[Congressional Record Volume 144, Number 138 (Tuesday, October 6, 1998)]
[Senate]
[Pages S11533-S11539]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]




                         READING EXCELLENCE ACT

  Mr. JEFFORDS. Mr. President, I ask unanimous consent that the Senate 
proceed to the immediate consideration of Calendar No. 404, H.R. 2614.
  The PRESIDING OFFICER. The clerk will report the bill.
  The legislative clerk read as follows:

       A bill (H.R. 2614) to improve the reading and literacy 
     skills of children and families by improving in-service 
     instructional practices for teachers who teach reading, to 
     stimulate the development of more high-quality family 
     literacy programs, to support extended learning-time 
     opportunities for children, to ensure that children can read 
     well and independently not later than third grade, and for 
     other purposes.

  The PRESIDING OFFICER. Is there objection to the immediate 
consideration of the bill?
  There being no objection, the Senate proceeded to consider the bill, 
which had been reported from the Committee on Labor and Human 
Resources, with an amendment to strike all after the enacting clause 
and inserting in lieu thereof the following:
       TITLE I--PROFESSIONAL DEVELOPMENT IN READING AND LITERACY

     SEC. 101. PROFESSIONAL DEVELOPMENT IN READING AND LITERACY.

       (a) In General.--Title II of the Elementary and Secondary 
     Education Act of 1965 (20 U.S.C. 6601 et seq.) is amended--
       (1) by redesignating parts C and D as parts D and E, 
     respectively; and
       (2) by inserting after part B the following:

       ``PART C--PROFESSIONAL DEVELOPMENT IN READING AND LITERACY

     ``SEC. 2251. PROGRAM AUTHORIZED.

       ``The Secretary is authorized to award grants to State 
     educational agencies for the improvement of teaching and 
     learning through sustained and intensive high quality 
     professional development activities in reading and literacy 
     at the State and local levels.

     ``SEC. 2252. ALLOTMENT OF FUNDS.

       ``(a) Reservations.--From the amount available to carry out 
     this part for any fiscal year, the Secretary shall reserve--
       ``(1) \1/2\ of 1 percent for the outlying areas, to be 
     distributed among the outlying areas on the basis of their 
     relative need for assistance under this part, as determined 
     by the Secretary; and
       ``(2) \1/2\ of 1 percent for the Secretary of the Interior 
     for programs under this part for professional development 
     activities for teachers, other staff, and administrators in 
     schools operated or funded by the Bureau of Indian Affairs.
       ``(b) State Allotments.--The Secretary shall allot the 
     amount available to carry out this part and not reserved 
     under subsection (a) for a fiscal year to each of the 50 
     States, the District of Columbia, and the Commonwealth of 
     Puerto Rico as follows, except that no State shall receive 
     less than \1/2\ of 1 percent of such amount:
       ``(1) 50 percent shall be allotted among such jurisdictions 
     on the basis of their relative populations of individuals 
     aged 5 through 17, as determined by the Secretary on the 
     basis of the most recent satisfactory data.

[[Page S11534]]

       ``(2) 50 percent shall be allotted among such jurisdictions 
     in accordance with the relative amounts such jurisdictions 
     received under part A of title I for the preceding fiscal 
     year.
       ``(c) Reallotment.--If any jurisdiction does not apply for 
     an allotment under subsection (b) for any fiscal year, the 
     Secretary shall reallot the amount of the allotment to the 
     remaining jurisdictions in accordance with such subsection.

     ``SEC. 2253. WITHIN-STATE ALLOCATIONS.

       ``(a) Reservation.--From the amount made available to a 
     State under this part for any fiscal year, not more than 5 
     percent may be reserved for the administrative costs of the 
     State educational agency and to carry out State-level 
     activities described in section 2256(a).
       ``(b) Local Educational Agency Eligibility.--A State 
     educational agency shall award grants under this part for a 
     fiscal year to a local educational agency only if the number 
     of children, that are served by the local educational agency 
     and counted under section 1124(c) for the fiscal year, is 
     equal to or exceeds the lesser of--
       ``(1) 30 percent of the total number of children aged 5 
     through 17 served by the local educational agency for the 
     fiscal year; or
       ``(2) the total number of children aged 5 through 17 served 
     by the local educational agency for the fiscal year 
     multiplied by the result obtained from multiplying 1.5 by a 
     fraction, the numerator of which is the total number of 
     children in the State counted under section 1124(c) for the 
     fiscal year, and the denominator of which is the total number 
     of children aged 5 through 17 in the State for the fiscal 
     year.
       ``(c) Allocation.--A State educational agency shall 
     allocate funds made available under this part and not 
     reserved under subsection (a) for a fiscal year among local 
     educational agencies in the State that are described in 
     subsection (b), according to the local educational agencies 
     respective need for assistance under this part, as determined 
     by the State educational agency, taking into account factors 
     such as--
       ``(1) the number of children served by the local 
     educational agency who are from low-income families; and
       ``(2) the number of elementary school and secondary school 
     students who are served by the local educational agency and 
     whose reading achievement is unsatisfactory.

     ``SEC. 2254. CONSORTIA REQUIREMENTS.

       ``(a) Consortia.--A local educational agency receiving a 
     grant under this part of less than $10,000 shall form a 
     consortium with another local educational agency or an 
     educational service agency serving another local educational 
     agency in order to be eligible to participate in programs 
     assisted under this part.
       ``(b) Waiver.--The State educational agency may waive the 
     application of subsection (a) in the case of any local 
     educational agency that demonstrates that the amount of the 
     agency's grant under this part is sufficient to provide a 
     program of sufficient size, scope, and quality to be 
     effective. In granting waivers under the preceding 
     sentence, the State educational agency shall--
       ``(1) give special consideration to local educational 
     agencies serving rural areas if distances or traveling time 
     between schools make formation of the consortium more costly 
     or less effective; and
       ``(2) consider cash or in-kind contributions provided from 
     State or local sources that may be combined with the local 
     educational agency's grant for the purpose of providing 
     services under this part.
       ``(c) Special Rule.--Each consortium shall rely, as much as 
     possible, on technology or other arrangements to provide 
     professional development programs tailored to the needs of 
     each school or school district participating in a consortium 
     described in subsection (a).

     ``SEC. 2255. STATE APPLICATIONS.

       ``(a) Applications Required.--Each State educational agency 
     desiring an allotment under this part for any fiscal year 
     shall submit an application to the Secretary at such time, in 
     such form, and containing such information as the Secretary 
     may require.
       ``(b) State Plan To Improve Teaching and Learning of 
     Reading and literacy Programs.--
       ``(1) In general.--Each application under this section 
     shall include a State plan that is coordinated with the 
     State's plan for other Federal education programs that 
     pertain to reading and literacy activities.
       ``(2) Contents.--Each State plan shall--
       ``(A) be developed--
       ``(i) in conjunction with the Governor of the State (in 
     those States where the Governor does not appoint the Chief 
     State School Officer), the State agency for higher education, 
     community-based and other nonprofit organizations of 
     demonstrated effectiveness in reading readiness, reading 
     instruction for both adults and children, and early childhood 
     literacy, institutions of higher education or schools of 
     education, and State directors of appropriate Federal or 
     State programs with a strong reading or literacy component; 
     and
       ``(ii) with the extensive participation of teachers who 
     teach reading, and of parents;
       ``(B) include an assessment of State and local needs for 
     reading and literacy professional development for pre-school, 
     elementary school, and secondary school teachers, and 
     teachers who teach in adult and family literacy programs;
       ``(C) include a description of how the plan has assessed 
     the needs of local educational agencies serving rural and 
     urban areas, and a description of the actions planned to meet 
     such needs;
       ``(D) include a description of how the activities assisted 
     under this part will address the needs of teachers in schools 
     receiving assistance under title I and will effectively teach 
     all students to read independently;
       ``(E) include a description of--
       ``(i) how professional development activities assisted 
     under this part will be based on the best available research 
     on reading development and reading disorders; and
       ``(ii) the extent to which the activities prepare teachers 
     in all the major components of reading instruction (including 
     phoneme awareness, phonics, fluency, and reading 
     comprehension);
       ``(F) describe how the State will use technology to enhance 
     reading and literacy professional development activities for 
     teachers;
       ``(G) describe how parents can participate in literacy-
     related activities assisted under this part to enhance 
     children's reading fluency;
       ``(H) describe how reading tutors can participate in 
     literacy-related activities assisted under this part, 
     including professional development opportunities, to enhance 
     children's reading fluency;
       ``(I) describe how the State educational agency will 
     facilitate the provision of technical assistance to the local 
     educational agencies that receive grants under this part in 
     order to assist in establishing the local educational 
     agencies' local professional development activities;
       ``(J) describe how the State educational agency--
       ``(i) will build on, and promote coordination among, 
     literacy programs in the State, in order to increase the 
     effectiveness of the programs and to avoid duplication of the 
     efforts of the programs; and
       ``(ii) will promote programs that provide access to diverse 
     and age-appropriate reading material;
       ``(K) describe how the State educational agency will assess 
     and evaluate, on a regular basis, local educational agency 
     activities assisted under this part;
       ``(L) describe the methods the State educational agency 
     will use to assess and evaluate the progress of local 
     educational agencies in the State that receive grants under 
     this part; and
       ``(M) include an assurance that each local educational 
     agency to which the State educational agency awards a grant--
       ``(i) will carry out family literacy programs, such as the 
     Even Start family literacy program authorized under part B of 
     title I, to enable parents to be their child's first and most 
     important teacher; and
       ``(ii) will carry out programs to assist those pre-
     kindergarten and kindergarten students who are not ready for 
     the transition to 1st grade, particularly students 
     experiencing difficulty with reading skills.
       ``(c) Plan Approval.--
       ``(1) In general.--The Secretary shall approve an 
     application of a State educational agency under this section 
     if such application meets the requirements of this section.
       ``(2) Disapproval.--The Secretary shall not finally 
     disapprove a State plan, except after giving the State 
     educational agency notice and an opportunity for a hearing.
       ``(3) Peer review.--The Secretary shall establish a peer 
     review process, in consultation with the National Research 
     Council of the National Academy of Sciences and the National 
     Institute of Child Health and Human Development, to make 
     recommendations regarding approval of State plans.
       ``(d) Assurances.--A State plan shall contain assurances 
     that the State will comply with the requirements of this 
     section, and provide for such fiscal control and fund 
     accounting procedures that may be necessary to ensure the 
     proper disbursement of, and accounting for, funds paid to the 
     State under this section.
       ``(e) Multi-State Partnership Arrangements.--For the 
     purposes of carrying out this section, a State educational 
     agency may join with other State educational agencies to 
     develop a single application that satisfies the requirements 
     of this section and identifies which State educational 
     agency, from among the States joining, shall act as the 
     fiscal agent for the multi-State arrangement.
       ``(f) Reporting.--A State educational agency that receives 
     an allotment under this part shall submit an annual 
     performance report to the Secretary. Such report shall 
     include a description of--
       ``(1) the assessment and evaluation methods described in 
     section 2255(b)(2)(L); and
       ``(2) the local educational agencies receiving grants under 
     this part.

     ``SEC. 2256. STATE USE OF FUNDS.

       ``(a) State Level Activities.--Each State educational 
     agency shall use funds made available under section 2253(a)--
       ``(1) to provide technical assistance to schools and local 
     educational agencies, and entities administering adult and 
     family literacy programs, for the purpose of providing 
     effective professional development reading and literacy 
     activities;
       ``(2) to conduct an assessment of State needs for reading 
     and literacy professional development, including the needs in 
     both rural and urban areas;
       ``(3) to provide for coordination of reading and literacy 
     programs within the State in order to avoid duplication and 
     increase the effectiveness of reading and literacy 
     activities; and
       ``(4) to conduct evaluations of local educational agency 
     activities assisted under this part.
       ``(b) Grants.--
       ``(1) In general.--Each State educational agency receiving 
     an allotment under this part shall use the funds made 
     available under section 2253(c) to award grants in accordance 
     with such section to local educational agencies within the 
     State.
       ``(2) Grant period.--A grant awarded under this subsection 
     shall be awarded for a period of 3 years.

     ``SEC. 2257. LOCAL PLAN FOR IMPROVING TEACHING AND LEARNING 
                   OF READING AND LITERACY PROGRAMS.

       ``(a) In General.--Each local educational agency desiring a 
     grant under this part shall

[[Page S11535]]

     submit an application to the State educational agency at such 
     time, in such manner, and accompanied by such information as 
     the State educational agency may require. Such application 
     shall include an assessment of local needs for professional 
     development activities in reading and literacy--
       ``(1) at the elementary school and secondary school levels; 
     and
       ``(2) in adult and family literacy programs.
       ``(b) Special Rule.--A local educational agency that 
     applies for a grant under this part shall form a partnership, 
     with 1 or more community-based organizations of demonstrated 
     effectiveness in reading readiness, reading instruction and 
     achievement for both adults and children, and early childhood 
     literacy, such as a Head Start program, public library, or an 
     agency that oversees adult education programs, to carry out 
     the local activities described in section 2258.
       ``(c) Contents.--Each local plan shall--
       ``(1) include an assessment of local needs for reading and 
     literacy professional development;
       ``(2) include a description of how the activities described 
     in section 2258 will address the needs of teachers--
       ``(A) in schools receiving assistance under title I; and
       ``(B) in adult and family literacy programs;
       ``(3) describe how parents can participate in literacy-
     related activities assisted under this part to enhance 
     children's reading fluency;
       ``(4) describe how reading tutors can participate in 
     literacy-related activities assisted under this part, 
     including professional development opportunities, to enhance 
     children's reading fluency;
       ``(5) describe how the local educational agency will build 
     on, and promote coordination among, literacy programs at the 
     local level in order to increase the effectiveness of the 
     programs and to avoid duplication of effort;
       ``(6) describe how the local educational agency--
       ``(A) will carry out family literacy programs, such as the 
     Even Start family literacy program authorized under part B of 
     title I, to enable parents to be their child's first and most 
     important teacher;
       ``(B) will carry out programs to assist those pre-
     kindergarten and kindergarten students who are not ready for 
     the transition to 1st grade, particularly students 
     experiencing difficulty with reading skills; and
       ``(C) will promote programs that provide access to diverse 
     and age-appropriate reading material;
       ``(7) describe how the local plan will be carried out in 
     coordination with other Federal education programs that 
     pertain to reading and literacy activities; and
       ``(8) describe the amount and nature of funds from other 
     public or private sources that will be combined with funds 
     received under this section.
       ``(d) Local Plan Approval.--The State educational agency 
     shall approve an application of a local educational agency 
     under this section if such application meets the requirements 
     of this section.

     ``SEC. 2258. LOCAL ACTIVITIES.

       ``(a) In General.--Each local educational agency shall use 
     the funds made available under section 2256(b)--
       ``(1) to support partnerships among pre-schools, elementary 
     schools, secondary schools, consortia of such schools, local 
     educational agencies, community-based organizations (such as 
     a Head Start program), adult education programs, institutions 
     of higher education, or (where appropriate) public libraries, 
     of demonstrated effectiveness in reading readiness, and in 
     reading instruction and achievement, for adults and children;
       ``(2) to provide intensive, ongoing professional 
     development activities to train teachers to meet the diverse 
     reading needs of all students, which activities shall--
       ``(A) be based on the best available research on reading 
     development and reading disorders; and
       ``(B) prepare teachers in all the major components of 
     reading instruction (including phoneme awareness, phonics, 
     fluency, and reading comprehension);
       ``(3) to develop professional development programs and 
     strategies to effectively involve parents in helping their 
     children with reading;
       ``(4) to provide parents with literacy-related activities 
     that will enhance children's reading fluency;
       ``(5) to provide reading tutors with literacy-related 
     activities, including professional development opportunities, 
     to enhance children's reading fluency;
       ``(6) to promote programs that provide access to diverse 
     and age-appropriate reading material;
       ``(7) to provide coordination of reading and literacy 
     programs within the local educational agency to avoid 
     duplication and increase the effectiveness of reading and 
     literacy activities;
       ``(8) to coordinate family literacy programs, such as the 
     Even Start family literacy program authorized under part B of 
     title I, to enable parents to be their child's first and most 
     important teacher, and to make payments for the receipt of 
     technical assistance for the development of such programs; 
     and
       ``(9) to establish programs to assist those pre-
     kindergarten and kindergarten students enrolled in schools 
     served by the local educational agency who are not ready for 
     the transition to 1st grade, particularly students 
     experiencing difficulty with reading skills.
       ``(b) Special Rules.--A local educational agency receiving 
     a grant under this part shall use the funds for activities 
     described in subsection (a) that--
       ``(1) provide professional development activities in 
     reading instruction to teachers in elementary schools and 
     secondary schools having the greatest need for such services, 
     as evidenced by poor student performance on reading 
     assessments, a high percentage of students from low-income 
     families, or a combination of such performance and 
     percentage; and
       ``(2) are provided to teachers at public and private 
     nonprofit elementary schools and secondary schools.

     ``SEC. 2259. LOCAL DISTRIBUTION OF FUNDS.

       ``Each local educational agency that receives funds under 
     this part for any fiscal year--
       ``(1) shall use not less than 80 percent of such funds for 
     the professional development of teachers and, where 
     appropriate, administrators, pupil services personnel, 
     parents, tutors, and other staff of individual schools, and 
     for other literacy-related activities, in a manner that--
       ``(A) to the extent practicable, takes place at an 
     individual school site; and
       ``(B) is consistent with the local educational agency's 
     plan under section 2257, any school plan under part A of 
     title I, and any other plan for professional development 
     carried out with Federal, State, or local funds that 
     emphasizes sustained, ongoing activities related to 
     professional development for teachers; and
       ``(2) may use not more than 20 percent of such funds for 
     school district-level professional development activities, 
     including, where appropriate, the participation of 
     administrators, policymakers, tutors, and parents, if such 
     activities directly support instructional personnel, and for 
     other literacy-related activities.

     ``SEC. 2260. INFORMATION DISSEMINATION.

       ``(a) In General.--From funds reserved under section 
     2261(b), the National Institute for Literacy shall 
     disseminate information with respect to reading and literacy. 
     At a minimum, the institute shall disseminate such 
     information to all recipients of Federal financial assistance 
     under this title, titles I and VII, the Head Start Act, the 
     Individuals with Disabilities Education Act, and the Adult 
     Education Act.
       ``(b) Coordination.--In carrying out this section, the 
     National Institute for Literacy shall use, to the extent 
     practicable, information networks developed and maintained 
     through other public and private persons, including the 
     Secretary, the National Center for Family Literacy, and the 
     Readline Program.

     ``SEC. 2261. AUTHORIZATION OF APPROPRIATIONS.

       ``(a) In General.--If the amount appropriated to carry out 
     the Individuals with Disabilities Education Act for fiscal 
     year 1998, 1999, or 2000 exceeds by $500,000,000 the amount 
     so appropriated for fiscal year 1997, 1998, or 1999, 
     respectively, there are authorized to be appropriated to 
     carry out this part and section 1202(c) $210,000,000 for the 
     fiscal year 1998, 1999, or 2000, as the case may be, of which 
     $10,000,000 shall be available to carry out section 1202(c).
       ``(b) Reservation.--From amounts appropriated under 
     subsection (a) for a fiscal year, the Secretary shall reserve 
     $5,000,000 to carry out section 2260.
       ``(c) Sunset.--Notwithstanding section 422(a) of the 
     General Education Provisions Act, this title is repealed, 
     effective September 30, 2000, and is not subject to extension 
     under such section.''.
       (b) Conforming Amendment.--Section 2003 of the Elementary 
     and Secondary Education Act of 1965 (20 U.S.C. 6603) is 
     amended--
       (1) in subsection (a), by inserting ``(other than part C)'' 
     after ``title''; and
       (2) in subsection (b)(3), by striking ``part C'' and 
     inserting ``part D''.
      TITLE II--AMENDMENTS TO EVEN START FAMILY LITERACY PROGRAMS

     SEC. 201. RESERVATION FOR GRANTS.

       Section 1202(c) of the Elementary and Secondary Education 
     Act of 1965 (20 U.S.C. 6362(c)) is amended to read as 
     follows:
       ``(c) Reservation for Grants.--
       ``(1) Grants authorized.--From funds reserved under section 
     2261(a) to carry out this section for a fiscal year, the 
     Secretary shall award grants, on a competitive basis, to 
     States to enable such States to plan and implement statewide 
     family literacy initiatives to coordinate and integrate 
     existing Federal, State, and local literacy resources 
     consistent with the purposes of this part. Such coordination 
     and integration shall include coordination and integration of 
     funds available under the Adult Education Act, the Head Start 
     Act, this part, part A of this title, and part A of title IV 
     of the Social Security Act.
       ``(2) Consortia.--
       ``(A) Establishment.--To receive a grant under this 
     subsection, a State shall establish a consortium of State-
     level programs under the following provisions of law:
       ``(i) This title.
       ``(ii) The Head Start Act.
       ``(iii) The Adult Education Act.
       ``(iv) All other State-funded preschool programs and 
     programs providing literacy services to adults.
       ``(B) Plan.--To receive a grant under this subsection, the 
     consortium established by a State shall create a plan to use 
     a portion of the State's resources, derived from the programs 
     referred to in subparagraph (A), to strengthen and expand 
     family literacy services in such State.
       ``(C) Coordination with part c of title ii.--The consortium 
     shall coordinate its activities with the activities assisted 
     under part C of title II, if the State receives a grant under 
     such part.
       ``(3) Technical assistance.--The Secretary shall provide, 
     directly or through a grant or contract with an organization 
     with experience in the development and operation of 
     successful family literacy services, technical assistance to 
     States receiving a grant under this subsection.
       ``(4) Matching requirement.--The Secretary shall not make a 
     grant to a State under this subsection unless the State 
     agrees that, with respect to the costs to be incurred by the 
     eligible

[[Page S11536]]

     consortium in carrying out the activities for which the grant 
     was awarded, the State will make available non-Federal 
     contributions in an amount equal to not less than the Federal 
     funds provided under the grant.''.

     SEC. 202. DEFINITIONS.

       Section 1202(e) of the Elementary and Secondary Education 
     Act of 1965 (20 U.S.C. 6362(e)) is amended--
       (1) by redesignating paragraphs (3) and (4) as paragraphs 
     (4) and (5), respectively; and
       (2) by inserting after paragraph (2) the following:
       ``(3) the term `family literacy services' means services 
     provided to participants on a voluntary basis that are of 
     sufficient intensity in terms of hours, and of sufficient 
     duration, to make sustainable changes in a family (such as 
     eliminating or reducing welfare dependency) and that 
     integrate all of the following activities:
       ``(A) Interactive literacy activities between parents and 
     their children.
       ``(B) Equipping parents to partner with their children in 
     learning.
       ``(C) Parent literacy training, including training that 
     contributes to economic self-sufficiency.
       ``(D) Appropriate instruction for children of parents 
     receiving parent literacy services.''.

     SEC. 203. EVALUATION.

       Section 1209 of the Elementary and Secondary Education Act 
     of 1965 (20 U.S.C. 6369) is amended--
       (1) in paragraph (1), by striking ``and'' after the 
     semicolon;
       (2) in paragraph (2), by striking the period at the end and 
     inserting ``; and''; and
       (3) by adding at the end the following:
       ``(3) to provide States and eligible entities receiving a 
     subgrant under this part, directly or through a grant or 
     contract with an organization with experience in the 
     development and operation of successful family literacy 
     services, technical assistance to ensure local evaluations 
     undertaken under section 1205(10) provide accurate 
     information on the effectiveness of programs assisted under 
     this part.''.

     SEC. 204. INDICATORS OF PROGRAM QUALITY.

       (a) In General.--The Elementary and Secondary Education Act 
     of 1965 (20 U.S.C. 6301 et seq.) is amended--
       (1) by redesignating section 1210 as section 1212; and
       (2) by inserting after section 1209 the following:

     ``SEC. 1210. INDICATORS OF PROGRAM QUALITY.

       ``Each State receiving funds under this part shall develop, 
     based on the best available research and evaluation data, 
     indicators of program quality for programs assisted under 
     this part. The indicators shall be used to monitor, evaluate, 
     and improve such programs within the State. The indicators 
     shall include the following:
       ``(1) With respect to eligible participants in a program 
     who are adults--
       ``(A) achievement in the areas of reading, writing, English 
     language acquisition, problem solving, and numeracy;
       ``(B) receipt of a secondary school diploma or its 
     recognized equivalent;
       ``(C) entry into a postsecondary school, a job retraining 
     program, or employment or career advancement, including the 
     military; and
       ``(D) such other indicators as the State may develop.
       ``(2) With respect to eligible participants in a program 
     who are children--
       ``(A) improvement in ability to read on grade level or 
     reading readiness;
       ``(B) school attendance;
       ``(C) grade retention and promotion; and
       ``(D) such other indicators as the State may develop.''.
       (b) State Level Activities.--Section 1203(a) of the 
     Elementary and Secondary Education Act of 1965 (20 U.S.C. 
     6363(a)) is amended--
       (1) in paragraph (1), by striking ``and'' after the 
     semicolon;
       (2) in paragraph (2), by striking the period at the end and 
     inserting ``; and''; and
       (3) by adding at the end the following:
       ``(3) carrying out section 1210.''.
       (c) Award of Subgrants.--Paragraphs (3) and (4) of section 
     1208(b) of the Elementary and Secondary Education Act of 1965 
     (20 U.S.C. 6368) are amended to read as follows:
       ``(3) Continuing eligibility.--In awarding subgrant funds 
     to continue a program under this part for the second, third, 
     or fourth year, the State educational agency shall evaluate 
     the program based on the indicators of program quality 
     developed by the State under section 1210. Such evaluation 
     shall take place after the conclusion of the startup period, 
     if any.
       ``(4) Insufficient progress.--The State educational agency 
     may refuse to award subgrant funds if such agency finds that 
     the eligible entity has not sufficiently improved the 
     performance of the program, as evaluated based on the 
     indicators of program quality developed by the State under 
     section 1210, after--
       ``(A) providing technical assistance to the eligible 
     entity; and
       ``(B) affording the eligible entity notice and an 
     opportunity for a hearing.''.

     SEC. 205. RESEARCH.

       The Elementary and Secondary Education Act of 1965 (20 
     U.S.C. 6301 et seq.), as amended by section 204 of this Act, 
     is further amended by inserting after section 1210 the 
     following:

     ``SEC. 1211. RESEARCH.

       ``(a) In General.--The Secretary shall carry out, through 
     grant or contract, research into the components of successful 
     family literacy services. The purpose of the research shall 
     be--
       ``(1) to improve the quality of existing programs assisted 
     under this part or other family literacy programs carried out 
     under this Act or the Adult Education Act; and
       ``(2) to develop models for new programs to be carried out 
     under this Act or the Adult Education Act.
       ``(b) Dissemination.--The National Institute for Literacy 
     shall disseminate, pursuant to section 2260, the results of 
     the research described in subsection (a) to States and 
     recipients of subgrants under this part.''.


                           Amendment No. 3740

            (Purpose: To provide for a complete substitute)

  Mr. JEFFORDS. Mr. President, I send an amendment to the desk and ask 
for its immediate consideration.
  The PRESIDING OFFICER. The clerk will report.
  The legislative clerk read as follows:

       The Senator from Vermont [Mr. Jeffords], proposes an 
     amendment numbered 3740.

  Mr. JEFFORDS. Mr. President, I ask unanimous consent that reading of 
the amendment be dispensed with.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  (The text of the amendment is printed in today's Record under 
``Amendments Submitted.'')
  Mr. JEFFORDS. Mr. President, this is an important bill. It is a bill 
that is designed to address what is probably the most serious problem 
we have in the United States in our educational system, and that is the 
inability of our school system to provide young people who graduate 
from high school with the skills necessary, in just the very basics of 
reading. To enable our nation to proceed into the next century as we 
should and to maximize the potential of these young people, we must 
assure that our high school graduates have these essential skills.
  Back in 1983, the Reagan administration, through Education Secretary 
Terrel Bell, delivered a report to the Nation called ``A Nation At 
Risk.'' That report outlined the serious problems we have in our 
educational system and observed that the output of our primary and 
secondary educational schools was not anywhere near what it needed to 
be in order to meet the challenges posed by our Asian and European 
competitors. Many problems were delineated in that report. One on which 
we have focused a great deal of attention is performance in 
mathematics.
  The United States, among all the industrialized nations, was at the 
bottom in tests given to our young people to determine their abilities 
in mathematics. We were dead last among our competitor nations. So, in 
a number of ways, we have tried to improve the results of our 
educational system with respect to mathematics. The studies have also 
shown that our industries have found that problems are not limited just 
to mathematics. Rather, they found that the basic problem was that 
their workers could not read the problems in order to determine the 
mathematics necessary to solve them. Mastering the very basics of 
reading was essential before they could understand how to answer the 
problems in mathematics.
  We have been trying to make improvements since 1983. In 1988, the 
Governors met with the President and established national goals--
sometimes referred to as Goals 2000--to try to emphasize that changes 
must be made in our educational system in order to make this Nation 
what it ought to be as we go into the next century.
  As a result of that initiative, in 1994, we established a goals panel 
in order to determine whether or not we were making any improvement in 
these essential areas. I sit on that goals panel. I have been a member 
now for some 4 years, and I am sorry to report--and this has already 
been reported--that, in those 4 years, there has not been any 
indication that we have made any progress toward these goals, even in 
the area of reading. And the same is true with respect to mathematics. 
In fact, just recently, the last IMS study--International Mathematics 
Study --showed that our students graduating from high school were again 
at the bottom of all industrialized nations, as far as their capacity 
to solve mathematical problems.
  That same study indicated that our fourth graders were the best in 
the world, and our eighth graders were average. But, by the time they 
graduated from high school, they were well behind. Part of that problem 
stems from problems with reading and the ability to understand 
problems.
  I point out another situation with respect to reading that is very 
instructive in this regard.
  Motorola, back in the early 1980s, was in a real fight with Japan on 
cellular phones. The CEO of Motorola said

[[Page S11537]]

he had to develop a new factory employing individuals with the skills 
necessary to produce cellular phones that would be equal to or better 
than those of the Japanese. So a study group was established. The study 
group indicated that they had a problem with respect to trying to get 
the skilled workforce necessary in order to compete with the Japanese. 
They also took a look at Malaysia and other areas. They reported back 
to the CEO that our workers were not capable of the productivity 
necessary. So they opted to locate the plant in Malaysia. The CEO, 
being a strong American, said ``No. We are not going to locate a plant 
in Malaysia. I want to find out why we are unable to find and to train 
the workers necessary to get the best productivity.''
  A study was conducted, which found out that the reason for the 
problem was the inability to answer math problems. That was one thing. 
But, then, they found that the reason workers were not able to solve 
the math problems was that they couldn't read the math problems. The 
company created the necessary remedial training first to train the 
workers how to read and then to allow them to do the math problems. 
Believe it or not, they were able to do that with the remedial 
training.
  So the CEO said, ``We are going to locate that plant in the United 
States.'' They did. It proved to be the most productive plant in all of 
the Motorola operations, with higher productivity than the Japanese. It 
is a long story about Motorola. But, finally, they were able to outdo 
the Japanese and to outsell them. In fact, they were even able to break 
into the markets in Japan and to outsell the Japanese. It goes back to 
the basics. The workers couldn't read.
  Another study which is instructional was done in, I believe, 1993. It 
was a national literacy study that showed that 51 percent of the high 
school graduates who were examined were found to be functionally 
illiterate. That is incredible. You wonder why our business people say 
they don't even bother to look at a diploma of a kid out of high school 
because it doesn't mean anything. That is another area that we are 
trying to improve and, at a minimum, to make sure that everyone who 
gets a high school diploma knows how to read.
  We looked into this and found what had happened. The reason this 
dismal result was appearing was that, back in the 1960s, studies were 
done at Cornell University. At that time, we had this big awakening 
about the problems of neurosis and young people and things that 
stimulated mental problems. Researchers concluded that the worst thing 
one could do was to fail a kid in school because that would create a 
neurosis and the child would have problems the rest of his or her life.
  That led to the development of so-called ``social promotion.'' In 
other words, the attitude was, ``Well, if they can't read, pack them 
on.'' That might have been fine from the second to the third grade and 
maybe even from the third or fourth grades if somebody would have 
picked them up and taught them how to read. But nobody ever picked them 
up. The teachers were busy teaching the ones who knew how to read. They 
did not have time for those who didn't know how to read. Social 
promotion is a reality in probably all of our schools.
  You wonder why our CEO's say, ``We don't even look at diplomas to 
determine whether the kids should come to us to work.''
  Getting to today, this problem with reading was emphasized, and we 
determined that we had to do something. Working with the 
Administration, we prepared the reading bill before us today. This 
legislation provides for ample funding and lays out everything that we 
believe we need to do in order to take not only corrective action 
before students get out of the third and fourth grades to make sure 
that they read, but also to make sure we have remedial training for all 
of those in the higher grades who didn t master reading in their early 
school years.
  In the budget account, we attached $250 million for this bill to 
assist in trying to find a remedial program which will be successful in 
getting our young people to read.
  A number of people have worked very hard on this bill. Senator 
Kennedy, I expect, will be here before too long. Senator Coverdell and 
Senator Coats and Senators Gregg and Hutchinson all really worked hard 
to bring about this bill and to make sure that it received favorable 
consideration.
  On the House side Representatives Clay, Hilleary and Riggs, and 
especially my good friend Bill Goodling. Chairman Goodling has 
championed literacy throughout his tenure, and he has done a wonderful 
job in making sure that the reading bill got to us. I am now working 
very closely with him as we go towards the reauthorization of the 
Elementary and Secondary Education Act.
  In my view, the bill provides the necessary remedial help to get our 
schools on a path where we can assist substantially in getting young 
people to read and to graduate from high school in a manner which will 
be productive for them and for our society.
  I mentioned Senator Kennedy. He is here. The work that he has done in 
championing this cause is very notable.
  Mr. KENNEDY. Mr. President, I commend Chairman Jeffords for his 
leadership in making child literacy a priority and developing this 
strong legislation. I also commend Senator Coverdell for helping to 
make this bill a priority in the Senate, and Senator Murray and Senator 
Dodd for their leadership in issues involving young children.
  I also want to thank Congressman Goodling and Congressman Clay for 
working effectively to ensure that the Senate and House could reach 
agreement on this important measure.
  I commend and thank all the staff members of the working group for 
their skillful assistance in making this process successful: Sherry 
Kaiman of Senator Jeffords' staff; Townsend Lange of Senator Coats 
staff; Suzanne Day of Senator Dodd's staff; Elyse Wasch of Senator 
Reed's staff; Greg Williamson of Senator Murray's staff; Bev Schroeder 
of Senator Harkin's staff; and Danica Petroshius of my own staff. I 
also commend the hard work of the House staff on the working group, 
including Vic Klatt, Sally Lovejoy, D'Arcy Philps, Lynn Selmser, and 
Bob Sweet of the House Committee majority staff; Alex Nock, Marci 
Phillips, Mark Zuckerman, and June Harris of the House Committee 
minority staff; and Charlie Barone of Represenative George Miller's 
staff.
  Learning to read well is the cornerstone of every child's education. 
We know that reading skills are fundamental to effective learning in 
all subjects. The ability to read effectively is the gateway to 
opportunity and success throughout life.
  Many successful programs are helping children learn to read well. But 
too often, the best programs are not available to all children. As a 
result, large numbers of children are denied the opportunity to learn 
to read well. 40 percent of 4th grade students do not achieve the basic 
reading level, and 70 percent of 4th graders are not proficient in 
reading.
  Children who fail to acquire basic reading skills early in life are 
at a disadvantage throughout their education and later careers. They 
are more likely to drop out of school, and to be unemployed. We need to 
do more to ensure that all children learn to read well--and learn to 
read well early--so that they have a greater chance for successful 
lives and careers.
  In October 1996, President Clinton and the First Lady initiated a new 
effort to call national attention to child literacy by proposing their 
``America Reads Challenge.'' Many of us in Congress strongly supported 
their call for increased aid for reading tutors and other steps to 
improve child literacy. Today, over 1,000 colleges and universities are 
committed to the President's ``America Reads Work Study Program,'' and 
59 of these institutions are in Massachusetts.
  Many of the reading difficulties experienced by teenagers and adults 
today could have been prevented by better attention during early 
childhood. By working to ensure that all children learn to read well in 
the early grades, we can reduce the need for costly special education 
instruction in later grades. We must make every effort to give our 
public schools the resources necessary to ensure that all children 
obtain the reading skills they need--at an early age.
  This bill is a major step toward meeting that goal. It provides 
children, parents, schools, and communities with the resources and 
opportunities they need to improve child and family literacy--and the 
help can't come a minute too soon.

[[Page S11538]]

  This bill also recognizes that teachers must have adequate resources 
and proper training in order to be prepared to teach reading well. 
Teachers must often provide special assistance to children who are 
having difficulty learning to read. Too often, teachers lack the time, 
the skills, and the resources to provide children with that assistance. 
Building on the successful Eisenhower Professional Development Program, 
which trains teachers in math and science, this bill creates new 
opportunities for teachers to obtain the training they need to teach 
reading effectively.
  Communities across the country are initiating innovative projects on 
reading. At Boston College, a fundamental part of teacher education is 
training teachers in the best research and practice on ways to teach 
reading, including helping children develop skills in phonics, sound-
and-symbol relationships, and reading comprehension.
  This bill encourages local school districts to build partnerships and 
work in cooperation with community organizations and state agencies. It 
ensures that local, state, and national efforts to improve literacy are 
coordinated, and that the most effective resources and practices are 
used to meet the needs of children. It also provides communities with 
support to provide children with trained tutors to give them the 
opportunity to practice reading with adults.
  In Massachusetts, 59 colleges and universities are providing trained 
tutors to school children through the Federal Work Study Program. At 
Boston University, 150 reading tutors are helping 400 needy children 
learn to read. Students at Worcester Polytechnic Institute serve as 
reading tutors at the Belmont Community School. The Reading Excellence 
Act builds upon these successful programs to help communities find and 
train tutors who can make a difference.
  In addition, children need to have useful reading materials outside 
of school to help them develop a love of reading early in life. To meet 
this goal, the bill encourages strong links to a variety of programs 
for early childhood literacy, and encourages cooperation between 
community, state, and national organizations to ensure that every child 
has access to good reading materials.
  Physicians are also part of the effort. Successful pediatric 
programs, such as Reach Out and Read, can benefit even more children as 
a result of this bill. This program was created by a team of 
pediatricians and early childhood educators at Boston City Hospital in 
1989. Pediatricians are encouraged to prescribe reading activities as 
part of childhood medical check-ups, and to see that children leave the 
doctor's office with a good book in hand. Now, 4,500 health care 
providers in 46 states have been trained to help nearly one million 
children and their families. Parents who participate in Reach Out and 
Read are 8 times more likely to read to their children than parents who 
do not participate in this pediatric program.
  Children whose parents are involved in their education, who read to 
them, and who work with them on language skills are more likely to 
become successful readers. They achieve higher test scores. They have 
better school attendance records. They graduate at higher rates. And 
they are more likely to go to college. But children whose parents lack 
a strong educational foundation are less likely to do so.
  Many parents want to help, but too often they are unable to do so 
because the parents themselves lack basic reading skills. We can do 
more to help parents acquire the skills and resources needed to help 
their children learn to read. This bill will expand local family 
literacy initiatives, and help states to increase parent involvement.
  Family literacy efforts, such as the Home Instruction Program for 
Preschool Youngsters in Worcester, Massachusetts, concentrate on 
providing parents with the education and skills they need to be their 
children's first reading teachers. These programs teach parents how to 
read aloud and work with their children at home, and give parents the 
opportunity to attend literacy and other classes.
  Funds will also be available to the National Institute for Literacy 
to gather and disseminate information about the best practices for 
improving child literacy, so that every school and community can take 
advantage of them.
  This bill targets funds for literacy programs on schools where the 
needs are greatest. Children in poor schools are more likely to live in 
homes with parents who have not completed high school and are 
unemployed. Children from such homes are 5 to 6 times more likely to 
drop out of school than other children. We should help ensure that they 
get the opportunities they need to learn to read well.
  Recent successes in Boston prove that targeted efforts to improve 
schools and student performance can produce real results. After three 
years of reforms in Boston emphasizing early literacy, high academic 
standards, and the best teaching practices, students in almost every 
grade showed significant improvements in math and reading scores on 
city-wide achievement tests.
  The Samuel W. Mason School in Boston, where 91 percent of the 
children come from poor families, has gone from one of the lowest-
performing schools in the city to scoring in the top quarter of all 
public schools in the city in reading achievement. They have 
implemented a school reform approach that focuses on literacy. Teachers 
were trained in the best reading practices. In addition, they adapted 
teaching styles to fit children's learning styles, tested the children 
every six weeks to measure improvement, and focused on improving family 
literacy in the community.
  The bill will help provide children with the readiness skills and 
support they need to learn to read once they enter school. It will help 
teach every child to read in these early years--from preschool though 
the 3rd grade. And, it will improve the instructional practices of 
teachers and other staff in elementary schools with the greatest need 
for extra help.
  The bill provides competitive grants to states to improve child 
literacy. Each state will create a plan to address the needs of its 
teachers and communities for improving student achievement in reading. 
Eligible school districts will be able to apply to the state for funds 
to support teacher training in how to teach reading well in elementary 
schools with the greatest need for help, and to support partnerships 
among eligible school districts and community organizations that 
support early learning, tutoring, adult literacy, and that provide 
children and families with access to books.
  The lowest-achieving and poorest schools will benefit. Local school 
districts that are eligible for subgrants fall into three categories: 
(1) districts that have at least one low-performing school in school 
improvement under Title I; (2) districts that have schools with the 
highest and second highest number of poor children in the state; and 
(3) districts that have schools with the highest and second highest 
poverty rates in the states.
  The bill amends Title II of the Elementary and Secondary Education 
Act, and authorizes $260 million each year for fiscal years 1999 and 
2000.
  By building on successful programs such as the Eisenhower 
Professional Development Program, the College Work Study Program, and 
the Even Start Program, this bill provides state and local education 
agencies with the support they need to bring successful programs to 
their teachers, students, and communities.
  Children do not learn to read on their own. Children need well-
trained teachers who can give them the assistance they deserve. 
Children need trained tutors who can work with them outside the 
classroom. They need involved parents who know how to read and know how 
to work effectively with their children at home. Children need access 
to effective reading materials at home. And, children need the 
opportunity to acquire reading readiness skills early, so that they 
come to school ready to learn to read.
  The Reading Excellence Act ensures that the best methods and 
resources are more widely available to schools, families, and children 
across the country. I urge the Senate to pass this important 
legislation.
  Mr. DODD. Mr. President, it is with great pleasure that I rise in 
support of the Reading Excellence Act. I am very pleased that, working 
with the House committee and Secretary Riley, we have been able to work 
out a final bill that will improve reading skills. This

[[Page S11539]]

effort once again demonstrates that when we focus on what really 
matters to America's families and work together, we can accomplish a 
great deal of good. And today, we are taking a substantial step in 
improving the teaching of reading in our schools.
  There are few skills that are more important than literacy. It is 
what makes us good workers, good parents, and good citizens. Imagine 
not being able to read. Bus schedules, children's homework assignments, 
and local newspapers--all beyond your grasp. From start to finish, each 
day would be nearly impossible.
  Yet, too many of our children leave school lacking this basic skill 
which is essential to their livelihood and their quality of life. But, 
for the child who cannot read, the problem begins much earlier than 
graduation. Research has shown that children who fall behind as early 
as the second and third grade do not catch up or become fluent readers 
unless expensive, intensive help is available to them. If such help is 
not available, these children become increasingly frustrated and are at 
substantial risk of dropping out of school altogether.
  Our goal must be to help all children to read well, to read 
independently, and, importantly, to enjoy reading. We have a tremendous 
advantage today in reaching this goal in that we know so much more 
about the physiological process of learning to read. We also know what 
works and what does not. This bill makes sure that this new base of 
knowledge gets out beyond academia and its scholarly journals and into 
classrooms across the country where it can make a real difference in 
the lives of our children.
  Beyond the classroom, this legislation will also help empower the 
first and most important teacher of all children--their parents. 
Children's literacy levels are directly related to the literacy ability 
and interest of their parents, especially their mothers. The values, 
attitudes and expectations held by parents and other care givers with 
respect to literacy will have a lasting effect on a child's attitude 
about learning to read. This bill will encourage parents to read to 
their children at an early age and foster the budding literacy skills 
of their children.
  I am particularly pleased the bill also reaches out to Head Start and 
other local pre-school programs to bring them into these efforts to 
ensure that young children have the necessary foundation for literacy. 
In addition, the bill does not overlook the important contribution 
trained volunteers and mentors can have in improving a child's reading 
fluency and comprehension. This bill encourages local communities to 
tap into these efforts and coordinate volunteers to bring their talents 
and time into the schools to read with children one on one.
  Finally, Mr. President, this bill does not overlook the most basic 
tool in any literacy effort--Books. Good, engaging, age-appropriate 
books are critical to any successful effort to improve literacy. In too 
many homes, books are a rarity. And yet any parent will tell you how 
books capture the imagination and attention of toddlers and, even 
babies, better than any television show.
  I think we need to do much more when it comes to books. Our tax laws 
have set up very perverse incentives that make it more profitable to 
destroy unsold books rather than donate them to schools or literacy 
organizations. I am hopeful that, when the Senate next revisits tax 
law, we can take a look at this issue and reverse these incentives to 
get more books into the hands of children. In the meantime, this 
legislation is a good first step in ensuring that children will have 
increased exposure and involvement with high-quality books.
  Mr. President, this is a good thoughtful bill and I am very pleased 
that we will complete action on it this year and begin this important 
effort to improve our children's literacy skills.
  Mr. JEFFORDS. Mr. President, I ask unanimous consent that the 
Amendment be agreed to, the committee amendment, as amended, be agreed 
to, the bill be considered as read the third time and passed, as 
amended, the motion to reconsider be laid upon the table, and that any 
statements relating to the bill be placed in the appropriate place in 
the Record.
  The PRESIDING OFFICER. Without objection, it is so ordered.
  The amendment (No. 3740) was agreed to.
  The committee amendment, as amended, was agreed to.
  The bill (H.R. 2614), as amended, was considered read the third time, 
and passed.
  Mr. COVERDELL. Mr. President, today the Senate passed H.R. 2614, the 
Reading Excellence Act, and I rise in celebration for the many 
Americans this important legislation will help. Reading is critical to 
every aspect of life, especially as we move into the high-tech world of 
the 21st century. With the passage of this bill, more Americans will 
secure the basic reading skills necessary to enjoy the benefits of 
citizenship. It will enable many to do some of the things we take for 
granted--being able to read a phone book, a dinner menu, directions on 
a medicine bottle, or a job application.
  Right now, only 4 out of 10 of our Nation's third graders can read at 
grade level or above. This clearly can not stand. Our goal is to ensure 
that every child is able to read by the third grade. This bill is a 
down payment toward that goal. The Reading Excellence Act focuses on 
scientifically based methods for teaching reading, it provides for 
tutorial assistance for at-risk children, and addresses adult 
illiteracy so that parents can be their children's first and most 
important teacher. This bill stresses the basics, a return to proven 
teaching methods, and most importantly a return to methods that work. 
It is unacceptable that only 10 percent of our teachers have received 
formal instruction on how to teach reading. Reading Excellence will 
give our educators the resources needed to prepare our children to read 
before they advance to the next grade.
  With the leadership of Chairman William F. Goodling, H.R. 2614 passed 
the House last year. Earlier this year Reading Excellence was included 
in our Senate Republican blueprint for education reform. I also offered 
Reading Excellence, S. 1596, as a freestanding bill in the Senate on 
February 2, 1998. Again, in an effort to pass this legislation, I 
offered it as an amendment to my education savings accounts bill and it 
was agreed to unanimously. Unfortunately, the President killed that 
comprehensive education reform bill, vetoing the literacy language 
along with it. The administration has endorsed this language as a 
freestanding bill.
  Helping kids read should not be a partisan issue. Both Chambers have 
now passed Reading Excellence unanimously, and I urge the President to 
sign H.R. 2614 into law. I praise Chairman Goodling for his 
perseverance and dedication to helping over 3 million children at risk 
of falling behind. Senator Coats has also been a leader in getting this 
legislation to its final passage and we all thank him for his 
dedication to education. Today we take a first step, and as the poet 
Robert Frost says, ``we have miles to go before we sleep.''

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