[Congressional Record Volume 143, Number 64 (Thursday, May 15, 1997)]
[Senate]
[Pages S4593-S4596]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mr. BINGAMAN (for himself, Mrs. Hutchison, Ms. Mikulski, Mr. 
        Bumpers, Ms. Collins, and Mr. Robb):
  S. 748. A bill to provide for college affordability and high 
standards; to the Committee on Labor and Human Resources.


        the college affordability and high standards act of 1997

  Mr. BINGAMAN. Mr. President, during the last few years, many of us 
have been trying to figure out how to solve some of the troubling 
questions surrounding public education. These issues include two core 
questions, one about inadequate academic standards and the the other 
about the skyrocketing cost of going on to college.
  What can we do to improve the standards of academic performance in 
our schools and, how can we make college more affordable to more of our 
students?
  One very straightforward answer is to expand the number of advanced 
placement courses taught in our schools and to increase the number of 
students who have the opportunity to take those courses.
  Let me briefly describe what an advanced placement, or AP, course 
really is. The AP program is a set of college-level courses that are 
usually taught to high school juniors and seniors for college credit. 
They are taken on a voluntary basis. These courses are now

[[Page S4594]]

taught in a majority of our high schools. They use locally developed 
materials. However, the year-end AP exams are evaluated on a uniform 
basis, making test scores comparable nationwide. Overall, there are 30 
different AP courses, although most students take them in the areas of 
math and history and science and English.
  Today, I rise to introduce the College Affordability and High 
Standards Act of 1997, which is also being cosponsored by Senators 
Hutchison, Mikulski, Bumpers and Collins. This legislation will allow 
thousands of additional high school students to participate in AP 
courses. The bill focuses on low-income and minority students who often 
attend school in less affluent or in isolated areas.
  I am introducing this bill based in part on several recent visits to 
New Mexico high schools, where I learned that what students want is 
more well-trained teachers. They are asking for more challenging 
academic work. In my home State, in schools like West Mesa High School 
in Albuquerque and Las Cruces High School, AP students told me they 
never thought they could succeed in classes that are this challenging. 
There is great satisfaction and pride, evidenced by their ability to 
succeed.
  While it may seem new, this is not an entirely new approach to 
raising academics and lowering college costs. In fact, we have had 
legislation proposed before by Senator Kassebaum and a bipartisan group 
of other Members, which became law in 1992 and is still in effect. We 
are just building on this approach. In addition, Secretary Riley, the 
late President of the AFT Al Shanker, and Boston Schools Superintendent 
Tom Payzant have spoken out on this.
  Most importantly, 23 States today provide some type of incentive 
program to encourage more AP participation. I have a chart I want to 
show my colleagues to make the point, which shows where there are 
initiatives to promote AP instruction.
  The States in white do not have an incentive program in place. We 
need to supplement the 23 States listed on this map with AP programs in 
the other 27 States, and we need to have every State in the Union 
promoting more advance placement courses. In essence, that is the 
purpose of this legislation.
  There is a long-outdated myth that I want to address very briefly 
about what type of students take these AP courses. There has been in 
the past the impression that AP courses are only for the elite. The 
truth is, more and more students from minority groups from various 
backgrounds are taking AP courses today, as this chart shows, with out 
a decrease in rigor or quality.
  Roughly 1.5 million students participated--80 percent from public 
schools, 55 percent female, and 30 percent minority.
  Almost 60 percent of all high schools offered AP courses, and over 
800,000 exams were taken.
  As a result of this growth, the AP program is the most widely 
accepted program of high academic standards in the nation.


                  THE BENEFITS OF PARTICIPATING IN AP

  Participation is skyrocketing and States are spending funds on AP 
largely because of the benefits of the program:
  AP test scores of 3 or better are valuable because they are accepted 
for credit at nearly 3,000 colleges and universities nationwide.
  AP programs raise academic standards in schools and improve students' 
academic performance in college.
  For students who plan to go directly to work, AP programs provide a 
world-class education with high-level skills that can be easily 
compared among prospective job candidates.


                    GROWTH IN MINORITY PARTICIPATION

  Largely as a result of the 23 State AP incentive programs, overall 
participation and in particular the number of minority participants 
have increased tremendously:
  The overall number of exams taken by minorities has increased to over 
200,000 students in 1996--an increase of 36,000 students--21 percent--
in just 2 years.
  Minority participation in the New Mexico program increased 74 percent 
for Hispanic students and 950 percent for native Americans from 1994 to 
1996.
  Participation among Hispanics in Texas nearly tripled over the last 4 
years, from under 2,000 students to over 5,000.
  These figures are showing us that low-income and underserved students 
have the same ability to meet the academic challenge and the same need 
to lower college costs.


                             STATE PROGRAMS

  Each of the States trying to increase AP participation does it a 
little bit differently, with annual budgets that range from $50,000 to 
over $2 million.
  Some States focus more on training more AP teachers, some on helping 
schools with start-up funding for new classes and labs, and others on 
subsidizing part of the AP test fee for some students.
  However, despite the growing number of State programs, AP programs 
are still often distributed unevenly among regions, States, and even 
among high schools in the same districts.
  Some States like Texas are quickly catching up to the rising national 
participation rate by dedicating a significant amount of consistent 
State funding.
  Meanwhile, other States such as New Mexico are struggling to keep up, 
with relatively small annual budgets that rise and fall each year.


                       WHAT THE LEGISLATION DOES

  The legislation I am introducing today will both help the remaining 
States start new programs and help the States that are already involved 
continue and expand their efforts.
  To help expand access to these courses more evenly, this legislation 
is designed to accommodate the variety of programs that States have 
designed.
  At its core, the bill focuses on supporting State programs that help 
increase AP participation among underserved groups of students, and 
helping pay for part of the AP test fees for low-income students.
  In addition, it would help make AP programs a part of other federal 
education initiatives, encouraging States and districts to use 
education technology and teacher training funds to provide AP courses 
to underserved areas.
  Several Star Schools and State Eisenhower Program grantees are 
already taking this approach, with tremendous success being reported.


                               CONCLUSION

  Let me conclude by pointing out that this approach has a long, 
bipartisan history, and was originally advocated by Members including 
Senators Stevens, Kassebaum, and Seymour, as well as Congressmen 
Cunningham, Goodling, Owens, Becerra, and Miller.
  Having seen from New Mexico's experience what tremendous good can 
come out of even a small investment in AP incentives.
  For these reasons, I urge my colleagues to consider the many benefits 
of this approach and support this legislation and the $6 million 
appropriations request for 1998 that has already been made by the 
administration.
  Mr. President, I encourage my colleagues to support this legislation 
as the session proceeds.
  Mr. President, I ask unanimous consent that the text of the bill be 
printed in the Record.
  There being no objection, the bill was ordered to be printed in the 
Record, as follows:

                                 S. 748

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``College Affordability and 
     High Standards Act of 1997''.

     SEC. 2. FINDINGS AND PURPOSES.

       (a) Findings.--Congress finds that--
       (1) far too many students are not being provided sufficient 
     academic preparation in secondary school, which results in 
     limited employment opportunities, college dropout rates of 
     over 25 percent for the first year of college, and 
     remediation for almost one-third of incoming college 
     freshmen;
       (2) there is a growing consensus that raising academic 
     standards, establishing high academic expectations, and 
     showing concrete results are at the core of improving public 
     education;
       (3) modeling academic standards on the well-known program 
     of advanced placement courses is an approach that many 
     education leaders and almost half of all States have 
     endorsed;
       (4) advanced placement programs already are providing 
     almost 30 different college-level courses, serving almost 60 
     percent of all secondary schools, reaching a 1,500,000 
     student population (of which 80 percent attend public 
     schools, 55 percent are females, and 30 percent are 
     minorities), and providing test scores that are accepted for 
     college credit at

[[Page S4595]]

     almost 3,000 colleges and universities, every university in 
     Germany, France, and Austria, and most institutions in Canada 
     and the United Kingdom;
       (5) 24 States are now funding programs to increase 
     participation in advanced placement programs, including 19 
     States that provide funds for advanced placement teacher 
     professional development, 3 States that require that advanced 
     placement courses be offered, 10 States that pay the fees for 
     advanced placement tests for some or all students, and 4 
     States that require that their universities grant uniform 
     academic credit for scores of 3 or better on advanced 
     placement tests; and
       (6) the State programs described in paragraph (5) have 
     shown the responsiveness of schools and students to such 
     programs, raised the academic standards for both students 
     participating in such programs and other children taught by 
     teachers who are involved in advanced placement courses, and 
     shown tremendous success in increasing enrollment, 
     achievement, and minority participation in advanced placement 
     programs.
       (b) Purposes.--The purposes of this Act are--
       (1) to encourage more of the 600,000 students who take 
     advanced placement courses but do not take advanced placement 
     exams each year to demonstrate their achievements through 
     taking the exams;
       (2) to build on the many benefits of advanced placement 
     programs for students, which benefits may include the 
     acquisition of skills that are important to many employers, 
     Scholastic Aptitude Tests (SAT) scores that are 100 points 
     above the national averages, and the achievement of better 
     grades than the grades of students who have not participated 
     in the programs;
       (3) to support State and local efforts to raise academic 
     standards through advanced placement programs, and thus 
     further increase the number of students who participate and 
     succeed in advanced placement programs;
       (4) to increase the availability and broaden the range of 
     schools that have advanced placement programs, which programs 
     are still often distributed unevenly among regions, States, 
     and even secondary schools within the same school districts, 
     while also increasing and diversifying student participation 
     in the programs;
       (5) to build on the State programs described in subsection 
     (a)(5) and demonstrate that larger and more diverse groups of 
     students can participate and succeed in advanced placement 
     programs; and
       (6) to provide access to advanced placement courses for 
     secondary school juniors at schools that do not offer 
     advanced placement programs, increase the rate of secondary 
     school juniors and seniors who participate in advanced 
     placement courses to 25 percent of the secondary school 
     student population, and increase the numbers of students who 
     receive advanced placement test scores for which college 
     academic credit is awarded.

     SEC. 3. ADVANCED PLACEMENT DEMONSTRATION PROGRAM GRANTS.

       (a) Grants Authorized.--
       (1) In general.--Subject to subsection (e) and from amounts 
     appropriated under the authority of subsection (g) for a 
     fiscal year, the Secretary shall award grants, on a 
     competitive basis, to eligible entities for the fiscal year 
     to enable the eligible entities to carry out the authorized 
     activities described in subsection (c).
       (2) Duration and payments.--
       (A) Duration.--The Secretary shall award a grant under this 
     section for a period of 3 years.
       (B) Payments.--The Secretary shall make grant payments 
     under this section on an annual basis.
       (3) Definition of eligible entity.--In this section, the 
     term ``eligible entity'' means a State educational agency, or 
     in the case of a State for which the State educational agency 
     does not receive a grant under this section, a local 
     educational agency in the State.
       (b) Priority.--In awarding grants under this section the 
     Secretary shall give priority to eligible entities submitting 
     applications under subsection (d) that demonstrate--
       (1) a pervasive need for access to advanced placement 
     incentive programs;
       (2) the involvement of business and community organizations 
     in the activities to be assisted;
       (3) a focus on developing or expanding advanced placement 
     programs and participation in the core academic areas of 
     English, mathematics, and science; and
       (4) the availability of matching funds from State or local 
     sources.
       (c) Authorized Activities.--An eligible entity may use 
     grant funds under this section to expand access for low-
     income individuals to advanced placement incentive programs 
     that involve--
       (1) teacher training;
       (2) preadvanced placement course development;
       (3) curriculum coordination and articulation between grade 
     levels that prepares students for advanced placement courses;
       (4) curriculum development; and
       (5) any other activity related to expanding access to and 
     participation in advanced placement incentive programs for 
     low-income individuals.
       (d) Application.--Each eligible entity desiring a grant 
     under this section shall submit an application to the 
     Secretary at such time, in such manner, and accompanied by 
     such information as the Secretary may require.
       (e) Special Rule.--The Secretary shall award a grant under 
     this section for a fiscal year only if the College Board 
     expends for the College Board Fee Assistance Program for the 
     fiscal year at least the amount of funds the College Board 
     expended for the program for the preceding fiscal year.
       (f) Data Collection and Reporting.--
       (1) Data collection.--Each eligible entity receiving a 
     grant under this section shall annually report to the 
     Secretary--
       (A) the number of advanced placement tests taken by 
     students served by the eligible entity;
       (B) the scores on the advanced placement tests; and
       (C) demographic information regarding individuals taking 
     the advanced placement tests.
       (2) Report.--The Secretary shall annually compile the 
     information received from each eligible entity under 
     paragraph (1) and report to Congress regarding the 
     information.
       (g) Authorization of Appropriations.--There are authorized 
     to be appropriated to carry out this section $25,000,000 for 
     fiscal year 1998, and such sums as may be necessary for each 
     of the 4 succeeding fiscal years.

     SEC. 4. ADDITIONAL PRIORITIES FOR ADVANCED PLACEMENT.

       (a) Student Incentives.--
       (1) Byrd scholarships.--Section 419G(a) of the Higher 
     Education Act of 1965 (20 U.S.C. 1070d-37(a)) is amended by 
     adding at the end the following: ``The criteria shall take 
     into consideration participation and performance in advanced 
     placement courses.''.
       (2) Dissemination of advanced placement information.--Each 
     institution of higher education receiving Federal funds for 
     research or for programs assisted under the Higher Education 
     Act of 1965 (20 U.S.C. 1001 et seq.)--
       (A) shall distribute to secondary school counselors or 
     advanced placement coordinators in the State information with 
     respect to the amount and type of academic credit provided to 
     students at the institution of higher education for advanced 
     placement test scores; and
       (B) shall standardize, not later than 4 years after the 
     date of enactment of this Act, the form and manner in which 
     the information described in subparagraph (A) is disseminated 
     by the various departments, offices, or other divisions of 
     the institution of higher education.
       (b) State and Local Initiatives.--
       (1) Javits gifted and talented students.--Section 10205(a) 
     of the Elementary and Secondary Education Act of 1965 (20 
     U.S.C. 8035(a)) is amended--
       (A) in paragraph (1), by striking ``and'' after the 
     semicolon;
       (B) in paragraph (2), by striking the period and inserting 
     ``; and''; and
       (C) by adding at the end the following:
       ``(3) to programs and projects for gifted and talented 
     students that build on or otherwise incorporate advanced 
     placement courses and tests.''.
       (2) Upward bound program.--Section 402C of the Higher 
     Education Act of 1965 (20 U.S.C. 1070a-13) is amended by 
     adding at the end the following:
       ``(f) Priority.--The Secretary shall give priority in 
     awarding grants under this section to upward bound projects 
     that focus on increasing secondary school student 
     participation and success in advanced placement courses.''.
       (3) Eisenhower professional development.--
       (A) Federal activities.--Section 2101 of the Elementary and 
     Secondary Education Act of 1965 (20 U.S.C. 6621) is amended 
     by adding at the end the following:
       ``(c) Priority.--The Secretary shall give priority in 
     awarding grants and entering into contracts and cooperative 
     agreements under this part to activities that involve 
     training in advanced placement instruction.''.
       (B) State and local activities.--Section 2207 of the 
     Elementary and Secondary Education Act of 1965 (20 U.S.C. 
     6647) is amended--
       (i) in paragraph (12), by striking ``and'' after the 
     semicolon;
       (ii) in paragraph (13), by striking the period and 
     inserting ``; and''; and
       (iii) by adding at the end the following:
       ``(14) providing professional development activities 
     involving training in advanced placement instruction.''.
       (4) Technology.--
       (A) Star schools.--Section 3204 of the Elementary and 
     Secondary Education Act of 1965 (20 U.S.C. 6894) is amended 
     by adding at the end the following:
       ``(i) Advanced Placement Instruction.--Each eligible entity 
     receiving funds under this part is encouraged to deliver 
     advanced placement instruction to underserved communities.''.
       (B) Education technology grants.--Subpart 2 of part A of 
     title III of the Elementary and Secondary Education Act of 
     1965 (20 U.S.C. 6841 et seq.) is amended--
       (i) in section 3134 (20 U.S.C. 6844)--

       (I) in paragraph (5), by striking ``and'' after the 
     semicolon;
       (II) in paragraph (6), by striking the period and inserting 
     ``; and''; and
       (III) by adding at the end the following:

       ``(7) providing education technology for advanced placement 
     instruction.''; and
       (ii) in section 3136(c) (20 U.S.C. 6846(c))--

       (I) in paragraph (4), by striking ``and'' after the 
     semicolon;

[[Page S4596]]

       (II) in paragraph (5), by striking the period and inserting 
     ``; and''; and
       (III) by adding at the end the following:

       ``(6) the project will use education technology for 
     advanced placement instruction.''.

     SEC. 5. ADVANCED PLACEMENT TEST FEE REDUCTION PROGRAM.

       Part G of title XV of the Higher Education Amendments of 
     1992 (20 U.S.C. 1070a-11 note) is amended to read as follows:

        ``PART G--ADVANCED PLACEMENT TEST FEE REDUCTION PROGRAM

     ``SEC. 1545. ADVANCED PLACEMENT TEST FEE REDUCTION PROGRAM.

       ``(a) Grants Authorized.--
       ``(1) In general.--Subject to subsection (g) and from 
     amounts appropriated under the authority of subsection (j) 
     for a fiscal year, the Secretary shall award grants to State 
     educational agencies for the fiscal year to enable the State 
     educational agencies to carry out the authorized activities 
     described in subsection (d).
       ``(2) Amount.--
       ``(A) In general.--The Secretary shall award a State 
     educational agency a grant under this section for a fiscal 
     year in an amount based on $25 for each eligible low-income 
     individual in the State who takes an advanced placement test 
     for the fiscal year.
       ``(B) Adjustments.--The Secretary may adjust the dollar 
     figure in subparagraph (A) to reflect changes in inflation or 
     in amounts appropriated under the authority of subsection 
     (j).
       ``(b) Information Dissemination.--The State educational 
     agency shall disseminate information on the activities 
     assisted under this section to low-income individuals through 
     secondary school teachers and guidance counselors.
       ``(c) Priority.--The Secretary shall give priority in 
     awarding grants under this section for a fiscal year to State 
     educational agencies serving States that--
       ``(1) expend State funds--
       ``(A) to lower advanced placement test fees for eligible 
     low-income individuals; or
       ``(B) to expand the State pool of teachers prepared to 
     teach advanced placement courses to low-income individuals or 
     in underserved communities;
       ``(2) use more than a negligible amount of funds provided 
     under title II of the Elementary and Secondary Education Act 
     of 1965 (20 U.S.C. 6601 et seq.) or other Federal funds to 
     increase participation in advanced placement incentive 
     programs; or
       ``(3) operate, on the date of enactment of the College 
     Affordability and High Standards Act of 1997, an advanced 
     placement incentive program.
       ``(d) Authorized Activities.--A State educational agency 
     may use grant funds under this section for activities that 
     are related to expanding access for low-income individuals or 
     in underserved communities to advanced placement tests, and 
     involve--
       ``(1) establishing or expanding an advanced placement test 
     fee reduction program for eligible low-income individuals 
     that may include--
       ``(A) varying the amount or type of advanced placement test 
     fee reimbursement for eligible low-income individuals; or
       ``(B) establishing a sliding scale advanced placement test 
     fee reimbursement program based on an eligible low-income 
     individual's annual gross income; or
       ``(2) only in the case of a State that operates an advanced 
     placement test fee reduction program on the date of enactment 
     of the College Affordability and High Standards Act of 1997, 
     expanding the program or carrying out any activity that meets 
     the requirements of subparagraph (A) or (B) of subsection 
     (c)(1).
       ``(e) Special Rules.--
       ``(1) Remaining funds.--If any funds authorized to be 
     appropriated under the authority of subsection (j) for a 
     fiscal year remain available after the Secretary awards 
     grants to State educational agencies under this section for 
     the fiscal year, then the Secretary shall use the remaining 
     funds to award grants under this section for the succeeding 
     fiscal year.
       ``(2) Maintenance of effort.--The State educational agency, 
     in utilizing the proceeds of a grant received under this 
     section, shall maintain the expenditures of the State 
     educational agency for advanced placement incentive programs 
     at a level of such expenditures maintained by the State 
     educational agency for the fiscal year preceding the fiscal 
     year for which the grant is received.
       ``(f) Application.--Each State educational agency desiring 
     a grant under this section shall submit to the Secretary an 
     application at such time, in such manner, and accompanied by 
     such information as the Secretary may require.
       ``(g) Requirement.--The Secretary shall award a grant under 
     this section for a fiscal year only if the College Board 
     expends for the College Board Fee Assistance Program for the 
     fiscal year at least the amount of funds the College Board 
     expended for such program for the preceding fiscal year.
       ``(h) Data Collection and Reporting.--
       ``(1) Data collection.--Each State educational agency 
     receiving a grant under this section shall annually report to 
     the Secretary--
       ``(A) the number of advanced placement tests taken by 
     students served by the State educational agency;
       ``(B) the scores on the advanced placement tests; and
       ``(C) demographic information regarding individuals taking 
     the advanced placement tests.
       ``(2) Report.--The Secretary shall annually compile the 
     information received from each State educational agency under 
     paragraph (1) and report to Congress regarding the 
     information.
       ``(i) Definitions.--In this section:
       ``(1) Advanced placement incentive program.--The term 
     `advanced placement incentive program' means a program that 
     provides advanced placement activities and services to low-
     income individuals.
       ``(2) Advanced placement test.--The term `advanced 
     placement test' means an advanced placement test administered 
     by the College Board or approved by the Secretary.
       ``(3) Eligible low-income individual.--The term `eligible 
     low-income individual' means a low-income individual (as 
     defined in section 402A(g)(2) of the Higher Education Act of 
     1965 (20 U.S.C. 1070a-11(g)(2)) who is academically prepared 
     to successfully take an advanced placement test as determined 
     by a secondary school teacher or advanced placement 
     coordinator taking into consideration factors such as 
     enrollment and performance in an advanced placement course or 
     superior academic ability.
       ``(4) Secondary school; and state educational agency.--The 
     terms `secondary school' and `State educational agency' have 
     the meanings given the terms in section 14101 of the 
     Elementary and Secondary Education Act of 1965 (20 U.S.C. 
     8801).
       ``(5) Secretary.--The term `Secretary' means the Secretary 
     of Education.
       ``(6) State.--The term `State' means each of the several 
     States of the United States, the District of Columbia, the 
     Commonwealth of Puerto Rico, Guam, American Samoa, the United 
     States Virgin Islands, the Republic of the Marshall Islands, 
     the Federated States of Micronesia, and the Republic of 
     Palau.
       ``(j) Authorization of Appropriations.--There are 
     authorized to be appropriated to carry out this section 
     $6,000,000 for fiscal year 1998 and such sums as may be 
     necessary for each of the 4 succeeding fiscal years.''.

     SEC. 6. DEFINITIONS.

       In this Act:
       (1) Advanced placement incentive program.--The term 
     ``advanced placement incentive program'' means a program that 
     provides advanced placement activities and services to low-
     income individuals.
       (2) Advanced placement test.--The term ``advanced placement 
     test'' means an advanced placement test administered by the 
     College Board or approved by the Secretary.
       (3) Eligible low-income individual.--The term ``eligible 
     low-income individual'' means a low-income individual (as 
     defined in section 402A(g)(2) of the Higher Education Act of 
     1965 (20 U.S.C. 1070a-11(g)(2)) who is academically prepared 
     to successfully take an advanced placement test as determined 
     by a school teacher or advanced placement coordinator taking 
     into consideration factors such as enrollment and performance 
     in an advanced placement course or superior academic ability.
       (4) Institution of higher education.--The term 
     ``institution of higher education'' has the meaning given the 
     term in section 1201(a) of the Higher Education Act of 1965 
     (20 U.S.C. 1141(a)).
       (5) Local educational agency; secondary school; and state 
     educational agency.--The terms ``local educational agency'', 
     ``secondary school'', and ``State educational agency'' have 
     the meanings given the terms in section 14101 of the 
     Elementary and Secondary Education Act of 1965 (20 U.S.C. 
     8801).
       (6) Secretary.--The term ``Secretary'' means the Secretary 
     of Education.
       (7) State.--The term ``State'' means each of the several 
     States of the United States, the District of Columbia, the 
     Commonwealth of Puerto Rico, Guam, American Samoa, the United 
     States Virgin Islands, the Republic of the Marshall Islands, 
     the Federated States of Micronesia, and the Republic of 
     Palau.
                                 ______