The No Child Left Behind Act
A comprehensive exploration of the landmark 2002 U.S. education reform law, detailing its background, provisions, effects, and eventual replacement.
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Overview
Landmark Legislation
The No Child Left Behind Act of 2001 (NCLB) was a significant piece of U.S. federal legislation enacted in 2002. It reauthorized the Elementary and Secondary Education Act (ESEA), introducing substantial reforms focused on accountability and standards-based education.
Core Objective
NCLB aimed to close the achievement gap between students by establishing high standards and measurable goals. The premise was that setting clear expectations and assessing progress would improve educational outcomes for all students, particularly those in disadvantaged groups.
Federal Role
The Act expanded the federal government's role in public education by mandating annual testing, annual academic progress reporting, and specific teacher qualifications. While it did not set national standards, it required states to develop their own and ensure accountability.
Background
Precursors to NCLB
The foundation for NCLB was laid by earlier legislation and reports highlighting concerns about the U.S. education system. The Elementary and Secondary Education Act (ESEA) of 1965 aimed to provide resources to low-income students but faced challenges in achieving its goals.
"A Nation at Risk"
The 1983 report "A Nation at Risk" warned that the nation's economic security was threatened by declining educational standards. It called for a significant reorientation of the education system and an increase in academic expectations for students.
Political Climate
Following the "A Nation at Risk" report and shifts in political sentiment, congressional Republicans began advocating for federal educational reforms emphasizing standardized testing and accountability. President George W. Bush also made bipartisan education reform a key campaign promise in the lead-up to the 2000 election.
Global Context
The focus on learning outcomes and evaluation procedures reflected a global trend. International organizations like UNESCO, the World Bank, and OECD were increasingly emphasizing accountability in education systems worldwide, influencing U.S. policy discussions.
Legislative History
From Proposal to Law
President Bush first proposed the core ideas of NCLB in January 2001. The bill, H.R. 1, was introduced in the House of Representatives in March 2001, with key co-sponsors including John Boehner, George Miller, Ted Kennedy, and Judd Gregg.
Bipartisan Passage
Despite facing challenges from both Democrats (seeking more funding) and Republicans (concerned about federal overreach), the Act garnered significant bipartisan support. It passed the House on December 13, 2001 (381-41) and the Senate on December 18, 2001 (87-10), before being signed into law by President Bush on January 8, 2002.
Key Provisions
Accountability and AYP
Schools receiving federal Title I funding were required to make Adequate Yearly Progress (AYP) in test scores. This involved annual standardized testing in reading and math for students in grades 3-8 and at least once in high school.
Teacher Quality
NCLB mandated that all teachers be "highly qualified," meaning they must hold a bachelor's degree, be fully certified, and demonstrate subject matter competency. States defined their own standards for "highly qualified," often including HOUSSE (High Objective Uniform State Standard of Evaluation) for existing teachers.
School Choice and Support
Schools failing to meet AYP for two or more consecutive years were required to offer students the option to transfer to higher-performing schools within the district. Students in schools failing for three years or more were entitled to free tutoring and supplemental educational services.
Research and Curriculum
The Act emphasized the use of "scientifically based research" for instructional methods and programs. It also designated reading, language arts, mathematics, and science as "core academic subjects," potentially impacting instructional time for other subjects.
Special Education Alignment
NCLB sought to align with the Individuals with Disabilities Education Act (IDEA), requiring students with disabilities to be included in state assessments and accountability systems, with appropriate accommodations. This aimed to ensure these students received academic attention and resources.
Effects and Criticisms
Test Score Impact
Proponents pointed to improvements in NAEP scores, particularly for younger students and minority groups, as evidence of NCLB's positive impact. However, critics argued that score increases were modest, potentially due to states lowering standards or "teaching to the test," rather than genuine learning gains.
Curriculum Narrowing
A significant criticism was that the intense focus on standardized testing led schools to narrow the curriculum, reducing time and resources for subjects like arts, history, and music to prioritize tested subjects like reading and math. This also impacted gifted students, with federal funding for gifted education seeing a decline.
Unrealistic Goals
The mandate for 100% student proficiency by 2014 was widely criticized as unrealistic and unattainable, leading to pressure on schools to manipulate data or focus narrowly on test performance rather than holistic education. The law's group-based accountability measures also clashed with the individualized nature of IDEA for students with disabilities.
Racial Equity Concerns
While NCLB aimed to narrow achievement gaps, studies showed mixed results. Schools failing AYP often served higher percentages of minority students, raising concerns about the law's disproportionate impact. Furthermore, challenges arose regarding state refusal to produce non-English assessments for English language learners.
Funding
Federal Investment
The Bush administration and Congress supported significant increases in federal education funding during NCLB's tenure, with total funding rising from $42.2 billion in 2001 to $55.7 billion in 2004. Programs like Reading First and Enhancing Education Through Technology (EETT) received substantial allocations.
Funding Criticisms
Critics argued that the increased federal funding did not fully cover the costs associated with NCLB's mandates, placing a strain on state and local budgets. Concerns were raised that authorized funding levels were not fully appropriated, leading to potential underfunding of essential reforms and programs.
Criticisms and Reform
Calls for Change
By 2015, bipartisan criticism of NCLB had intensified. Numerous organizations and policymakers called for major changes, advocating for a shift from sanctions for low test scores to supporting systemic improvements and accountability for achieving student success.
Reform Proposals
Proposals suggested moving beyond a narrow focus on test scores to include broader measures of student achievement, teacher effectiveness, and school improvement. Critics like Alfie Kohn argued the law was fundamentally flawed and should be scrapped entirely.
Obama Administration Reforms
Blueprint for Change
In March 2010, the Obama administration proposed reforms to the ESEA, aiming to address NCLB's shortcomings. Key elements included developing broader assessments beyond reading and math, focusing more on student improvement rather than strict penalties, and incentivizing student retention.
Waivers and Flexibility
Recognizing the challenges, the Obama administration began granting waivers from certain NCLB requirements starting in 2012. These waivers allowed states to implement alternative accountability systems that raised standards, improved teacher effectiveness, and focused on essential reforms.
Replacement
The Every Student Succeeds Act
In December 2015, the No Child Left Behind Act was officially replaced by the Every Student Succeeds Act (ESSA). ESSA shifted more authority back to states, allowing greater flexibility in setting their own standards for school and student performance.
Key Differences
Unlike NCLB's rigid mandates, ESSA allows states to determine their own accountability measures, including how they define school success and address underperforming schools. It also incorporates graduation rates and other indicators beyond standardized test scores.
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References
References
- The Elementary and Secondary Education Act (The No Child Left Behind Act of 2004)
- Nichols, S. L., Berliner, D. C., & Noddings, N. (2007). Collateral damage: How high-stakes testing corrupts America's schools. Harvard Education Press.
- Sanger, D. E. (2001, Jan 24). Bush pushes ambitious education plan: Would use U.S. aid to force schools to meet standards. New York Times (1923รขยย).
- Arlette Ingram Willis. (2019). Response to intervention: An illusion of equity. Language Arts, 97(2), 83รขยย96.
- (2006) No Child Left Behind Act Is Working Department of Education. Retrieved 6/7/07.
- (2007) Congress To Weigh 'No Child Left Behind'. Washington Post. Retrieved November 13, 2011.
- United States. Public Law 107-110. 107th Congress, 2002.
- Times Watchdog Report: No Child Left Behind on the way out, but not anytime soon. Retrieved August 12, 2010.
- EdAccountability.org website.
- No Child Left Behind Act#Provisions of the act
- Individuals with Disabilities Education Act#Alignment with No Child Left Behind
- Individualized Education Program
- Cole, Cassandro (November 15, 2006) Report: No Child Left Behind is out of step with special education. Newsroom Indiana University
- Rooney, Patrick et al. (June 2006) The Condition of Education 2006. U.S. Department of Education
- U.S. Department of Education, Fiscal Year 2007 Budget Proposal
- U.S. Department of Education, Elementary and Secondary Education Act Budget Table. 2006. 7 April 2009.
- Center for American Progress The Targets of Bush's Education Cuts.
- NCLB: 'Too Destructive to Salvage', USA Today, May 31, 2007. Retrieved 6/7/07.
- Weinstein, A. "Obama on No Child Left Behind Act", "Education.com, Inc." (2006).
- Lowe, R. and Kantor, H. (2006). From New Deal to No Deal: No Child Left Behind Act and the Devolution of Responsibility for Equal Opportunity. 76:4. Cambridge, Massachusetts: Harvard Educational Review.
- U.S. Department of Education "ESEA Blueprint for Reform", (2010).
- Lohman, J. "Comparing No Child Left Behind and Race to the Top.", "OLR Research Report" (4 June 2010).
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