[Congressional Record Volume 155, Number 79 (Thursday, May 21, 2009)]
[Senate]
[Pages S5826-S5829]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mr. DURBIN (for himself and Mr. Burr):
  S. 1129. A bill to authorize the Secretary of Education to award 
grants to local educational agencies to improve college enrollment; to 
the Committee on Health, Education, Labor, and Pensions.
  Mr. DURBIN. Mr. President, an educated workforce is crucial to the 
success of the American economy. A recent report from the consulting 
firm McKinsey, ``The Economic Impact of the Achievement Gap in 
America's Schools,'' concludes that if America had raised the 
educational attainment of our students to those of high-performing 
nations like Finland and South Korea between 1983 and 1998, U.S. G.D.P. 
in 2008 would have been between $1.3 trillion and $2.3 trillion higher 
than it is today. If the gap between low-income American students and 
American students of higher means had been narrowed, G.D.P. in 2008 
would have been $400 billion to $670 billion higher.
  If we want to be economically competitive and avoid future 
recessions, we need to close the achievement gap in education for all 
Americans. In his first speech to Congress, President Obama set a goal 
of having the highest college graduation rate in the world by 2020. Too 
many students are not receiving a college education, and we will have 
to do far better to reach the President's goal.
  Of students who were in eighth grade in 2000, only 20 percent of the 
lowest-income students will earn a college degree by 2012, compared to 
68 percent of the highest income group. Every student who wants to go 
to college should have that opportunity, and we should provide them 
with the tools they need.
  Today, I am introducing the Pathways to College Act with Senator 
Burr, which creates grants for school districts to help them increase 
the number of low-income students who are entering and succeeding in 
college.
  Lack of guidance and information about college has a real effect on 
students in poor schools. The Consortium

[[Page S5827]]

on Chicago School Research released a report last year, ``Potholes on 
the Road to College,'' that looks at the difficulties Chicago Public 
School students face during the college application process. The 
Consortium discovered that only 41 percent of Chicago Public School 
students who wanted to go to college took the steps necessary to apply 
to and enroll in a 4-year college. Only one-third of students enrolled 
in a college that matched their qualifications. Of the students who had 
the grades and test scores to attend a selective college, 29 percent 
went to a community college or skipped college entirely.
  The Pathways to College Act would create a grant program for school 
districts serving low-income students to increase their college-
enrollment rates. The Consortium's ``Potholes'' report found that the 
most important factor in whether students enroll in a four-year college 
is if they attended a school where teachers create a strong college-
going culture and help students with the process of applying. The 
Pathways to College Act would provide the funding to help school 
districts improve the college-going culture in schools and guide 
students through the college admissions process.
  The Pathways to College Act provides flexibility to school districts 
to achieve higher college enrollment rates, but requires that each 
school accurately track their results so we can learn from what works. 
Chicago Public Schools is doing a great job--both in tackling the 
problem and in documenting progress. Under the leadership of Arne 
Duncan, Chicago Public Schools responded aggressively to the 
``Potholes'' report.
  A team of postsecondary coaches were deployed in high schools to work 
with students and counselors. To ensure that financial aid is not a 
roadblock, FAFSA completion rates are tracked so that counselors can 
follow-up with students. A spring-break college tour took 500 students 
to see colleges across the country. Because Chicago Public Schools 
tracks its college enrollment rates, we know that their efforts are 
working.
  Half of the 2007 graduating class enrolled in college, an increase of 
6.5 percent in 4 years. The national increase was less than 1 percent 
in the same time-frame. Nationally, the number of African-American 
graduates going to college has decreased by 6 percent over the last 4 
years while the Chicago rate has increased by almost 8 percent.
  Applying to college is not easy. Low-income students often need the 
most help to achieve their college dreams. When schools focus on 
college and provide the tools to get there, students make the 
connection between the work they are doing now and their future goals 
in college and life. Students in those schools are more likely enroll 
in college and are also more likely to work hard in high school to be 
prepared for college when they arrive. The bill we are introducing 
today tries to ensure that lack of information never prevents a student 
from achieving his or her college dream.
  Mr. President, I ask unanimous consent that the text of the bill be 
printed in the Record.
  There being no objection, the text of the bill was ordered to be 
printed in the Record, as follows:

                                S. 1129

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

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``Pathways to College Act''.

     SEC. 2. FINDINGS.

       Congress finds the following:
       (1) An educated workforce is crucial to the success of the 
     United States economy. Access to higher education for all 
     students is critical to maintaining an educated workforce. 
     More than 80 percent of the 23,000,000 jobs that will be 
     created in the next 10 years will require postsecondary 
     education. Only 36 percent of all 18- to 24-year olds are 
     currently enrolled in postsecondary education.
       (2) Workers with bachelor's degrees earn on average $17,000 
     more annually than workers with only high school diplomas. 
     Workers who earn bachelor's degrees can be expected to earn 
     $1,000,000 more over a lifetime than those who only finished 
     high school.
       (3) In order to prepare students for college, all schools 
     should--
       (A) provide student guidance to engage students in college 
     and career awareness; and
       (B) ensure that students enroll in a rigorous curriculum to 
     prepare for postsecondary education.
       (4) The Department of Education reports that the average 
     student-to-counselor ratio in high schools is 315:1. This is 
     far higher than the ratio recommended by the American School 
     Counselor Association, which is 250:1. While school 
     counselors at private schools spend an average of 58 percent 
     of their time on postsecondary education counseling, school 
     counselors in public schools spend an average of 25 percent 
     of their time on postsecondary education counseling.
       (5) While just 57 percent of students from the lowest 
     income quartile enroll in college, 87 percent of students 
     from the top income quartile enroll. Of students who were in 
     eighth grade in 2000, only 20 percent of the lowest-income 
     students are projected to attain a bachelor's degree by 2012, 
     compared to 68 percent of the highest income group, according 
     to the Advisory Committee on Student Financial Assistance in 
     2006.
       (6) A recent report by the Consortium on Chicago School 
     Research found that only 41 percent of Chicago public school 
     students who aspire to go to college took the steps necessary 
     to apply to and enroll in a 4-year institution of higher 
     education. The report also reveals that only \1/3\ of Chicago 
     students who want to attend a 4-year institution of higher 
     education enroll in a school that matches their 
     qualifications. Even among students qualified to attend a 
     selective college, 29 percent enrolled in a community college 
     or did not enroll at all.
       (7) The Consortium found that many Chicago public school 
     students do not complete the Free Application for Federal 
     Student Aid, even though students who apply for Federal 
     financial aid are 50 percent more likely to enroll in 
     college. Sixty-five percent of public secondary school 
     counselors at low-income schools believe that students and 
     parents are discouraged from considering college as an option 
     due to lack of knowledge about financial aid.
       (8) Low-income and first-generation families often 
     overestimate the cost of tuition and underestimate available 
     aid; students from these backgrounds have access to fewer 
     college application resources and financial aid resources 
     than other groups, and are less likely to fulfill their 
     postsecondary plans as a result.
       (9) College preparation intervention programs can double 
     the college-going rates for at-risk youth, can expand 
     students' educational aspirations, and can boost college 
     enrollment and graduation rates.

     SEC. 3. GRANT PROGRAM.

       (a) Definitions.--In this Act:
       (1) College-going rate.--The term ``college-going rate'' 
     means the percentage of high school graduates who enroll at 
     an institution of higher education in the school year 
     immediately following graduation from high school.
       (2) Eligible local educational agency.--The term ``eligible 
     local educational agency'' means a local educational agency 
     in which a majority of the high schools served by the agency 
     are high-need high schools.
       (3) High-need high school.--The term ``high-need high 
     school'' means a high school in which not less than 50 
     percent of the students enrolled in the school are--
       (A) eligible to receive a free or reduced price lunch under 
     the Richard B. Russell National School Lunch Act (42 U.S.C. 
     1751 et seq.);
       (B) eligible to be counted under section 1124(c) of the 
     Elementary and Secondary Education Act of 1965 (20 U.S.C. 
     6333(c)); or
       (C) in families eligible for assistance under the State 
     program funded under part A of title IV of the Social 
     Security Act (42 U.S.C. 601 et seq.).
       (4) High school.--The term ``high school'' means a 
     nonprofit institutional day or residential school, including 
     a public charter high school, that provides high school 
     education, as determined under State law.
       (5) High school graduation rate.--The term ``high school 
     graduation rate''--
       (A) means the percentage of students who graduate from high 
     school with a regular diploma in the standard number of 
     years; and
       (B) is clarified in section 200.19(b)(1) of title 34, Code 
     of Federal Regulations.
       (6) Institution of higher education.--The term 
     ``institution of higher education'' has the meaning given the 
     term in section 101(a) of the Higher Education Act of 1965 
     (20 U.S.C. 1001(a)).
       (7) Local educational agency.--The term ``local educational 
     agency'' has the meaning given the term in section 9101 of 
     the Elementary and Secondary Education Act of 1965 (20 U.S.C. 
     7801).
       (8) Parent.--The term ``parent'' has the meaning given the 
     term in section 9101 of the Elementary and Secondary 
     Education Act of 1965 (20 U.S.C. 7801).
       (9) Secretary.--The term ``Secretary'' means the Secretary 
     of Education.
       (b) Competitive Grants to Eligible Local Educational 
     Agencies.--The Secretary is authorized to award grants, on a 
     competitive basis, to eligible local educational agencies to 
     carry out the activities described in this section.
       (c) Duration.--Grants awarded under this section shall be 5 
     years in duration.
       (d) Distribution.--In awarding grants under this section, 
     the Secretary shall ensure that the grants are distributed 
     among the different geographic regions of the United States, 
     and among eligible local educational agencies serving urban 
     and rural areas.
       (e) Applications.--
       (1) In general.--Each eligible local educational agency 
     desiring a grant under this

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     section shall submit an application to the Secretary at such 
     time, in such manner, and accompanied by such information as 
     the Secretary may reasonably require.
       (2) Contents.--Each application submitted under paragraph 
     (1) shall include a description of the program to be carried 
     out with grant funds and--
       (A) a detailed description of the high school population to 
     be targeted by the program, the particular college-access 
     needs of such population, and the resources available for 
     meeting such needs;
       (B) measurable objectives of the program, including goals 
     for increasing the number of college applications submitted 
     by each student and the number of students submitting 
     applications, increasing Free Application for Federal Student 
     Aid completion rates, and increasing school-wide college-
     going rates across the local educational agency;
       (C) a description of the local educational agency's plan to 
     work cooperatively, where applicable, with programs funded 
     under chapters 1 and 2 of subpart 2 of part A of title IV of 
     the Higher Education Act of 1965 (20 U.S.C. 1070a-11 et seq. 
     and 1070a-21 et seq.), including the extent to which the 
     agency commits to sharing facilities, providing access to 
     students, and developing compatible record-keeping systems;
       (D) a description of the activities, services, and training 
     to be provided by the program, including a plan to provide 
     structure and support for all students in the college search, 
     planning, and application process;
       (E) a description of the methods to be used to evaluate the 
     outcomes and effectiveness of the program;
       (F) an assurance that grant funds will be used to 
     supplement, and not supplant, any other Federal, State, or 
     local funds available to carry out activities of the type 
     carried out under the grant;
       (G) an explanation of the method used for calculating 
     college enrollment rates for each high school served by the 
     eligible local educational agency that is based on externally 
     verified data, and, when possible, aligned with existing 
     State or local methods;
       (H) a plan to make the program sustainable over time, 
     including the use of matching funds from non-Federal sources; 
     and
       (I) a description of the local educational agency's plan to 
     work cooperatively, where applicable, with the program funded 
     under part H of title VIII of the Higher Education Act of 
     1965 (20 U.S.C. 1161h et seq.), including the extent to which 
     the agency commits to using and leveraging--
       (i) the needs assessment and recommendations;
       (ii) the model for measuring college enrollment; and
       (iii) comprehensive services.
       (3) Method of calculating enrollment rates.--
       (A) In general.--A method included in an application under 
     paragraph (2)(G)--
       (i) shall, at a minimum, track students' first-time 
     enrollment in institutions of higher education; and
       (ii) may track progress toward completion of a 
     postsecondary degree.
       (B) Development in conjunction.--An eligible local 
     educational agency may develop a method pursuant to paragraph 
     (2)(G) in conjunction with an existing public or private 
     entity that currently maintains such a method.
       (f) Special Consideration.--In awarding grants under this 
     section, the Secretary shall give special consideration to 
     applications from eligible local educational agencies serving 
     schools with the highest percentages of poverty.
       (g) Use of Funds.--
       (1) In general.--An eligible local educational agency that 
     receives a grant under this section shall develop and 
     implement, or expand, a program to increase the number of 
     low-income students who enroll in postsecondary educational 
     institutions, including institutions with competitive 
     admissions criteria.
       (2) Required use of funds.--Each program funded under this 
     section shall--
       (A) provide professional development to high school 
     teachers and school counselors in postsecondary education 
     advising;
       (B) implement a comprehensive college guidance program for 
     all students in a high school served by an eligible local 
     educational agency under this section that--
       (i) ensures that all students and their parents, are 
     regularly notified throughout the students' time in high 
     school, beginning in the first year of high school, of--

       (I) high school graduation requirements;
       (II) college entrance requirements;
       (III) the economic and social benefits of higher education;
       (IV) college expenses, including information about expenses 
     by institutional type, differences between sticker price and 
     net price, and expenses beyond tuition; and
       (V) the resources for paying for college, including the 
     availability, eligibility, and variety of financial aid;

       (ii) provides assistance to students in registering for and 
     preparing for college entrance tests;
       (iii) provides one-on-one guidance and assistance to 
     students in applying to an institution of higher education 
     and in applying for Federal financial aid assistance and 
     other State, local, and private financial aid assistance and 
     scholarships;
       (iv) provides opportunities for students to explore 
     postsecondary opportunities outside of the school setting, 
     such as college fairs, career fairs, college tours, workplace 
     visits, or other similar activities; and
       (v) provides not less than 1 meeting for each student, not 
     later than the first semester of the first year of high 
     school, with a school counselor, college access personnel 
     (including personnel involved in programs funded under 
     chapters 1 and 2 of subpart 2 of part A of title IV of the 
     Higher Education Act of 1965 (20 U.S.C. 1070a-11 et seq. and 
     1070a-21 et seq.)), trained teacher, or other professional or 
     organization, such as a community-based organization, 
     approved by the school, to discuss postsecondary options, 
     outline postsecondary goals, and create a plan to achieve 
     those goals, and provides not less than 2 meetings in each 
     year to discuss progress on the plan;
       (C) ensure that each high school served by the eligible 
     local educational agency develops a comprehensive, school-
     wide plan of action to strengthen the college-going culture 
     within the high school; and
       (D) create or maintain a postsecondary access center in the 
     school setting that provides information on colleges and 
     universities, career opportunities, and financial aid options 
     and provide a setting in which professionals working in 
     college access programs, such as those funded under chapters 
     1 and 2 of subpart 2 of part A of title IV of the Higher 
     Education Act of 1965 (20 U.S.C. 1070a-11 et seq. and 1070a-
     21 et seq.), can meet with students.
       (3) Allowable use of funds.--Each program funded under this 
     section may--
       (A) establish mandatory postsecondary planning classes for 
     high school students to assist in the college preparation and 
     application process;
       (B) hire and train postsecondary coaches with expertise in 
     the college-going process to supplement existing school 
     counselors;
       (C) increase the number of school counselors who specialize 
     in the college-going process serving students;
       (D) train student leaders to assist in the creation of a 
     college-going culture in their schools;
       (E) establish partnerships with programs funded under 
     chapters 1 and 2 of subpart 2 of part A of title IV of the 
     Higher Education Act of 1965 (20 U.S.C. 1070a-11 et seq. and 
     1070a-21 et seq.)), and with community and nonprofit 
     organizations to increase college-going rates at high schools 
     served by the eligible local educational agency;
       (F) provide long-term postsecondary follow up with 
     graduates of the high schools served by the eligible local 
     educational agencies, including increasing alumni involvement 
     in mentoring and advising roles within the high school; and
       (G) deliver college and career planning curriculum as a 
     stand-alone course, or embedded in other classes, or 
     delivered through the guidance curriculum by the school 
     counselor for all students in high school.
       (h) Supplement, Not Supplant.--Funds made available under 
     this section shall be used to supplement, and not supplant, 
     other Federal, State, and local funds available to carry out 
     the activities described in this section.
       (i) Technical Assistance.--The Secretary, directly or 
     through contracting through a full and open process with 1 or 
     more organizations that have demonstrated experience 
     providing technical assistance to raise school-wide college-
     going rates in local educational agencies in not less than 3 
     States, shall provide technical assistance to grantees in 
     carrying out this section. The technical assistance shall--
       (1) provide assistance in the calculation and analysis of 
     college-going rates for all grant recipients;
       (2) provide semi-annual analysis to each grant recipient 
     recommending best practices based on a comparison of the 
     recipient's data with that of high schools with similar 
     demographics; and
       (3) provide annual best practices conferences for all grant 
     recipients.
       (j) Reporting Requirements.--Each eligible local 
     educational agency receiving a grant under this section shall 
     collect and report annually to the Secretary such information 
     for the local educational agency and for each high school 
     assisted under this section on the results of the activities 
     assisted under the grant as the Secretary may reasonably 
     require, including information on--
       (1) the number and percentage of students who enroll in an 
     institution of higher education in the school year 
     immediately following the students' high school graduation as 
     measured by externally verified school-wide college 
     enrollment data;
       (2) the number and percentage of students who graduate from 
     high school on time with a regular high school diploma;
       (3) the number and percentage of students, at each grade 
     level, who are on track to graduate from high school on time 
     and with a regular high school diploma;
       (4) the number and percentage of senior high school 
     students who apply to an institution of higher education and 
     the average number of applications completed and submitted by 
     students;
       (5) the number and percentage of senior high school 
     students who file the Free Application for Federal Student 
     Aid forms;
       (6) the number and percentage of students, in grade 10, who 
     take early admissions assessments, such as the PSAT;
       (7) the number and percentage of students, in grades 11 and 
     12, who take the SAT or ACT, and the students' mean scores on 
     such assessments;

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       (8) where data are available, the number and percentage of 
     students enrolled in remedial mathematics or English courses 
     during their freshman year at an institution of higher 
     education;
       (9) the number and percentage of students, in grades 11 and 
     12, enrolled in not less than 2 of the following:
       (A) a dual credit course; or
       (B) an Advanced Placement or International Baccalaureate 
     course; and
       (10) the number and percentage of students who meet or 
     exceed State reading or language arts, mathematics, or 
     science standards, as measured by State academic assessments 
     required under section 1111(b)(3) of the Elementary and 
     Secondary Education Act of 1965 (20 U.S.C. 6311(b)(3)).
       (k) Reporting of Data.--Each eligible local educational 
     agency receiving a grant under this section shall report to 
     the Secretary, where possible, the information required under 
     subsection (j) disaggregated in the same manner as 
     information is disaggregated under section 1111(h)(1)(C)(i) 
     of the Elementary and Secondary Education Act of 1965 (20 
     U.S.C. 6311(h)(1)(C)(i)).
       (l) Evaluations by Grantees.--Each eligible local 
     educational agency that receives a grant under this section 
     shall--
       (1) conduct periodic evaluations of the effectiveness of 
     the activities carried out under the grant toward increasing 
     school-wide college-going rates;
       (2) use such evaluations to refine and improve activities 
     conducted with the grant and the performance measures for 
     such activities; and
       (3) make the results of such evaluations publicly 
     available, including by providing public notice of such 
     availability.
       (m) Report.--From the amount appropriated for any fiscal 
     year, the Secretary shall reserve such sums as may be 
     necessary--
       (1) to conduct an independent evaluation, by grant or by 
     contract, of the programs carried out under this section, 
     which shall include an assessment of the impact of the 
     program on high school graduation rates and college-going 
     rates; and
       (2) to prepare and submit a report on the results of the 
     evaluation described in paragraph (1) to the Committee on 
     Health, Education, Labor, and Pensions of the Senate and the 
     Committee on Education and Labor of the House of 
     Representatives.
       (n) Authorization of Appropriations.--There are authorized 
     to be appropriated to carry out this section such sums as may 
     be necessary for fiscal year 2010 and each of the 5 
     succeeding fiscal years.
                                 ______