"Ready, Read!"

A new solution to the problem of failing public schools is emerging: takeover by outside authorities, who prescribe a standardized field-tested curriculum. This runs counter to our long-standing tradition of autonomy for local schools and teachers, but it works

(The online version of this article appears in three parts. Click here to go to part two. Click here to go to part three.)

Reading instruction

MOST discussion of public education in the United States begins with the premise that big, government-run school systems no longer work. The way to provide a good education to all children, especially poor children, is to turn over control of public schools to smaller, more local, and possibly private operators -- to decentralize authority. At the center of the debate is a contest between two ideas: vouchers and charter schools. Vouchers are checks from the government that are issued to parents and earmarked for education; they are redeemable at both private and public schools. Charter schools are new public schools operated by independent groups. "We must ... bring more choice and competition into public education," President Bill Clinton said last year, in calling for the establishment of 3,000 charter schools. Both ideas address the problems in public education by walking away from them.

The rhetoric of failure is simply wrong. There are 87,000 public schools in this country, with 45 million students -- a sixth of the U.S. population. Enrollment is increasing rapidly. The best measure of public schools' performance, the National Assessment of Educational Progress, has shown modest but steady overall gains since it was first administered, in 1970. One has to belong to the small but disproportionately influential subculture that interacts only with private education to believe that public education -- rather than specific public schools -- has failed. The total enrollment in private, nonsectarian schools where the annual tuition is more than $5,000 is about 400,000 -- less than one percent of public school enrollment. Catholic-school enrollment is 2.5 million. Public education is by far the largest and most important function performed by government in this country. In no way is it in systemic crisis.

In the public schools that can fairly be described as having failed, most of which are in poor urban neighborhoods, what is actually taking place is a great and largely unremarked centralization of authority. The trend is diffuse, and its precise dimensions are difficult to limn. In at least a thousand American public schools, it is safe to say, outside control has replaced local autonomy during the 1990s. This has affected many more schools and students than has the devolution of authority through voucher programs or charter schools.

During the 1980s many states began imposing measurements of performance on their public schools, usually in the form of obligatory standardized tests in reading and math. (Bill Clinton first gained national attention by doing this in Arkansas.) In this decade, when individual schools or entire districts have persistently turned in poor scores on these tests, outside authorities have often moved in. The school systems of Chicago, Hartford, Cleveland, Baltimore, Washington, D.C., and three cities in New Jersey, among other places, are no longer under the control of the municipal school superintendent. The Pennsylvania legislature is threatening to take over Philadelphia's system. In other cities, such as San Francisco and San Antonio, the school superintendent has imposed "reconstitution" on the worst-performing schools, meaning that the entire staff has been required to reapply for employment and the school has been "redesigned."

In many of these cases, after the change in authority the schools have adopted one of about a dozen national school designs that cover such areas as governance, relations with parents and the neighborhood, teaching techniques, and, especially, curriculum. Many schools that have not been taken over or reconstituted (for example, dozens of schools in Memphis and Miami) are also using these "whole school" designs. Of the three most popular -- Success for All, Accelerated Schools, and the School Development Program, all designed by university professors -- the first two have each been adopted by more than a thousand schools across the country, and the third by 700.

The outline emerges of a future in which schools that aren't doing their job will lose their independence and will have to adopt a standard mode of operation that has demonstrated good results. This is not what most people think of as the direction in which public education is moving. Even Clinton's constant calls for national education standards mean the setting of goals for what all students should know, not dictating the day-to-day operations of schools. If failure in the public schools is resulting not in decentralization but in the imposition of a template, then we should know it -- and think about whether this is a good idea.

American public schools have never been as local as politicians claim to want them to be. In a country as big as ours it would be impractical to leave education entirely in the hands of 14,800 school boards that operate independently. So we have a strange hybrid: a system rhetorically committed to decentralization but in fact centralized in a patchwork, undeliberate way. We have national standardized tests, national teachers' unions, national textbook publishers, and national laws, regulations, and funding programs for schools. No school is free of their influence. But they influence most schools in a haphazard fashion.

The great majority of public schools muddle along fairly successfully. It is students at bad public schools who are the main losers in the patchwork system, and a consistent national standard for how to operate bad schools ought to be considered with their interests in mind.

Recentralizing Authority

AT the end of the nineteenth century New York City, cobbled together out of smaller cities and towns, created the country's biggest centralized public school system. In 1969, following a long, famous, resonant battle, New York dropped centralization in favor of a policy of "community control" and created thirty-two local school boards. This was not an unqualified success, and the move back toward centralization began. In 1989 the New York State commissioner of education created a new status, called "registration review," for persistently low-performing schools, most of which were in poor sections of New York City. The schools were under a threat of having their state registration revoked and being shut down. In 1996 the state legislature essentially rescinded community control, by giving the chancellor of New York City's schools the power to fire principals and school-board superintendents. (Chicago's school system went through much the same cycle, but faster: dramatically decentralized in 1988, recentralized in 1995.) The state commissioner kept up the saber-rattling, and in 1996 New York City's new chancellor, Rudy Crew, took direct control of nine of the worst registration-review schools -- six elementary and three middle schools -- in the hope of turning them around.

Fifteen percent of the registration-review schools in New York State were in a single school district -- Community School District Nine, in the Bronx, the most consistently problematic school district in New York City. Its test scores have always been low, its board has twice been disbanded after the discovery of job-selling and kickback schemes, and in the most notorious incident a school principal was arrested for possession of crack cocaine.

If you drive around District Nine, which is in the collection of neighborhoods known to the outside world as the South Bronx (although it is actually in the West Bronx), you can see how the school system could have become so bad. The neighborhoods are, of course, largely poor and nonwhite, and remote from the mainstream of city life. What is really striking about them, though, is that the schools in them are the biggest buildings. Three- and four-story factory-style brick palaces, built before the Second World War, they tower over the landscape like cathedrals in medieval villages. In its heyday District Nine was a white ethnic working-class residential area; in the late 1960s and 1970s it was a burned-out, abandoned, desperately poor, all-minority area. Today it has been substantially rebuilt and repopulated with black and Hispanic immigrants. Public schools are still where the money and jobs are: the driving force of this school district has long been political patronage, not education.

The nine schools Crew took over are collectively referred to as "the Chancellor's District"; they have been operating separately for two full school years. At the beginning of the first year Crew replaced the principals of all nine schools. At the end of that year three of the schools had actually gotten worse on the crucial measure of reading scores, and only three had improved substantially. Crew replaced four of the nine new principals, and he adopted the Success for All reading program. This time the reading scores at all nine schools (and at three other schools that had been added to the district) rose significantly.

Measured by test scores, one of the worst schools in the Chancellor's District is Public School 63, in the Bronx. We'll stop there for a moment before moving on to the dramatically improved Public School 114, a short distance away. It is helpful to have a sense of what a failed school is really like.

, the national correspondent of The Atlantic, is the author of (1991).

Illustrations by José Cruz

The Atlantic Monthly; November 1998; "Ready, Read!" 282, No. 5; pages 92 - 104.

, the national correspondent of The Atlantic, is the author of (1991).

Illustrations by José Cruz

The Atlantic Monthly; November 1998; "Ready, Read!" 282, No. 5; pages 92 - 104.