The topic of citizenship education and the promotion of democratic citizenship in schools has risen to the top of educational policy agendas in Europe over the past three decades. This rise in attention, however, appears to be accompanied by an apparent lack of attention to the specific manner in which citizenship, education and the assumed relationship between both are currently conceptualised and understood in this policy context. The currently dominant notions of citizenship education centre around a concept of citizenship-as-competence, illustrating a certain assumption of equivalence between citizenship and formal education in schools, without further elaborating on this assumption. By means of a critical re-reading of key European educational policy texts referring to citizenship education, and their use of the key concepts of citizenship and education, our analysis shows how the competence-based approach to citizenship education in European educational policymaking entails tensions with its own assumptions, therefore falling short of its own proclaimed purpose of emancipating young people in Europe to become autonomous, engaged and critical democratic citizens.

In the last two decades, calls to place citizenship education (CE) at the top of national and European educational policy and research agendas have been gaining in prominence. Large‐scale comparative studies, such as the International Civic and Citizenship Education Study (ICCS), are often considered the main evidence base for setting these agendas and improving CE policies and practices. This article therefore considers the ICCS study as an inherent part of the process of translating general, educational aims into curricular policies and practices of CE. However, while critical voices about comparative educational studies have become paramount, a detailed analysis of their contents, of what and how they measure and what they promote as the aims of education is often lacking. This article aims to fill this gap by analysing the main research documents, design and items of the 2009 ICCS study. To find out what ICCS promotes as the goals of citizenship education, we examined its normative assumptions in terms of qualification, socialisation and/or subjectification. Our analysis shows that the qualification and socialisation functions are dominantly validated in all aspects of the study, whilst there is only marginal attention to subjectification. This implies that ICCS misses an important potential to document and/or promote pupils becoming autonomous and critical democratic citizens, whilst this is often considered a central aim of citizenship education by policymakers, practitioners and teachers.

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