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24 SO 000 896

National Assessment of Educational Progress. Summaryof report 2. Citizenship; National Results--Partial.Observal-lons and Commentary of a Panel of Reviewers.Education Commission of the States, Denver, Colo.C,rnegie Corp. of New York, N.Y.; National Centerfor Educational Research and Development (DHEW/CE),Nashington, D.C.ER-8-0771.:111 70Ofa-C-9-08771-2468-50835p.Saperintc:dent of Documents, U.S. Governmen..Printing Office, Washington, D.C. 20402 ($.40)

FURS Price MF-$0.65 flC Not Available from EDRS.*Academic Achievement, Achievement Hating, Adults,Attitu.le Tests, *Citizenship, Civic belief,*Educational Objectives, Elementary School Students,High School r.itudents, *Human Relations, MeasurementGoals, *National Surveys, Political Attitudes,Political Socialization, Social Attitudes, SocialStudies*Accountability

ABSERACTAlthough issued by the National Assessment program,

this collection of interpretations of its citizenship findings doesnat neceiisarily reflect the vies.s of the LA:ogram. It is not thepurpose of the program to interpret its own findings, but rather tcencourage widespread examination of the assessment results throughsuch efforts as this dccument. The panel of reviewers and theirreviews are: 1) Jean Dye's National Assessment Citizenship findingswhich draws implications of the findings for public school curricula;2) Harold H. Eibling's Comments on the Preliminary and PartialFindings of National Assessment in the Area of Citizenship commentingon the assessoent of citizenship itself; 3) Tohe Johnson's CriticalResponse to the National Asses: went; 4) Lawrence E. fietc.dt's TheCitizenship Education Assessment: Strengths of the Report; and, 5)Thomas Rondeau's Reaction to National Assessment - Citizenship. Forthe complete report of the citizenship results, by aye groups, see Su000 899. (DJB)

ITIONAI. ASSESSMENT OF EDUCATIONAL PROGRESS

project of the Educatien Commission of the States

'PORT 2-CITIZENSHIP:

NationalNaflopaj Results -Partia.

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THIS DOCUMENT Tf/FS BEEN REPRODOM EXACILY AS ARMED FROMIHE PERSON CR ONZANIATiON ORA;

iM1A71NG 11 PCiNIS OF IDA OR OPINIONS SlA'ED DO NOI NECESSARqrREPRESENT ot,ici,e I OFFICE OF LOUCAIION POTION OR POLICY

NATIONAL. ASSESSMEN. OF EDUCATIONAL PROGRESS

AssessmentReports

#1 Scisnee; National Results July, 1970

N2 Citizership: National Results - Partial July, 1970';

I n'additian to the detailed reports of National Assessment,brief summaries of the results and commentaries by a panelof reviewers are available.

e. rojuGt reported herein was performer: pursuent to a grant -Aitiquil ,Cent for Educational Research and Development,4.4,14 Educitlin* Department of Health, Education, ard

Wnions expressed herein, do not necessarily

the lioiAtiven of the U. S. Office of Education;` ar.d-

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W. 11M100'V*.31,blet in 'Part by funds granted by

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OBSERVATIONS AND COMMENTARY

OF A

PANEL OF REVIEWERS

NATIONAL ASSESSMENT OF EDUCATIONAL PROGRESS

A Project of the Education Commission of the States

Denver Office822 Lincoln Tower1860 Lincoln StreetDenver, Colorado 80203

Ann Arbor OfficeRoom 201A Huron Towers2222 Fuller RoadAnn Arbor, Michigan 48105

For sole by tho Superinteralent of Dorumenfs, U.S. Government Printing Office, Washington, D.C. 20402Price 40 cents

FOREWORD

The Education Commission of the States will issue NationalAssessment reports from time to time without interpreting theresults or explaining their implications. This is partly be-cause the National Assessment program is not an experimentaldesign relating input variables to results and partly becausethe Commission does not want to assume the role of "authority"for what the reports may mean. The Commission will encouragethrough the years, however, thoughtful speculation about theimplications of National Assessment for education.

To encourage examination of assessment results, the Commissionhas asked 10 people interested in science or citizenship edu-cation to give their reactions to National Assessment and tothe results of the first two reports. It is hoped that thesecommentaries will assist others in evaluating the results.

These commentaries accompany the Science and Citizenshipreports 1 and 2 (July, 1970), which should be read to placethese commentaries in full perspective.

James A. HazlettAdministrative Director forNational Assessment

Wendell H. PierceExecutive DirectorEducation Commission of the States

TABLE OF CONTENTS

PAGENational Assessment Cktizenship Findings

Jean Dye 1

Comments on the Preliminary and PartialFindings of National Assessment in theArea of Citizenship

Harold H. Eibling 15

Critical Response to the NationalAssessment

Tobe Johnson 21

The Citizenship Education Assessment:Strengths of the Report

Lawrence E. Metcalf 24

Reaction to National Assessment-Citizenship

Thomas Rondeau 28

NATIONAL ASSESSMENT CITIZENSHIP FINDINGS

Jean Dye

Introduction

Preliminary findings of NAEP in the area of Citizenship haveexciting implications for those of us who are charged with theresponsibility of making meaningful decisions about the edu-cation of children and youth. Local school board members, suchas myself, and other informed lay citizens, such as PTA leaders,can take heart from the evidence that significant portions ofthe population meet the criteria set up by scholars, schoolpractitioners, and other lay citizens.

Basic to any analysis of these findings, however, must be aconsideration of the goal and the role of the school: thefunction of the school board in the decision-making process;the new use of the informed ?ay citizen in developing schoolphilosophy; and the yhole relationship of National Assessmentpractices and procedures to this current educational sene.

GOAL OF THE SCHOOL

"It is assumed," wxote Ralph H. Ojemann, Director, Child Edu-cation Psychology and Preventive Psychiatry, Educational Re-search Council of America,* "that the ultimate goal of theschool is the ievelopment of individuals who can continue liv-ing at their potential as long as their years will permit. Wecall this living constructively. Living constructively involvesbeing able to meet the daily situations life presents and towork them out in ways that make it possible for the person tolive at his potential and for others to do likewise." We mustdefine, establish, and evaluate the ideals, the skills, the at-titudes, the other developments essential to this living con-structively.

* Modern Teenage Problems: Report of Family Life EducationSurvey of Ohio Schools. Columbus, Ohio: Ohio Departmentof Education, April, 1969.

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ROLE OF THE SCHOOL

In order to explore the role or function of the school boardas the primary decision-maker in the educational process, itis essential that we first address ourselves to the role ofthe school itself. The school has a very definite responsi-bility to the family: it exists as a continuation, a supple-ment, a complement to the educational efforts of the familyand at the same time contributes to the maintenance o' thefamily as a living unit. These familial responsibilities in-clude the preservation of moral and spiritual values and thepromotion of desirable attitudes and behaviors. Simultaneously,however, the school exists to perform certain "public" func-tions related to the needs and the preservation of society asa whole. These include: the providing of a visibility of com-munity achievement, the status-figure, if you will, in both thephysical structure and the program.

The school in its development of new skills and competenciesof factual information and social inquiry techniques, is asymbol of hope, pointing toward an upward mobility pattern andthe improvement f?ctor indigenous to all who are struggling,consciously or unconsciously, toward self-improvement. And theschool is a common body, because most people can share, albeitvicariously, the experience; this "our schools" feeling allowsfor a power outside of individual, immediate influence.

Finally, the school serves two related and very positive func-tions: first, it can keep conflict from becoming polarized.In it or through it, political and ideological issues are some-how under an eclectic blanket; everybody gets something eventhough not everything he thinks he should have; here, if mem-bers of the school board are responsive to national issues andto local concerns, there can be controlled controversy. Andsecond, along these lines of reasoning, the school serves asa forum, presenting and hearing the reactionaries, the re-formers, the deformers, the liberals, the moderates, the self-proclaimed experts. It can, as well, be a positive outlet forcivic-minded groups.

FUNCTION OF THE SCHOOL BOARD

What then is the role of the school board itself? Legally, in

my state of Ohio, and in most of the other 49 states, the sta-

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tutes haw delegated a portion of the duty to educate the youthto the various school districts created within the state, withthe state retaining a degree of supervision and control cthe entire education system. School boards are agencies of thestate for the organization, administration, and control of thepublic school system, with board members thus being responsibleboth to the state itself and to local electors.

Recently (March 24, 1969) one local school board (ClevelandHeights - University Heights, Ohio) explained by a board-enactedresolution its four-part functional obligations: planning,legislating, appraising, interpreting. To paraphrase the boardstatement:

1. The quality of the planning function, which must beboth of a short and long-term nature, will determinein large measure the success of the board's action.(Taken from Basic Boardmanshio - - Vance Fell, 1970,OSBA)

2. The legislative function is the development and enact-ment of policies or educational objectives for its dis-trict and the approval of means by which the policiesare to be executed.

3. The function of appraising or evaluating is the as-certainment of how the policies are working out andhow the district's school system is performing. Eva-luation is the only means of learning whether the edu-cational goals adopted by the board are being achieved.

4. Interpreting is a two-directional job of a board ofeducation. The board has the responsibility of inter-preting the school's course of studies, its curriculumas well as its needs and desires to the community; andthe community's needs, hopes, and desires to theschool's professional staff.

Keeping these legally stated and derived-by-inference obliga-tions in mind, it is essential that the board expand its account-ability to its "public" or clients - - including the childrenthemselves, their parents, and the others who reside or workin the community served and serviced by the school. Curriculaand programs emanating from the board must show responsiveness

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to local community needs and reelect both state and nationalissues, concerns, and crises by establishing realistic andachievable educational goals, i.e., how much and what type oflearning opportunities do we want and should we provide in ourschools in the light of changinf; people and changing moreswhich "change" the community?

UJE OF THE INFORAED LAY CITIZEN

All over the country parents of children in the schools andother concerned citizens are demanding -- and achieving --involvement in the development of educational philosophies forthe schools to whom they sen0 precious clients and whose opera-tional expenses they inevitably (albeit frequently unwillingly)assume! Said Ralph W. Tyler,* former chairman of ECAPE and ac-tive member of NAEP, "A second by-product . . . is the demon-stration that the educational objectives of a schord can heformulated and agreed upon in a way that involves parents (and)laymen . . . . This greatly increases the common understandingof what schools are trying to do. Because a major part of theassessment project is to provide helpful information about theprogress of education that can be understood and accepted bylay citizens, the procedures used in the construction of assess-ment exercises involved laymen." (Toro of the early conferences,in fact, directed the attention of the laymen panelists towardthe minute scrutiny of the developing exercises for qnalitiesof meaningfulness and any possible offensiveness!)

One of the three criteria set by the governing Committee in thedevelopment and acceptance of posited objectives was that theymust be ones which are acceptable to thoughtful lay adults asreasonable goals of American education to help in eliminatingthe criticism frequently encountered with current tests in whichsome item is . . . labeled by prominent laymen as being unimpor-tant."**. . . . "Achievement resulted from the concentrated workof 11 separate panels of laymen living in cities, towns, andrural areas in various parts of the United States. Each panelspent two days examining the material and making a judgment

* In'National Assessment - Some Valuable By-:?roducts for Schoolsi#from the National Elementary Principal Journal, May 1969.

** From NAEP literature

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about each objective in terms of two questions:

'Is this something important for people to learn today?'

'Is this something I would like to have my children learn?' "

I have described in detail the reliance on lay judgment inNational Assessment not only because I am a lay person - - andthis is where I came into the project. but especially becausethe National Assessment project from te beginning and through-out its history has, deliberately and regularly, inolved theinformed lay person in all of its procedures. (To make the re-cord quite current, I should report that the latest term ap-plied to us, kindly, I hope - but with tongue in cheek, I fear -is "non-academician," bestowed upon that limited number of uswho were in Ann Arbor to be briefed the middle of June!)

"A further, sophisticated step in formulating objectives cameabout with the use of prototype assessment exercises to helpclarify the meaning of each statement of objectives. When ob-jectives are so defined, they ara likely to be understood bythe layman." (And probably, if the truth were told, by the pro-fessional as well!) "Abstract statements alone are often sogeneral that they are meaningless or they use trite and hal-lowed terms like 'citizenship,' which are commonly approve(but mean different things to different people. Discussion:. ofobjectives, when guided by examples of this sort, are moreeasily focused on real issues regarding the aims of the school."*

This deliberate involvement of lay persons in National Assess-ment objectives and exercises should have significant implica-tions on the use of findings derived from the Citizenship area.

RELATIONSHIP OF NATIONAL ASSESSMENT TO THE EDUCATIONAL SCFNE

"The assessment should indicate the extent to which our peoplehave attained important educational goals, i.e., have theylearned what the schools are expected to teach? Learning is aprocess of acquiring ways of thinking, feeling, and acting,that is, acquiring patterns of behavior . . . . We need to knowwhat the student is expected to learn in order to assess his

* From NAEP literature

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achievement. For this reason, educators are writing objectivesin terms of the behavior they expect to help students learn.*

And to quote Ralph H. Ojemann again,**

"It frequently is suggested that children at a given age havea greater fund of knowledge than children at the same age ofprevious generations. It is suggested that television, improvedfacilities for travel, wider use of audio-visual aids, andgreater availability of books (paper-backs) and magazines havemade it possible for the younger generation to acquire a broaderfund of knowledge than was true in past generations.

"It appears that in knowledge of current events the statementis true. On the other hand, it is evident also that !..n numerousareas that are of increasing importance for living now and inthe future, the youth of today have not gained beyond previousgenerations. For example, most persons agree that in the pre-sent world, and in the future, an understanding of people andwhy they do what they do is of increasing importance. Never-theless, there has been little progress in this area. When weexamine the behavior of adults we find much of it is character-ized by the surface-symptom-treating arbitrary judgmental ap-proach. When we test the present seniors in high school wefind similar results. The children coming from our schools,as ther parents before them, are trying to live in a world ofpeople without having acquired an elementary understanding ofthe factors operating in human behavior.

"There is evidence that understanding behavior can be increasedsignificantly by planned programs at the elementary and second-ary levels. Such evidence has been available for 15 to 20 years.Nevertheless, an examination of a representative sample of cur-ricula at both the elementary and secondary levels in Ohioschools and an examination of pupils indicates little growthin this area.

"Thus . . . an examination of representative current curriculaindicates that there: is general disregard of the child's po-tential of acquiring a functional understanding of the dynamics

From NAEP literature

** Ralph H. Ojemann, "Some New View in Child Development" from

Theory Into Practice, June 1970, Columbus, Ohio. The Ohio

State University. -6-

of human behavior. Since it is obvious that the child is nowliving in a world in which he has numerous interactions withother people and since there is every indication that presentday children will be living in a future world of more peoplewith more human interactions, we would expect our schools andour research workers to be vitally concerned with the exten-sion and use of our knowledge in this area.

"Thinking adults also realize that in life one has to makenumerous decisions by weighing the probable outcome of two ormore causes of action. There are numerous daily situations inwhich one does not have all the information one needs about thefuture effects of one's actions. In making decisions in suchsituations the logical procedure is to estimate the probabilityof alternate courses of action.

"Learning to think in probability terms is basic to learning tolive....

"Experiences are needed to develop the ability to draw validinferences from daily observations. There has been a tendencyin educational cir-les to provide practice in the classroomsetting in drawing valid inferences from given or laboratorydata, but little practice is provided in applying a similar pro-cess to one's daily experiences.

'Another idea in which a fresh lock in child development needsto be taken is in the area of moral ethic *ion. In our presentculture, it is common practice to attem, to teach morals bytelling a child what is right and wrong and to do this usuallywithout giving the underlying data on which the assertions arebased. This dogmatic arrroach has several effects. On the onehand, making decisions for the child in areas in which he iscapable o.e making decisions for himself, if he were helped toacquire tle necessary background, constitutes a serious threatto the child's feeling of personal significance or personalworth. The child soon recognizes that he is thought of asbeing 'littler' than he is, and this makes it difficult forhim to satisfy his desire to feel that he is growing as a per-son in his own right. The resulting feelings of frustrationcan lead to various types of behavior including rebellion.Many of the reactions of youth in rejecting the establishmentappear to arise from the frustrations young people experiencein their attempts to feel that they are growing as significantpersons.

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"A second effect of the teaching of morals by dictation isoverlooking what the child needs to make moral decisions whenhe is on his own. To make a decision in this area one reeds abackground in elementary moral philosophy to be able to thinkone's way through the daily situations involving a determina-tion of right and wrong. Moral philosophers have developedsome methods for dealing with such problems and a sensitivityto these methods would seem helpful to young people. Never-theless, a recent survey of Ohio schools indicates that littleis found in the curriculum to teach the elements of the methodsfor determining right and wrong.* How can we expect childrento make moral decisions it the changing situations they facenow and will face in the future if they have not acquired thenecessary ingredients of methods for making such decisions?

"Our culture is approaching thr. point at which a fair number ofour children will be able to satisfy their needs for food, pro-tection from the elements, and similar basic physical require-ments of life. In the past, much of the challenge in life hasconsisted in providing food, clothes, shelter, and other physicalrequirements. If these are readily satisfied, there is dangerthat life will be without challenge and that it will be filledwith boredom. There already is ample indication in the affluentcommunities that boredom is a frequent occurrence. The childneeds a challenge beyond the basic necessities. It is not easyto find this challenge. Whittier pointed this out when he wrote'Peace hath higher tests of manhood than battle ever knew!

"To develop a challenge in living depends upon one's philosophyof life. What does one want to live for? What does one thinkis worthwhile? When we ask questions we see we are again inthe area of a basic philosophy of life and once again ourschools are not providing opportunities for our young people toexamine critically their ways of living and to develop for them-selves a conception of what they want to do with their lives.Such a conception is needed to provide the challenge that liesbeyond the physical necessities."**

Lengthy though it is, the foregoing quotation from Dr. Ojemann

* Modern Teenage Problems: Report of Family Life EducationSurvey of Ohio Schools, op. cit.

** Some New View in Child Development, op. cit.

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is essential tc a consideration of lay intervention in theeducational process to achieve desired objectives through thepresent medium of the prelirrinary Citizehship Findings. Pe-sults of the as yet unreleased sections should further bolsterthe growing lay approach to more complete and more influentialinvolvement in making and evaluating educational objectives.

ASSESSMENT OF THE ASSESSMENT PROJECT!

What we have presented to us at this time are baseline data,indicating where our children and young people are NOW in theachievement or possession of the habits, skills, competenciesand developments we have labeled as desirable if not essentialobjectives. These data reported today will provide the measur-able standard for tomorrow. As an integral part of the proce-dure, certain of the already approved exercises have been re-tained for administration during the second cycle to provideopportunities for adequate comparisons between initial and sub-sequent results. New objectives and new exercises will un-doubtedly be developed to reflect both the growing prrcosityand sophistication of our population, and the expected matura-tion in school curricula. Truly the beauty of this NationalAssessment project is that it is a living, viable, growing ex-perience, adaptive to people and their environment.

Once the exercises are released, as they are being releasedthis week in Denver, they are in the public domain ard so aresusceptible to proper use by local school systems. "Proper"as here defined means appropriate modification to the localschool community situation (cf. the introduction to thispaper wherein is developed the goal and the role of the school,the function of the school board, and the use of the informedlay citizen).

The local decision-maker, for example may .tiperimpose thenational results of these preliminary and partial findings on-to "citizenship" aspects of his school curricula with the in-tention of bolstering or eArichaning courses of study andhumanizing 7lersonnel practices in ratio to the results of theexercises as given. On the other hand, the local board mem-ber may request that identical or similar exercises be givenin his school system. A positive advantage surrounding eitherapproach is that the released exercises were conceived and re-fined under educationally wholesome circumstances!

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Another of the possible alternatives available is the con-struction of new exercises for the given primary and sub-ubjectives.

We must keep in mind the concern currently being expressed bythe professionals and reiterated by citizens that curriculamust provide for experiences that bring about and reinforceacceptable behavior.

Once objectives have been written into our on courses of studyand implemented in our classrooms, we must establish our ownlocal baseline data and continue teaching and evaluating andteaching.

Available also to local boards is new knowledge of the effi-cacy of multiple types of measurement: paper - and - pencilexercises accompanied by tape recordings; strict attention toindividual response in order to assure that the individual isnot penalized for not being able to read or for simply mis-understanding what he is being asked to do - - individual in-terviews; special situational measures, such as observation ofa group of students interacting. In short, the techniques oftest construction and test administration have been materiallyexpanded.

One further generalization I would like to make before treatingbriefly some of the actual baseline data revealed: legislatorsresponsible for state-wide school financing and state-wide im-position of minimum educational standards can now be betterserved by their local constituents and by state educational(special interest) groups. Organizations such as the OhioSchool Boards Association, which I currently serve as presi-dent, for example, should be able - - with data now availablefrom their assessed categories to:

. . . Show concern for the well-being of others;. . . Know the main structure and functions of our governments;. . . Participate in Effective Civic Action;. . . Indicate the needs, objectives, and achievement in the

area of citizenship of a cross-sampling of state young-sters.

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INFERENCES FOR CURRICULA OF SPECIFIED EXERCISES

A. Concern for Groups Treated UnfairlyExercise AI (Helping another outside of school)

What part did the school play in this significant growth inthe helping-hand relationship indicated, from ages 9 to 13?Should not, moreover, the school emphasize the desirabilityof this relationship during the primary years?

Exercise A2 (Attitude towards child of jailed father)

These results surprise me: age 13 is notoriously sensitiveto "the looks of the thing," whereas age 9 is more innocentof the "guilt by association" feeling.

Exercise A3 (Exclusion of minorities from public park)

Curriculum must stress responsibility of "The many to the few,""The strong to the weak," etc.

Exercise A4 (Attitude towards those different races)

Taking advantage of the (surprising) indication that there islittle rejection of very personal contact with one of anotherrace (dentist or doctor), we should explore methods of creatinga climate for a greater acceptance of people as people.

Exercise A5-A6 (Awareness of racial and religious dis-crimination )

If we believe that one must accept the existence of a problemin order to attack it - - let alone solve it, then we must doa better job of specifying discriminating practices.

Exercise A7 (Membership in anti-discrimination groups)

If we believe that mobilized group action is essential forchange, we had better promote the formation of more and variedchange-groups and the responsibility of ineividuals to jointhen.

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Exerci.se A8 (Knowledge cf 'helping' services)

One of my personal biases is that "enthusiasm is never enough"- - nor even to be credited in the absence of knowledge of howto contribute and actual contributory service." Therefore,these evidences of practical knowledge are a reassuring firststep to the "helping hand" extension. I am going to suggestto my school system that it make an extensive catalogue of suchitems to extend our own youngsters' (and adults') capabilities.

D. Know the Main Structures and Functions of our Govern-ments

Exercise D1 (Why do we have a government?)

I would be interested in comparing specific responses made bythe three age groups. Inasmuch as the very first years ofschool still stress the existence of "those who serve us" (thefireman, the policeman, etc.), I am surprised that less thanhalf of the 9-year-olds had positive responses, and intend toexamine our curriculum with this in mind.

Exercise D2 (Rights of the President)

Examine the validity of this exercise to be sure "to do any-thing" is not being confused with "to do everything."

Exercise D3 (Contested elections)

I want my school system to explore the reasons why peopleshould have a choice, (or why not!)

Exercise D4 (Response to constituents)

Here, civics curriculum should include treatment of the idealvs. the practical; with reference to polls qu::zing legislatorson this subject as the one reported by our Ohio School BoardsAssociation in a rcccnt Journal.*

* "A Survey of Sources of Influence on Ohio Legislators Con-cerning Three Bills," Richard W. Saxe and David S. Rosenberger,Ohio School Boards Journal, 1969.

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Exercise D5-9, D10 -D12 (Structure and Operation ofGovernment)

I disagree with some of my fellow panelists from the recentAnn Arbor conference in believing strongly in the importanceof our youth having factual knowledge as well as structuralunderstanding of our government. I think the school must con-stantly reinforce the union of these two skills in the develop-ment of a citizen who votes out of wisdom rather than by justrandomly exercising his prerogative.

E-Participate in Effective Civic ActionExercise El-E6 (Influencing Government)

All I can do here is underscore the comment from the assessorsthat there is a wide difference between what people think canbe done to influence legislators and other public officials anddecision-shapers, and what they actually do, with a strong re-commendation that schools must train individuals to take partin the political process!

Exercise E7 (Public expression of views)

This, to me, was probably the most fascinating of all theexercises, with tremendous possibilities for replication inschool situation and implications for training - - teachingthe child. Can we develop the skill of disagreeing wit-' -outbeing disagreeable, for example? What is a leader? - - - -Is it too much to project the possibility based on these re-sults that there might be a solution to student dissent - -out of guided student expression?

Exercise E8 (Campaigning for someone else)

I shall suggest an examination of campaign practices relatingto our own in-school organizations to determine whether pro-cedures might be built in that would contribute to participa-tion in the "real" political arena. Also, I recommend a spe-cial sampling of 17-year-olds, at least, following the Noven-ber '70 election to establish whether the climate of thosepast weeks led to more involvement politically.

Exercise E9-E12 (Volunteering and Club Membership)

Does the school adequately encourage wholesome volunteering

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and mass support of "worthy" projects?

Exercise E13-E14 (Group Effectiveness)

Again, as in E7, my reactions to these exercises is highlypositive, and without going into details I urge the use ofthis technique in our classrooms.

CONCLUSION

Having had the experience of being associated with NationalAssessment since 1965, I am gratified to be able to react, evenin this cursory and too-superficial fashion to the initialCITIZENSHIP findings. I repeat my suggestions to the local,lay decision maker made in the Assessment of the AssessmentProject! section, and add a recommendation for an in-depthexamination of results, attention to the most effective meansof using them locally, and a constant monitoring of the schoolcurricula with the NA-posited primary and subobjectives inmind. I would further suggest that the "informed lay person,"herein newly involved in a new process, would do well to im-prove his own evaluative skills in order to justify this shar-ing, even temporarily, in the decision-making process with theprofessionals - - albeit in the interests of his own childrenand youth!

Jean Dye is a member of the board of education of ClevelandHeights and University Heights, Ohio City School District.She earned her B. A. at Oberlin College and has had wide andvaried experience in education, family service, welfare, humanrelations, Camp Fire Girls, Boy Scouts and personnel activi-ties. She has taught high school English and speech and con-tributed articles to educational journals. She is currentlyPresident of the Ohio School Boards Association, and Vice-President-Director of the Department of Education, Ohio PTA.

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COMMENTS ON THE PRELIMINARY AND PARTIAL FINDINGSOF NATIONAL ASSESSMENT IN THE AREA OF CITIZENSHIP

Harold H. Eibling

It is an honor to have been asked to be a member of the Citi-zenship review panel at the unveiling of the first data to bereleased from the National Assessment. The scholarly way inwhich the entire assessment was developed, the care with whichthe objectives were evolved, the meticulous and often innova-tive ways in which the information was obtained, and the skillwith which the statistics are treated have alleviated many ofthe initial misgivings about the beneficial effects of the as-sessment on American education.

Many years must go by, much research must be done and experi-ence gained before the full impact of the assessment can itselfbe assessed. Educators and non-academicians alike must learnhow best to use this new kind of information on the educationalattainments of our youth and young adults. The measurement ofprogress in education, one of the goals of the National Assess-ment, will require an even longer span of time. It is, there-fore, a hazard to make sweeping predictions or broad generali-zations about the entire assessment from the small amount ofthe data we now have available.

There are a number refreshing things about the NationalAssessment which have impressed me.

1. The objectives were adopted only after agreement byrepresentative committees of scholars, school professionalsand thoughtful lay citizens. While the objectives do notcover the entire education spectrum, they nonethelessstate rather well the common core of learnings most peoplefeel are important to all young people.

2. Many of the questions and tasks (called exercises)used in the assessment represent an interesting departurefrom the over-used multiple-choice syndrome of standard-ized testing. The many kinds of exercises used make itpossible to obtain certain types of important informationwhich more limited tests so frequently avoid.

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3. Tie sample was taken in such a way that pupil isnot pitted against pupil, school against school or evenstate versus state. National Assessment was not intenedto be a contest.

4. At this point, at least, the National Assessmentgroup is not attempting interpretations or judgments rel-ative to the data. The information is merely furnishedso that people with many interests may use this creativelyin helping to solve their own educational problems.

5. No norms have been established. Half the populationwill not be "put down" by being labeled as below averagebecause of the way in which they understand and answerquestions.

6. With the increased insistence on accountability, theNational Assessment may well provide a much-needed basefrom which progress in attaining educaticnal goals can bemeasured over a period of years, at least within thoseareas contained in the assessment. One difficulty in us-ing present standardized tests for this purpose is thatthey are generally renormed about every time progress be-comes apparent.

I am particularly pleased that Citizenship is one of the 10areas assessed, even though it is not generally thought of interms of courses or an academic discipline, as are most of theother areas. During this period of strain in our nationallife it is especially important to consider what constitutes"good" citizenship, to develop specific goals, and to measurewhether these goals are being attained. American citizens needto develop more effective citizenship practices; National As-sessment should help us meet this need. The goals specifiedby the National Assessment center around civic behavior ratherthan knowledge of what is proper behavior. Of course, knowl-edge and behavior are related, but educators too often assumea direct relationship. The report should be given a specialcommendation for developing evaluative devices to measure one'scompassion for others. In an age of increasing depersonali-zation, compassion for and sensitivity to others are essentialingredients in good citizenship. It is doubtful if intellectwithout compassion can serve the world well. Sensitivity andempathy are initial steps toward effective civic behavior.

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The National Assessment continually reminds one that it is notenough to be informed and analytical; an education which de-velops commitment is increasingly essential in our home, ourneighborhood, our nation and our world.

Any attempt to measure the affective realm brings questions tothe minds of educators. One nay rightly question the importanceof school in affecting attitudes. Research shows that pre-school experiences have a tremendous influence on values andthat these are probably fairly well formed by the time thechild enters school. Since the early experiences are so im-portant, can schools really hope to influence behavior in sig-nificant and lasting ways? How important is this question foreducators when they analyze fhe results of the National Assess-ment?

Another question for educators is how much of the behavior ofstudents is influenced by out-of-school experiences. The peergroup seems to be r. highly controlling factor for many teen-agers. Voting behavior studies indicate that this is also morethan a small element in determ.thing the behavior of adults. Ofcourse, being influenced by peers is not necessarily bad. Edu-catort: must examine ways of using this influence as a positivefactor in developing good citizens. There is a tendency bysome educators to assume that a student's behavior is only im-portant in school. The National Assessment takes a much broaderview and rightly so. The approach here is to emphasize thebroad range of civic achievement.

Traditionally, when educators seek evidence of success, theymeasure knowledge, even though continually declaring the im-portance of attitudes and values. The National Assessment willencourage educators to attempt to measure their effectivenessoutside of the cognitive realm, difficult as this may be.

In drawing conclusions concerning that part of the assessmentbeing released, there is a danger of equating good citizenshipsolely with involvement. The attempts to measure quality byhaving the interviewer explain what action to take is commend-able, but care must be ex3rcised not to treat a wide range ofactions equally, again substituting the quantitative for thequalitative. Could there, then, be a more significant qualityfactor introduced in some way? If controversy would result,then perhaps citizenship is not defined as well as we think.

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For example, is it enough to measure only the number of actionsa child or adult could take to stop discrimination without at-taching the judgmental factor?

Before examining the material that is being presented at thistime from the Citizenship area of the National Assessment, Ifeel it is particularly important that the complete list ofCitizenship objectives be studied carefully so thrt this smallsample of the total area may be considered in its full context.Let me illustrate. Farts A and E center mostly on minoritygroups and race relations, certainly a highly important and ap-propriate concern in the contemporary societal life in theUnited States. There are also urgent problems of internationalrelations, personal responsibility, employment, family life,:safety, environment, law and order, loneliness and health, toname a few. A reading of the objectives will show that many ofthese are also made a matter of assessment within the entirescope of the ('itizenship and Social Studies areas.

At this time we can only surmise the long-term effects that theNational Assessment will have on education in the United States.Certainly, there are some pitfalls that should be avoided.First of all, it should be realized that National Assessmentdoes not pretend to define a complete curriculum or to implythat only those objectives which have been explored are of im-portance to the education of the young. Educators and thepublic alike must expect a continuous development cf the cur-riculum to meet the ever-changing educational needs in thiscomplex society. A "freezing" of objectives for educationwould certainly have an unfortunate effect. I understand thatthere will be a continuous study of the assessment objectivesin this respect. No doubt commercial organizations, schoolsystems and even states will attempt to gather information on amore limited sample to compare local results with the assessment results. This can result in true 1.)nefit, however, onlyif the methods and real purposes of the National Assessmentare not -..ompromised. Obtaining inforilation from an adequatesample through interviews and small group techniques is an ex-pensive business. Again, causing teachers to "teach for thetest" through the addition of a competitive factor to assess-ment could also result in undesirable consequences.

Another concern is one common to all kinds of measurement ofeducational progress. Even though attempts were made to assess

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broad objectives of education through new and imaginative exer-cises, a predominance of the exercises among those presentedseem to check on information. While the assimilation of astore of knowledge is a worthy goal of education, it is alsoone of the lower levels of teaching. The cognitive ability toclassify, to identify problems and to formulate and test hypo-theses is a higher level of learning. This is rarely assessedin the exercises presented. It ma- be found more in parts notyet released.

In commenting more specifically on some of the exercises fromthe three parts of the Citizenship area that are presented, Iwas encouraged by the large percentage of the 9-year-oldd(47%) who have taken part in civic projects. It was surprisingto learn that only 66% of the 13-year-olds stated that theywere aware of racial discrimination in the United States, andthat 56% of this are level were unable to cite "at least oneexample of racial discrimination in the world," particularlysince minority groups constituted a significant part of thesample.

In category Dr the respondents were generally familiar with theworkings of government, although only 18% of the 17-year-oldscould write the last names of the senators from their states -

probably a cause of concern for persons in elective officesas well as for educators. Exercise E-7 produced at least amild surprise when 32% more of the 13-year-ol&s than the17-year-olds volunteered a contrary opinion once an initialposition had been stated by another member of the group. Arcthese 17-year-olds more susceptible to group pressures thantheir younger contemporaries'

Many of the other exercises pose intriguing possibilities forfurti_r analysis in terms of curriculum and instruction, forexample, A-2, A-3, A-4, A-8, D-14, 3 -1, E-7, E-9 and E-13. Itappears likely that education will be influenced by the type aswell as the content of the exercises, which in most instancesare superior to the items in the usual fact-oriented tests.Certainly, this type of assessment should fit in well with themulti-sensory approach to education, Where many types of learn-ing situations and media are used to enhance the learning situa-tion.

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In conclusion, it appears that the assessment of citizenshipon a national scale should certainly serve to emphasize thesignificance of personal involvement in the improvement of oursociety. The statement of Citizenship objectives may wellserve as a model for many schools and teachers who wish toclarify their purposes in this area. Knowing how young peoplevisualize their citizenship roles, their knowledg of ourgovernmental institutions, their attitudes and the_r ways ofacting are highly significant to the continued improvement ofthe type of citizenship education needed for the success of aviable dernociatic society.

Dr. sibling, superintendent of the Columbus (Ohio) Public Schools,earned his B. S. at Ohio Northern Univdrsity, M. A. and Ph.D.degrees at Ohio State University and his LL.D. at Miami Univer-sity at Oxford, Ohio. He has been a teacher, principal andsuperintendent, is author of a number of widely used textbookson American history, is president of the American Associationof School Adminstrators.

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CRITICAL RESPONSE TO THE NATIONAL ASSESSMENT

Tobe Johnson

A. Purpose of Study

I was profoundly disturbed by what I perceived as the pur-pose of National Assessment, nameiy to determine "how muchgood is the expenditure of so much money doing, in termeof what America knows and can do?"

I would like to suggest two parallel questions that mightbe raised about the purpose of National Assessment:

1. In view of what we now know about the distribu-tion of Title I Funds for so- called disadvantagedschools, how can we say that all of the money al-located for the various target populations in factreaches them?

2. What responsibility does the National Assessmenthave for seeing to it that its "value neutral"findings are used to provide further rationali-zations for failing to increase the allocation ofresources to historically disadvantaged segmentsof the population?

B. Methodology

I would need more information .4.1 she sample and researchprocedures used in this aEsessment in order for me to eval-uate it adequately. Such information would include, butnot be limitea to, answering the following questions:

I. Who were the interviewers (e.g., race, sex)?

2. Were thee any black-to-white interviews or viceversa?

3. How were interviews in desegregated settingshandled?

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. Do the questions within the individual exercisesconstitute v. scale? And if so, would it not beIlelpful to check the "global" responses againstthe responses to the individual items?

5. It would have been helpful if the report hadnoted whether substitute ruestions for those likeA-3 were given minority respondents.

Although the majority of my observations are either implicitlyor explicitly critical, I would like to commend the researchersfor their efforts to reach poor or non-readers through tape-accompanied pen-and-paper exercises, and I look forward tolearning the differences this procedure made in the responsesreceived. I also would like to commend the researchers fortheir efforts in developing a procedure for observing groupinteraction.

C. Citizenship Objectives

1. Who were the people who developed "the standards orobjectives of citizenship"?

2. The community roles seem to be entirely conventionalelitist ones. What abort such roles as those of com-munity action participan, young college dissentersand radical blacks?

3. In exercises like A-3 and A 4, I would have wanted tosee the extent to which respondents' dells match theirprofessions, particularly in view of the high numberof respondents who said they don't mind a person of aminority group living next door to them. Could a veri-fication probe have been used here?

D. Know the Main Structures aid Functions of our Governments

I. I am not clear whethe- the range of funcLons listedas acceptable for government to perform (1) -1) areidealized ones or whether the assessment attempts iosuggest what governments in fact do -- for example, aclear function of government in Mississippi is to pre-serve traditional whi'ce supremacy by force of arms if

necessary.

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2. Do any of the questions deal with "C" of the objec-tives ("Recognize the Importance of Political OppoNi-tion and Interest Groups"), particularly with refer-ence to nontraditional kinds of opposition groups likethe Students for a Democratic Society and the blackPanthers?

E. Participate in Effective Civic Action

The several interpretations of the results in this sec-tion suggest that the responses should be considered asexploratory only. It is important, however, that a clari-fication be made as early as possible on the responses tothe question of how citizens perceive their influence, andunderstand the ways in which government might be influenced.What the question might be tapping is a pervasive feelingof powerlessness among the citizenry. The results of otheropinion studies would support this hypothesis.

My general response to exercises E-13 and E-14 is that theyare rather pallid simulations of the kind of effective coopera-tion essential to getting complex and controversial things donecooperatively in society - - and which will be, increas-ingly, the real test of effective citizenship, and even thesurvival of this country as a nation state. Exercise E-13measures cooperation only at the cognitive level - - that is,orientation toward a simple task where goals and values arenot in conflict. The same is largely true of Exercise E-14,though the possibilities of divergent opinions are greaterhere. It would be interesting to know something about thevariance in levels of cooperation, especially on E-14, whichmight have occurred among heterogeneous groups as contrastedwith more homogeneous ones.

Dr. Tobe Johnson is professor of political science at MorehouseCollege in Atlanta, Georgia, where he did his undergraduate work.He received his Ph.D. in political science from Columbia Univer-sity. Dr. Johnson taught for a year at prairie View College inPrairie View, Texas before joining the Morehouse faculty in 1963.In 1965-66 he was visiting associate professor in public and in-ternational affairs at the University of Pittsburgh. At More-

house he is coordinator of freshman social sciences and direc-tor of the Morehouse Self Study Program. He is currently mak-ing a study of three Southern cities on a Ford grant, which willbe published early next year.

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THE CITIZENSHIP EDUCATION ASSESSMENT: STRENGTHS OF THE .EPORT

Y,awrence E. Metcalf

The strengths of the report are many_ First, it is to be notedthat the assessment effort behind the report exemplifies coopera-tion between scholars, school people, and concerned lay citizens.The participation of scholars gives expert opinion a proper rolein :identification of objectives and construction of test exer-cises consistent with those objectives. The participation ofschool people enabled the project to screen out those objec-tives not normally pursued by the schools. And, finally, theparticipation of lay persons enabled the project to determinewhether the stated objectives were acceptable to the generalpublic.

A second strength of the report is the care and precision withwhich a representative sample was drawn. Any reader of the re-port can be confident that the reported data are very probablyrepresentative of the national population in this country. Thesample can be broken down into components that reveal differ-ences between regions, between large and small schools, betweenrural and urban communities, and between social-economicclasses. By looking at differential responses across ages onecan get a picture of progress or its lack as young people movethrough the educational system from pre-adolescence to late ad-olescence and adulthood.

A third strength is the fact that invasion of privacy is avoided.It is not possible from the report to determine how well an in-dividual pupil or school system is doing in citizenship learn-ings. The tests used to gather data for the report are notachievement tests in the usual sense. Readers of the reportmay wonder how well a particular school system is doing. Theywill not be able to tell from this report. They can only learnhow well the nation as a whole, or regions within the nation,are doing with respect to certain citizenship education objec-tives.

A fourth strength of the report is the precision of behavioraldetail with which objectives are stated. We have had far toomany reports based upon vague and glittering generalities hav-

ing to do with high national purpose. It is a civic education

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in itself merely to read these objectives as they have been de-fined by the project. There can be no doubt as to the meaningof these objectives for civic behavior. To take but one example,consider the objective of supporting rationality in communica-tion, thought, and action on social problems. This appears tobe an objective so vague in its nature that no progress or lackof progress toward its achievement could ever be ascertainedin any scientific sense. Yet the project personnel were ableto define this objective quite precisely, a necessary firststep toward assessing its achievement. We hear it said on allsides these days that young people are less rational and moreimpulsive and intuitive in their problem-solving than olderpeople. When data on this portion of the final report becomeavailable, we should be able to make some defensible assertionsin this regard.

A fifth strength is the fact that the test exercises in addi-tion to being consistent with the objectives vary as to typeand level of difficulty. The exercises used to collect dataare not limited to verbal and factual responses but includeperformance tasks. Consequently, the report reveals whatpeople to as well as what they say and know. Both lay citi-zens and professional experts participated in construction ofthe various test exercises. And finally, the total test re-presents a range of items extending from the very easy to thevery difficult exercise.

WEAKNESSES OF THE REPORT

When one reads the detailed description of some of the. objec-tives, one cannot help wondering about the responses a blackghetto family might make to those descriptions. A perusal ofthe persons and institutions represented on the various panelssuggests that so,7.e important groups in American society havenot been represented. The personnel reads too much like asample drawn from white, middle-class, and professional back-grounds. The poor, black, radical, and violent are absent orunrepresented. The most radical group mentioned is the Leagueof Women Voters. And the National Association for the Advance-menc of Colored People is no longer regarded by many blackpeople as their most effective and representative civic lobby.It is no wonder, then, that descriptions of good civic behav-ior in the family read like exemplars from Dick and Janereaders.

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The section on international relations reveals a bias in fa-vor of the present system of international relations witl a

peculiarly American emphasis upon Cold War conflicts and com-munist subversion. For example, Objective VI-A includes thefollowing statement: "They are aware that Communist China andthe USSR seek, or have sought in the recent past, the subver-sion and violent overthrow of all iron- Communist governmentsin the world. " This statement overlooks importantdifferences between China and Russia, and reflects the all toocommon view in America that Communism is a monolithic andunited foe. But more to the point is the fact that many scho-lars and citizens outside this country do not share this viewof the world. The project need not choose between an Americanand a non-American view of the world but rather should striveto state views of objectives that are not tainted by any sem-blance of ethnocentrism. A statement of the earth as spaceshiptogether with an awareness of the problems of pollution, poverty,population, and war as unmanageable dilemnas .nder a decentral-ized international system would be no more biased than the abovedescription of the Communist world, and a great deal more real-istic.

A third weakness in the report is the apparent assumptionthat much of citizenship education cannot begin in the early

school years. Time after time, objectives are not definedfor 9- and 13-year-olds. Under V-D, for example, only adultsare expected to participate in local, state, and national

governmental processes. It is assumed that adults can attendcouncil meetings and public hearings. Why not 17-year-olds?

Indeed, why not 13-year-olds? One senses that the projecthad difficulty in defining many of the objectives ofcitizenship education in terms that would have meaning for9- and 13-year-olds.

PROGRESS AND PROBLEMS

For most objectives the reported data indicate progress aslearners age and mature. But there are some exceptions. Onitems that indicate activism in the respondents young peopleare more likely to be active in civic roles. There are excep-tions to this generalization, but the general picture is oneof adults who are too busy or indifferent to participate ingroup activities of a civic nature. An apathetic adult Ameri-

can tends to be the model that young people see before them.

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INTERPRETATIOr

With a few exceptions the report is descriptive rathe_ thaninterpretive. One interpretation that is tempting is probablyalso in error; and that is any tendency to credit or blamethe schools for any problems or lack of progress revealed bythe report. It would be more realistic to attribute resultsto all the learning experiences of the people, and not merelyto what happens in school. If Americans are apathetic towardcivic action, this could be due as much to the influence ofthe entire culture as to that part of the culture representedby the schools.

Dr. Lawrence E. Metcalf is professor of education at the Uni-versity of Illinois. He received his B.S., M.A. and Ph.D. ineducation at Ohio State University. He has taught and servedas a principal of secondary schools in Ohio and was on thefaculties of Goddard College and the University of Georgia be-fore joining the faculty of the University of Illinois. Dr.

Metcalf is editor-in-chief of high school publications of theWorld Law Fund.

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REACTION TO NATIONAL ASSESSMENT - CITIZENSHIP

Thomas Rondeau

As I read the preliminary and partial findings of NationalAssessment in the area of Citizenship, I could not help think-ing of Robert F. Mager's delightful little book, Preparing In-structional Objectives. In his preface he tells the story ofa Sea Horse who one day gathered up his pieces of eight androde off to seek his fortune. Along the way he met Eel whosold him a flipper so that he might find his fortune faster.Soon after that he met Sponge who sold him a jet propelledscooter which made it possible for him to proceed at an evengreater rate of speed. Friend Sea Horse finally met Shark whotold him he could save a lot of time by taking a short cutthrough his open mouth. Sea Horse thanked him and zoomed offinto Shark's interior.

The moral of this little story is that if you don't know whereyou are going, you may end up some place else without knowingit.

As a teacher, that story has stuck with me. It has proven aconstant remnder of the need to know (1) what you want to do;(2) how you can be sure you've done it; and (3) what proce-dures and materials will work best to accomplish what you wantto do.

It is quite apparent, to me at least, that the NAEP staff hasnot been devoured by the shark. It has been well aware of itstask, and I believe it has accomplished it using some very ef-fective materials and procedures. NAEP has provided the Ameri-can public with what looks like the first successful attemptto determine just where we stand in the area of citizenship.It leaves to the American public the imp3ications of the find-ings.

Th3re have been many and there will be many more people whoclaim that NAEP is a deliberate attempt to force a nationalcurriculum. I suspect that the objectives, the Citizenshipobjectives at least, represent a national consensus. Theyevolved from the combined efforts of people from every walk oflife in the United States.

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I for one would find it difficult to understand how anyonecould take umbrage with the objectives. They represent, Ifeel, what our society does or at least, should stand for. I

can understand someone who felt they were concerned about theway these objectives were being achieved or not achieved inour society today. If the objectives themselves mean a nation-al curriculum, so be it.

I was impressed with the degree of achievement scored by allage levels in the objectives I examined. It reinforces my be-lief that a truly national consensus does exist concerningwhat good citizenship is. It also indicates to me that oursociety is doing a fine job in developing good citizens, inspite of some evidence to the contrary.

Although the NAEP data does reveal a high degree of achievementand attainment, it also reveals that as a society we have animposing task before us.

We are living in a period of national history characterizedby a host of national and international problems. Our basicinstitutions are under heavy attack. There is evidence thatthe citizens of the United States are becoming politically.socially and intellectually polarized into two opposing camps.

The objectives of good citizenship are sound, but simple rever-ence for them will not be enough in the undoubtedly troubleddays which lie ahead. Somehow we must avoid encouraging move-ment, change and agitation for their own sakes. We must in-stead encourage and enhance the development of better citizenswho are knowledgeable about their rights, their duties and thelimitations of reasonable choice in their own society and inthe world.

Mr. Rondeau i! a classroom teacher in Wauwatosa Ens,. HighSchool, Wauwatosa, Wisconsin. He received his B.S. and M.S.degrees from the University of Wisconsin, and has studied a..the University of Hawaii's East-West Center in the AJianStudies Program. Mr. Rondeau has worked for five yrars as a

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trials teacher for the High School Geography Project, and has

participated in many short workshops and institutes for theNational Science Foundation. He has taught at the University

of Wisconsin in Milwaukee, Western Michigan University, and

Mt. St. Paul College in Waukesha, Wisconsin. He is a member

of the National Education Association and the National Council

for Social Studies, having served as president of the Wiscon-

sin Council for Social Studies.

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*GPO 830-213