The Charter School Idea Turns 20

A History of Evolution and Role Reversals

By Richard D. Kahlenberg

Twenty years ago this month, in a landmark address to the National Press Club in Washington, American Federation of Teachers President Albert Shanker first proposed the creation of “charter schools”—publicly funded institutions that would be given greater flexibility to experiment with new ways of educating students. At the time, some conservative education reformers opposed the idea, saying we already knew what worked in education. Today, the positions are reversed: Conservatives largely embrace charters, while teachers’ unions are mostly opposed. How did the notion of charter schools evolve over 20 years? And might a return to Al Shanker’s original idea improve the educational and political fortunes of the charter school movement?

In Shanker’s vision, small groups of teachers and parents would submit research-based proposals outlining plans to educate kids in innovative ways. A panel consisting of the local school board and teachers’ union officials would review proposals. Once given a “charter,” a term first used by the Massachusetts educator Ray Budde, a school would be left alone for a period of five to 10 years. Schools would be freed from certain collective bargaining provisions; for example, class-size limitations might be waived to merge two classes and allow team-teaching. Shanker’s core notion was to tap into teacher expertise to try new things. Building on the practices at the Saturn auto plant in Nashville, Tenn., he envisioned teams of teachers making suggestions on how best to accomplish the job at hand. Part of the appeal of charter schools to Shanker and many Democrats was that they offered a publicly run alternative to private-school-voucher proposals, which they feared would undermine teacher collective bargaining rights and Balkanize students by race, religion, and economic status. A charter school, Shanker said, “would not be a school where all the advantaged kids or all the white kids or any...