What are the essential components of civic education appropriate for a democratic society? That question was addressed recently in the course of the development of the National Standards for Civics and Government. (Center for Civic Education, 1994.) More than 3,000 individuals and groups participated in the development and/or review process. Those voluntary standards which have been well received and critically acclaimed, not only in the country of their origin but in many other nations as well, identify three essential components: civic knowledge, civic skills, and civic dispositions.
Civic knowledge is concerned with the content or what citizens ought to know; the subject matter, if you will. In both the National Standards and the Civics Framework for the 1998 National Assessment of Educational Progress (NAEP), which currently is underway in schools across the United States, the knowledge component is embodied in the form of five significant and enduring questions. These are questions that have continued to engage not only political philosophers and politicians; they are questions that do-or should-engage every thoughtful citizen. The five questions are:
- What are civic life, politics, and government?
- What are the foundations of the American political system?
- How does the government established by the Constitution embody the purposes, values, and principles of American democracy?
- What is the relationship of the United States to other nations and to world affairs?
- What are the roles of citizens in American democracy?
The choice of question format as a means of organizing the knowledge component was deliberate. Democracy is a dialogue, a discussion, a deliberative process in which citizens engage. The use of questions is intended to indicate that the process is never-ending, is an on-going marketplace of ideas, a search for new and better ways to realize democracy's ideals.
It is important that everyone has an opportunity to consider the essential questions about government and civil society that continue to challenge thoughtful people. Addressing the first organizing question "What are civic life, politics, and government?" helps citizens make informed judgments about the nature of civic life, politics, and government, and why politics and government are necessary; the purposes of government; the essential characteristics of limited and unlimited government; the nature and purposes of constitutions, and alternative ways of organizing constitutional governments. Consideration of this question should promote greater understanding of the nature and importance of civil society or the complex network of freely formed, voluntary political, social, and economic associations which is an essential component of a constitutional democracy. A vital civil society not only prevents the abuse or excessive concentration of power by government; the organizations of civil society serve as public laboratories in which citizens learn democracy by doing it.
The second organizing question "What are the foundations of the American political system?" entails an understanding of the historical, philosophical, and economic foundations of the American political system; the distinctive characteristics of American society and political culture; and the values and principles basic to American constitutional democracy, such as individual rights and responsibilities, concern for the public good, the rule of law, justice, equality, diversity, truth, patriotism, federalism, and the separation of powers. This question promotes examination of the values and principles expressed in such fundamental documents as the Declaration of Independence, the U.S. Constitution, The Federalist Papers, and landmark Supreme Court decisions. Study of the nation's core documents now is mandated by several states including California, Ohio, South Carolina, Florida, and Kentucky. The United States Commission on Immigration Reform in its 1997 Report to Congress (U.S. Commission on Immigration, 1997), strongly recommended attention to the nation's founding documents saying:
Civic instruction in public schools should be rooted in the Declaration of Independence, the Constitution-particularly the Preamble, the Bill of Rights, and the Fourteenth Amendment. Emphasizing the ideals in these documents is in no way a distortion of U.S. history. Instruction in the history of the United States, as a unique engine of human liberty notwithstanding its faults, is an indispensable foundation for solid civics training for all Americans.
Knowledge of the ideals, values, and principles set forth in the nation's core documents serves an additional and useful purpose. Those ideals, values, and principles are criteria which citizens can use to judge the means and ends of government, as well as the means and ends of the myriad groups that are part of civil society.
The third organizing question "How does the government established by the Constitution embody the purposes, values, and principles of American democracy?" helps citizens understand and evaluate the limited government they have ordained and established and the complex dispersal and sharing of powers it entails. Citizens who understand the justification for this system of limited, dispersed, and shared power and its design are better able to hold their governments-local, state, and national-accountable and to ensure that the rights of individuals are protected. They also will develop a considered appreciation of the place of law in the American political system, as well as of the unparalleled opportunities for choice and citizen participation that the system makes possible.
The fourth organizing question "What is the relationship of the United States to other nations and to world affairs?" is important because the United States does not exist in isolation; it is a part of an increasingly interconnected world. To make judgments about the role of the United States in the world today and about what course American foreign policy should take, citizens need to understand the major elements of international relations and how world affairs affect their own lives, and the security and well being of their communities, state, and nation. Citizens also need to develop a better understanding of the roles of major international governmental and non governmental organizations, because of the increasingly significant role that they are playing in the political, social, and economic realms.
The final organizing question "What are the roles of citizens in American democracy?" is of particular importance. Citizenship in a constitutional democracy means that each citizen is a full and equal member of a self governing community and is endowed with fundamental rights and entrusted with responsibilities. Citizens should understand that through their involvement in political life and in civil society, they can help to improve the quality of life in their neighborhoods, communities, and nation. If they want their voices to be heard, they must become active participants in the political process. Although elections, campaigns, and voting are central to democratic institutions, citizens should learn that beyond electoral politics many participatory opportunities are open to them. Finally, they should come to understand that the attainment of individual goals and public goals tend to go hand in hand with participation in political life and civil society. They are more likely to achieve personal goals for themselves and their families, as well as the goals they desire for their communities, state, and nation, if they are informed, effective, and responsible citizens.
Civic Skills: Intellectual and Participatory
The second essential component of civic education in a democratic society is civic skills. If citizens are to exercise their rights and discharge their responsibilities as members of self-governing communities, they not only need to acquire a body of knowledge such as that embodied in the five organizing questions just described; they also need to acquire relevant intellectual and participatory skills.
Intellectual skills in civics and government are inseparable from content. To be able to think critically about a political issue, for example, one must have an understanding of the issue, its history, its contemporary relevance, as well as command of a set of intellectual tools or considerations useful in dealing with such an issue.
The intellectual skills essential for informed, effective, and responsible citizenship sometimes are called critical thinking skills. The National Standards for Civics and Government and the Civics Framework for the 1998 National Assessment of Educational Progress (NAEP) categorize these skills as identifying and describing; explaining and analyzing; and evaluating, taking, and defending positions on public issues. A good civic education enables one to identify or give the meaning or significance of things that are tangible such as the flag, national monuments, or civic and political events. It also enables one to give the meaning or significance of intangibles, such as ideas or concepts including patriotism, majority and minority rights, civil society, and constitutionalism.
The ability to identify emotional language and symbols is of particular importance for citizens. They need to be able to discern the true purposes for which emotive language and symbols are being employed.
Another intellectual skill which good civic education fosters is that of describing. The ability to describe functions and processes such as legislative checks and balances or judicial review is indicative of understanding. Discerning and describing trends, such as participation in civic life, immigration, or employment helps the citizen fit current events into a longer term pattern.
Good civic education seeks to develop competence in explaining and analyzing. If citizens can explain how something should work, for example the American federal system, the legal system, or the system of checks and balances, they will be more able to detect and help correct malfunctions. Citizens also need to be able to analyze such things as the components and consequences of ideas, social, political, or economic processes, and institutions. The ability to analyze enables one to distinguish between fact and opinion or between means and ends. It also helps the citizen to clarify responsibilities such as those between personal and public responsibilities or those between elected or appointed officials and citizens.
In a self-governing society citizens are decision-makers. They need, therefore, to develop and continue to improve their skills of evaluating, taking, and defending positions. These skills are essential if citizens are to assess issues on the public agenda, to make judgments about issues and to discuss their assessment with others in public or private.
In addition to the acquisition of knowledge and intellectual skills, education for citizenship in a democratic society must focus on skills that are required for informed, effective, and responsible participation in the political process and in civil society. Those skills can be categorized as interacting, monitoring, and influencing. Interacting pertains to the skills citizens need to communicate and to work cooperatively with others. To interact is to be responsive to one's fellow citizens. To interact is to question, to answer, and to deliberate with civility, as well as to build coalitions and to manage conflict in a fair, peaceful manner. Monitoring politics and government refers to the skills citizens need to track the handling of issues by the political process and by government. Monitoring also means the exercising of oversight or "watchdog" functions on the part of citizens. Finally, the participatory skill of influencing refers to the capacity to affect the processes of politics and governance, both the formal and the informal processes of governance in the community.
It is essential that the development of participatory skills begins in the earliest grades and that it continues throughout the course of schooling. The youngest pupils can learn to interact in small groups or committees, to pool information, exchange opinions or formulate plans of action commensurate with their maturity. They can learn to listen attentively, to question effectively, and to manage conflicts through mediation, compromise, or consensus-building. Older students can and should be expected to develop the skills of monitoring and influencing public policy. They should learn to research public issues using electronic resources, libraries, the telephone, personal contacts, and the media. Attendance at public meetings ranging from student councils to school boards, city councils, zoning commissions, and legislative hearings ought to be a required part of every high school student's experience. Observation of the courts and exposure to the workings of the judicial system also ought to be a required part of their civic education. Observation in and of itself is not sufficient, however. Students not only need to be prepared for such experiences, they need well planned, structured opportunities to reflect on their experiences under the guidance of knowledgeable and skillful mentors.
If citizens are to influence the course of political life and the public policies adopted, they need to expand their repertoire of participatory skills. Voting certainly is an important means of exerting influence; but it is not the only means. Citizens also need to learn to use such means as petitioning, speaking, or testifying before public bodies, joining ad-hoc advocacy groups, and forming coalitions. Like the skills of interacting and monitoring, the skill of influencing can and should be systematically developed.
Civic Dispositions: Essential Traits of Private and Public Character
The third essential component of civic education, civic dispositions, refers to the traits of private and public character essential to the maintenance and improvement of constitutional democracy.
Civic dispositions, like civic skills, develop slowly over time and as a result of what one learns and experiences in the home, school, community, and organizations of civil society. Those experiences should engender understanding that democracy requires the responsible self governance of each individual; one cannot exist without the other. Traits of private character such as moral responsibility, self discipline, and respect for the worth and human dignity of every individual are imperative. Traits of public character are no less consequential. Such traits as public spiritedness, civility, respect for the rule of law, critical mindedness, and willingness to listen, negotiate, and compromise are indispensable to democracy's success.
Civic dispositions that contribute to the political efficacy of the individual, the healthy functioning of the political system, a sense of dignity and worth, and the common good were identified in the National Standards for Civics and Government. In the interest of brevity, those dispositions or traits of private and public character might be described as:
- Becoming an independent member of society. This disposition encompasses adhering voluntarily to self-imposed standards of behavior rather than requiring the imposition of external controls, accepting responsibility for the consequences of one's actions and fulfilling the moral and legal obligations of membership in a democratic society.
- Assuming the personal, political, and economic responsibilities of a citizen. These responsibilities include taking care of one's self, supporting one's family and caring for, nurturing, and educating one's children. They also include being informed about public issues, voting, paying taxes, serving on juries, performing public service, and serving in leadership positions commensurate with one's talents.
- Respecting individual worth and human dignity. Respecting others means listening to their opinions, behaving in a civil manner, considering the rights and interests of fellow citizens, and adhering to the principle of majority rule but recognizing the right of the minority to dissent.
- Participating in civic affairs in a thoughtful and effective manner. This disposition entails becoming informed prior to voting or participating in public debate, engaging in civil and reflective discourse, and assuming leadership when appropriate. It also entails evaluating whether and when one's obligations as a citizen require that personal desires and interests be subordinated to the public good and evaluating whether and when one's obligations or constitutional principles obligate one to reject certain civic expectations.
- Promoting the healthy functioning of constitutional democracy. This disposition encompasses being informed and attentive to public affairs, learning about and deliberating on constitutional values and principles, monitoring the adherence of political leaders and public agencies to those values and principles and taking appropriate action if adherence is lacking. This disposition also inclines the citizen to work through peaceful, legal means to change laws that are thought to be unwise or unjust.
The importance of civic dispositions, or the "habits of the heart," as Alexis de Toqueville called them, can scarcely be overemphasized. The traits of public and private character that undergird democracy are, in the long run, probably of more consequence than the knowledge or skills a citizen may command. Judge Learned Hand, in a speech made in New York in 1944, captured the centrality of civic dispositions in his now famous words:
Liberty lies in the hearts of men and women; when it dies there, no constitution, no law, no court can save it; no constitution, no law, no court can even do much to help it. While it lies there, it needs no constitution, no law, no court to save it.