Civic Capacity and School/Community Partnerships in a Fragmented Suburban Setting: The Case of 24:1

ABSTRACT:

This paper uses the “civic capacity” framework to analyze an emerging school–community reform initiative, called 24:1, focused on an inner-ring suburban school district. Contrary to the existing literature on civic capacity, we argue that institutions strongly influence civic capacity building. A fragmented public sector and weak institutions of civil society, especially when combined with racial divisions and poverty, restrict the ability of local actors to collaborate among themselves and partner with outside institutions. Despite these daunting challenges, 24:1, led by a local nonprofit with a long history in the area and a school district with dynamic new leadership, has mobilized a diverse coalition of stakeholders and built consensus around a comprehensive plan for revitalization. But stronger indigenous institutions, as well as greater support from the business community, will be needed to sustain the initiative.

Notes

1 For an introduction to the concept of policy subsystems, or policy monopolies, see Baumgartner and Jones, 2009, pp. 6–9.

2 The original civic capacity studies of education reform were criticized, with good reason, for failing to connect civic capacity to outcomes, such as test scores or graduation rates (Macedo, 2003). We maintain that strong civic capacity is a necessary, if not a sufficient, condition for successful second-generation school–community partnerships and therefore worth studying in and of itself. Ultimately, however, civic capacity will need to be connected to successful outcomes in the schools and the community.

3 The interviewees were selected by interviewing key actors in the community and asking who would be most knowledgeable about civic collaboration. The research was reviewed and approved by the campus IRB committee. Subjects were advised that the interviews were confidential.

4 One exception is that the headquarters of Express Scripts, a Fortune 100 company in 2011, is located on the edge of the Normandy School District.

5 All direct quotes are from key informants unless otherwise noted.

6 Weir cites Allard, 2009 on the latter point. See also Allard and Roth, 2010.

7 For an insightful discussion of how rapid racial transition can damage civil society, see Cummings 1998.

8 Other collaborations among governments also failed to sustain themselves, including Mid-County Partners for Progress and an effort in the early 2000s to institute common trash hauling.

9 A CDC is forming to address issues around the St. Vincent Greenway and it will touch on the Normandy School District footprint. Presently, however, it has no staff.

10 In February 2012 the St. Louis County Municipal League unanimously endorsed a bill, introduced in the Missouri Legislature (HB 1891), that would set municipal standards and if a municipality does not meet those standards. A process would ensue that could lead to disincorporation, which would place residents under the jurisdiction of the County. “Membership Approves Municipal Standards,”The Link (March 2012), http://www.stlmuni.org/uploads/March%20Newsletter.pdf (accessed April 29, 2012).

11 Specializing in the home delivery of prescription drugs, Express Scripts ranks as the 55th largest company in the United States, as reported on CNN Money: http://money.cnn.com/magazines/fortune/fortune500/2011/snapshots/10592.html (accessed December 30, 2011). In April 2012 a federal judge cleared the way for Express Scripts to purchase Medco Health Solutions, a merger that could make it the 15th largest corporation in the nation.