Civic Learning Matters. Assessment Systems Should Measure It

New paper explores how assessment can support civic learning

Americans expect their public schools to prepare graduates for both economic opportunity and democratic participation. Although state constitutions assign a civic mission to schools, the large-scale assessment systems most states and districts use to monitor school performance rarely reflect that mission. 

That disconnect is especially visible in 2026, as the nation marks the 250th anniversary of the signing of the Declaration of Independence. Events to celebrate this anniversary have featured new civics curricula, instructional guidance, and professional learning for educators. Yet we have limited data on which students have opportunities to benefit from these resources or on how well students are learning. The 250th anniversary milestone, combined with a growing recognition of the need for better data, is prompting reflection on the role of assessment in helping schools prepare young people for constructive civic engagement. 

In our new paper, Testing Democracy: How Large-Scale Assessment Systems Can Support Civic Learning, we examine how state and local assessment systems interact with the civic purposes of public education. Although these systems can’t reinvigorate schools’ civic missions by themselves, they provide valuable information to guide decisions about school programs, send signals that can influence decision makers’ priorities, and help foster public engagement. If civic readiness is part of the core purpose of public education, then it is reasonable to ask whether our assessment systems reflect that commitment.

The paper provides practical guidance for reimagining large-scale assessment to support civic learning. We do not argue that states or districts should add another high-stakes test or overhaul their accountability systems. Instead, we suggest that relatively modest adjustments to existing systems can elevate civic learning if they are thoughtfully designed and carefully implemented.

What Is Civic Learning?

Civics is not just a course. In Testing Democracy, we adopt a broader definition that encompasses a variety of competencies including knowledge (e.g., understanding democratic institutions), skills (e.g., critical thinking, media literacy, civil discourse), and mindsets (e.g., sense of agency, willingness to engage with differing perspectives). This definition has a few implications for how schools teach and assess civics.

First, civic learning can begin well before formal courses are introduced. Elementary teachers can lay the groundwork through activities such as assigning leadership roles and engaging students in collaborative or project-based learning. These activities can cultivate responsibility, fairness, and concern for others. The time devoted to formal social studies content in the early grades has been limited and declining, making these broader approaches especially important.

Second, civic learning is cross-disciplinary. Students develop civic competencies by interpreting data in math, evaluating scientific misinformation, considering multiple perspectives through literature, and learning about the cultural foundations of a piece of music. Integrating civics across the curriculum can help schools strengthen civic learning without displacing other priorities.

Third, civic competencies are widely recognized as important for college and career success. Navigating a workplace often requires engaging with others whose perspectives differ from one’s own, thinking critically about information, and demonstrating agency. By supporting civic development, schools can simultaneously prepare students for success in other domains.

Of course, large-scale assessment systems can’t (and shouldn’t) address every civic competency at every grade level. But incorporating even a small set of civic competencies almost certainly requires going beyond administering a social studies test.

Promising Approaches Exist

Frameworks and programs that elevate civic learning have proliferated in recent years. Many states have adopted standards that incorporate civic goals, including standards for social studies and for civics-related topics such as media literacy. Numerous states and districts have adopted Portrait of a Graduate frameworks that include civic competencies and have created recognition programs such as seals of civic readiness. Some require civics exams or project-based experiences for graduation.

But assessment and monitoring have not kept pace. Most systems rely on a limited set of measures such as course completion or end-of-course exams. And few states systematically gather data on students’ access to civic learning opportunities. The result is a growing gap between stated commitments to civic learning and the evidence available to evaluate whether those commitments are being met.

Where State and Local Leaders Might Begin

With some small, pragmatic steps, assessment systems could move closer to acknowledging the importance of civic learning in schools. Our recommendations are designed to work within existing structures and constraints.

Engage constituents in structured conversations to inform system design.

Civic learning is inherently connected to community values. Before making changes to assessment systems, leaders should convene educators, students, families, and community members to understand these groups’ priorities. Student input is especially important. Beyond informing policy, participation in structured deliberation is itself a civic learning opportunity.

Ground changes in a clear theory of action.

Leaders should articulate a theory of action that links resources, instructional practices, and expected civic outcomes. For example, a theory of action might posit that if schools receive high-quality instructional materials and professional learning aligned to civic goals, and if teachers implement those materials with fidelity, then students should demonstrate growth in specific civic competencies. Assessment indicators should align to each step in that logic chain. A theory of action also clarifies what evidence to collect and how to interpret results.

Monitor both outcomes and opportunity to learn.

Large-scale assessment systems typically focus on student outcomes such as achievement. But opportunity-to-learn indicators can be equally valuable. Systems should monitor resources and supports such as access to qualified civics teachers, participation in service learning, availability of high-quality curriculum, and school climates that support respectful discussion. Pairing these indicators with measures of student achievement can surface trends and inequities that outcome data alone might obscure.

Incorporate civics content into English language arts (ELA) assessment.

The interdisciplinary nature of civics provides opportunities to integrate civic content into other disciplines including science and mathematics. One of the most feasible strategies is to leverage ELA assessments. When these assessments include knowledge-rich texts drawn from history, government, and contemporary civic issues, they can strengthen literacy while reinforcing civic learning. This integration signals that civic knowledge and reasoning are part of what it means to demonstrate literacy.

Communicate clearly about connections between civic competencies and career readiness.

Education leaders can build support for civic learning by helping constituencies understand the overlap between civic competencies and competencies related to employability (sometimes called 21st century competencies or durable skills). For example, leaders can highlight that skills like leadership, collaboration, analytical thinking and agency appear in both civic learning standards and employer-facing competency lists. Aligning civic indicators to standards and frameworks such as Portraits of a Graduate enables leaders to use large-scale assessment reporting to demonstrate progress toward both civic and career-related goals.

Build toward a balanced system and continuous improvement.

Large-scale assessments are best suited for monitoring and signaling, not for informing daily instruction. A balanced assessment system pairs state-level indicators with high-quality classroom assessments, performance tasks, and reflective practices. Continuous improvement processes that are grounded in evidence and revisited regularly can help ensure that each component of the system is working effectively and meeting constituents’ needs. 

Small Steps, Valuable Signals

Graduates of K-12 school systems are entering a world characterized by rapid technological, political, and social change. Modifications to assessment systems play a small but critical role in preparing graduates to navigate these changes. For state and local leaders reconsidering assessment system design, civic readiness can be part of a more comprehensive effort to ensure that our monitoring systems reflect the broad purposes of public education.

The paper offers deeper analysis, examples, and guidance for implementing high-quality systems and navigating potential challenges. We hope it contributes to ongoing conversations about how assessment systems can support not only academic achievement, but the health of our democracy.