[House Report 110-254]
[From the U.S. Government Publishing Office]
110th Congress Report
HOUSE OF REPRESENTATIVES
1st Session 110-254
======================================================================
SHIRLEY A. CHISHOLM UNITED STATES-CARIBBEAN EDUCATIONAL EXCHANGE ACT OF
2007
_______
July 23, 2007.--Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
_______
Mr. Lantos, from the Committee on Foreign Affairs, submitted the
following
R E P O R T
[To accompany H.R. 176]
[Including cost estimate of the Congressional Budget Office]
The Committee on Foreign Affairs, to whom was referred the
bill (H.R. 176) to authorize assistance to the countries of the
Caribbean to fund educational development and exchange
programs, having considered the same, reports favorably thereon
with an amendment and recommends that the bill as amended do
pass.
TABLE OF CONTENTS
Page
The Amendment.................................................... 2
Summary.......................................................... 6
Background and Purpose for the Legislation....................... 7
Hearings......................................................... 9
Committee Consideration.......................................... 9
Votes of the Committee........................................... 9
Committee Oversight Findings..................................... 9
New Budget Authority and Tax Expenditures........................ 9
Congressional Budget Office Cost Estimate........................ 9
Performance Goals and Objectives................................. 10
Constitutional Authority Statement............................... 10
New Advisory Committees.......................................... 10
Congressional Accountability Act................................. 10
Earmark Identification........................................... 11
Section-by-Section Analysis and Discussion....................... 11
The Amendment
The amendment is as follows:
Strike all after the enacting clause and insert the
following:
SECTION 1. SHORT TITLE AND TABLE OF CONTENTS.
(a) Short Title.--This Act may be cited as the ``Shirley A. Chisholm
United States-Caribbean Educational Exchange Act of 2007''.
(b) Table of Contents.--The table of contents for this Act is as
follows:
Sec. 1. Short title and table of contents.
Sec. 2. Definitions.
Sec. 3. Findings and statement of purpose.
Sec. 4. Shirley A. Chisholm United States-Caribbean Educational
Exchange Program.
Sec. 5. Program to provide educational development assistance for
CARICOM countries.
Sec. 6. Administrative provisions.
Sec. 7. Reporting requirements.
Sec. 8. Authorization of appropriations.
SEC. 2. DEFINITIONS.
In this Act:
(1) Administrator.--Except as otherwise provided, the term
``Administrator'' means the Administrator of the United States
Agency for International Development.
(2) Appropriate congressional committees.--The term
``appropriate congressional committees'' means--
(A) the Committee on Foreign Affairs and the
Committee on Appropriations of the House of
Representatives; and
(B) the Committee on Foreign Relations and the
Committee on Appropriations of the Senate.
(3) CARICOM country.--The term ``CARICOM country''--
(A) means a member country of the Caribbean Community
(CARICOM); but
(B) does not include--
(i) a country having observer status in
CARICOM; or
(ii) a country the government of which the
Secretary of State has determined, for purposes
of section 6(j) of the Export Administration
Act of 1979 (as continued in effect pursuant to
the International Emergency Economic Powers
Act), section 40 of the Arms Export Control
Act, section 620A of the Foreign Assistance Act
of 1961, or any other provision of law, is a
government that has repeatedly provided support
for acts of international terrorism.
(4) Secretary.--Except as otherwise provided, the term
``Secretary'' means the Secretary of State.
(5) United states cooperating agency.--The term ``United
States cooperating agency'' means--
(A) an accredited institution of higher education,
including, to the maximum extent practicable, an
historically Black college or university that is a part
B institution (as such term is defined in section
322(2) of the Higher Education Act of 1965 (20 U.S.C.
1061(2))) or an Hispanic-serving institution (as such
term is defined in section 502(5) of such Act (20
U.S.C. 1101a(5)));
(B) a higher education association;
(C) a nongovernmental organization incorporated in
the United States; or
(D) a consortium consisting of two or more such
institutions, associations, or nongovernmental
organizations.
SEC. 3. FINDINGS AND STATEMENT OF PURPOSE.
(a) Findings.--Congress finds the following:
(1) The United States and CARICOM countries have enjoyed
long-standing friendly relations.
(2) As an important regional partner for trade and democratic
values, the Caribbean region constitutes a ``Third Border'' of
the United States.
(3) The decrease in tourism revenue in the aftermath of the
tragic terrorist attacks on September 11, 2001, had an adverse
affect on the Caribbean region.
(4) According to a 2005 World Bank Report on the Caribbean
region, high rates of unemployment, particularly youth
unemployment, have had severe implications on poverty and
income distributions, as well as drug trafficking and
addiction.
(5) The 2005 World Bank Report also concludes that better
synchronization is needed between curricula in CARICOM
countries and the skills needed in evolving national and
regional job markets and economies.
(6) Caribbean leaders have highlighted the need for increased
educational opportunities for Caribbean students in fields that
will contribute to and support an increasingly competitive
regional economy.
(7) Enhancing United States cultural and educational exchange
programs in CARICOM countries will expand human resources,
provide opportunities that promote economic growth, and improve
regional security.
(8) Many Caribbean leaders studied at the undergraduate or
graduate level in the United States before returning to their
respective countries to contribute toward the strengthening of
democracy, the economy, or the provision of social services.
(9) From 2003 through 2005, 217 Caribbean leaders
participated in exchange programs with the United States that
focused on good governance, combating drug trafficking, anti-
corruption, and other regional issues of concern.
(10) The Department of State currently administers public
outreach programs that include cultural, academic, and citizen-
exchange initiatives in CARICOM countries through the Embassy
Public Affairs Sections with support from the Office of Public
Diplomacy in the Bureau of Western Hemisphere Affairs.
(11) The Caribbean Center for Excellence in Teacher Training
(C-CETT), a Presidential Initiative funded by the United States
Agency for International Development and implemented by the
University of the West Indies, works to improve the quality of
reading instruction by training classroom and student teachers
in seven countries of the English-speaking Caribbean. Belize,
Jamaica, Grenada, St. Lucia, Guyana, St.Vincent and the
Grenadines, and Trinidad and Tobago have participated in the C-
CETT as a means to reducing illiteracy in the most
disadvantaged urban and remote rural areas.
(12) In Anguilla, Antigua and Barbuda, the Bahamas, Barbados,
Belize, the Cayman Islands, the Dominican Republic, Dominica,
Grenada, Guyana, Jamaica, Montserrat, St. Kitts and Nevis, St.
Lucia, St. Vincent and the Grenadines, Suriname, and Trinidad
and Tobago, the Bureau of Educational and Cultural Affairs of
the Department of State sponsors educational advisors to
promote study in the United States.
(13) In the 2004-2005 academic year, approximately 14,000
Caribbean students were enrolled in United States colleges and
universities.
(14) Shirley Anita Chisholm, who served as a member of the
United States House of Representatives from 1968 to 1983, had
family roots in the Caribbean nation of Barbados, was a staunch
advocate for educational opportunity and access, and increased
support for historically Black colleges and universities and
other minority-serving institutions in the United States.
(b) Statement of Purpose.--The purpose of this Act is to establish--
(1) an educational exchange program between the United States
and CARICOM countries, to be known as the ``Shirley A. Chisholm
United States-Caribbean Educational Exchange Program'',
pursuant to section 4 of this Act to assist in educating
promising students and scholars from CARICOM countries who will
invest the knowledge and experiences they gain in the United
States back into the community of CARICOM countries; and
(2) a program to provide educational development assistance
for CARICOM countries pursuant to section 5 of this Act.
SEC. 4. SHIRLEY A. CHISHOLM UNITED STATES-CARIBBEAN EDUCATIONAL
EXCHANGE PROGRAM.
(a) Program Authorized.--The Secretary of State is authorized to
establish an educational exchange program between the United States and
CARICOM countries, to be known as the ``Shirley A. Chisholm United
States-Caribbean Educational Exchange Program,'' under which--
(1) secondary school students from CARICOM countries will--
(A) attend a public or private secondary school in
the United States;
(B) participate in activities designed to promote a
greater understanding of the values and culture of the
United States; and
(C) have the option to live with a United States host
family and experience life in a United States host
community; and
(2) undergraduate students, graduate students, post-graduate
students, and scholars from CARICOM countries will--
(A) attend a public or private college or university,
including a community college, in the United States;
(B) participate in activities designed to promote a
greater understanding of the values and culture of the
United States; and
(C) have the option to live with a United States host
family and experience life in a United States host
community or live in an on-campus housing environment.
(b) Elements of Program.--The program authorized under subsection (a)
shall meet the following requirements:
(1) The program will offer scholarships to students and
scholars based on merit and need. It is the sense of Congress
that scholarships should be offered under the program to
students and scholars who evidence merit, achievement, and
strong potential for the studies such students and scholars
wish to undertake under the program and 40 percent of
scholarships offered under the program should be based on
financial need.
(2) The program will seek to achieve gender equality in
granting scholarships under the program.
(3) The program will limit participation to--
(A) two years of study for secondary school students;
(B) four years of study for undergraduate students;
(C) 30 months of study for graduate students; and
(D) one year of study for post-graduate students and
scholars.
(4) For a period of time equal to the period of time of
participation in the program, but not to exceed 2 years, the
program will require participants who are students and scholars
described in subsection (a)(2) to--
(A) agree to return to live in a CARICOM country and
maintain residence in such country, within 6 months of
completion of academic studies; or
(B) agree to obtain employment that directly benefits
the growth, progress, and development of one or more
CARICOM countries and the people of such countries.
(5) The Secretary of State shall have the discretion to
waive, shorten the duration, or otherwise alter the
requirements of paragraph (5) in limited circumstances of
hardship, humanitarian needs, for specific educational
purposes, or in furtherance of the national interests of the
United States.
(c) Role of United States Cooperating Agencies.--The Secretary shall
consult with United States cooperating agencies in developing the
program authorized under subsection (a) and shall make grants to United
States cooperating agencies in carrying out the program authorized
under subsection (a).
(d) Monitoring and Evaluation of Program.--
(1) In general.--The Secretary shall establish and implement
a system to monitor and evaluate the effectiveness and
efficiency of the program authorized under subsection (a). In
carrying out the system, the Secretary shall evaluate the
program's positive or negative effects on brain-drain from the
participating CARICOM countries and suggest ways in which the
program may be improved to promote the basic goal of
alleviating brain-drain from the participating CARICOM
countries.
(2) Requirements.--In carrying out paragraph (1), the
Secretary shall review on a regular basis--
(A) financial information relating to the program;
(B) budget plans for the program;
(C) adjustments to plans established for the program;
(D) graduation rates of participants in the program;
(E) the percentage of participants who are students
described in subsection (a)(1) who pursue higher
education;
(F) the percentage of participants who return to
their home country or another CARICOM country;
(G) the types of careers pursued by participants in
the program and the extent to which such careers are
linked to the political, economic, and social
development needs of CARICOM countries; and
(H) the impact of gender, country of origin,
financial need of students, and other relevant factors
on the data collected under subparagraphs (D) through
(G).
(e) Sense of Congress.--It is the sense of Congress that the
Secretary should seek to work with CARICOM countries to establish an
educational exchange program under which--
(1) secondary school students from the United States will
attend a public or private equivalent school in CARICOM
countries; and
(2) undergraduate students, graduate students, post-graduate
students, and scholars from the United States will attend a
public or private college or university in CARICOM countries.
SEC. 5. PROGRAM TO PROVIDE EDUCATIONAL DEVELOPMENT ASSISTANCE FOR
CARICOM COUNTRIES.
(a) Program Authorized.--The Secretary of State, acting through the
Administrator of the United States Agency for International
Development, is authorized to establish a program to provide
educational development assistance for CARICOM countries.
(b) Purpose of Program.--The purpose of the program authorized under
subsection (a) is to improve primary and secondary education in CARICOM
countries by enhancing teacher training, strengthening curriculum and
instructional materials, and assisting improvements in school
management and public administration of education.
(c) Elements of Program.--The program authorized under subsection (a)
shall extend and expand upon existing primary and secondary school
programs in CARICOM countries to provide--
(1) teacher-training methods and training in subject area
studies;
(2) classroom and school management;
(3) development and modernization of curriculum and
instructional materials;
(4) increased community involvement in school activities; and
(5) local, regional, and national government policy planning
on the elements described in paragraphs (1) through (4).
(d) Role of United States Cooperating Agencies.--The Secretary shall
consult with the Secretary of Education and United States cooperating
agencies in developing the program authorized under subsection (a) and
shall make grants to United States cooperating agencies in carrying out
the program authorized under subsection (a).
(e) Monitoring and Evaluation of Program.--The Secretary shall
establish and implement a system to monitor and evaluate the
effectiveness and efficiency of the program authorized under subsection
(a).
(f) Sense of Congress.--It is the sense of Congress that the
Secretary should seek to work with CARICOM countries to establish an
educational development program under which education in the CARICOM
countries is improved and access to quality education for children in
CARICOM countries is increased.
SEC. 6. ADMINISTRATIVE PROVISIONS.
(a) Funding From Private Sources and Partnerships With Other
Appropriate Entities.--To the maximum extent practicable, the Secretary
of State and the Administrator of the United States Agency for
International Development should implement the programs authorized
under sections 4 and 5 of this Act through utilization of funding from
private sources to maximize the impact of United States funds under
this Act, and through partnerships with appropriate United States
organizations, institutions, and corporations.
(b) Avoidance of Duplication.--The Secretary and the Administrator
shall consult with the Secretary of Education to ensure that--
(1) activities under the programs authorized under sections 4
and 5 of this Act are not duplicative of other United States
educational programs for CARICOM countries; and
(2) United States cooperating agencies and partner
institutions in CARICOM countries are accredited by national or
regional accrediting bodies.
(c) Reporting Under SEVIS.--To the extent necessary, the Secretary
shall provide support to United States cooperating agencies that are
participating in the program authorized under section 4 of this Act in
order to fulfill the requirements for student data reporting under the
Student and Exchange Visitor Information System (SEVIS).
SEC. 7. REPORTING REQUIREMENTS.
(a) Report Required.--Not later than 90 days after the date of the
enactment of this Act, the Secretary of State shall submit to the
appropriate congressional committees a report on plans to implement the
programs authorized under sections 4 and 5 of this Act.
(b) Matters to Be Included.--The report required by subsection (a)
shall include--
(1) with respect to implementation of the program authorized
under section 4--
(A) a plan for selecting participants in the program,
including an estimate of the number of secondary school
students, undergraduate students, graduate students,
post-graduate students, and scholars from each country,
by educational level, who will be selected as
participants in the program for each fiscal year;
(B) a timeline for selecting United States
cooperating agencies that will assist in implementing
the program and for those agencies to setup to
implement the program;
(C) a financial plan that--
(i) identifies budget plans for the program,
identifying budgets for each educational level
under the program; and
(ii) identifies plans or systems to ensure
that the costs allocated to public school,
college, and university education under the
program and the costs allocated to private
school, college, and university education under
the program are reasonably allocated; and
(D) a plan to provide outreach to and linkages with
schools, colleges and universities, and nongovernmental
organizations in both the United States and CARICOM
countries for implementation of the program; and
(2) a plan outlining implementation of the program authorized
under section 5, identifying the initial countries in which the
program will be implemented and a timeline for implementation.
(c) Updates of Report.--
(1) In general.--The Secretary shall submit to the
appropriate congressional committees updates of the report
required by subsection (a) for each fiscal year for which
amounts are appropriated pursuant to the authorization of
appropriations under section 8 of this Act.
(2) Matters to be included.--Such updates shall include the
following:
(A) Information on United States cooperating agencies
that are selected to assist in implementing the
programs authorized under sections 4 and 5 of this Act.
(B) An analysis of the positive and negative impacts
the program authorized under section 4 will have or is
having on brain-drain from the participating CARICOM
countries.
(C) A description of efforts made by the Secretary of
State, acting through the Administrator of the United
States Agency for International Development, to
implement the program authorized under section 5.
(D) A description of the programs established in each
CARICOM country receiving assistance under the program
authorized under section 5 that provides a detailed
explanation of the extent to which the program and the
assistance provided are contributing to the purpose of
the program described in section 5(b) in the CARICOM
country.
(E) An evaluation of additional educational
development goals in CARICOM countries, identifying
those goals that could be maximized or achieved with
United States assistance through the program authorized
under section 5. In addition to standard or necessary
areas of education review, the evaluation should give
attention to factors affecting academic achievement,
attrition, and graduation rates in CARICOM countries.
The evaluation should suggest ways to maximize success
factors and address factors contributing to poor
achievement through United States assistance.
SEC. 8. AUTHORIZATION OF APPROPRIATIONS.
To carry out this Act, there are authorized to be appropriated such
sums as may be necessary for each of the fiscal years 2008 through
2012. Amounts appropriated pursuant to the authorization of
appropriations under this section are in addition to amounts otherwise
available for such purposes.
Summary
H.R. 176, the ``Shirley A. Chisholm United States-Caribbean
Educational Exchange Act of 2007'' (the ``Act'') establishes an
educational exchange program between the United States and the nations
of the Caribbean Community and Common Market, also known as CARICOM,
and provides educational-related development assistance for CARICOM
countries.
The Shirley A. Chisholm Educational Exchange Program will enable
high school, undergraduate and graduate students, and scholars from
CARICOM countries to attend public and private schools, colleges and
universities in the United States. The program will emphasize
activities designed to promote a greater understanding of the values
and culture of the United States and will give students the option to
live with a United States host family and experience life in a
community. The scholarships will be offered to students who evidence
merit, achievement and potential, and 40 percent of scholarships will
be based on need. Participating students must agree to return to a
CARICOM country within 6 months of completion of academic studies or
agree to obtain employment that directly benefits the growth, progress,
and development of a CARICOM country.
In addition, the Act seeks to improve primary and secondary
education in CARICOM nations and to increase access to quality
education for children in CARICOM countries. The Act authorizes the
Secretary of State, acting through the Administrator of the U.S. Agency
for International Development (USAID), to extend and expand upon
existing educational development programs to provide teacher training,
curriculum development and improvements in school administration in
primary and secondary schools in CARICOM countries. The Act would allow
USAID to use public-private partnerships to implement the program and
it encourages the participation of Historically Black Colleges and
Universities and Hispanic Serving Institutions in this effort to
improve education in these nations.
Background and Purpose for the Legislation
The U.S. continues a long tradition of close and friendly relations
with the member nations of CARICOM. Currently, the CARICOM member
states are Antigua and Barbuda, The Bahamas, Barbados, Belize,
Dominica, Grenada, Guyana, Haiti, Jamaica, Montserrat, St. Lucia, St.
Kitts and Nevis, St. Vincent and the Grenadines, Suriname and Trinidad
and Tobago. Geographic proximity has ensured strong economic relations
between the U.S. and the CARICOM nations, and the U.S. continues to be
a major trading partner for CARICOM nations and a significant source of
foreign investment in the region. In addition, migration from CARICOM
nations to the United States has been significant over the last few
decades, creating sizable Caribbean populations in states such as New
York and Florida. Many Americans of Caribbean heritage make significant
contributions to our economy and culture throughout the United States.
The Committee expects that the visit of CARICOM leaders to the
United States in June of 2007 will serve as a key step forward in
enhancing the depth and range of cooperation between the United States
and the nations of the CARICOM region. This Act, and the educational
exchange and development programs it creates, will play a significant
role in expanding U.S. relations with CARICOM countries by investing in
the people of these nations. In addition, the education initiatives in
this bill will assist long-term U.S. efforts to address three key
policy priorities for the region: promoting democracy, advancing free
trade, and advancing poverty alleviation and social justice.
Caribbean citizens have come to the United States to pursue higher
education for decades. Close to 14,000 students from the Caribbean have
studied in the U.S. annually over the last few years. Student exchange
programs help increase mutual cultural understanding and assist in
strengthening our ties with other nations. In particular, the Shirley
A. Chisholm United States-Caribbean Educational Exchange Program will
ensure closer ties between Americans and our Caribbean neighbors, and
will help develop leaders in the Caribbean who will have enhanced
knowledge of American systems of democracy and our free market economic
system.
Opportunities to study abroad have played a key role in the
development of leadership throughout the CARICOM countries, impacting
government, the economy and civil society in these nations. Many
leaders in English-speaking countries have studied at the University of
the West Indies, but many have also left the region to study in
England, Canada and the United States. As an example, the current Prime
Minister of Antigua and Barbuda, W. Baldwin Spencer, studied in
England, Canada and Norway; the Prime Minister of Belize, Said Musa,
studied in England; and the President of Haiti, Rene Preval, studied in
Belgium. These leaders, and many others, chose to reinvest their
education back into their nations and their home communities.
Many of the Caribbean's best and brightest have come to study in
the U.S. and later obtained jobs here. They have made significant
contributions to American communities and to our nation as a whole. But
with their immigration to the U.S., our gain has come at a great price
for the Caribbean nations they left. Over the decades, there has been a
significant brain drain of talent from the Caribbean to the United
States and Europe particularly. This bill seeks to address that problem
by targeting young scholars who are committed to returning home, and
those who are determined to contribute the knowledge and skills they
gain through education in the U.S. for the betterment of their nations.
By becoming leaders in business, politics, education and teaching,
religion and civil society, the beneficiaries of this program can
enhance job creation and opportunity in their home country, or another
CARICOM nation.
CARICOM nations face significant political and social challenges
and the United States shares an interest in working with these
neighbors to address these issues of common concern. We continue to
work with CARICOM nations on the problems of illegal drug trafficking
and addiction, HIV/AIDS, severe forms of poverty and underdevelopment,
income distribution distortions, and high rates of unemployment. In
addition, these nations have continued to be good partners with the
U.S. on regional security concerns and beneficial trade relationships.
Section 2 of this Act makes explicit that assistance provided under the
Act may not be provided to a country the government of which the
Secretary of State has determined, for purposes of section 6(j) of the
Export Administration Act of 1979 (as continued in effect pursuant to
the International Emergency Economic Powers Act), section 40 of the
Arms Export Control Act, section 620A of the Foreign Assistance Act of
1961, or any other provision of law, is a government that has
repeatedly provided support for acts of international terrorism.
The World Bank concluded that educational systems and curricula in
CARICOM nations need to be adjusted to meet the needs of increasingly
competitive national and regional job markets. Caribbean leaders have
invited increased investment by the United States in their educational
systems, and have highlighted the need for increased educational
opportunities in fields that will contribute to further development of
their economies in regional and international contexts.
Educational systems in the Caribbean are generally marked with high
levels of participation in primary school, with steady decreases in
enrollment in secondary school. Grade repetition, attrition, and space
or access limitations are significant challenges in many countries. In
addition, the quality of education is below international goals in many
countries, though most nations show successful levels of achievement at
schools primarily accessed by the nation's social elites. In fact,
private sector education is a key feature of educational systems in the
Caribbean: in most Caribbean countries, private schools account for
more than 80% of total enrollment. While gender parity exists in most
primary school systems, it skews notably to favor girls in secondary
systems in many countries (with the exception of Haiti where far more
boys then girls receive secondary education). Caribbean school systems
are also marked by outdated curricula, under-trained teachers and
teachers with low qualifications. In some nations, a substantial
percentage of teachers never finished secondary school themselves.
These problems are reflected in the persistent low literacy rates
throughout the Caribbean where 70% of adults, 55% of them women, are
unable to read and write with understanding.
Like much of the Western Hemisphere, school enrollment rates in the
Caribbean are relatively high compared to many other countries in the
developing world. However, primary school enrollment rates in the
Caribbean lag behind those in Latin America. In 2004, Caribbean nations
showed a net enrollment ratio in primary school of only 83% compared to
95% for Latin America. Large numbers of children remain outside of the
primary educational systems and many enter school late, or over-age,
and unprepared to learn. Over half of children not enrolled in school
are girls.
Although participation in secondary school is generally expanding
across the region, attrition continues to be a substantial problem in
many countries. In the Bahamas, for example, the secondary school gross
enrollment ratio (expressing enrollment as a percentage of the
population in the corresponding age group) declined 30% between 1999
and 2004. Thus school completion is a significant challenge in some
countries, with boys tending to leave school or fail to complete at a
greater rate than girls. Some school systems have had success with
improvement in enrollment. This ratio increased in eleven Caribbean
nations, including CARICOM members Barbados, Dominica, Grenada,
Montserrat, and St. Kitts and Nevis. Nonetheless, national and
international learning assessments continue to reveal poor literacy and
numerical skills, especially for students from poor or culturally
excluded families in the Caribbean.
The Caribbean has particularly narrow access to tertiary education
for students in the relevant age group. While the gross enrollment
ratio is 29% in Latin America, it is only 6% in the Caribbean. The
University of the West Indies plays an important role in providing
quality university and graduate education to citizens of the Caribbean.
By providing access to tertiary education in the United States, the
Shirley A. Chisholm United States-Caribbean Educational Exchange
Program can expand the number of university graduates in the CARICOM
countries, while ensuring that these nations benefit from the
educational achievements of their citizens.
In a large number of countries in Latin America and the Caribbean,
fewer than 80% of teachers have received pedagogical training. Six of
the eleven countries in the world with more than 50% of their secondary
teachers lacking training are in the Caribbean, and are all CARICOM
members: Belize, Dominica, Grenada, St. Kitts and Nevis, and St.
Vincent and the Grenadines. The Bahamas showed a remarkable increase in
teacher training in recent years (more than 60%), but the total number
of teachers declined, leading to notably high student to teacher ratios
and resulting overcrowded classrooms. Barbados and Montserrat showed
declines in the percentage of trained teachers. In addition,
requirements for teacher qualifications are sometimes low. In recent
years only secondary education was required to teach in Antigua and
Barbuda, St. Kitts and Nevis, and St. Vincent and the Grenadines. In
numerous countries, qualification requirements are not met. In Antigua
and Barbuda, for example, fewer than 50% of primary school teachers
finished secondary school.
Many of these educational issues are noted in specific reports and
assessments on national school systems. A 2004 national report on
education produced by the Jamaican Government noted that ``a number of
Jamaicans are under-educated and cannot take advantage of educational
and economic opportunities that may arise. . . . There is concern that
output from the system does not possess the attitude and the skills
required to function effectively in today's society.'' That report also
notes the formidable challenge of access to secondary education due to
inadequate space and financial restraints on families.
A 2007 World Bank project appraisal for an education program in
Haiti notes that half a million children between the ages of 6 and 11
do not attend school at all in Haiti, and only half of all 6-year-olds
enroll in first grade. That report indicates that a small fraction of
the needed teachers are certified each year and that ``teacher trainers
emphasize out-dated teaching methods and trainees lack the materials
they need to develop both theoretical and practical pedagogical
competencies.'' The report notes that many children are not ready to
learn; they arrive at school hungry and without energy. Furthermore,
``Quality of instruction and learning is extremely poor. Curricula are
outdated and in many cases inappropriate for over-age students who make
up the bulk of the primary education population. Teaching practices are
almost exclusively `chalk and talk,' requiring students to recite words
and phrases they frequently cannot understand.''
Though Haiti faces extreme development challenges, these two
reports reflect challenges faced by numerous educational systems
throughout the Caribbean and throughout CARICOM nations. The United
Nations has determined that external assistance will be required to
achieve international ``Education for All'' goals in this region,
especially in the least developed countries with the lowest education
indicators. The ``Shirley A. Chisholm United States-Caribbean
Educational Exchange Act of 2007'' will contribute toward assisting the
CARICOM countries in developing their capacity to meet the educational
challenges and goals necessary for their people to become vibrant
contributors in growing national, regional and international economies.
Hearings
The Committee did not hold any hearings directly related to the
subject matter of this bill.
Committee Consideration
On June 26, 2007, the Committee marked up H.R. 176, and reported it
favorably to the House, as amended, a quorum present.
Votes of the Committee
There were no recorded votes during consideration of H.R. 176.
Committee Oversight Findings
In compliance with clause 3(c)(1) of rule XIII of the Rules of the
House of Representatives, the Committee reports that the findings and
recommendations of the Committee, based on oversight activities under
clause 2(b)(1) of rule X of the Rules of the House of Representatives,
are incorporated in the descriptive portions of this report.
New Budget Authority and Tax Expenditures
In compliance with Clause 3(c)(2) of House Rule XIII, the Committee
adopts as its own the estimate of new budget authority, entitlement
authority, or tax expenditures or revenues contained in the cost
estimate prepared by the Director of the Congressional Budget Office,
pursuant to section 402 of the Congressional Budget Act of 1974.
Congressional Budget Office Cost Estimate
In compliance with clause 3(c)(3) of rule XIII of the Rules of the
House of Representatives, the Committee sets forth, with respect to the
bill, H.R.176, ``Shirley A. Chisholm United States-Caribbean
Educational Exchange Act of 2007,'' the following estimate and
comparison prepared by the Director of the Congressional Budget Office
under section 402 of the Congressional Budget Act of 1974:
U.S. Congress,
Congressional Budget Office,
Washington, DC, July 20, 2007.
Hon. Tom Lantos, Chairman,
Committee on Foreign Affairs,
House of Representatives, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has prepared the
enclosed cost estimate for H.R. 176, the Shirley A. Chisholm United
States-Caribbean Educational Exchange Act of 2007.
If you wish further details on this estimate, we will be pleased to
provide them. The CBO staff contact is Sunita D'Monte, who can be
reached at 226-2840.
Sincerely,
Peter R. Orszag.
Enclosure
cc:
Honorable Ileana Ros-Lehtinen
Ranking Member
H.R. 176--Shirley A. Chisholm United States-Caribbean Educational
Exchange Act of 2007
H.R. 176 would authorize a comprehensive program to improve primary
and secondary education in nations in the Caribbean region and an
educational exchange program with those same countries, and would
authorize the appropriation of such sums as may be necessary over the
2008-2012 period for both programs.
The bill would authorize the Administrator of the U.S. Agency for
International Development (USAID) to expand existing initiatives for
teacher training and community involvement in school activities. Based
on information from USAID, CBO estimates that implementing this
provision would require funding of $15 million a year, and would cost
$2 million in 2008 and $48 million over the 2008-2012 period, assuming
appropriation of the estimated amounts.
H.R. 176 also would authorize the Secretary of State to establish
an exchange program for secondary and post-secondary students from the
region to study in the United States, and to collaborate with Caribbean
countries to establish similar opportunities for U.S. students.
According to the State Department, H.R. 176 would duplicate existing
efforts to facilitate exchange programs with Caribbean countries; thus,
CBO estimates that implementing this provision would have no
significant effect on spending subject to appropriation. Enacting the
bill would not affect direct spending or receipts.
H.R. 176 contains no intergovernmental or private-sector mandates
as defined in the Unfunded Mandates Reform Act and would impose no
costs on state, local, or tribal governments.
The CBO staff contact for this estimate is Sunita D'Monte, who can
be reached at 226-2840. This estimate was approved by Peter H.
Fontaine, Deputy Assistant Director for Budget Analysis.
Performance Goals and Objectives
The Act is intended to cultivate and educate future leaders in
CARICOM nations by creating a student exchange program that enables
CARICOM students to study in the United States and learn about U.S.
culture, while insuring that these students invest their skills and
education towards the betterment of CARICOM nations. In addition, the
Act is intended to improve the quality of primary and secondary
schooling in CARICOM countries, and access to that schooling, by
improving teaching, curriculum, management and political operations of
schools in CARICOM countries.
Constitutional Authority Statement
Pursuant to clause 3(d)(1) of rule XIII of the Rules of the House
of Representatives, the Committee finds the authority for this
legislation in article I, section 8 of the Constitution.
New Advisory Committees
H.R. 176 does not establish or authorize any new advisory
committees.
Congressional Accountability Act
H.R. 176 does not apply to the Legislative Branch.
Earmark Identification
H.R. 176 does not contain any congressional earmarks, limited tax
benefits, or limited tariff benefits as defined in clause 9(d), 9(e),
or 9(f) of rule XXI.
Section-by-Section Analysis and Discussion
Section 1. Short Title and Table of Contents.
This section provides that the short title of the Act is the
``Shirley A. Chisholm United States-Caribbean Educational Exchange Act
of 2007.''
Section 2. Definitions.
This section provides for definitions for use in the Act.
Section 3. Findings and Statement of Purpose.
This section establishes the fact that the U.S. and CARICOM have
had long-standing friendly relations and that they are an important
regional partner for trade and democratic values. This combination
provides for characterization of the Caribbean region as a ``Third
Border'' of the United States. This section also recognizes the adverse
affect that 9/11 had on tourism revenue, which then lead to high rates
of unemployment, poverty, drug trafficking and drug addiction.
It further establishes the need for better synchronization between
curricula in CARICOM counties and the skills needed in the national and
regional markets. This section says that enhancing the U.S. cultural
and educational exchange programs in CARICOM countries will expand
human resources, provide opportunities that promote economic growth,
and improve regional security. Education will also strengthen
democracy, the economy and provision of social services. It states that
the State Department currently administers public outreach programs
which focus on these areas, and others of regional concern. This
section establishes the purpose of the exchange program, which is to
assist in educating promising students and scholars from CARICOM
counties who will then invest the knowledge and experiences back into
their home communities.
Section 4. Shirley Chisholm United States-Caribbean Educational
Exchange Program.
This section establishes the Shirley Chisholm United States-
Caribbean Educational Exchange Program, named after the former
Representative from New York who was a strong advocate for the
Caribbean and the first American woman to run for the office of
President of the United States. This section authorizes an exchange
program under which secondary, undergraduate and graduate students
attend a public or private school, participate in activities designed
to promote a greater understanding of the values and culture of the
U.S., and have the option of living with a host family or on-campus
housing.
This section further establishes the elements of the program. It
requires that the program offer scholarships based on merit and need,
and will seek to achieve gender equality. This section limits the
program to 2 years for secondary, 4 years for undergraduate, thirty
months for graduate, and 1 year for post-graduate students and
scholars. It further establishes that the participant agree to return
to live in a CARICOM country and maintain residence in such country
within 6 months, and that the residence be equal, but not exceeding 2
years, to the period of time spent in the program. This section also
requires that the participant obtain employment that directly benefits
the growth, progress and development of one or more CARICOM counties.
The Secretary of State is given discretion to waive, shorten or alter
the requirements in limited circumstances.
The Secretary is also required to consult with cooperating agencies
and to make grants to those agencies. This section further requires the
Secretary to establish a monitoring and evaluation program to review
financial information, budget plans, adjustments to plans, graduation
rates, progress of student achievements, and impacts on gender, country
of origin, financial need of students and other relevant factors on the
data collected. This section includes a sense of Congress that the
Secretary of State should work with CARICOM countries to establish an
educational exchange program that will enable American high school,
undergraduate, graduate and post-graduate students and scholars to
study at schools or universities in the CARICOM nations.
Section 5. Program to Provide Educational Development Assistance for
CARICOM Countries.
This section authorizes the Secretary, through USAID, to establish
a program to provide educational development assistance for CARICOM
countries. This program shall extend and expand on existing programs to
provide teacher-training, classroom and school management,
modernization of curriculum, increased community involvement, and
policy planning. This section requires consultation with the Secretary
of Education and U.S. cooperating agencies, and the establishment of a
monitoring and evaluation of the program. This section notes the sense
of Congress that the Secretary of State should work with CARICOM
governments to establish an educational development program that will
improve and increase access to quality education for children in these
nations.
Section 6. Administrative Provisions.
This section instructs the Secretary and the USAID administrator to
use funds from private sources where possible, to implement the
programs. It further requires that the Secretary shall consult with the
Secretary of Education to ensure that the programs authorized are not
duplicative of other U.S. educational programs for the CARICOM
counties, and that the cooperating agencies and partner institutions in
the CARICOM countries are accredited appropriately. This section
instructs the Secretary to provide support to the cooperating agencies
in fulfilling the requirements for student data reporting under the
Student and Exchange Visitor Information System.
Section 7. Reporting Requirements.
Plans to implement this program are to be reported no later than 90
days after the date of the enactment of this Act. The report must
include the following: a plan for selecting participants, timeline for
selecting U.S. cooperating agencies, financial plan, outreach plan, and
a plan for implementation which identifies the initial countries and
projects a timeline for implementation.
This section also instructs the Secretary to submit updates of the
report for each fiscal year. The updates are to include information on
cooperating agencies, analysis of the positive and negative impacts the
program is or will have on ``brain drain'' from the participating
CARICOM countries, a description of the efforts made by the Secretary
to implement the program, a description of the programs implemented in
the CARICOM countries, and an evaluation of additional educational
development goals.
Section 8. Authorization of Appropriations.
This section authorizes to be appropriated such sums as may be
necessary for each of the fiscal years 2008 through 2012.