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New citizenship test raises hard questions
Department of Homeland Security addresses issues of fairness, relevance at Chicago meeting

By Oscar Avila
Tribune staff reporter

August 3, 2005

To become U.S. citizens, many immigrants study for months to pass an exam of English and the basics of the American political system. On Test Day, they might have to know that Dick Cheney is the vice president or that senators serve six-year terms.

But while immigrants learn Civics 101, the government's ongoing effort to redesign the naturalization exam has become a textbook political tussle, bringing in liberal immigrant advocates, a conservative veterans group and lawmakers of both parties.

Immigration officials say the redesign process is vital to ensure that a growing pool of naturalized citizens assimilate into the United States.

The seemingly simple bureaucratic exercise, however, raises a sensitive question: How do you prove you are a good American?

Conservatives worry about watering down the test with trivia. They point to "meaningless" questions such as one on the current test that asks why there are 50 stars on the U.S. flag. They would prefer that immigrants explain more relevant constitutional concepts, such as the 5th Amendment.

Immigrant advocates fear making the test too difficult and excluding immigrants with little formal education. On Tuesday, about 60 Chicago advocates shared those concerns at a meeting attended by officials from the Department of Homeland Security, one of several meetings taking place nationwide throughout the year.

Alfonso Aguilar, director of Homeland Security's Office of Citizenship, said in an interview that the debate would likely be so "contentious" that he ruled out a bipartisan oversight panel because little would be accomplished.

"This effort is a proactive, positive effort to integrate new Americans into our civic culture," Aguilar said. "It should not become a forum for a debate on history. We hope to transcend that debate."

Immigration officials hope to have a new test in place by 2008. The current format was introduced in 1988 and the redesign process began in 1997.

Meanwhile, the number of immigrants with a stake in the test is growing.

A 2003 Urban Institute study estimated 8 million legal immigrants were eligible for citizenship, including about 340,000 in Illinois. About 2.7 million more will become eligible nationwide by 2007. The study found that as of 2000 about 60 percent of eligible immigrants had been naturalized.

With a few exceptions, immigrants applying for citizenship must have held the status of legal permanent resident for at least five years and not have committed certain crimes that would disqualify them from being of "good moral character."

Applicants meet with an officer from U.S. Citizenship and Immigration Services, the Homeland Security agency overseeing the test redesign.

To show English proficiency, applicants read passages aloud, write dictated sentences or answer questions orally. They also have to answer civics questions, either orally or in writing.

For the civics portion, immigration officers ask applicants questions from a list of 96 sample questions.

But even immigrant advocates acknowledge some applicants memorize the answers from a government-issued study guide they may not truly understand. They could identify the Supreme Court's William Rehnquist as the chief justice--one of the sample questions--but perhaps cannot explain the court's role.

Marty Justis, the Americanism director for the American Legion, an Indianapolis-based veterans organization, said he would prefer more questions about civic duties instead of about the colors of the U.S. flag. Justis, working with conservative members of Congress, has urged the government to institute more relevant questions.

"When [immigrants] raise their hand to take that oath, they are making a commitment to this nation," Justis said. "It's important that they understand this nation."

Immigration officials agree that the test should include "meaningful knowledge." But they also have vowed not to make the test more difficult.

Agency officials also said they want to make the test more consistent. Currently, immigration officers can tailor their questions based on an applicant's age, educational level and other personal characteristics.

While agreeing that testing is inconsistent because no interview is exactly the same, some immigrant advocates have raised red flags about a rigid exam.

"If it's a one-size-fits all, a tremendous amount of people will be excluded," said Susan Wexler, who attended the meeting and is assistant administrator for Hebrew Immigrant Aid Society in Chicago, which mainly serves refugees from the former Soviet Union.

Aguilar, the Homeland Security official, tried to assuage those worries by ruling out "an SAT for citizenship."

As the testing redesign lurches forward, some observers say the process runs the risk of being driven more by politics than sound education, with some comparing it to interest groups weighing in on history textbooks.

Eleven members of Congress, including U.S. Reps. Luis Gutierrez and Jan Schakowsky of Illinois, sent a letter in June to Homeland Security Secretary Michael Chertoff warning that the "entire process may become politicized and further undermined" without independent oversight.

Fred Tsao, policy director for the non-partisan Illinois Coalition for Immigrant and Refugee Rights, even raised the possibility that conservative advocates for a tougher test want to discourage Latinos from obtaining U.S. citizenship because they make up a reliably Democratic voting bloc.

"People on the [Republican] side of the fence might see immigrants as votes for the other side," said Tsao, who also attended the meeting. "One would hate to think that efforts to make the test harder are an effort to suppress naturalization and prevent them from voting."

Aguilar stressed that the government wants to make the redesign process transparent, pointing to Tuesday's meeting in Chicago as proof. Immigration officials say the meetings are designed to solicit input from those who work directly with immigrants pursuing citizenship.

Rosalind Gold, senior policy director of the National Association of Latino Elected Officials, said she has seen progress, including the naming of Michael Jones, a researcher with expertise in immigrant education, to direct the redesign instead of a political appointee.

"The citizenship process should be a chance to reaffirm American values. One of those values is fairness," Gold said. "It sends a signal to immigrants that the country is welcoming and embracing their participation."

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How would you do?

Immigration officials hope to have a new citizenship test in place by 2008. Liberal immigrant advocates fear making the test too hard and conservatives say some of the current questions are meaningless. Here are a few questions from the test, introduced in 1988.

1. Can you name the 13 original states?

2. What is the minimum voting age?

3. Who has the power to declare war?

4. What is the 4th of July?

5. What do the stripes on the flag mean?

6. How many representatives are there in Congress?

How did you do?

1. Connecticut, New Hampshire, New York, New Jersey, Massachusetts, Pennsylvania, Delaware, Virginia, North Carolina, South Carolina, Georgia, Rhode Island and Maryland.

2. 18

3. Congress

4. Independence Day

5. One for each of the original 13 states

6. 435