The actual consumers of knowledge are the children—who can’t pay, can’t vote, can’t sit on the committees. Their parents care for them, but don’t sit in the classes themselves; they can only hold politicians responsible according to surface images of “tough on education.” Politicians are too busy being re-elected to study all the data themselves; they have to rely on surface images of bureaucrats being busy and commissioning studies—it may not work to help any children, but it works to let politicians appear caring. Bureaucrats don’t expect to use textbooks themselves, so they don’t care if
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