We hear a lot about the need for “accountability” in education, but I’m not sure anyone knows what this word means in practice, or what an authentic means of being accountable might look like. If this word is going to be thrown around so much, then it’s time for those throwing it to think deeply about how it functions.
And in thinking deeply about the role of accountability in education, we need to recognize the increasing, and mostly unconscious creep of economic utilitarianism beyond the bounds of economics and into all aspects of life. Essentially, this spread is represented by the ideology of market fundamentalism, which says that all value is reduced to the single value of economics. That is, all is commodified, has a price, and can thus be measured in terms of its efficiency, which is translated into its ability to reduce costs, to add monetary value as the ultimate value that can then be measured as profit. As an example of this, see this recent editorial in the Detroit Free Press, which fundamentally uses the ideology of the free market to ask the question, ““Is a College Degree a Lost Cause These Days?” Within the article as part of its set up, the author quotes President Obama, and develops from there.
“Even President Barack Obama has poked fun at the humanities, observing in a 2014 speech that ‘folks can make a lot more, potentially, with skilled manufacturing or the trades than they might with an art history degree.’
Obama later insisted his ‘glib’ comment wasn’t meant to throw shade on liberal arts majors. But it reflected an emerging consensus that U.S. colleges and universities are failing to provide many students with the skills they need to succeed in the 21st-Century workplace.”
The underlying assumption of this thinking is that the purpose of a college degree is reduced to its value on the market, its ability to translate into a job for the holder of the degree, and its ability to propel the economy. I don’t want to go too far into a richer vision of college of higher education here, other than to note the hidden assumptions of this kind of language. (And to be fair,thankfully the author of the article does go on to, at least, gently critique these assumptions, first of all within the parameters of economic utilitarianism, and then by suggesting, almost as an afterthought, that education may have an impact on a democratic citizenry.)
The language of accountability is language which unconsciously and uncritically propels these assumptions. And because it does so in a way that is unconscious, it serves to continue to hide these assumptions. It presents the world of economic utilitarianism as an unquestioned given.
And it is well past time to question.
Thankfully, in Education, Accountability, and the Ethical Demand: Can the Democratic Potential of Accountability be Saved?, Gert Biesta has done a lot of this questioning and should be trusted as a guide. (See the link below to the full article.)
Biesta starts with a paragraph that shows that the current mode of accountability has reconfigured the relationship between the state and its citizens from a political relationship to an economic relationship, that is, “..state as provider and the taxpayer as consumer of public services.”
This seems subtle, but nonetheless, this shift is crucial to understand. A political relationship is one where citizens work together in a mutual relationship. A consumer relationship, one determined by economics, is one in which a consumer is recipient of services, and therefore to be served in ways that are measurable so that consumer choices can be made clear. It thus becomes necessary for the provider of those services (the state in the case of education) to quantify its services in order to provide information to the consumer so that proper choices can be made. A political relationship, on the other hand, is one that suggests accountability and responsibility are mutual. A teacher has accountability in this relationship to a context of mutual relationships- the students, the parents, the community and the ways that the community is served by the education of its members. In an economic relationship, the consumer is a passive recipient, and one imagined as outside of the bounds of community. The single consumer is to be served, and the values of this service are inherently economic values. That is, the consumer is a recipient of the state’s services, one with the need for “choice of” state services, and whose “vote” and democratic responsibility is reduced to his/her choices. The implication is that as a recipient of services, the consumer is not engaged as a member of the state, and determines the values of these services within the context of the value of how he/she will economically benefit from these services. The connection between the consumer and the broader community is obscured, and the value of the education to the broader community is wiped clean. Along with this, because of the importance of the availability of consumer information in a market of choice, the value of an education must be quantifiable. As a result, the “accountability” of education to its consumers is reduced to the single, but easily measurable, dimension of test scores. Why do students want to “do well” in school? In order to receive the grades and test results to that will allow them into a “good” college so that they can earn a marketable degree.
Biesta writes, “Crucially, the language used is an economic language that positions the government as provider and the citizen as consumer. Choice has become the key word in this discourse. Yet ‘choice’ is about the behavior of consumers in a market where their aim is to satisfy their needs; it should not be conflated with democracy which is about public deliberation and contestation regarding the common good.”
It is important to recognize that in this shift from citizen to consumer is the fact that the purpose of education is completely obscured and uncontested. There is little room, if any, for the conversation of outcome. Why should someone be educated? In ways does the broader context of relationships benefit, not just the relationship between consumer and the state, but the relationships of a community? These questions disappear because outcomes are assumed and the focus thus becomes on the process of acquiring these easily quantifiable outcomes of economic value.
Biesta again: “To put this point differently, according to the logic of the market, the relationship between the state and its citizens is no longer a substantial relationship but has turned into a strictly formal relationship. This reconfiguration is closely connected to the rise of the culture of quality assurance, the corollary of accountability….Quality assurance is about efficiency and effectiveness of the process itself, not about what the process is supposed to bring about. In this light, it is easy to see why the …government’s constant emphasis on ‘raising standards’ is ultimately vacuous: it lacks proper (democratic) discussion regarding which standards or ‘outcomes’ are most desirable. The same problem underlies much of the research of the ‘school effectiveness and improvement industry.’ These studies mainly focus on the effectiveness and efficiency of processes, without addressing the far more difficult normative and political question regard what these process ought to bring about.” (Emphasis added)
So we have a situation where consumer “choice” is “driving the market” of education. At the same time, this current shift allows no place for the most important question of purpose. There is no discussion of what we hope to bring about with an education, and, because of the unquestioned assumptions and constraints driven by an “accountability” system which can only measure efficiency and limits the purpose of education to the attainment of test scores, we have created an education that has as its purpose the creation of consumers.
Is this what we want?
And just as importantly, is democracy being lost as a result?
Biesta suggests that democracy is being lost. (And the evidence of current zeitgeist would certainly do the same.)
“The role of parents and students in the ‘accountability loop’ is indirect: they can ultimately hold the government accountable for the ‘quality’ of the public services it delivers. But this relationship is itself apolitical in that it positions citizens as consumers who can ‘vote’ about the quality of the services delivered by the government but who do not have democratic say in the overall direction of content of what is being delivered (if delivery is an appropriate concept in the first place).” (Emphasis added)
So there is input through “choice’ that parents have in the processes of education, and the efficiency and quality of these processes. (However, I would go further in saying that the processes of education, that is the pedagogy, is also obscured when the information used to determine such choices is reduced to the dimension of easily quantifiable test scores.) Importantly, though, what is lost in the shift from citizen to consumers, is the choice of purpose, what is the direction we want to education to go? For what purpose do we want our children to be educated? This question is no longer available for contestation.
“The core problem is that while many would want the culture of accountability to emphasize accountability to the public, it actually creates a system focused on accountability to the regulators and the like, thereby removing the real stakeholders from the accountability loop.’ In this respect, the current technical-managerial approach to accountability actually produces economic relationships between people and makes democratic relationships difficult if not impossible to establish.”
What does this look like? What’s the end game of the language of accountability? It creates a system that conflates economics and democracy, and, in doing so, privileges economics at the expense of democracy. It allows democracy to be sacrificed to the god of “economic efficiency” with the allowance of little to no contestation of such shifts. It allows, for instance, the democratically elected Detroit Board of Education to be completely marginalized and replaced by an Emergency Manager. In a very real way, the voice of the people is eliminated and replaced with the voice of consumers and profiteers who are alienated from the context of political community.
According to an analysis featured by Diane Ravitch, this is ultimately what this shift to accountability looks like in Detroit:
“While falling enrollment is often cited as a reason for “right-sizing” the district, the loss of students is the inevitable outcome of starving the schools of funding and relentless attacks on teachers’ jobs and conditions by the Democratic-run city. In the past three years alone, the district cut over a half billion dollars in operating costs, including increasing health care premiums, cutting per-student funding, freezing pay steps for teachers and closing schools. This is not enough, however, and Snyder and his Democratic Party accomplices aim to fully convert the new district into a system of charter schools, which remain outside of public oversight and are a lucrative source of income for politically connected business hucksters.”
Unless we all quickly take responsibility for democratic spaces that are disappearing under the illusion of accountability, this will also be what your local school district looks like.
Please take the time to read all of Biesta’s piece here:
For a richer alternative view of the purpose of higher education, see William Dereshiewicz’s Excellent Sheep.
Photo from here