[Congressional Record Volume 143, Number 143 (Wednesday, October 22, 1997)]
[Senate]
[Pages S10957-S10961]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mr. KERRY (for himself, Mr. Bond, Mr. Rockefeller, Mr. Chafee, 
        Mr. Kennedy, Mr. Hollings, Ms. Landrieu, Mr. Wellstone, Ms. 
        Moseley-Braun, Mrs. Boxer, Mr. Torricelli, and Mr. Johnson):
  S. 1309. A bill to provide for the health, education, and welfare of 
children under 6 years of age; to the Committee on Labor and Human 
Resources.


                  THE EARLY CHILDHOOD DEVELOPMENT ACT

  Mr. KERRY. Mr. President, I am delighted to introduce today the Early 
Childhood Development Act with Senator Bond. I want to thank Senator 
Bond for his leadership, both as a Governor who began the successful 
Parents as Teachers Program and for joining together in this bipartisan 
effort to develop a real world solution to real world problems.
  Mr. President, there is no issue more important in America than the 
urgent needs of young children. This country must rededicate itself to 
investing in children, an investment which will have tremendous 
returns. Early intervention can have a powerful effect on reducing 
Government welfare, health, criminal justice, and education 
expenditures in the long run. By taking steps now we can significantly 
reduce later destructive behavior such as school dropout, drug use, and 
criminal acts. A study of the High/Scope Foundation's Perry Preschool 
found that at-risk toddlers who received preschooling and a weekly home 
visit reduced the risk that these children would grow up to become 
chronic lawbreakers by a startling 80 percent. The Syracuse University 
Family Development Study showed that providing quality early-childhood 
programs to families until children reached age 5 reduces the 
children's risk of delinquency 10 years later by 90 percent. It's no 
wonder that a recent survey of police chiefs found that 9 out of 10 
said that ``America could sharply reduce crime if Government invested 
more'' in these early intervention programs.
  These programs are successful because children's experiences during 
their early years of life lay the foundation for their future 
development. Our failure to provide young children what they need 
during this period has long-term consequences and costs for America. 
Recent scientific evidence conclusively demonstrates that enhancing 
children's physical, social, emotional, and intellectual development 
will result in tremendous benefits for children, families, and our 
Nation. The electrical activity of brain cells actually changes the 
physical structure of the brain itself. Without a stimulating 
environment, the baby's brain suffers. At birth, a baby's brain 
contains 100 billion neurons, roughly as many nerve cells as there are 
stars in the Milky Way. But the wiring pattern between these neurons 
develops over time. Children who play very little or are rarely touched 
develop brains 20 to 30 percent smaller than normal for their age.
  Mr. President, reversing these problems later in life is far more 
difficult and costly. I want to discuss several examples.
  First, poverty seriously impairs young children's language 
development, math skills, IQ scores, and their later school completion. 
Poor young children also are at heightened risk of infant mortality, 
anemia, and stunted growth. Of the 12 million children under the age of 
3 in the United States today, 3 million--25 percent--live in poverty.
  Second, three out of five mothers with children younger than 3 work, 
but one study found that 40 percent of the facilities at child care 
centers serving infants provided care of such poor quality as to 
actually jeopardize children's health, safety, or development.

  Third, in more than half of the States, one out of every four 
children between 19 months and 3 years of age is not fully immunized 
against common childhood diseases. Children who are not immunized are 
more likely to contact preventable diseases, which can cause long-term 
harm.
  And fourth, children younger than 3 make up 27 percent of the 1 
million children who are determined to be abused or neglected each 
year. Of the 1,200 children who died from abuse and neglect in 1995, 85 
percent were younger than 5 and 45 percent were younger than 1.
  Unfortunately, Mr. President, our Government expenditure patterns are

[[Page S10958]]

inverse to the most important early development period for human 
beings. Although we know that early investment can dramatically reduce 
later remedial and social costs, currently our Nation spends more than 
$35 billion over 5 years on Federal programs for at-risk or delinquent 
youth and child welfare programs for children ages 12 to 18, but far 
less for children from birth to age 6.
  Today we seek to change our priorities and put children first. I am 
introducing the Early Childhood Development Act of 1997 to help empower 
local communities to provide essential interventions in the lives of 
our youngest at-risk children and their families.
  This legislation seeks to provide support to families by minimizing 
Government bureaucracy and maximizing local initiatives. We would 
provide additional funding to communities to expand the thousands of 
successful efforts for at-risk children ages zero to 6 such as those 
sponsored by the United Way, Boys and Girls Clubs, and other less well-
known grassroots organizations, as well as State initiatives such as 
Success By Six in Massachusetts and Vermont, the Parents as Teachers 
program in Missouri, Healthy Families in Indiana, and the Early 
Childhood Initiative in Pittsburgh, PA. All are short on resources. And 
nowhere do we adequately meet demand although we know that many States 
and local communities deliver efficient, cost-effective, and necessary 
services. Extending the reach of these successful programs to millions 
of children currently underserved will increase our national well-being 
and ultimately save billions of dollars.
  The second part of this bill would provide funding to States to help 
them provide a subsidy to all working poor families to purchase quality 
child care for infants, toddlers, and preschool children. We would not 
create a new program but would simply increase resources for the 
successful Child Care and Development Block Grant [CCDBG]. Child care 
for infants and toddlers is much more expensive than for older children 
since a higher level of care is necessary. Additional funding would 
also pay for improving the salaries and training level of child care 
workers, improving the facilities of child care centers and family 
child care homes, and providing enriched developmentally appropriate 
educational opportunities.
  Finally, the bill would increase funding for the Early Head Start 
Program. The successful Head Start Program provides quality services to 
4 and 5 year-olds. The Early Head Start program, which currently is a 
modest program funded at $200 million annually, provides comprehensive 
child development and family support services to infants and toddlers. 
Expanding this program would help more young children receive the early 
assistance they need.
  I was delighted to be joined earlier today by Dr. Berry Brazelton and 
Rob Reiner to announce this bill. I want to thank Governor Dean of 
Vermont and Governor Romer of Colorado for supporting this legislation 
and the wide range of groups who support this legislation including the 
Association of Jewish Family & Children's Agencies, Boys and Girls 
Clubs of America, Children's Defense Fund, Child Welfare League of 
America, Coalition On Human Needs, Harvard Center for Children's 
Health, Jewish Council for Public Affairs, National Black Child 
Development Institute, Inc., National Council of Churches of Christ in 
the USA, Religious Action Center of Reform Judaism, and Rob Reiner of 
the I Am Your Child Campaign.
  Children need certain supports during their early critical years if 
they are to thrive and grow to be contributing adults. I look forward 
to working with Senator Bond and both sides of the aisle to pass this 
legislation and ensure that all children arrive at school ready to 
learn.
  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. 1309

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

     SECTION 1. SHORT TITLE; TABLE OF CONTENTS.

       (a) Short Title.--This Act may be cited as the ``Early 
     Childhood Development Act of 1997''.
       (b) Table of Contents.--The table of contents of this Act 
     is as follows:

Sec. 1. Short title; table of contents.
Sec. 2. Findings.

                 TITLE I--ASSISTANCE FOR YOUNG CHILDREN

Sec. 101. Definitions.
Sec. 102. Allotments to States.
Sec. 103. Grants to local collaboratives.
Sec. 104. Supplement not supplant.
Sec. 105. Authorization of appropriations.

                   TITLE II--CHILD CARE FOR FAMILIES

Sec. 201. Amendment to Child Care and Development Block Grant Act of 
              1990.

              TITLE III--AMENDMENTS TO THE HEAD START ACT

Sec. 301. Authorization of appropriations.
Sec. 302. Allotment of funds.
Sec. 303. Effective date.

     SEC. 2. FINDINGS.

       Congress makes the following findings--
       (1) The Nation's highest priority should be to ensure that 
     children begin school ready to learn.
       (2) New scientific research shows that the electrical 
     activity of brain cells actually changes the physical 
     structure of the brain itself and that without a stimulating 
     environment, a baby's brain will suffer. At birth, a baby's 
     brain contains 100,000,000,000 neurons, roughly as many nerve 
     cells as there are stars in the Milky Way. But the wiring 
     pattern between these neurons develops over time. Children 
     who play very little or are rarely touched develop brains 
     that are 20 to 30 percent smaller than normal for their age.
       (3) This scientific evidence also conclusively demonstrates 
     that enhancing children's physical, social, emotional, and 
     intellectual development will result in tremendous benefits 
     for children, families, and our Nation.
       (4) Since more than 50 percent of the mothers of children 
     under the age of 3 now work outside of the home, our society 
     must change to provide new supports so young children receive 
     the attention and care that they need.
       (5) There are 12,000,000 children under the age of 3 in the 
     United States today and 1 in 4 lives in poverty.
       (6) Compared with most other industrialized countries, the 
     United States has a higher infant mortality rate, a higher 
     proportion of low-birth weight babies, and a smaller 
     proportion of babies immunized against childhood diseases.
       (7) National and local studies have found a strong link 
     between increased violence and crime among youth when there 
     is no early intervention.
       (8) The United States will spend more than $35,000,000,000 
     over the next 5 years on Federal programs for at-risk or 
     delinquent youth and child welfare programs, which address 
     crisis situations which frequently could be avoided or made 
     much less severe with good early interventions.
       (9) Many local communities across the country have 
     developed successful early childhood efforts and with 
     additional resources could expand and enhance opportunities 
     for young children.
                 TITLE I--ASSISTANCE FOR YOUNG CHILDREN

     SEC. 101. DEFINITIONS.

       In this title:
       (1) Local educational agency.--The term ``local educational 
     agency'' has the meaning given the term in section 14101 of 
     the Elementary and Secondary Education Act of 1965 (20 U.S.C. 
     8801).
       (2) Poverty line.--The term ``poverty line'' means the 
     poverty line (as defined by the Office of Management and 
     Budget, and revised annually in accordance with section 
     673(2) of the Community Services Block Grant Act (42 U.S.C. 
     9902(2)) applicable to a family of the size involved.
       (3) Secretary.--The term ``Secretary'' means the Secretary 
     of Health and Human Services.
       (4) State board.--The term ``State board'' means a State 
     Early Learning Coordinating Board established under section 
     102(c).
       (5) Young child.--The term ``young child'' means an 
     individual from birth through age 5.
       (6) Young child assistance activities.--The term ``young 
     child assistance activities'' means the activities described 
     in paragraphs (1) and (2)(A) of section 103(b).

     SEC. 102. ALLOTMENTS TO STATES.

       (a) In General.--The Secretary shall make allotments under 
     subsection (b) to eligible States to pay for the Federal 
     share of the cost of enabling the States to make grants to 
     local collaboratives under section 103 for young child 
     assistance activities.
       (b) Allotment.--
       (1) In general.--From the funds appropriated under section 
     105 for each fiscal year and not reserved under subsection 
     (i), the Secretary shall allot to each eligible State an 
     amount that bears the same relationship to such funds as the 
     total number of young children in poverty in the State bears 
     to the total number of young children in poverty in all 
     eligible States.
       (2) Young child in poverty.--In this subsection, the term 
     ``young child in poverty'' means an individual who--
       (A) is a young child; and
       (B) is a member of a family with an income below the 
     poverty line.
       (c) State Boards.--
       (1) In general.--In order for a State to be eligible to 
     obtain an allotment under this title, the Governor of the 
     State shall establish, or designate an entity to serve as, a

[[Page S10959]]

     State Early Learning Coordinating Board, which shall receive 
     the allotment and make the grants described in section 103.
       (2) Established board.--A State board established under 
     paragraph (1) shall consist of the Governor and members 
     appointed by the Governor, including--
       (A) representatives of all State agencies primarily 
     providing services to young children in the State;
       (B) representatives of business in the State;
       (C) chief executive officers of political subdivisions in 
     the State;
       (D) parents of young children in the State;
       (E) officers of community organizations serving low-income 
     individuals, as defined by the Secretary, in the State;
       (F) representatives of State nonprofit organizations that 
     represent the interests of young children in poverty, as 
     defined in subsection (b), in the State;
       (G) representatives of organizations providing services to 
     young children and the parents of young children, such as 
     organizations providing child care, carrying out Head Start 
     programs under the Head Start Act (42 U.S.C. 9831 et seq.), 
     providing services through a family resource center, 
     providing home visits, or providing health care services, in 
     the State; and
       (H) representatives of local educational agencies.
       (3) Designated board.--The Governor may designate an entity 
     to serve as the State board under paragraph (1) if the entity 
     includes the Governor and the members described in 
     subparagraphs (A) through (G) of paragraph (2).
       (4) Designated state agency.--The Governor shall designate 
     a State agency that has a representative on the State board 
     to provide administrative oversight concerning the use of 
     funds made available under this title and ensure 
     accountability for the funds.
       (d) Application.--To be eligible to receive an allotment 
     under this title, a State board shall annually submit an 
     application to the Secretary at such time, in such manner, 
     and containing such information as the Secretary may require. 
     At a minimum, the application shall contain--
       (1) sufficient information about the entity established or 
     designated under subsection (c) to serve as the State board 
     to enable the Secretary to determine whether the entity 
     complies with the requirements of such subsection;
       (2) a comprehensive State plan for carrying out young child 
     assistance activities;
       (3) an assurance that the State board will provide such 
     information as the Secretary shall by regulation require on 
     the amount of State and local public funds expended in the 
     State to provide services for young children; and
       (4) an assurance that the State board shall annually 
     compile and submit to the Secretary information from the 
     reports referred to in section 103(d)(2)(F)(iii) that 
     describes the results referred to in section 103(d)(2)(F)(i).
       (e) Federal Share.--
       (1) In general.--The Federal share of the cost described in 
     subsection (a) shall be--
       (A) 85 percent, in the case of a State for which the 
     Federal medical assistance percentage (as defined in section 
     1905(b) of the Social Security Act (42 U.S.C. 1396d(b))) is 
     not less than 50 percent but is less than 60 percent;
       (B) 87.5 percent, in the case of a State for which such 
     percentage is not less than 60 percent but is less than 70 
     percent; and
       (C) 90 percent, in the case of any State not described in 
     subparagraph (A) or (B).
       (2) State share.--
       (A) In general.--The State shall contribute the remaining 
     share (referred to in this paragraph as the ``State share'') 
     of the cost described in subsection (a).
       (B) Form.--The State share of the cost shall be in cash.
       (C) Sources.--The State may provide for the State share of 
     the cost from State or local sources, or through donations 
     from private entities.
       (f) State Administrative Costs.--
       (1) In general.--A State may use not more than 5 percent of 
     the funds made available through an allotment made under this 
     title to pay for a portion, not to exceed 50 percent, of 
     State administrative costs related to carrying out this 
     title.
       (2) Waiver.--A State may apply to the Secretary for a 
     waiver of paragraph (1). The Secretary may grant the waiver 
     if the Secretary finds that unusual circumstances prevent the 
     State from complying with paragraph (1). A State that 
     receives such a waiver may use not more than 7.5 percent of 
     the funds made available through the allotment to pay for the 
     State administrative costs.
       (g) Monitoring.--The Secretary shall monitor the activities 
     of States that receive allotments under this title to ensure 
     compliance with the requirements of this title, including 
     compliance with the State plans.
       (h) Enforcement.--If the Secretary determines that a State 
     that has received an allotment under this title is not 
     complying with a requirement of this title, the Secretary 
     may--
       (1) provide technical assistance to the State to improve 
     the ability of the State to comply with the requirement;
       (2) reduce, by not less than 5 percent, an allotment made 
     to the State under this section, for the second determination 
     of noncompliance;
       (3) reduce, by not less than 25 percent, an allotment made 
     to the State under this section, for the third determination 
     of noncompliance; or
       (4) revoke the eligibility of the State to receive 
     allotments under this section, for the fourth or subsequent 
     determination of noncompliance.
       (i) Technical Assistance.--From the funds appropriated 
     under section 105 for each fiscal year, the Secretary shall 
     reserve not more than 1 percent of the funds to pay for the 
     costs of providing technical assistance. The Secretary shall 
     use the reserved funds to enter into contracts with eligible 
     entities to provide technical assistance, to local 
     collaboratives that receive grants under section 103, 
     relating to the functions of the local collaboratives under 
     this title.

     SEC. 103. GRANTS TO LOCAL COLLABORATIVES.

       (a) In General.--A State board that receives an allotment 
     under section 102 shall use the funds made available through 
     the allotment, and the State contribution made under section 
     102(e)(2), to pay for the Federal and State shares of the 
     cost of making grants, on a competitive basis, to local 
     collaboratives to carry out young child assistance 
     activities.
       (b) Use of Funds.--A local collaborative that receives a 
     grant made under subsection (a)--
       (1) shall use funds made available through the grant to 
     provide, in a community, activities that consist of education 
     and supportive services, such as--
       (A) home visits for parents of young children;
       (B) services provided through community-based family 
     resource centers for such parents; and
       (C) collaborative pre-school efforts that link parenting 
     education for such parents to early childhood learning 
     services for young children; and
       (2) may use funds made available through the grant--
       (A) to provide, in the community, activities that consist 
     of--
       (i) activities designed to strengthen the quality of child 
     care for young children and expand the supply of high quality 
     child care services for young children;
       (ii) health care services for young children, including 
     increasing the level of immunization for young children in 
     the community, providing preventive health care screening and 
     education, and expanding health care services in schools, 
     child care facilities, clinics in public housing projects (as 
     defined in section 3(b) of the United States Housing Act of 
     1937 (42 U.S.C. 1437a(b))), and mobile dental and vision 
     clinics;
       (iii) services for children with disabilities who are young 
     children; and
       (iv) activities designed to assist schools in providing 
     educational and other support services to young children, and 
     parents of young children, in the community, to be carried 
     out during extended hours when appropriate; and
       (B) to pay for the salary and expenses of the administrator 
     described in subsection (e)(4), in accordance with such 
     regulations as the Secretary shall prescribe.
       (c) Multi-Year Funding.--In making grants under this 
     section, a State board may make grants for grant periods of 
     more than 1 year to local collaboratives with demonstrated 
     success in carrying out young child assistance activities.
       (d) Local Collaboratives.--To be eligible to receive a 
     grant under this section for a community, a local 
     collaborative shall demonstrate that the collaborative--
       (1) is able to provide, through a coordinated effort, young 
     child assistance activities to young children, and parents of 
     young children, in the community; and
       (2) includes--
       (A) all public agencies primarily providing services to 
     young children in the community;
       (B) businesses in the community;
       (C) representatives of the local government for the county 
     or other political subdivision in which the community is 
     located;
       (D) parents of young children in the community;
       (E) officers of community organizations serving low-income 
     individuals, as defined by the Secretary, in the community;
       (F) community-based organizations providing services to 
     young children and the parents of young children, such as 
     organizations providing child care, carrying out Head Start 
     programs, or providing pre-kindergarten education, mental 
     health, or family support services; and
       (G) nonprofit organizations that serve the community and 
     that are described in section 501(c)(3) of the Internal 
     Revenue Code of 1986 and exempt from taxation under section 
     501(a) of such Code.
       (e) Application.--To be eligible to receive a grant under 
     this section, a local collaborative shall submit an 
     application to the State board at such time, in such manner, 
     and containing such information as the State board may 
     require. At a minimum, the application shall contain--
       (1) sufficient information about the entity described in 
     subsection (d)(2) to enable the State board to determine 
     whether the entity complies with the requirements of such 
     subsection; and
       (2) a comprehensive plan for carrying out young child 
     assistance activities in the community, including information 
     indicating--
       (A) the young child assistance activities available in the 
     community, as of the date of submission of the plan, 
     including information on efforts to coordinate the 
     activities;

[[Page S10960]]

       (B) the unmet needs of young children, and parents of young 
     children, in the community for young child assistance 
     activities;
       (C) the manner in which funds made available through the 
     grant will be used--
       (i) to meet the needs, including expanding and 
     strengthening the activities described in subparagraph (A) 
     and establishing additional young child assistance 
     activities; and
       (ii) to improve results for young children in the 
     community;
       (D) how the local cooperative will use at least 60 percent 
     of the funds made available through the grant to provide 
     young child assistance activities to young children and 
     parents described in subsection (f);
       (E) the comprehensive methods that the collaborative will 
     use to ensure that--
       (i) each entity carrying out young child assistance 
     activities through the collaborative will coordinate the 
     activities with such activities carried out by other entities 
     through the collaborative; and
       (ii) the local collaborative will coordinate the activities 
     of the local collaborative with--

       (I) other services provided to young children, and the 
     parents of young children, in the community; and
       (II) the activities of other local collaboratives serving 
     young children and families in the community, if any; and

       (F) the manner in which the collaborative will, at such 
     intervals as the State board may require, submit information 
     to the State board to enable the State board to carry out 
     monitoring under section 102(f), including the manner in 
     which the collaborative will--
       (i) evaluate the results achieved by the collaborative for 
     young children and parents of young children through 
     activities carried out through the grant;
       (ii) evaluate how services can be more effectively 
     delivered to young children and the parents of young 
     children; and
       (iii) prepare and submit to the State board annual reports 
     describing the results;
       (3) an assurance that the local collaborative will comply 
     with the requirements of subparagraphs (D), (E), and (F) of 
     paragraph (2), and subsection (g); and
       (4) an assurance that the local collaborative will hire an 
     administrator to oversee the provision of the activities 
     described in paragraphs (1) and (2)(A) of subsection (b).
       (f) Distribution.--In making grants under this section, the 
     State board shall ensure that at least 60 percent of the 
     funds made available through each grant are used to provide 
     the young child assistance activities to young children (and 
     parents of young children) who reside in school districts in 
     which half or more of the students receive free or reduced 
     price lunches under the National School Lunch Act (42 U.S.C. 
     1751 et seq.).
       (g) Local Share.--
       (1) In general.--The local collaborative shall contribute a 
     percentage (referred to in this subsection as the ``local 
     share'') of the cost of carrying out the young child 
     assistance activities.
       (2) Percentage.--The Secretary shall by regulation specify 
     the percentage referred to in paragraph (1).
       (3) Form.--The local share of the cost shall be in cash.
       (4) Source.--The local collaborative shall provide for the 
     local share of the cost through donations from private 
     entities.
       (5) Waiver.--The State board shall waive the requirement of 
     paragraph (1) for poor rural and urban areas, as defined by 
     the Secretary.
       (h) Monitoring.--The State board shall monitor the 
     activities of local collaboratives that receive grants under 
     this title to ensure compliance with the requirements of this 
     title.

     SEC. 104. SUPPLEMENT NOT SUPPLANT.

       Funds appropriated under this title shall be used to 
     supplement and not supplant other Federal, State, and local 
     public funds expended to provide services for young children.

     SEC. 105. AUTHORIZATION OF APPROPRIATIONS.

       There are authorized to be appropriated to carry out this 
     title $250,000,000 for fiscal year 1999, $500,000,000 for 
     fiscal year 2000, $1,000,000,000 for each of fiscal years 
     2001 through 2003, and such sums as may be necessary for 
     fiscal year 2004 and each subsequent fiscal year.
                   TITLE II--CHILD CARE FOR FAMILIES

     SEC. 201. AMENDMENT TO CHILD CARE AND DEVELOPMENT BLOCK GRANT 
                   ACT OF 1990.

       The Child Care and Development Block Grant Act of 1990 is 
     amended by inserting after section 658C (42 U.S.C. 9858b) the 
     following:

     ``SEC. 658C-1. ESTABLISHMENT OF ZERO TO SIX PROGRAM.

       ``(a) In General.--
       ``(1) Payments.--Subject to the amount appropriated under 
     subsection (d), each State shall, for the purpose of 
     providing child care assistance on behalf of children under 6 
     years of age, receive payments under this section in 
     accordance with the formula described in section 658O.
       ``(2) Indian tribes.--The Secretary shall reserve 2 percent 
     of the amount appropriated to carry out this section in each 
     fiscal year for payments to Indian tribes and tribal 
     organizations.
       ``(3) Remainder.--Any amount appropriated for a fiscal year 
     under subsection (d), and remaining after the Secretary 
     awards grants under paragraph (1) and after the reservation 
     under paragraph (2), shall be used by the Secretary to make 
     additional grants to States based on the formula under 
     paragraph (1).
       ``(4) Reallotment.--
       ``(A) In general.--Any portion of the allotment under 
     paragraph (1) to a State that the Secretary determines is not 
     required by the State to carry out the activities described 
     in subsection (b), in the period for which the allotment is 
     made available, shall be reallotted by the Secretary to other 
     States in proportion to the original allotments to the other 
     States.
       ``(B) Limitations.--
       ``(i) Reduction.--The amount of any reallotment to which a 
     State is entitled to under subparagraph (A) shall be reduced 
     to the extent that it exceeds the amount that the Secretary 
     estimates will be used in the State to carry out the 
     activities described in subsection (b).
       ``(ii) Reallotments.--The amount of such reduction shall be 
     similarly reallotted among States for which no reduction in 
     an allotment or reallotment is required by this paragraph.
       ``(C) Indian tribes or tribal organizations.--Any portion 
     of a grant made to an Indian tribe or tribal organization 
     under paragraph (2) that the Secretary determines is not 
     being used in a manner consistent with subsection (b) in the 
     period for which the grant or contract is made available, 
     shall be allotted by the Secretary to other tribes or 
     organizations in accordance with their respective needs.
       ``(5) Availability.--Amounts received by a State under a 
     grant under this section shall be available for use by the 
     State during the fiscal year for which the funds are provided 
     and for the following 2 fiscal years.
       ``(b) Use of Funds.--
       ``(1) In general.--Amounts received by a State under this 
     section shall be used to provide child care assistance, on a 
     sliding fee scale basis, on behalf of eligible children (as 
     determined under paragraph (2)) to enable the parents of such 
     children to secure high quality care for such children.
       ``(2) Eligibility.--To be eligible to receive child care 
     assistance from a State under this section, a child shall--
       ``(A) be under 6 years of age;
       ``(B) be residing with at least one parent who is employed 
     or enrolled in a school or training program or otherwise 
     requires child care as a preventive or protective service (as 
     determined under rules established by the Secretary); and
       ``(C) have a family income that is less than 85 percent of 
     the State median income for a family of the size involved.
       ``(3) Infant care set-aside.--A State shall set-aside 10 
     percent of the amounts received by the State under a grant 
     under subsection (a)(1) for a fiscal year for the 
     establishment of a program to establish innovations in infant 
     and toddler care, including models for--
       ``(A) the development of family child care networks;
       ``(B) the training of child care providers for infant and 
     toddler care; and
       ``(C) the support, renovation, and modernization of 
     facilities used for child care programs serving infants.
       ``(4) Poverty line.--As used in this subsection, the term 
     ``poverty line'' means the income official poverty line (as 
     defined by the Office of Management and Budget, and revised 
     annually in accordance with section 673(2) of the Omnibus 
     Budget Reconciliation Act of 1981) that is applicable to a 
     family of the size involved.
       ``(c) Levels of Assistance.--
       ``(1) Adjustment of rates.--With respect to the levels of 
     assistance provided by States on behalf of eligible children 
     under this section, a State shall be permitted to adjust 
     rates above the market rates to ensure that families have 
     access to high quality infant and toddler care.
       ``(2) Additional assistance.--In administering this 
     section, the Secretary shall encourage States to provide 
     additional assistance on behalf of children for enriched 
     infant and toddler services.
       ``(3) Amount of assistance.--In providing assistance to 
     eligible children under this section, a State shall ensure 
     that an eligible child with a family income that is less than 
     100 percent of the poverty line for a family of the size 
     involved is eligible to receive 100 percent of the amount of 
     the assistance for which the child is eligible.
       ``(d) Appropriation.--For grants under this section, there 
     are appropriated--
       ``(1) $250,000,000 for fiscal year 1999;
       ``(2) $500,000,000 for fiscal year 2000;
       ``(3) $1,000,000,000 for each of fiscal years 2001 through 
     2003; and
       ``(4) such sums as may be necessary for fiscal year 2004 
     and each subsequent fiscal year.
       ``(e) Report.--Not later than 1 year after the date of 
     enactment of this section, the Secretary shall prepare and 
     submit to the appropriate committees of Congress a report 
     concerning--
       ``(1) the appropriate child to staff ratios for infants and 
     toddlers in child care settings, including child care centers 
     and family child care homes; and
       ``(2) other best practices for infant and toddler care.
       ``(f) Application of Other Requirements.--
       ``(1) State plan.--The State, as part of the State plan 
     submitted under section 658E(c), shall describe the 
     activities that the State intends to carry out using amounts 
     received under this section, including a description of the 
     levels of assistance to be provided.

[[Page S10961]]

       ``(2) Other requirements.--Amounts provided to a State 
     under this section shall be subject to the requirements and 
     limitations of this subchapter except that section 
     658E(c)(3), 658F, 658G, 658J, and 658O shall not apply.''.
              TITLE III--AMENDMENTS TO THE HEAD START ACT

     SEC. 301. AUTHORIZATION OF APPROPRIATIONS.

       Section 639(a) of the Head Start Act (42 U.S.C. 9834(a)) is 
     amended by inserting before the period at the end the 
     following: ``, $4,900,000,000 for fiscal year 1999, 
     $5,500,000,000 for fiscal year 2000, $6,100,000,000 for 
     fiscal year 2001, and such sums as may be necessary for 
     fiscal year 2002''.

     SEC. 302. ALLOTMENT OF FUNDS.

       Section 640(a)(6) of the Head Start Act (42 U.S.C. 
     9835(a)(6)) is amended--
       (1) by striking ``1997, and'' and inserting ``1997,''; and
       (2) by inserting after ``1998,'' the following: ``6 percent 
     for fiscal year 1999, 7 percent for fiscal year 2000, 8 
     percent for fiscal year 2001, and 10 percent for fiscal year 
     2002,''.

     SEC. 303. EFFECTIVE DATE.

       This title and the amendments made by this title shall take 
     effect on October 1, 1998.

  Mr. BOND. Mr. President. I rise today, along with my distinguished 
colleague from Massachusetts, Senator John Kerry, to introduce the 
Early Childhood Development Act of 1997. Let me thank all who have 
worked so hard to develop this legislation.
  The most important thing we can do to address the many social 
problems we face, is to recognize that the family is the centerpiece of 
our society and take steps to strengthen families and mobilize 
communities to support young children and their families.
  This legislation follows up on recent scientific research showing 
that infant brain development occurs much more rapidly than previously 
thought, and that early, positive interaction with parents plays the 
critical role in brain development.
  Not surprisingly parents have known instinctively for generations 
what science is just now figuring out: that reading to a baby, 
caressing and cuddling him, and helping him to have a wide range of 
good experiences will enhance his development. When children fail to 
receive love and nurturing at home when they do not receive quality 
child care, whether it is provided by centers, family child care homes, 
or relatives, they are far more likely to develop social and academic 
problems.
  Yet parents today face burdens that were unimaginable a generation 
ago. Half of all marriages now end in divorce, and 28 percent of all 
children under the age of 18 live in a single-parent family. One in 
four infants and toddlers under the age of 3--nearly 3 million 
children--live in families with incomes below the Federal poverty 
level.
  Many women, particularly in low- and moderate-income families, are 
essential in helping support their families financially and have 
entered the workforce in record numbers during the last generation. In 
many families, both parents work. Each day, an estimated 13 million 
children younger than 6--including 6 million babies and toddlers--spend 
some or all of their day being cared for by someone other than their 
parents. Children of working mothers are entering care as early as 6 
weeks of age and spending 35 or more hours a week in some form of child 
care. Whether by choice or necessity, parents must try to find quality 
child care--which is not always available.
  We are seeking, through this legislation, to provide families with 
support through early childhood education and more child care options. 
Our bill will support families--not bureaucracy--by building on local 
initiatives that are already working for families with infants and 
toddlers. We will help communities improve their services and supports 
to families with young children by expanding the thousands of 
successful efforts for families with children from birth to 6, such as 
those sponsored by the United Way and Boys and Girls Clubs as well as 
State initiatives such as Success by Six in Massachusetts and Vermont, 
the Parents as Teachers programs in Missouri and 47 other States, and 
the Early Childhood Initiative in Pennsylvania.
  The Early Childhood Development Act will provide funds for early 
childhood education programs for all children that emphasize the 
primary role of parents and help give them the tools they need to be 
their children's best teachers. Parents are the key to a child's 
healthy development and as we all know, we will never solve our social 
problems unless we involve parents in the process and in their 
children's lives.
  In addition, the bill will expand quality child care programs for 
families, especially for infants. And we will begin the Head Start 
Program earlier--when its impact could be much greater--at birth.
  While Government cannot and should not become a replacement for 
parents and families, we can help families become stronger by providing 
support to help them give their children the encouragement, the love 
and the healthy environment they need to develop their social and 
intellectual capacities.
  Our legislation balances the desire to provide support with the need 
to do so responsibly. I am proud that we have come together on a 
bipartisan basis to invest in programs that encourage family 
responsibility and obligation while helping families in need to reach 
those goals.
  I am very optimistic that the spirit of bipartisanship will guide our 
consideration of this legislation and move it forward. Recent polls 
have shown that the overwhelming majority of Americans want early 
childhood development issues to be top priorities for our country. We 
must all work together to ensure that our most vulnerable citizens are 
given the care and protection they need and deserve.
  Mr. President. I look forward to working with my colleagues to 
improve the quality of life for all children.

                          ____________________