[Congressional Record Volume 145, Number 107 (Tuesday, July 27, 1999)]
[Senate]
[Pages S9387-S9388]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mr. Harkin (for himself, Mrs. Lincoln, Mr. Wellstone, and Mrs. 
        Murray):
  S. 1443. A bill to amend section 10102 of the Elementary and 
Secondary Education Act of 1995 regarding elementary school and 
secondary school counseling; to the Committee on Health, Education, 
Labor, and Pensions.


   ELEMENTARY AND SECONDARY SCHOOL COUNSELING IMPROVEMENT ACT OF 1999

  Mr. HARKIN. Mr President, in April, the nation was rocked by an 
unspeakable act of violence at Columbine High School in Littleton, 
Colorado. Twelve innocent students, a heroic teacher and the two 
student gunmen were killed in the 8th deadly school shooting in 39 
months.
  Since that tragic incident, there has been a nation wide discussion 
on the causes of such violence and a search for solutions to prevent 
such occurrences in the future. I would like to take a few moments to 
discuss one innovative program that can help us prevent violent acts 
from happening in the first place.
  Mr. President, children today are subjected to unprecedented social 
stresses, including the fragmentation of the family, drug and alcohol 
abuse, violence, child abuse and poverty. In 1988, the Des Moines 
Independent School District recognized the situation confronting young 
students and expanded counseling services in elementary schools.
  The expanded counseling program-- Smoother Sailing operates on the 
simple premise that we must get to kids early to prevent problems 
rather than waiting for a crisis. As a result, the district more than 
tripled the number of elementary school counselors to make sure that at 
least one well-trained professional is available in every single 
elementary school building.
  Smoother Sailing began as a pilot program in 10 elementary schools. 
The program increased the number of counselors in the elementary 
schools so there is one counselor for every 250 students--the ratio 
recommended for an effective program. The participating schools began 
seeing many positive changes.
  After two years, the schools participating in Smoother Sailing saw a 
dramatic reduction in the number of students referred to the office for 
disciplinary reasons.
  During the 1987-88 school year, 157 students were referred to the 
office for disciplinary action. After two years of Smoother Sailing, 
the number of office referrals in those schools dropped to 83--a 47% 
reduction in office referrals.
  During the same period, Des Moines elementary schools with a 
traditional crisis intervention counseling program had only a 21% 
reduction in office referrals.
  There were other changes as well. Teachers in Smoother Sailing 
schools reported fewer classroom disturbances and principals noticed 
fewer fights in the cafeteria and on the playground. The schools and 
classrooms had become more disciplined learning environments. It was 
clear that Smoother Sailing was making a difference so the counseling 
program was expanded to all 42 elementary schools in Des Moines in 
1990.
  Smoother Sailing continues to be a success.
  Smoother Sailing helps students solve problems in a positive manner. 
Assessments of 4th and 5th grade students show that students can 
generate more than one solution to a problem. Further, the types of 
solutions were positive and proactive. We know that the ability to 
effectively solve problems is essential for helping students make the 
right decisions when confronted with violence or drugs.
  Smoother Sailing gets high marks in surveys of administrators, 
teachers and parents. They report a high degree of satisfaction with 
the program.
  Ninety-five percent of parents surveyed said the counselor is a 
valuable part of my child's educational development. Ninety-three 
percent said they would seek assistance from the counselor if the child 
was experiencing difficulties at school.
  Administrators credit Smoother Sailing with decreasing the number of 
student suspensions and referrals to the office for disciplinary 
action. In addition, principals report that the program is responsible 
for creating an atmosphere that is conducive to learning.
  Experts tell us that to be effective, there should be at least one 
counselor for every 250 students. Unfortunately, the current 
student:counselor ratio is more than double the recommended level--it 
is 531:1. That means counselors are stretched to the limit and cannot 
devote the kind of attention to children that is needed.
  In most schools, the majority of counselors are employed at the 
middle and secondary levels. Therefore, the situation is more acute in 
elementary schools where the student to counselor ratio is greater than 
1000:1.
  Mr. President, Smoother Sailing was the model for the Elementary 
School Counseling Demonstration Act, a section of the Elementary and 
Secondary School Act.
  Today, along with Senators Lincoln and Wellstone, I am introducing 
the Elementary and Secondary School Counseling Improvement Act of 1999. 
This legislation does three things.
  First, it reauthorizes the Elementary School Counseling Demonstration 
Act and expands services to secondary schools.
  Second, it authorizes $100 million in funding to hire school 
counselors, school psychologists and school social workers.
  Finally, since the counselor shortage is particularly acute in 
elementary schools, the amendment requires that the first $60 million 
appropriated would go to provide grants for elementary schools.
  Mr. President, CNN and USA Today recently conducted a public opinion 
poll of Americans. They asked what would make a difference in 
preventing a future outbreak of violence in our nation's schools.
  The leading response was to restrict access to firearms. The second 
most popular response--a response selected by 60% of those polled--was 
to increase the number of counselors in our nation's schools.
  We should heed the advice of the American people. We have a desperate

[[Page S9388]]

need to improve counseling services in our nation's schools and this 
legislation will be an important step in addressing this critical 
issue. I urge my colleagues to support this legislation.
  This legislation is supported by several organizations--the American 
Counseling Association, the American School Counseling Association, the 
American Psychological Association, the National Association of School 
Psychologists, the School of Social Work Association of America and the 
National Association of Social Workers. I ask unanimous consent that a 
copy of the letter be printed in the Record.
  There being no objection, the letter was ordered to be printed in the 
Record, as follows:

                                                    July 26, 1999.
       Dear Senator. We are writing to urge your support of the 
     ``Elementary and Secondary Counseling Improvement Act'' 
     introduced by Senator Tom Harkin (D-IA). The Act would 
     increase and expand access to much needed counseling and 
     mental health services for children in our nation's 
     elementary and secondary schools.
       According to the National Institute of Mental Health 
     (NIMH), although 7.5 million children under the age of 18 
     require mental health services, only one in five receive 
     them. As the tragedy of this year's school shootings remind 
     us, students have mental, emotional, and behavioral needs 
     which require the services of qualified counseling 
     professionals. Additionally, counseling and mental health 
     services are essential to help teachers provide quality 
     instruction and enable students to achieve to high academic 
     standards.
       Unfortunately, in schools across the nation, the supply of 
     qualified school counselors, school psychologists and school 
     social workers is scarce. The U.S. average student-to-
     counselor ratio is 513:1. In states like California and 
     Minnesota, one counselor serves more than 1,000 students, and 
     in other states, one school psychologist serves as many as 
     2,300 students. Similar caseloads exist for school social 
     workers; in one county in Georgia, one school social worker 
     is responsible for over 4,000 students. These ratios make it 
     nearly impossible for students to get the counseling and 
     mental health services they need. This serious shortage of 
     qualified professionals has undermined efforts to make 
     schools safe, improve academic achievement, and has overly 
     burdened teachers.
       High caseloads are not the only obstacle facing a student 
     in need of help. School counselors, school psychologists, and 
     school social workers are often charged with miscellaneous 
     administrative or paperwork duties, and may spend almost a 
     quarter of their time on these tasks. Providers need to be 
     able to provide direct services to student, teachers, 
     families, and staff in schools.
       The Elementary School Counseling Demonstration Act (ESCD) 
     was first enacted with bi-partisan support as part of the 
     Improving America's Schools Act in 1994. The Act provided 
     counseling services through qualified school counselors, 
     school psychologists, and school social workers. Senator 
     Harkin's ``Elementary and Secondary Counseling Improvement 
     Act'' would reauthorize the Elementary School Counseling 
     Demonstration, and expand services to secondary schools.
       The Elementary and Secondary Counseling Improvement Act 
     would provide funding to schools to expand counseling 
     programs and services provided by only hiring qualified 
     school counselors, school psychologists, and social workers. 
     The Act ensures that programs funded will be comprehensive 
     and accountable by requiring that applicants:
       Design the program to be developmental and preventative; 
     Provide in-service training for school counselors, school 
     psychologists, and school social workers; Convene an advisory 
     board composed of parents, counseling professionals, 
     teachers, school administrators, and community leaders to 
     oversee the design and implementation of the program; and 
     Require that counseling professionals spend at least 85% of 
     their work time providing direct services to students and no 
     more than 15% on administrative tasks.
       We urge you to support Senator Harkin's Elementary and 
     Secondary Counseling Improvement Act.
           Sincerely,
       American Counseling Association (AA).
       American Psychological Association (APA).
       National Association of School Psychologists (NASP).
       National Association of Social Workers (NASW).
                                 ______