy. For example, in a fascinating section, Spillane recounts how policymakers’ attempts to align the Mathematics standards and the MEAP were thwarted. State officials designed a testing instrument relying on multiple choice questions for one third of the examination, with the other two thirds consisting of free- or extended response questions, which were deemed to be better suited for assessing conceptual understanding. However, financial constraints and legal concerns ultimately led to a predominantly multiple choice examination, 90% of which measured procedural knowledge, according to one official’s estimate.

Successful implementation of the standards depended on what Michigan’s 545 school districts did with them. Spillane studied how a sample of nine diverse districts responded to the standards. He found that State policymaking was accompanied by a flurry of local policymaking in all nine districts, as district officials attended to the new standards and sought to align their own curricular guides, materials and professional development activities to the new State policy. However, in two thirds of the districts, modifications were for the most part superficial, primarily involving changes to topic coverage and sequencing. In only one third of the cases studied did district policy support the fundamental shifts intended by State policy.

What explains the differences between the high and low support districts? Spillane suggests that the differences stem from different understandings of what the standards entailed:

Most district policymakers understood the reform ideas in ways that preserved conventional views of mathematics and science as procedural knowledge, teaching as telling or showing, and learning as remembering. (p. 81)

These policymakers construed new policies as being essentially similar to previous ideas they held, focussed on surface level features of policies and attended primarily to the familiar (at the expense of the novel). Spillane found that officials working in districts with low support of the standards were far more likely to have surface understandings of the policy than their counterparts in the high support districts. He also inquires into the factors that influence these different understandings, highlighting human, social and material resources.

The next stage in this policy implementation process is to follow the standards from the districts into the schools. Spillane surveyed teachers in order to inquire into the sources of instructional advice that influence them (e.g. district policies, State standards), their beliefs about Mathematics and its instruction and the teaching practices in which they engage. Teachers reported that the district policy was their main source of advice, often mediating and amplifying messages from State and national sources. Results from the survey suggest also that teachers’ beliefs about Mathematics were more closely aligned with the reform ideas (e.g. “To be good in mathematics [it is very important] for students to be able to provide reasons to support their solutions.”) than with conventional beliefs (e.g. “To be good in mathematics [it is very important] for students to remember formulas and procedures.”). Regarding teachers’ reports about their own instructional practices results were more mixed, with some practices promoted by the reforms being adopted more widely than others. A regression analysis suggests that district policies are an important factor in teachers’ (reported) practice. In the districts with high support for the standards, “teacher familiarity with their district’s… curricular guide was a significant predictor of standards-oriented instruction” (p. 135).

Spillane is aware that teachers’ reports of practice do not necessarily reflect what actually happens in their classrooms. Thus, he and his colleagues randomly selected a sample of teachers from among the 10% who reported practices most closely aligned with the standards. Each of these teachers were observed and interviewed twice. Of the 25 primary teachers observed, Spillane judged only four to be balancing principled and procedural understanding as intended by the reform policy. He terms this “level I” implementation. In Level II implementation (10 classrooms), students engage with principled tasks, but classroom discourse is devoted to procedural issues. Level III implementation (11 classrooms) can be summarized as “new activities, old mathematics”: “while we observed tasks that involved problem solving and applying mathematics to real-world situations, these tasks focused almost exclusively on procedural knowledge and facts… represented mathematics as being chiefly, often exclusively, about computing right answers using predetermined formulas and procedures” (p. 148).

These results are sobering for anyone hoping to enact meaningful reform of instructional practice. Recalling that these teachers were selected from a subsample of respondents reporting highest adherence to the standards, it is reasonable to assume that a very small proportion (e.g. 16% of %10 = %1.6?) of teachers are implementing the standards as intended. On the other hand, Standards Deviation does give some room for hope: it shows that policy is not irrelevant to practice, and that the system has worked for some of the teachers. In the final sections of the book Spillane looks closely at the Level I implementers and their circumstances. He describes teacher sense-making of the standards as complicated and arduous. Among the factors that positively impinge upon this process are sense-making resources, opportunities for investigation and a school culture that enables and encourages teacher collaboration.

I highly recommend Standards Deviation to academics and professionals interested in school reform. Its subject matter is timely and important, and it adds important perspective to studies of policy implementation, both in terms of its cognitive focus on individual sense-making and with regard to the way it highlights local district policymaking. It is very well-written: the prose is straightforward and clear, the argument coherent, and personal profiles and vignettes at the beginning of each chapter bring the material alive. I would also recommend Standards Deviation to research students interested in a good example of an elegant combination of multi-level analysis, methodological flexibility and a coherent framework.

Finally, without intending to diminish that recommendation in any way, I want to offer two criticisms of Spillane’s argument and what I see as problematic assumptions upon which it is based.

The first assumption I wish to question is that there is one correct understanding of the policies advanced. Spillane is very clear in distinguishing between policymakers’ true intention – i.e. instruction reflecting a balance of principled and procedural knowledge – and users’ surface or mis- understandings of the policy – i.e. aspects relating to the organization of topics covered and/or selection of activities. This distinction seems problematic in light of the book’s discussion of the inconsistencies in State policy. Specifically and most strikingly, the MEAP and the “Essential Goals and Objectives” reflected two different instructional approaches. Similarly, districts communicated to schools conflicting messages. As Spillane notes in his concluding chapter, “policy might best be thought about as plural rather than singular” (p. 172).

However, Spillane does not discuss the implications of this plurality for his argument as a whole. If “the policy” is actually plural, and thus lends itself to multiple understandings – why cast any interpretation except that favored by Spillane as a misunderstanding? Perhaps district policymakers and teachers have understood the mixed messages being transmitted by the State and have chosen to adopt the version upon which they will be tested. Or perhaps they have understood the ambitious intentions behind the standards, but see them as unworkable. While I am personally sympathetic to the educational aims and values implicit in Spillane’s interpretation, it is unfortunate that he has denigrated others’ divergent interpretations by casting them as the result of a cognitive shortcoming. This approach may limit a more complete understanding of the problem.

The second problem I wish to raise concerns the assumption implicit throughout the book that teachers’ beliefs and understandings about instruction are key determinants of their practice. Spillane writes, for example,

[T]eachers who view mathematics exclusively in terms of procedural knowledge will differ in how they present mathematics to students compared with teachers who appreciate mathematics as involving principled knowledge. (p. 124)

While this assumption seems common-sensical, there is good reason to believe that the relationship between a teacher’s cognition and practice is not so straightforward. Rather, much of what happens in the classroom is the product of unconscious habits and routine interactional norms. Spillane’s discussion of level III implementers is suggestive of this dynamic. He documents how discourse in these teachers’ classrooms focused on getting the right answer instead of providing opportunities for exploring mathematical reasoning.

Teachers nonetheless seemed to recognize the importance of having students publicly explain and support their ideas… Yet we found scant evidence that these teachers encouraged students to explain or justify their mathematical thinking. They were aware that engaging students in conversations about mathematics was important, but acknowledged that nurturing these conversations was difficult. One elementary teacher remarked, “As a teacher, I find it really hard not to give them the answer.” Other teachers made similar comments. (p. 154).

If teaching activity is primarily governed by a teacher’s beliefs and understanding, why would the teacher interviewed find it “really hard not to give them the answer”? The answer, I believe, is that most actions in the classroom are a function of habit, not conscious decisions. They are a function of one’s identity, “as a teacher”. The teacher in this example experiences tension between what she thinks (i.e. the teacher shouldn’t always give students the answer) and the teaching role to which she has become accustomed (i.e. the bearer of truth and solver of problems). Moreover, teachers’ actions are not entirely their own. Rather, they are at least partially the product of interaction with students, who bring their own expectations about mathematics instruction to the classroom. Frustrating those expectations, at least in the short term, can create numerous other difficulties, which may partially explain the sketchy implementation Spillane documents.

In closing, I would like to emphasize that, notwithstanding these criticisms, Standards Deviation makes an important contribution to understanding the complicated yet critical problem of implementing meaningful and ambitious instructional change.

Note

1. AlbuquerqueJournal, January 10, 2002. (Available on-line at http://cagle.slate.msn.com/politicalcartoons/pccartoons/archives/trever.asp?Action=GetImage)

About the Reviewer

Adam Lefstein is a doctoral student in Educational Studies at King's College London. His research explores teacher enactment of the UK National Literacy Strategy. He has previously worked as a teacher, facilitator of teacher learning and director of a school reform program at the Branco Weiss Institute in Jerusalem.

 

Sunday, January 5, 2025

Anyon, Jean. (2005). Radical Possibilities: Public Policy, Urban Education, and a New Social Movement Reviewed by Gary L. Anderson

 
Education Review/Reseñas Educativas/Resenhas Educativas



Academia and Activism:
An Essay Review of Jean Anyon’s Radical Possibilities

Gary L. Anderson
New York University

Anyon, Jean. (2005). Radical Possibilities: Public Policy, Urban Education, and a New Social Movement. New York: Routledge.

240 pp.
$85.00 (Hardcover) ISBN: 0415950988
$22.95 (Paperback) ISBN: 0415950996

Abstract

This essay review provides an analysis and critique of Jean Anyon's new book, Radical Possibilities: Public Policy, Urban Education, and a New Social Movement. The analysis summarizes her argument, places her book in the context of her previous work and the current debates about school reform and policy analysis. Anyon attempts to link school reform to social reform and makes the case that unless school reformers connect to a new social movement with education at its center, educational researchers will end up colluding in a discourse that shields education reform from addressing growing economic and racial inequities.

Like many social activists, I gave up activism when I became an academic. Growing up in a working class family in rural Iowa, the military draft and the Vietnam war thrust me, along with many of my generation, into the cauldron of campus activism. I became active in Students for a Democratic Society (SDS) in college, and during the 1970s, when I was a teacher and administrator in New York City, I volunteered for a number of organizations including Amnesty International, Michael Harrington’s Democratic Socialist Organizing Committee, and several solidarity groups fighting dictatorships in Chile and Argentina. Even as a doctoral student, I worked with the Sanctuary Movement, helping and teaching English to political refugees from El Salvador. Then I entered academia, where I told myself that doing research and writing on more equitable policies and practices in schools was a form of social activism.

Like many fellow “tenured radicals,” I have watched the country drift to the political Right, intensifying a crisis of socio-economic and racial apartheid that schools can only reflect, but cannot impact in any truly significant way. We scholars of education may keep returning to George Counts’s classic book, Dare the Schools Build a New Social Order? for inspiration, but we know that Tyack and Cuban (1995) are correct when they argue that education reformers have colluded throughout recent history in “blaming schools for not solving problems beyond their reach. More important, the utopian tradition of social reform through schooling has often diverted attention from more costly, politically controversial, and difficult societal reforms” (p. 3).

Reading Jean Anyon’s book, Radical possibilities: Public policy, urban education, and a new social movement, brought these personal dilemmas to the fore as she describes her own origins as a daughter of radical parents and a veteran herself of the civil rights struggles of the 1960s. The book is a call to education scholars to broaden the scope of their work beyond school reform, lest they collude in becoming part of a social system that is increasingly reproducing greater and greater levels of socio-economic and racial inequality.

In Part I, Anyon provides extensive data to document that economic policies rather than any education related factors have produced vast increases in poverty and social inequality. In Chapter Three, she documents how U.S. taxation policies have shifted the tax burden from the wealthy to a shrinking middle class. In addition, corporations, which shouldered 40% of the federal tax burden in the 1940s, today pay a mere 9.2%. In Chapter Four she argues that if we really want to improve the lot of poor children, we need to give them the same access to economic resources that the middle class currently enjoys. This means redistributing wealth, not merely education opportunity. What Anyon calls for in Part I is greater balance between school reform and broader economic policy reform. While she insists school reform alone will not change the plight of low-income children and children of color, she also states clearly that “more equitable macroeconomic policies will not by themselves create high-quality urban schools.” (p. 3)

In Part II, Anyon focuses her analysis on metropolitan areas, since recent demographic studies show that “over 80% of Americans live in one of 300 metropolitan areas.” (p. 76) By studying the spacial stratification of people into municipalities of different income levels and racial concentrations, she can propose regional solutions that can open up greater economic and educational opportunities. By pointing out disparities in the location of jobs and the location of those who need them, she highlights the importance of access to affordable mass transit as a partial solution. She also elaborates in detail on an area largely missing in education discourse: housing policies that have determined current concentrations of low-income communities and communities of color. Anyon not only provides critique but also examples of successful cases of metropolitan policies that mitigate disparities, such as revenue sharing, community development corporations, living wage campaigns, and other forms of grassroots organizing,

In Part III, Anyon makes the case that throughout history the only way that wealth concentration in the U.S. has been stopped or reversed has been in periods of mass social movements. Because she is aware that such a movement does not currently exist, she dedicates one chapter to a historical discussion of how ordinary people become involved in social movements. In another, she provides the African American Civil rights Movement of the 1960s as a case study; but, more importantly, she shows that the civil rights movement did not appear ex nihilo. Its origins are to be found in smaller struggles by African Americans throughout the first half of the 20th century, a point well documented by historians such as Vanessa Siddle Walker and James Anderson. Anyon argues that since the 1980s community organizing in the U.S. has been slowly advancing through groups like the Association of Community Organizations for Reform Now (ACORN), the Industrial Areas Foundation (IAF), and other small community groups. She argues that education could be the focal point for bringing various small social movements together into a larger movement that can begin to have an impact on current economic and social policies that benefit privileged groups. Education, Anyon argues, “is an institution whose basic problems are caused by, and whose basic problems reveal, the other crises in cities: poverty, joblessness, and low-wages, and racial and class segregation.” (p. 177)

While this proposal may sound utopian, Anyon is worth taking seriously since she has been at the forefront of radical educational scholarship for over twenty years. For those unfamiliar with her earlier work, some background on the neo-Marxist debates of the late 1970s may help to explain her current stance in Radical Possibilities.

American research on schooling was profoundly changed in 1976 with the appearance of Bowles and Gintis’s book Schooling in Capitalist America. For the new Left, it was the first thorough neo-Marxist critique of the role of schooling in American society. Social reproduction and correspondence theories turned on its head the popular notion that public schools’ primary function was to provide greater opportunity. According to Bowles and Gintis, public schools in capitalist society necessarily became enmeshed in sorting out deserving students from undeserving students, thus colluding in the preservation and reproduction of the current social order.

However, as economists, Bowles and Gintis presented macro-level economic and historical data that did little to illuminate the day-to-day mechanisms through which this process of social reproduction took place. They were sometimes unfairly criticized for failing to look inside the “black box” of schooling for micro-level explanations of these macro-level processes. This task was left to qualitative sociologists and anthropologists of education. Drawing on correspondence theory, Jean Anyon was one of the first to use qualitative methods to peer into the black box of schooling to describe how the beliefs, skills, and attitudes that students learned in school “corresponded” to those that were required by a stratified work force. These articles, published in 1980 and 1981, were, and continue to be, widely cited as empirical evidence of how social stratification is reproduced in schools at the classroom level. British researchers at the Contemporary Center for Cultural Studies in Birmingham were also using qualitative methods to document what came to be known as ‘cultural production.” Paul Willis (1977) demonstrated how youth in schools were not merely “reproduced,” but rather participated in processes of social production through acts of human agency. The goal of these early studies was to work within the tensions of the macro-micro divide, and both Willis and Anyon were often critiqued by more mainstream ethnographers for giving the structural constraints too much agency over social actors.

Subsequent studies—some by Anyon herself—more explicitly incorporated issues of gender and race, demonstrating how race and gender were implicated in reproducing not only class stratification, but also patriarchy and institutionalized racism. As qualitative studies continued to explore the “black box” of schooling, many scholars moved away from a concern with social reproduction, and focused instead on individual social mobility. These studies brought individual (as opposed to collective) human agency to the fore; structural constraints on groups (working class, women, and persons of color) were increasingly pushed into the background. In some studies, “successful minorities” from “at risk” backgrounds were celebrated even though their success depended on isolating them from their peers and alienating them from their culture (Cordeiro and Carspecken, 1993)

More thoughtful studies identified many in-school processes that caused low-income, students of color to do poorly. These studies called for making the middle class rules of classroom life more explicit (Delpit, 1994), detracking schools by offering an enriched curriculum to more students (Mehan, Villanueva, Hubbard, Lintz, and Okamoto, 1996), examining institutional mechanisms and their impact on Latino school engagement, (Conchas, 2000), and attending to many more forces and phenomena than can be mentioned here. Some studies took a more ecological approach that linked student failure to such concepts as social capital (Stanton-Salazar, 2001), funds of knowledge (Gonzales, Moll, and Amanti, 2005), or parents’ cultural capital (Lareau, 1989). While these studies attempted to leverage greater access to social networks or bring knowledge of community learning styles into classrooms, they seldom explicitly addressed what kinds of economic opportunity existed for students even if one could succeed in providing more relevant and effective instruction.

I do not mean to be dismissive of such studies, nor to suggest that, for instance, unpacking institutional forms of racism in schools is less important than issues of political economy. In fact, a return to political economy, absent what we have learned from fine- grained ethnographic studies, would threaten to erase the gains made in understanding how race, gender, and homophobia are key elements in the maintenance of economic inequalities. Political philosophers have also argued that issues of distributive justice should not be given priority over injustices based on issues of difference, marginalization, symbolic violence, and powerlessness (Duggan, 2003; Frasier,1997; and Young, 1990).Furthermore, the notion that it is possible to change schools in ways that benefit all children and diminish the disparities that are created and reinforced from within is a valid and sensible way to proceed. While Neo-Marxist studies often left educators feeling blamed and impotent, studies that focused on upward mobility often stressed things that educators could influence daily. However, while such studies provided educators with a greater sense of efficacy, they often contained unstated assumptions about upward social mobility and tended to give less weight to social policies that were as powerful, if not more powerful, sources of social reproduction than schools themselves. Although schools internally may be more powerful producers and reproducers of class, race and gender, shrinking social services and increasing numbers of jobs that fail to pay a living wage leave fewer options for low-income youth other than underemployment, the military and incarceration. (Children’s Defense Fund, 2004)

Studies like Anyon’s of social reproduction and correspondence tended to remind educators of the pessimism of the Coleman report (Coleman, Campbell, Hobson, and McPartland, 1966), which was interpreted to mean that schools did not make a difference in students’ life opportunities. In fact, studies of social reproduction and correspondence seemed far worse. They seemed to be saying that in fact schools do make a difference: they reinforce rather than challenge current social inequalities. Studies that looked at in-school solutions, such as the effective schools research, were not only more practical, but were also less depressing. Education scholars have a low tolerance for studies that breed hopelessness.

Anyon’s Radical Possibilities takes up these contextual issues again, as did her previous book Ghetto Schooling, but without the hopelessness that studies of social reproduction tend to induce. Anyon does argue that in-school influences, though crucial, cannot make up for regressive social policies that impact schools and classrooms negatively. But she also argues that progressive internal school reforms and social movements leading to new social policies are both necessary, since neither can be successful without the other. Ghetto Schooling was an attempt to demonstrate how municipal and social policies affect urban school districts. While deploring the conditions of schools in Newark and refusing to blame a mostly African American leadership and teaching force, she demonstrated how the downward spiral of Newark’s schools began long before it became a largely African American community.

Anyon’s insistence in Ghetto Schooling on placing the social and political context of schooling front and center was important because the tendency to decontextualize classrooms and teaching had become official policy in school reform and accountability systems of the day. Without an understanding of the policies that sustain inequalities, teachers and their “low-expectations” become handy scapegoats for growing levels of social inequality in the U.S. While blaming teachers may be a step up from blaming poor students and their parents, it still misses the big picture. Anyon argues that any attempt to provide a broader social analysis that might include excessive corporate profits, regressive tax codes, or public policies that redistribute wealth upward, is met with accusations of not believing that poor children can learn or with anti-intellectual exhortations like “No excuses!” Right wing think tanks, like the Heritage Foundation and, in my view, some progressive education scholars, have bought into this ploy to make educators the scapegoats for growing social inequalities. (Carter, 2002; Skrla and Scheurich, 2001)

Reframing School Reform and Education Policy

Although Ghetto Schooling was an attempt to recontextualize school reform by providing historical and case study data, Radical Possibilities is an attempt to reframe school reform as primarily—though not solely—a broader political and economic problem. Anyon argues that school reform is doomed to failure unless it is driven or accompanied by a social movement that can address the lack of economic opportunities that exist for youth even if their achievement levels improve. She also suggests a new education policy paradigm that is far more interdisciplinary and closer to the needs of communities than that which currently prevails.

In a sense, Anyon’s latest book returns to the debate that swirled around Bowles and Gintis’s Schooling in Capitalist America, but this time she picks up a different thread in their work. What Bowles and Gintis documented were the social conflicts that led to policies that created a system of education that favored the already advantaged. By documenting this social conflict among groups, they highlighted the push and pull among social movements that resulted in victories and defeats. Instead of learning this history lesson, educators saw the problem as solely a problem of social structure vs. human agency.

Anyon spent twenty years studying New Jersey classrooms, schools, and school districts, but always with an eye to how class, gender and racial inequities are reproduced there. In this book, she returns human agency and dynamism to dominant elites and the social movements that oppose them. Whereas macroeconomic policies appear, if at all, in educational research as mysteriously produced constraints to educational change, Anyon insists on holding such policies and those who support them accountable for school failure, refusing to blame what the political Right derisively labels the “education establishment” or “the public education monopoly.”

In a chapter entitled “Federal policies maintain urban poverty” she writes, “I believe it is important for educators, public policy analysts and practitioners to take hold of the fact that economic policies yield widespread low-wage work even among an increasingly educated workforce.” (p. 29) Then as if responding to those who use a discourse of “no excuses” to divert attention from economic policies, she adds, “This phenomenon seriously strains the credibility of urban school reform as a solution to the problems of the urban poor.” (p. 29) In this and subsequent chapters, she documents how social and economic policies at local and national levels—not low student achievement—are responsible for urban poverty and growing disparities between haves and have-nots.

Throughout the book, Anyon attempts to demonstrate how most research on school reform puts the cart before the horse. A theme of Chapter Four, New Hope for Urban Students, is the simple notion that people are not poor because they have low academic achievement—a commonly taken-for-granted notion—but rather, they have low achievement because they are poor. School achievement improves as family resources increase. Anyon cites various studies that show the many ways that poverty is the result of macroeconomic policies, not low academic achievement; and many of these policies deprive communities and schools of much needed resources.

Anyon writes, “I believe that in the long run we would do better to increase the access of the urban poor to economic resources so they, too, can afford the time, money, and inclination to prepare their children for school success.”(p. 71) But unlike those who propose vouchers or access to private tutorial services, Anyon lays out in detail how a new social movement can provide the pressure required to bring about real social reform. She is relentless in insisting that one look to the history of social movements as the way to learn the lessons of how to bring about enduring social change. After documenting that levels of wealth concentration have approached those of the age of the Robber Barons of the 1920s, she declares, “The historical record also reveals that the only periods during which the concentration of wealth has been halted or reversed are years following sustained political contestation – i.e. mass social movements.” (p. 49) But unlike such exhortations in the 1970s, and thanks to feminist and critical race theory, we now understand that unless social movements address inequities of race and gender, not everyone benefits equally from such movements. (Barlow, 2003) Such insights are built into her analysis throughout.

Much of the data Anyon provides on regressive taxation policies, getting central city residents to jobs in the suburbs (or binging jobs back to central cities), housing reform, and the like are not exactly new to scholars who work in the areas of public policy and urban studies. What is new is how little educational researchers know or seem to care about such issues, and the extent to which they seem to think that “closing the achievement gap,” while important as a goal in itself, will somehow miraculously solve these problems. The narrow disciplinarity of educational research keeps scholars from connecting the dots in order to bring about genuine social change.

This book will help initiate a much needed conversation about the narrowness of current school reform thinking and policy analysis. Nevertheless, I do have several criticisms of Anyon’s book. Actually, they are less criticisms than areas that I wish she had developed further. Though it may be unfair to expect the book to accomplish more than document the need for a new policy paradigm in education, I will highlight some issues that the book raises, but does not address in detail.

First, while Anyon describes successful progressive social movements, particularly the U.S. civil rights movement, she ignores the most important social movement of the present historical period, which is a grassroots conservative movement that has risen from the ashes of Goldwater’s disastrous electoral defeat in 1964. The successful mobilizing techniques of this movement require close analysis by progressives.

Second, as a plea to broaden our notions of policy and school reform, a primary audience of the book seems to be university faculty (as well as educators generally and community organizers). But the book fails to discuss in any depth the institutional constraints that universities represent for participation in social movements. Anyon suggests that university faculty can provide resources for social movements, and this may be the case; but, at least in the U.S., universities have tended to be more of a domesticating influence.

Finally, and this is closely related to the previous issue, it is not at all clear what the new roles of university based education professors and researchers would be in this new social movement with education at its center. Does research still have a role, and if so what would that research look like? In university systems built on traditions of tenure, promotion, and “objective” research, how do we ally with social movements, while retaining legitimacy in conservative academic institutions, and is that even feasible (or desirable)? I will discuss each of these points in more detail below.

Social Movements and the New Political Spectacle

While I was impressed with Anyon’s reframing of school reform and education policy from a technical problem to a political one, her use of the civil rights movement as a model for social organizing and her call for building on current grassroots movements fail to take into account new realities of an information society. Television helped to legitimate the civil rights movement by showing snarling dogs attacking young black protesters in Birmingham, Alabama; and it was Nixon’s televised five o’clock shadow that some say lost him the 1960 Presidential election. However, ruling elites have learned to manipulate the media in far more effective ways today than in the 1950s and 1960s. While in Chapter Nine, Anyon provides a primer for educators on how to build a new social movement, largely absent from her analysis are the role of the media and the successful strategies the political Right has used to advance its interests. Here I am not referring so much to the hardball tactics of a Karl Rove, as to the network of ideological apparatuses the right has set up, such as think tanks, talk radio, websites, and the like.

One might reasonably ask whether we should emulate the tactics of the political Right? The late Audre Lorde cautioned, “The master’s tools will never dismantle the master’s house.” To attempt to do so carries the risk of becoming part of the system one wants to change. There are growing signs that it may be too late anyway, since the media airwaves—a principal master’s tool that should belong to a sovereign people—are largely under corporate control (McChesney, 2004). As I write this, Congress is threatening massive cuts in funding for public broadcasting, one of the few remaining non-commercial spaces that reach a national audience.

On the other hand, unless education activists learn from the Right’s impressive use of talk radio, think tanks, and appropriation of traditional values, they will have a hard time competing successfully in today’s political environment. Mainstream education reform is led by both political parties—both promoting neoliberal economic policies and both closely allied with corporate interests. As Berliner and Biddle (1995) and Smith, Miller-Kahn, Heinecke, and Jarvis (2003) documented, both parties have constructed textbook cases of political spectacle to promote their interests. Political spectacle manufactures a crisis, displaces targets, evokes enemies, renames problems, feigns neutrality, reduces citizens to passive spectators, and ultimately manufactures the consent of the governed. (Edelman, 1988).

Furthermore, as Lakoff and Dean (2004) have discussed, progressives fail to understand basic cognitive and linguistic principles that underlie the Right’s success. Most of us respond not to rational argumentation, but rather to how a problem is framed. Those who win elections are not those who amass the most data or the better arguments, but rather those who most successfully frame problems in ways—often metaphorical—that average citizens can relate to. (e.g. drawing on family metaphors, such as, the need to protect the family, preference for the strict father over the permissive mother, etc.).

Radical Possibilities has two key strengths. Anyon documents her assertions in copious detail, and she also seems to understand Lakoff’s notion of reframing issues as she successfully reframes the problem of school reform for educators from merely a technical issue to be solved at the school level (e.g., class size reduction, smaller schools, detracking, accountability systems, and the like) to also a larger political issue requiring a social movement. The book is full of textual strategies that displace the victims of social policies from blame and reposition the policies themselves and those who support them as the problem. However, these strategies of reframing must be made explicit and consciously employed by progressives on a large scale if the ability of the Right to frame social problems through metaphors of patriarchal family values and free market populism is to be countered. Currently, the brilliant framing and reframing abilities of Neoliberals and Neoconservatives go largely unopposed.

Neoliberals and Neoconservatives have successfully framed social justice advocates as the enemy and, except for African Americans, most poor and working class Americans are voting against their own material interests. Ironically, as Frank (2000) points out, these disenfranchised groups do not see corporate CEOs or millionaire politicians as the problem, but rather the enemy is us—the education establishment and intellectuals—particularly those of the Left. According to Frank, sometime around 1968, the terms of social conflict shifted:

It was now a conflict in which the patriotic, blue collar “silent majority” (along with their employers) faced off against a new elite, the “liberal establishment” and its spoiled, flag-burning children. This new ruling class—a motley assembly of liberal journalists, liberal academics, liberal foundation employees, liberal politicians, and the shadowy powers of Hollywood—earned the people’s wrath not by exploiting workers or ripping off family farmers, but by showing contemptuous disregard for the wisdom and values of average Americans. (p. 26)
Thus, according to Frank (2000), in this new hierarchy, “normal Americans” were at the bottom as before, but now instead of the wealthy and the owners at the top, the “establishment” consisted of liberals from all walks of life along with minorities, criminals, and homosexuals. While Anyon sees the seeds of social movements in urban settings, largely in communities of color, the existence of a large, Neoconservative white working class cannot be ignored. Some progressive academics—themselves in relatively privileged university positions—exacerbate this situation by focusing on “white privilege” without making distinctions between truly privileged whites and the majority of poor and working class whites who are potential allies.

Anyon is likely not unaware of these tendencies and she may have intentionally chosen to place more emphasis on local, community-based forms of organizing. She would perhaps not object to using the media, think tanks and other strategies; but she makes it clear that the only chance of long-term success is for reforms to be rooted in organized communities prepared to defend them. She documents several contemporary movements, including ACORN and IAF that have successfully organized at local and national levels. I will leave Anyon the last word on this point:

Even though masses of people across the U.S. demonstrated against invading Iraq in 2003, and many activists fought the “battle of Seattle” in 2000, these campaigns were not part of sustained community movements with organized constituencies; and they will not be, unless time and effort are spent to build bases in towns and cities around the country. Community organizing is a strategy that must remain central to any attempt to build a social movement (p. 171)
Universities and Social Movements

While universities are today characterized by the Right as a hotbed of radical thought, they have more often had a domesticating effect on social movements. A textbook case is that of bilingual education. In the Latino community, bilingual education was a product of class, race, and gender-based social struggle, principally through the farm worker struggles led by Cesar Chavez and Dolores Huerta and Chicano and Puerto Rican movements for economic and racial justice. Bilingual education, however, sought legitimacy in universities by ceasing to be a social movement and instead becoming essentially a subfield of applied linguistics. While the field opened up many jobs for Latinos in schools and universities, it lost much of its potential as a social movement and in many cases became estranged from the very poor and working class communities that had been its core. (See Grinberg and Saavedra, 2000, for a more in depth discussion).

Not only do universities tend to turn social movements into academic disciplines, most university faculty have full time jobs doing research, teaching, and professional service. Does Anyon suggest reengineering the faculty role to include the kinds of activity she recommends, or is building social movements a “night job”? Some colleges of education have loosened their definition of what counts as research, teaching, and service, as expectations that faculty will become more involved in schools increase. However, most models of school involvement of education faculty are limited to professional development schools or liaisons aimed at school improvement, not community organizing.

Furthermore, faculty norms of balance and objectivity, while not evoked in terms of massive corporate or military involvement in universities, are often evoked against progressive faculty. Right wing activist groups like the National Association of Scholars monitor universities for political bias, recently reporting that far more social science professors vote Democrat than Republican, while conveniently leaving out business schools and other departments. In such a climate, it is difficult, especially for non-tenured faculty, to come out of the closet as social activists. Perhaps a new reframing is required that casts corporate and military involvement in universities as a form of bias or activism aimed at privatizing and militarizing universities. Anyon tends to gloss over the institutional barriers to linking university faculty to local social movements.

Research and Activism

Many critical education scholars are beginning to question whether their research is “making a difference.” It is difficult to read Anyon’s book without asking how educational researchers can help build social movements. Is this a skill we need to be teaching administrators and teachers? Should we abandon our research agendas and turn to organizing instead, or is our scholarship our contribution? Anyon draws heavily on both quantitative and qualitative research studies to defend her assertions, which suggests that she finds traditional research a useful tool. She also asserts in her introduction that, “This book is another attempt to intervene against injustice,” (p. 2) suggesting that scholarship is a form of activism. Yet there is little explicit discussion of what kinds of research are useful under what circumstances. She dedicates one paragraph to this issue:

In this new paradigm of educational policy, the political potential of pedagogy and curriculum would be realized. Critical pedagogy would take to the streets, offices, and courtrooms where social justice struggles play out. Curriculum could be built toward and from these experiences. Vocational offerings in high school would link to living wage campaigns and employers who support them. And educational research would not be judged by its ostensible scientific objectivity, but at least in part by its ability to spark political consciousness and change—its ‘catalytic validity’ (Lather, 1991).
Sign me up, but I need to know more about what these new pedagogies and catalytic scholarship would look like and how our jobs as faculty would need to be retooled to bring it off. These are all important questions, and I hope Anyon takes them up in her next book.

On the other hand, the relationship between research and political activism has by now been rather widely debated in educational research in the context of critical ethnography, feminist research, participatory action research, critical race theory, and queer theory. (Anderson, 1989; Gitlin, 1994; Herr and Anderson, 2005: Parker, Deyhle, and Villenas, 1999; Tolman and Bryden-Miller, 2001) Participatory Action Research is the most compatible methodology for an activist research stance, but it lacks credibility in universities. A first step toward moving academics into alliances with communities would be to legitimize the very type of research that would provide both a collaborative approach and the kind of action-oriented, catalytic validity that Anyon seeks. (See Herr and Anderson, 2005)

Institutional ethnography, inspired by feminist standpoint theory and Dorothy Smith’s method of studying what she calls “ruling relations” is another promising development. (See Andre-Bechley, 2004; DeVault and McCoy, 2002;) Such an approach allows researchers to understand how social problems are never merely local, a major tenet of activist research at the community level.

There is a growing body of research that has documented social movements linked to educational reform in the U.S. Shirley (1997) has documented the struggles of the IAF in Texas and the Alliance Schools that resulted from their struggle. Research for Action, a Philadelphia-based group has documented the Cross City Campaign. (Gold, Simon, and Brown, 2002) New York University’s Institute for Education and Social Policy has documented links between community organizing and public schools in New York. (Mediratta, Lewis, and Fruchter, 2002) And Scott (2004) has documented the role of ACORN in opposing school privatization in New York City. While Anyon makes reference to this research on social movements, a more in-depth discussion of the various ways research and activism might inform each other would have been useful.

Conclusion

At the 2005 Annual Meeting of American Educational Research Association in Montreal, Jeannie Oakes reflected on her own evolution as an activist and researcher. Early in her academic career, she co-authored a book on education from a critical theory perspective that was read by only a handful of scholars. (Oakes and Sirotnik, 1986) Frustrated by her lack of impact, she started on a more empirical program to document inequalities in schools on the assumption that if policymakers and the general public knew about such unjust practices as academic tracking, they would surely organize to change them. She was disappointed to discover that, in spite of their progressive rhetoric, middle-class parents and the policymakers who represent them wanted no such thing. It is my sense that activist scholars are increasingly finding themselves at this crossroads, and are wondering in which direction to turn their attention and their skills.

It is perhaps instructive to note that some former social activists have turned to working on more in-school solutions. Robert Moses, for example, engaged in direct action and organizing during the civil rights movement. I doubt that he would consider his work with the Algebra Project, which aims at helping students get over a major curricular hurdle, less important than his previous activism in the streets.

In reviewing Anyon’s book, I have, perhaps, unwittingly pitted school reform against social reform. In reality, what Anyon is proposing is social reform with school reform at its core, rather than school reform detached from a broader policy analysis and growing grassroots movements. Clearly, abandoning school reform and taking to the streets would divert much needed resources from building a greater understanding of how class, race, and gender inequities are reinforced rather than interrupted by schooling. Nevertheless, university and school professionals represent a formidable political block if allied to low- income, grassroots movements, made up largely of people of color. This is the conversation that has been simmering in the background among academics who are current or former activists, and Anyon has placed it squarely on the table. Anyon’s work has always been viewed as controversial by many, and this book will be no exception. Undoubtedly, academics will have a lively debate about the issues she raises. One hopes that debate will lead to an expansion of the current policy paradigm and a closer link between school reform and social reform.

References

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  • Andre-Becheley, L. (2004). Could it be otherwise?: Parents and the inequalities of public school choice. New York: Routledge.
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  • Barlow, A. (2003). Between fear and hope: Globalization and race in the United States. Lanham, MA: Rowman and Littlefield.
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  • Bowles, S. and Ginits, H. (1976). Schooling in Capitalist America: Educational reform and the contradictions of economic life. New York: Basic Books.
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  • Gitlin, A. (Ed.). (1994). Power and method: Political activism and educational research. New York: Routledge.
  • Gold, E. & Simon, E., with Brown, C. (2002). Successful Community Organizing for School Reform. Chicago: The Cross City Campaign for Urban School Reform.
  • Gonzalez, N. Moll, L. Amanti, C. (Eds.) (2005). Funds of knowledge: Theorizing practices in households and classrooms. Mahwah, N.J.: Lawrence Erlbaum.
  • Grinberg, J. and Saavedra, E. (2000). The constitution of bilingual/ESL education as a disciplinary practice: Genealogical explorations. Review of Educational Research, 70(4), 419-441.
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  • Mediratta, K. Lewis, A.C., and Fruchter, N. (2002). Organizing for school reform: How communities are finding their voices and reclaiming their public schools. New York: Institute for Education and Social Policy.
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About the Author
Gary L. Anderson is a professor in the Steinhardt School of Education, New York University. His research interests include Educational Leadership, Critical Ethnography, Action Research, and the impact of Neo-liberalism on schools. Recent books include Performance Theories and Education: Power, Pedagogy, and the Politics of Identity (co-edited with Bryant Alexander and Bernardo Gallegos, Lawrence Erlbaum, 2005), and The Action Research Dissertation: A Guide for Students and Faculty (co-authored with Kathryn Herr, SAGE, 2005).

Education Review/Reseñas Educativas/Resenhas Educativas is supported by the Mary Lou Fulton Teachers College, Arizona State University. Copyright is retained by the first or sole author, who grants right of first publication to the Education Review. Readers are free to copy, display, and distribute this article, as long as the work is attributed to the author(s) and Education Review, it is distributed for non-commercial purposes only, and no alteration or transformation is made in the work. More details of this Creative Commons license are available at http://creativecommons.org/licenses/by-nc-sa/3.0/. All other uses must be approved by the author(s) or Education Review. Education Review is published by the Scholarly Communications Group of the Mary Lou Fulton Teachers College, Arizona State University. Disclaimer: The views or opinions presented in book reviews are solely those of the author(s) and do not necessarily represent those of Education Review. Connect with Education Review on Facebook (https://www.facebook.com/pages/Education-Review/178358222192644) and on Twitter @EducReview

 

Wednesday, January 1, 2025

Pitkänen, Pirkko, Devorah Kalekin-Fishman, and Gajendra K. Verma (Eds.). (2002). Education and Immigration: Settlement Policies and Current Challenges.

 

Pitkänen, Pirkko, Devorah Kalekin-Fishman, and Gajendra K. Verma (Eds.). (2002). Education and Immigration: Settlement Policies and Current Challenges. London & New York: RoutledgeFalmer.

pp. xi + 196
90 (Cloth) ISBN 0-415-27821-X

Reviewed by Karen Monkman
Florida State University

December 27, 2003

Pitkänen, Kalekin-Fishman, and Verma have complied an interesting selection of chapters that describe past and present immigration policy and implications for education in a variety of countries: Britain, Finland, France, Federal Republic of Germany, Greece, and Israel. The chapters were written as the outcome of a research project funded by the European Commission and carried out in 1998-2000. Much of this work revolves around a basic question relating to "the degree to which the newcomers are required to adapt to the host society" (p. 3). Each chapter focuses on how immigration policy and education policy addresses issues of social integration. Taken together, the immigration policies and population characteristics in these countries reveal many similarities and some significant differences. In addition, in examining immigration policy and education in other countries, readers who are familiar with U.S. (or other) situations will gain a broader contextual perspective within which to comparatively understand their own locale.

The book begins with a short introductory chapter by the editors in which they discuss the elusive dynamic of "integration." The central guiding theme of the book—and of their discussion of integration—is whether settlement policies imply a monolithic view of society that is assimilationist, or a pluralistic vision that creates opportunities to maintain primary cultural characteristics while participating as equals in the majority society. The authors then make the point that policies are conditioned by histories and by national concerns about social cohesion; the six countries are introduced in relation to these issues. Educational concerns are then presented as being secondary to immigrants' immediate needs of housing and work.

Each of the six country case study chapters is similarly structured in that each discusses historical and political contextual issues, immigration policies, and educational responses. Within these broad categories there is variation as to the themes presented and the depth at which the authors address them.

In the chapter on Britain (by Gajendra K. Verma and Douglas Darby), the authors present in some detail the particular circumstances of Britain's main immigrant/minority groups: Indians, Punjabi Sikhs, East African Asians, Pakistanis, Bangladeshis, Chinese, and West Indians. Britain's colonizing past was briefly mentioned, including the right of those born in a British colony to move to Britain and live there. In more detail, they review the immigration and educational policies since WWII, including legislated policy, trends in school practice (e.g., "the beginnings of multicultural education"), and teacher education. A table nicely lays out the trends over time of immigration-related legislation, how equality and cultural diversity are recognized (or not) in that policy, consequences for education, and school practices and concerns.

The unique situation in Finland reveals very little experience with immigration and addressing the educational needs of immigrant/minority students and their families. Finland has a relatively small and recently-arrived immigrant/minority population (less than 100,000). The authors (Kaija Matinheikki-Kokko and Pirkko Pitkänen) explain, for example, that there are "no ethnic enclaves" (p. 53) in Finland to help condition adaptation processes. With only 300 refugees arriving in the 1980s, settlement policy was individualized. Then, in the early 1990s with increased numbers of immigrants, the focus was on "normalisation and mainstreaming;" the goal was on "changing immigrants" (p. 57). Policy was then re-directed to a cultural enrichment model in the mid-1990s, recognizing more multicultural perspectives and the necessity of the social institutions to adapt. After 1997 policy has turned back to an individual focus: "local authorities design individual plans" but this time they emphasize "individual differences within certain immigrant groups rather than a variation between different cultural groups" (p. 60). Immigration policies, of course, are directed at families—primarily at adults. How schools reflect or respond to these trends over time are then outlined in this chapter. Currently three principles are important in Finland: equality in education, functional bilingualism, and multiculturalism.

Like Britain, France's history as a colonizing nation has impacted its immigration policy, but with some interesting differences. The authors (Didier LeSaout and Aïssa Kadri) frame their discussion around the goal of "equality in regard to culture and education on the basis of a positive morality of reason…" (p. 74). This, they argue, leads to a focus on integration which dissolves individual differences and affirms unity (p. 75), where relatively little is done in schools (or elsewhere) to address mother tongue language, primary cultural orientations, or transition to becoming French culturally. "Since the 1980s, this model of integration … has ceased to function efficiently; state schools appear now to be the focus points of national processes of defeat for certain social groups, and there is endemic violence. Education is in crisis" (pp. 75-76). At the present time, the teaching of the language and culture of immigrant groups totals three hours per week "either during the normal school days or outside them" and by teachers who "are representative of the pupils' home states, and are paid by those governments" (pp. 90-91). The situation of Muslims in France is discussed: there are no Muslim schools although there are other types of private schools, and there are tensions between France's interests in integration and "Islam['s] reject[ion of] integration" (p. 76). The chapter closes with a description of "the foulard affair" (p. 92-93) which reveals a political controversy relating to the schools' prohibition of Muslim girls wearing veils to school. Although the "role of Islam in France is publicly recognized, … practicing Islam must not cause situations where one acts in other than the generally approved ways" (p. 93).

Germany's situation is described as a challenge toward the creation of a modern citizenship in need of new immigration policy but fraught with social dynamics such as hostility to foreigners, right-wing extremism, and segregation. Education policy is decentralized so this chapter acknowledges that it cannot report comprehensively; there is no common strategy at the federal level. Historically, however, there are some common themes. The authors (Ulrike Behrens, Sabine Tost, and Reinhold S. Jäger) report that immigrant populations were all but ignored between the mid-1950s and 1973. Beginning in 1973 the focus was on learning German as a second language and assimilation; policy reflected a deficit model of social integration and education. In the 1970s there was a dual focus on both integrating immigrant populations and on encouraging them to return home. In this era, focus on mother tongue languages was intended to enable emigration rather than the later intentions related to acknowledging one's cultural heritage. Now, however, the authors report more attention to both mother tongue language development and learning German, and to an infused cross-cultural education for all students—immigrant and native—in Germany. At the same time, however, mainstreaming children as soon as possible is the goal. Since September 11, 2001, more attention in the public discourse has focused on tightening immigration policy. The authors also analyzed teacher education program documents and syllabi of courses in teacher education programs and in schools. They found minimal mention of multicultural issues in the teacher education documents, and only "hints at strategies that may represent tendencies for the future" (p. 121).

With regard to Greece, more attention has been paid to Greeks abroad than to foreigners in Greece (pp. 138-39). Widespread immigration to Greece is recent, mostly in the 1990s, so little research has been done on this population. Over one million people are seeking political asylum, and it is estimated that nine percent of the population in Greece holds foreign passports; immigrants have come from 104 countries. About 1.5 percent of the population are considered to be "minority." To address an indifference toward minority populations in primary and secondary schools, teachers can earn a 50 percent salary increase to teach in "minority" schools, but they must be bilingual and few teachers in Greece have developed language skills in the languages spoken by this population. The author (Nikos Gousgounis) of this chapter feels that the educational system should "turn from its 'introverted' orientation to a more 'extraverted' one" (p. 141). Creating a European citizen is called for, and this "aims at the maintenance of cultural and linguistic polymorphism through the projection of a 'common cultural heritage'" (p. 141). There are also pressures to adopt a model of "coexistence" of multiple cultures.

Israel, although not part of Europe as are the other countries in this book, is included as a point of contrast and because of its unique rights of immigration and citizenship. The authors (Devorah Eden and Devorah Kalekin-Fishman) explain that state ideology is both Jewish and democratic, representing both particularistic and universalist interests which are sometimes at odds. Israel is an immigrant society, and perceives itself to be "under siege;" much attention therefore is paid to the nation-building function of immigration policy and education policy. Treatment of immigrant groups varies, however. Some groups are channeled to "absorption centers" where their social integration is highly controlled through language and vocational courses and the like. Other groups are provided with financial assistance for re-settlement and they are able more quickly to acquire housing and participate in community life. In addition to immigrant groups, Arab minority groups and foreign workers are treated separately in policy. Jewish (immigrant) groups are expected to become fully absorbed into Israeli society; assimilation was the pattern before the 1970s and cultural pluralism has been more common since then. Arab groups are expected to share Israeli values and be loyal, but live separately, thus co-existing. Foreign workers are caught in an ambiguous status with no explicit policy regarding their social integration but the government simultaneously excludes (deports them or deems them illegal) them while continuing to issue new visas. Foreign workers' children (only about 1000) are not entitled to social services except for the right to attend school, but without any special services. Schools for Arab populations are structurally separate, use a different curriculum, and receive differential resource allocations. Curiously, no mention is made in this chapter of the new Palestinian text books instituted in 2000 and the ensuing controversies about them. Education policy aims primarily at helping to integrate immigrant populations. Schools are now expected to promote social integration of immigrants in three ways: (1) to teach the Israeli mainstream about the cultures of the immigrants, (2) to encourage students to help immigrant students to become integrated, and (3) to educate the immigrants about life in Israel (p. 163).

The book ends with a concluding chapter that discusses similarities, namely, that all of these countries are "dealing with what are perceived to be the 'problems' arising from minority groups and immigrants" (p. 172). Push and pull factors are primarily economic and political in nature, and most of the immigration into Europe is from developing countries or Eastern Europe. While all countries are concerned about the integration of newcomers, some countries (such as Israel) are more interested in assimilation than some of the others (e.g., Finland) which are more accepting of a pluralistic society. In this chapter the authors (the book editors) offer a comparison of immigration and educational policies across countries, and offer recommendations for policy.

Settlement policies are sometimes quite different, from Finland's individual integration plans, to other countries all but ignoring integration (at least of certain groups). Israel has three very distinct strategies with three population groups: Jewish immigrants, Arab indigenous minorities, and foreign workers. The situation in Germany is in flux and, because it is highly decentralized, it is more varied than some of the other countries. Britain and France's policies reflect their historical role of colonizers, but their priorities of pluralist identity recognition are quite different.

One recurrent theme revealed different interpretations in different countries as to who is counted as an immigrant and who is not counted as an immigrant. Distinguishing returnees from immigrants, foreigners from immigrants, and refugees (of various types) from immigrants is not a simple matter. Similarly the relationship between the definitions of immigrant and minority are not always clear and can be problematic. Indeed, the determination of who is "Greek" or "German" seems to draw more on ethnic heritage than the other countries seem to acknowledge; with such deep-seated notions, access to citizenship for newcomers is more restricted. Categorizations vary somewhat from country to country due to issues such as definitions of citizenship, colonizer-colonized relationships, and population patterns in eastern Europe. Only Israel aligns immigration with religion: it is only possible to immigrate and gain citizenship if one is Jewish.

A study such as this is impressive and, in some ways, raises more questions than it answers. Following are several issues that could be pursued in subsequent research of this type, and other issues representing existing avenues of research that would expand on what is already discussed in this book.

One such theme is to look more specifically at the experiences of the families and students around issues of integration, and link the micro perspectives with the macro analysis. This approach would enable us to more closely analyze just what is meant by integration. There are likely to be a variety of patterns beyond the processes of assimilation, pluralistic arrangements where multiculturalism is accepted, or where integration is discouraged. Immigration is not always a linear process leading to permanent settlement but can be characterized by return or circular migration, which result in different adaptations patterns (Massey et al., 1987). The development of bi-cultural forms of integration or transnational forms of identity are beginning to emerge in the immigration literature (see Basch, Schiller & Szanton Blanc, 1994; Kearney, 1995; Rouse, 1992; for example). With theoretical orientations such as these, concepts like assimilation and integration are problematized and can help us to understand more of the complexities inherent in migration and education processes. Of course, in studies of official policy, these complexities are often not acknowledged.

The relationship between the categories of "immigrant" and "minority" further complicates our analysis, but is necessary in many societies in order to understand processes of integration. In countries like the U.S. immigrants sometimes become minority groups in subsequent generations, and this is complicated when immigration focuses on the second generation (Portes, 1996). Definitions become fuzzy: who is an immigrant in the sense of who physically re-locates from one country to another is quite different than looking at migration processes as long-term and sometimes implicating subsequent generations. As always, defining terms clearly is important. When does an immigrant become a minority? When are immigrants also considered minorities? In Israel, the distinction seems to be quite clear, as it is based on religion and immigrants are a distinct group from the indigenous Arab minorities. In countries like the U.S., it is sometimes more complicated, such as with people of Mexican origin, or immigrants from Southeast Asian countries, to name just a few situations. Also implicated in these dynamics is the relationship between bases of discrimination and assimilation possibilities. Where discrimination exists, certain groups are prevented from assimilating (Gordon, 1964).

There is a gap between the policy research on immigration and education, and the research done at the school level or community level as to how immigration and education are actually "lived." For example, most prominently discussed in this book regarding school practices were issues of first language use in the schools, the maintenance of (teaching of) the first language, second language acquisition, learning the culture of the host country, and maintaining one's cultural heritage. These themes were presented as syntheses of national practices, and so, of necessity, lost much of the detailed description of the particulars and of other school dynamics related to immigration. For example, few detailed examples were given of curriculum content, classroom activities, or assessment measures, or even of policy language in official documents. Consideration of the policy research in this book alongside the abundance of scholarship on multicultural/intercultural education, at least in the U.K. and the U.S., would help to reveal more specificity about what types of multicultural/intercultural education are actually practiced in relation to policy. Applying a typology such as Sleeter & Grant's (1994) would provide a more detailed analysis of what forms of integration are promoted through educational practice. In Sleeter & Grant's research on models of multicultural education in the U.S. they found five types which they name teaching the exceptional and culturally different, human relations, single-group studies, multicultural education, education that is multicultural and social reconstructionist. Only the last type aims to transform society to reduce social inequities and injustice which, of course, condition integration processes.

The primary area of weakness in this book concerns the reporting of data: the data sources that the authors relied on are not always evident, and at time presentation of data was sparce. Probable sources include primary field research, surveys, or policy analysis; reviews of existing research; data derived from previous experience working in schools with immigrant populations; data from school districts. Often sources were not stated and data was not clearly presented. The chapter on Finland, however, is stronger in this regard in that these authors reference and discuss more actual research studies; the reader gains a sense of what the authors' perceptions and assertions are based on, and also of what is still unknown in this context where research is limited and very recent. For several of the countries (Finland and Greece in particular) immigration has been so recent that there is little existing research to draw on. Other chapters vary considerably, both across chapters and within chapters in the various sections. Whether this funded research project included primary data collection, I'm not sure.

Overall, this book contributes meaningfully to a variety of fields including comparative education, foundations of education, policy studies, and others, in that it encourages us to consider more fully the social and political dynamics beyond the schools and families, and look to governmental policies relating to the populations our schools serve, to the reception immigrants receive in their new communities of residence, and to the realities that school personnel have constructed about the students they teach.

References

Basch, Linda, Nina Glick Schiller, and Cristina Szanton Blanc. 1994. Nations Unbound: Transnational Projects, Postcolonial Predicaments and Deterritorialized Nation-States. Luxembourg: Gordon and Breach.

Gordon, Milton M. 1964. Assimilation in American Life: The Role of Race, Religion, and National Origins. New York: Oxford University Press.

Kearney, Michael. 1995. The Local and the Global: The Anthropology of Globalization and Transnationalism. Annual Review of Anthropology, vol. 24, pp. 547-565.

Massey, Douglas, Rafael Alarcón, Jorge Durand, and Humberto González. 1987. Return to Aztlan. The Social Process of International Migration from Western Mexico. Berkeley & Los Angeles: University of California Press.

Portes, Alejandro (ed.). 1996. The New Second Generation. New York: Russell Sage Foundation.

Rouse, Roger. 1992. Making Sense of Settlement: Class Transformation, Cultural Struggle, and Transnationalism among Mexican Migrants in the United States. In Nina Glick Schiller, Linda Basch, and Cristina Blanc-Szanton, eds.,Towards a Transnational Perspective on Migration: Race, Class, Ethnicity, and Nationalism Reconsidered. Vol. 645, Annals of the New York Academy of Sciences. New York: New York Academy of Sciences.

Sleeter, Christine E., and Carl A. Grant. 1994. Making Choices for Multicultural Education: Five Approaches to Race, Class, and Gender. 2nd edition. Englewood Cliffs, NJ: Merrill, Prentice Hall.

About the Reviewer

Karen Monkman is an assistant professor in the International-Intercultural Development Education program at Florida State University. Her research interests include immigration and education, diversity, the interface of policy and practice, and comparative and international education.

 

Evans, Kate. (2002). Negotiating the Self: Identity, Sexuality, and Emotion in Learning to Teach.

 

Evans, Kate. (2002). Negotiating the Self: Identity, Sexuality, and Emotion in Learning to Teach. New York, NY: RoutledgeFalmer.

Pp. xv + 202
$23.95 (paper)     ISBN 0-415-93255-6

Reviewed by Karen Kusiak
Colby College

December 20, 2003

In November 2003, the Massachusetts Supreme Judicial Court determined that the Commonwealth’s Constitution protected the right of same sex couples to marry. The Court’s majority opinion, written by Chief Justice Margaret H. Marshall, includes an explicit statement supporting basic human rights: “The Massachusetts Constitution affirms the dignity and equality of all individuals. It forbids the creation of second-class citizens.” (Note 1) In the aftermath of this recent decision, some conservative politicians, lawmakers, and religious leaders are condemning the ruling and calling for a national Constitutional amendment that would ban same sex marriages. Meanwhile, lesbian and gay couples, along with their heterosexual and queer-identified allies, rejoice at the decision (Belluck, 2003). Both the public controversy circulating about the Massachusetts decision as well as Justice Marshall’s understanding of the subordinate positioning – or second-class citizen status – awarded to queer-identified people in a heterosexist society buttress the importance and timeliness of themes addressed in Kate Evans’s examination of queer-identified pre-service school teachers. These days the voices of the conservative uprising compete with the voices of those who support Marshall’s reading of the Constitution. Both sides clamor to answer the question that over-arches Evans’s work: Who belongs here? Answers to the questions, “Who belongs?” as well as, “What is the cost of belonging?” are implicitly presented in Kate Evans’s study. She argues that queer-identified people do belong in our society and in our schools, yet her study highlights the emotional costs to queer people of their belonging.

Evans’s Negotiating the Self: Identity, Sexuality, and Emotion in Learning to Teach presents findings of her inquiry concerning the experiences of queer-identified pre-service teachers. Evans uses her own experiences as a young teacher in a heterosexual marriage and – following her divorce – her subsequent experiences in a lesbian partnership with a schoolteacher as one analysis frame for her study. Moreover, she applies critical analysis of global discourses related to “queer” and “teacher” as well as to the personal narratives of her research participants. Her inquiry unveils the ways in which global heteronormative discourses and local, or personal, communications construct our sense of self. Evans interviewed four queer-identified, pre-service teachers – three lesbian women and one gay man – about their experiences growing up in their own families, about their experiences in teacher education programs, and about their experiences in schools. Several themes emerge from her critical analysis of the conversational yet structured interviews with the pre-service teachers. Two important themes are that queer-identified pre-service teachers’ identities are constructed by global as well as local discourses about “queer” and “teacher,” and that negotiating a sense of self when social structures and institutions position any queer sexual identify as deviant, subordinate, or second-class, demands continuous, emotional work.

Evans blends a scholarly discussion of theory related to the social construction of the self and of the operations of dominant discourse patterns in this construction along with practical considerations for educators. Education scholars interested in social construction theories will find that Evans expects that readers understand the interactions of sociohistorical contexts and identity, although she provides an adequate overview of these processes for readers who are confronting the concept of the social construction of identity for the first time:

Who I am and how I feel is not just about me in a vacuum. It is about me in relationship to others, and them in relationship to me… And we are not only in relationship with other people, we are also in relation to historically developed social roles, such as Teacher, Students, Heterosexual, Gay, and so on. (p. 3)

Evans pushes academic readers to understand the intensely emotional aspect of the work involved with negotiating the self ­– especially when dominant heteronormative views construct gay, lesbian, bisexual, and transgendered people as deviant and second-class. For example, a seemingly simple question often asked about someone who is applying for a teaching position is, “Is she married?” Even though direct questioning about marital status is illegal, such questions are often asked indirectly or informally during the time a person is a candidate for a position. Heterosexual people ask such a question mindlessly, expecting that it can be answered by the candidate with out her experiencing anxiety about being viewed as deviant. A lesbian woman, however, when questioned in this way must “engage in the emotional work of negotiating her position as a lesbian.” When asked that question “…socially imbued deviance [becomes] an issue that she [has] to face internally” (p. 103). Further, Evans argues that heterosexual people must also engage in an emotional understanding of heterosexism and homophobia since understanding these machinations at the intellectual level only continues to prevent would-be allies of queer people from fully understanding what Justice Marshall calls the second-class status of gay, lesbian, transgendered, and bisexual people.

Readers seeking practical strategies for banishing heterosexist teacher education practices will find good information in Evans’s book. Teacher educators, cooperating teachers, higher education faculty and administrators, as well as student teachers themselves will find Evans’s discussion of queer-related issues engaging and her recommendations for confronting homophobia insightful. Evans advocates teacher education curricula and practices that are fully inclusive and affirming of the dignity of all participants in the teacher education process. She warns against a well intended but shortsighted approached that carves out space for queer-identified teacher education students as “others” rather than as “us.” She encourages readers to notice expressions of heteronormativity in schools – such as displays of weddings pictures ­– and reminds readers that homophobia is commonplace in pubic schools in the United States.

Lest readers begin to expect that homophobia will be addressed solely by global or structural changes such as the encouraging ruling from the Massachusetts Court this month, we do well to notice other “news” that has captured national attention recently. Let us also consider the recent suspension of two girls who kissed in the cafeteria of River Hill High School in Clarksville, Maryland. The girls were carrying out a nonconformist act in the name of ending homophobia, yet they were suspended for engaging in what school officials termed a disruptive act (Mui, 2003). The naming of an “anti-homophobic” act as “disruptive” underscores the reality of antigay sentiment in American public schools. The use of a local interpretation of school policy in the Clarksville case should urge thoughtful educators to consider the ways in which daily personal discourses marginalize queer-identified people, both queer students and queer teachers, in American public schools. Readers of Evans’s book will be prepared well for engaging in the antihomophobic work that needs to be completed in both the global and local spheres. Changes in local as well as global discourses are needed to ensure there are no second-class citizens in public schools and that everyone, queer and heterosexual, belongs here.

Note

1. The excerpt was published in the New York Times on November 19, 2003. The excerpt accompanied a front-page article written primarily by Pam Belluck with contributions by Katie Zezima. The excerpts appeared on page A19.

References

Belluck, P. (2003, November 19). Marriage by gays gains big victory in Massachusetts: Top court tells legislature to act – impact is seen elsewhere. The New York Times, pp. A1, A19.

Mui Y.Q. (2003, November 15). Girls’ buss causes fuss at school and in media. The Washington Post, p. B01.Retrieved November 19, 2003, from http://www.washingtonpost.com

About the Reviewer

Karen Kusiak
Colby College
Email: kkusiak@colby.edu

Karen Kusiak is an assistant professor in the Education and Human Development Program at Colby College where she oversees the student teaching program. She is also a doctoral candidate at the University of Maine.

 

Spillane, James P. (2004). <cite>Standards deviation: How schools misunderstand education policy.</cite> Reviewed by Adam Lefstein, King's College, London

  Education Review/Reseñas Educativas/Resenhas Educativas Spillane, James P. (2004). Standards deviati...