No Child Left Behind: An Overview - Education Week

The No Child Left Behind Act (NCLB), which passed Congress with overwhelming bipartisan support in 2001 and was signed into law by President ... Leadership Back Leadership Budget&Finance Equity&Diversity Families&theCommunity ProfessionalDevelopment Recruitment&Retention School&DistrictManagement SchoolClimate&Safety StudentAchievement StudentWell-Being Policy&Politics Back Policy&Politics PoliticsK-12 Accountability EducationFunding EveryStudentSucceedsAct Federal International Law&Courts SchoolChoice&Charters States Teaching&Learning Back Teaching&Learning Assessment College&WorkforceReadiness Curriculum EarlyChildhood English-LanguageLearners Mathematics Reading&Literacy Science SocialStudies SpecialEducation Standards Teaching TeacherPreparation TeachingProfession Technology Back Technology ClassroomTechnology Data Ed-TechPolicy FutureofWork ITInfrastructure ITManagement PersonalizedLearning Privacy&Security AllTopics Jobs Back Jobs SearchforJobs SignupforJobAlerts VirtualCareerFairs PostaJob CareerAdvice CareersatEdWeek Opinion Back Opinion OpinionBlogs SubmitanEssay SubmitaLettertotheEditor AboutUs Advertising&MarketingSolutions GroupSubscriptions RecruitmentAdvertising EventsandWebinars LeaderstoLearnFrom CurrentIssue SpecialReports Newsletters Resources Video EdWeekResearchCenter EdWeekTopSchoolJobs EdWeekMarketBrief Menu Search SignIn Subscribe NoChildLeftBehind:AnOverview Subscribe Reset Search Leadership Policy&Politics Teaching&Learning Technology Opinion Jobs MarketBrief EveryStudentSucceedsAct Explainer NoChildLeftBehind:AnOverview By AlysonKlein — April10,2015 12minread PresidentGeorgeW.BushsignstheNoChildLeftBehindActatHamiltonHighSchoolinHamilton,Ohio,onJan.8,2002.TheNCLBlawupdatedtheElementaryandSecondaryEducationActandsignificantlyratchetedupthefederalroleineducation.RonEdmonds/AP-File Sharearticle Remove Savetofavorites Savetofavorites Print Email LinkedIn Twitter CopyURL WhenmostpeoplethinkabouttheNoChildLeftBehindAct,theythinkoftwothings:formerPresidentGeorgeW.Bush,andstandardizedtesting.Butthepolitics,policy,andhistoryofthelawarefarmorecomplicatedthanthat. UPDATE:NCLBhasbeenreplaced.Forinformationaboutthelatesteducationlaw,readourexplaineronESSA,theEveryStudentSucceedsAct.TheNoChildLeftBehindlaw—the2002updateoftheElementaryandSecondaryEducationAct—effectivelyscaledupthefederalroleinholdingschoolsaccountableforstudentoutcomes.InDecember2015,CongresspassedtheEveryStudentSucceedsActtoreplaceNCLB.ESSAmovedintheoppositedirection—itseekstoparebackthefederalroleinK-12education.FormoreinformationonESSA,readthisexplainer.SeealsoourfullcoverageofESSAandwhatitmeansforstatesandschooldistricts. NCLBwastheproductofacollaborationbetweencivilrightsandbusinessgroups,aswellasbothDemocratsandRepublicansonCapitolHillandtheBushadministration,whichsoughttoadvanceAmericancompetitivenessandclosetheachievementgapbetweenpoorandminoritystudentsandtheirmoreadvantagedpeers.Since2002,it’shadanoutsizedimpactonteaching,learning,andschoolimprovement—andbecomeincreasinglycontroversialwitheducatorsandthegeneralpublic.Hereareafewfrequentlyaskedquestionsaboutthelaw,itshistory,anditspolicyimplications. WhatisESEA? TheElementaryandSecondaryEducationAct(ESEA)waspartofPresidentLyndonB.Johnson’sGreatSocietyprogram.Passedin1965,itcreatedaclearroleforthefederalgovernmentinK-12policy,offeringmorethan$1billionayearinaidunderitsfirststatutorysection,knownasTitleI,todistrictstohelpcoverthecostofeducatingdisadvantagedstudents.Thelawhasbeenreauthorizedandchangedmorethanhalfadozentimessincethatinitiallegislation.And,forthemostpart,eachnewiterationhassoughttoexpandthefederalroleineducation. WhatisNCLB? TheNoChildLeftBehindAct(NCLB),whichpassedCongresswithoverwhelmingbipartisansupportin2001andwassignedintolawbyPresidentGeorgeW.BushonJan.8,2002,isthenameforthemostrecentupdatetotheElementaryandSecondaryEducationActof1965.TheNCLBlaw—whichgrewoutofconcernthattheAmericaneducationsystemwasnolongerinternationallycompetitive—significantlyincreasedthefederalroleinholdingschoolsresponsiblefortheacademicprogressofallstudents.Anditputaspecialfocusonensuringthatstatesandschoolsboosttheperformanceofcertaingroupsofstudents,suchasEnglish-languagelearners,studentsinspecialeducation,andpoorandminoritychildren,whoseachievement,onaverage,trailstheirpeers.Statesdidnothavetocomplywiththenewrequirements,butiftheydidn’t,theyriskedlosingfederalTitleImoney. Whatdostatesandschoolsactuallyhavetodounderthelaw? UndertheNCLBlaw,statesmustteststudentsinreadingandmathingrades3through8andonceinhighschool.Andtheymustreporttheresults,forboththestudentpopulationasawholeandforparticular“subgroups”ofstudents,includingEnglish-learnersandstudentsinspecialeducation,racialminorities,andchildrenfromlow-incomefamilies.Stateswererequiredtobringallstudentstothe“proficientlevel”onstatetestsbythe2013-14schoolyear,althougheachstategottodecide,individually,justwhat“proficiency”shouldlooklike,andwhichteststouse.(Inearly2015,thedeadlinehadpassed,butnostateshadgottenall100percentofitsstudentsovertheproficiencybar.)Underthelaw,schoolsarekeptontracktowardtheirgoalsthroughamechanismknownas“adequateyearlyprogress”orAYP.Ifaschoolmissesitsstate’sannualachievementtargetsfortwoyearsormore,eitherforallstudentsorforaparticularsubgroup,itisidentifiedasnot“makingAYP”andissubjecttoacascadeofincreasinglyserioussanctions:AschoolthatmissesAYPtwoyearsinarowhastoallowstudentstotransfertoabetter-performingpublicschoolinthesamedistrict.IfaschoolmissesAYPforthreeyearsinarow,itmustofferfreetutoring.Schoolsthatcontinuetomissachievementtargetscouldfacestateintervention.Statescanchoosetoshuttheseschoolsdown,turnthemintocharterschools,takethemover,oruseanother,significantturnaroundstrategy.Thelawalsorequiresstatestoensuretheirteachersare“highlyqualified,”whichgenerallymeansthattheyhaveabachelor’sdegreeinthesubjecttheyareteachingandstatecertification.Beginningwiththe2002-03schoolyear,allnewteachershiredwithfederalTitleImoneyhadtobehighlyqualified.Bytheendofthe2005-06schoolyear,allschoolparaprofessionalshiredwithTitleImoneymusthavecompletedatleasttwoyearsofcollege,obtainedanassociate’sdegreeorhigher,orpassedanevaluationtodemonstrateknowledgeandteachingability.Statesarealsosupposedtoensurethat“highlyqualified’teachersareevenlydistributedamongschoolswithhighconcentrationsofpovertyandwealthierschools. Timeline Jan.8,2002-PresidentGeorgeW.BushsignstheNoChildLeftBehindActApril2005-U.S.SecretaryofEducationMargaretSpellings,whohadhelpedshepherdtheNCLBlawthroughCongressasatopdomesticpolicyadvisorintheWhiteHouse,announcesplanstoofferstateslimitedflexibilityfrompartsofthelawiftheycouldprovetheyweremovingtheneedleonstudentachievement.Sept.2007–U.S.Rep.GeorgeMiller,D-Calif.,oneoftheoriginalarchitectsoftheNCLBlawandthechairmanoftheHouseeducationcommittee,unveilsthefirstmajor,comprehensiveNCLBreauthorizationdraftbill.Itultimatelyfailstogaintraction,thanksinparttooppositionfromteachers’unions.March2010–TheObamaadministrationreleasesitsownblueprintforrevisingthelaw,whichwouldgivestatesmuchmorecontroloverhowtointerveneinmostschools,inexchangeforsettinghighstandardsandputtinginplaceteacherevaluationsbasedinpartonstudentoutcomes.TheblueprintfailstocatchfireonCapitolHill.Fall2011–PresidentBarackObamaoffersstatesflexibilityfromkeymandatesoftheNCLBlaw,inexchangeforembracinghiseducationredesignpriorities.Meanwhile,theSenateandHouseeducationcommitteesgetmovingonreauthorizationmeasures,butneitherbillultimatelymakesitoverthelegislativefinishline.June2012–Morethanhalfofstateshavebeengrantedwaivers,sothemajorityofthecountryisnolongeroperatingundertheNCLBlawaswritten.July2013–TheU.S.HouseofRepresentativespassesabilltorenewtheNCLBlaw,withonlyRepublicansupport.Thelegislation,whichisnevertakenupbytheSenate,wouldsignificantlywaterdownthefederalroleinK-12accountability.March2015-MoststatesbeginapplyingtorenewtheirNCLBwaivers,evenasCongresswrestleswithareauthorizationofthelaw. Whataresomeofthemaincriticismsofthecurrentlaw? MajorportionsoftheNCLBlawhaveprovenproblematic,particularlyasthelawhasmaturedwithoutanycongressionalupdateorreauthorization.Forinstance,it’sunclearthatthetwomainremediesforlow-performingschoolsdidmuchtoimprovestudentachievement.Inmanycases,studentsdidnottakeadvantageoftheopportunitytotransfertoanotherschool,orgetfreetutoring.Statesanddistrictsalsohaddifficultyscreeningtutorsforquality.Somedistricts,includingChicago,successfullypetitionedtooffertheirowntutoringservices.Statesalsogenerallyshiedawayfromemployingdramaticschoolturnaroundstrategiesforperenniallyfailingschools.TheNCLBlawhasalsobeencriticizedforgrowingthefederalfootprintinK-12education,andforrelyingtooheavilyonstandardizedtests.Andotherssayitsemphasisonmathandreadingtestshasnarrowedthecurriculum,forcingschoolstospendlesstimeonsubjectsthataren’texplicitlytested,likesocialstudies,foreignlanguage,andthearts. Educationadvocatesalsoclaimthelawhasbeenunderfunded.TheoriginallegislationcalledformajorincreasesineducationspendingtooffsetthecostofreachingNCLB’sambitiousgoalsforstudentachievement,butfederalspendingneverreachedtheloftylevelsoutlinedinthelaw.Byfiscalyear2007,forexample,annualfundingforthemainNCLBprogram,TitleI,wassupposedtoriseto$25billion.Itnevergotthere.Infiscalyear2015,forexample,TitleIreceivesabout$14.5billion.What’smore,manystatesanddistrictshaveignoredpartsofthelaw,includingtherequirementtoensurethathighlyqualifiedteachersareevenlydistributedbetweenpoorandwealthierschools.InordertoimproveimplementationoftheNCLBlaw,PresidentGeorgeW.Bush’ssecondsecretaryofeducation,MargaretSpellings,allowedstatestoapplytoparticipateinpilotprojectstotryoutchangestothelaw,includingagrowth-modelpilotthatletstatesconsiderstudentprogressinratingschoolsinsteadofcomparingdifferentcohortsofstudentstooneanother. Whathappenedtothe2013-14school-yeardeadlineforallstudentstobe“proficient”? By2010,itwasclearthatmanyschoolswerenotgoingtomeetNCLB’sachievementtargets.Asofthatyear,38percentofschoolswerefailingtomakeadequateyearlyprogress,upfrom29percentin2006.In2011,U.S.SecretaryofEducationArneDuncan,aspartofhiscampaigntogetCongresstorewritethelaw,issueddirewarningsthat82percentofschoolswouldbelabeled“failing”thatyear.Thenumbersdidn’tturnouttobequitethathigh,butseveralstatesdidseefailureratesofmorethan50percent.InCongress,meanwhile,lawmakerssawtheneedforarewrite,butwereunabletobringabillacrossthefinishline.Sothatyear,theObamaadministrationofferedstatesareprievefrommanyofthelaw’smandatesthroughaseriesofwaivers. WhatdotheObamaadministration’sNCLBwaiversdo? What’smore,schoolsthatdon’tmakeAYPhavetosetasideaportionoftheirfederalTitleIdollarsfortutoringandschoolchoice.Schoolsatthepointofhavingtoofferschoolchoicemustholdback10percentoftheirTitleImoney.Thewaivers,whicharenowinplacein42states,PuertoRico,andtheDistrictofColumbia,allowstatestogetoutfromundermanyofthemandatesoftheNCLBlawinexchangeforembracingcertaineducationredesignpriorities.Forinstance,waiverstatesnolongerhavetoaimtowardthe(nowpast)2013-14deadlineforgettingallstudentstoproficiency,orofferpublicschoolchoiceortutoringforschoolsthatmissachievementtargets.Inexchange,stateshadtoagreetosetstandardsaimedatpreparingstudentsforhighereducationandtheworkforce.WaiverstatescouldeitherchoosetheCommonCoreStateStandards,orgettheirhighereducationinstitutionstocertifythattheirstandardsarerigorousenough.Theyalsomustputinplaceassessmentsalignedtothosestandards.Andtheyhavetoinstituteteacher-evaluationsystemsthattakeintoaccountstudentprogressonstatestandardizedtests,aswellassingleout15percentofschoolsforturnaroundeffortsormoretargetedinterventions. TheObamaadministrationhasmadeanumberofadjustmentstoitsinitialwaiverrequirements,especiallyintheareaofteacherevaluation,whichhasbeenthebiggeststruggleforstates.IftheNCLBlawhasnotbeenreauthorizedbythetimePresidentBarackObamaleavesoffice,it’snotclearifanewadministrationwillcontinuewiththewaiversorputitsownaccountabilityplaninplace. NCLBTermstoKnow AdequateYearlyProgress(AYP):TheyardstickattheheartoftheNoChildLeftBehindAct.UndertheNCLBlaw,statesmustteststudentsinmathandreadingingrades3-8andatleastonceinhighschool.Schoolsmustreportontheperformanceofdifferentgroupsofstudents,suchasracialminorities,aswellasthestudentpopulationasawhole.Studentsareexpectedtoreachannualachievementtargets,knownasadequateyearlyprogress,orAYP.TitleI:Thesectionofthelawprovidingfederalfundingtoschooldistrictstoeducatedisadvantagedchildren.TheTitleIprogramwasinitiallycreatedundertheElementaryandSecondaryEducationActof1965andisnowpartoftheNoChildLeftBehindAct,themostrecentreauthorizationofthatlaw.HighlyQualifiedTeacher:UndertheNCLBlaw,everyteacherinacorecontentareaworkinginapublicschoolhadtobe“highlyqualified”ineachsubjecttaught,bythe2005-06schoolyear.Underthelaw,highlyqualifiedgenerallymeansthatateacheriscertifiedanddemonstratedproficiencyinhisorhersubjectmatter.Choice:UndertheNoChildLeftBehindAct,schoolsthatfailtomakeadequateyearlyprogress(meetachievementtargets)fortwoyearsinarowmustallowtheirstudentstotransfertoabetter-performingschoolinthedistrict.Waiver:ComprehensiveflexibilitythattheU.S.DepartmentofEducationhasgrantedtomorethan40statesandtheDistrictofColumbiafromkeyrequirementsoftheNoChildLeftBehindAct(thecurrentversionoftheElementaryandSecondaryEducationAct)inexchangeforembracingcertainObamaadministrationeducation-redesignprioritiesonteachers,testing,standards,andschoolturnarounds.SupplementalEducationServices(SES):ThisistheNoChildLeftBehindAct’slegaltermfor“freetutoring.”Schoolsthatfailtomakeadequateyearlyprogress(meetachievementtargets)forthreeconsecutiveyears,evenifit’sjustforaparticularsubgroupofstudents,mustofferfreetutoringtoallstudents.Andschoolsmustsetaside10percentoftheirTitleIfundingtopayforthetutoringservices.Stateswithwaiversdon’thavetoabidebythisrequirement. Subgroups:Differentgroupsoftraditionallyoverlookedstudents,includingracialminorities,studentsinspecialeducation,English-languagelearners,andlow-incomechildren.UndertheNCLBlaw,schoolsmustbreakoutresultsonannualtestsbyboththestudentpopulationasawhole,andthese“subgroup”students.Schoolsthatdon’tmeetachievementtargetsforsubgroupstudentsaresubjecttoincreasinglyserioussanctions.Supersubgroups:UndertheObamaadministration’sNCLBwaivers,somestateschoosetocombineseveral“subgroups”foraccountabilitypurposes,resultinginwhat’sknownas“supersubgroups.”Somecivilrightsorganizationssaylumpingtogetherdifferenttypesofstudents,suchasEnglish-languagelearnersandstudentsinspecialeducation,makesitmuchtoughertoseehowindividualgroupsareprogressingrelativetoothergroupsofstudentsandthestudentpopulationasawhole.FocusSchool:AtermthatcameaboutaspartoftheObamaadministration’sNoChildLeftBehindActwaivers,nottheoriginal2002law.Itreferstoschoolswithstubbornachievementgapsorweakperformanceamong“subgroup”students,suchasEnglish-languagelearnersorstudentsinspecialeducation.Statesmustidentify10percentoftheirschoolsas“focus”schools.PrioritySchool:AtermthatcameaboutaspartoftheObamaadministration’sNoChildLeftBehindActwaivers,nottheoriginal2002law.Itreferstoschoolsidentifiedasoneofthelowestperformersinthestateandsubjecttodramaticinterventions,includingpotentialleadershipchanges.Statesmustidentifyatleast5percentoftheirschoolsas“priorityschools.”NCLBResearchandResourcesThetextoftheNoChildLeftBehindActof2002,includingshortcutstovariouspartsofthebilldealingwithaccountability,teacherquality,andmore.AlloftheinformationfromtheU.S.DepartmentofEducationaboutwaiversfromtheNoChildLeftBehindAct,includingwhichstateshavethem,andwhattheirwaiverplanslooklike.“It’sAllRelative:HowNCLBWaiversDid,andNotTransformSchoolAccountability,”byAnneHyslop,whoatthetimewasapolicyanalystattheNewAmericaFoundation,buthassincegonetoworkfortheEducationDepartment.AnexaminationofwhichschoolshavebeenidentifiedasunderperformingthroughtheObamaadministration’sNCLBwaiversandhowaccountabilitylooksdifferentthanitdidundertheoriginalNCLBlaw.(ViewanEducationWeeksummary.)“TheImpactofNoChildLeftBehind’sAccountabilitySanctionsonSchoolPerformance:RegressionDiscontinuityEvidencefromNorthCarolina,”byresearchersThomasAhnandJacobVigdor.AlookathowschoolsfaredunderNCLB’soriginalinterventions,includingpublicschoolchoiceandfreetutoring.(ViewanEducationWeeksummary.)“States’PerspectivesonWaivers:RelieffromNCLB,ConcernaboutLong-termSolutions,”byJenniferMcMurrerandNanamiYoshiokafortheCenteronEducationPolicy.Anexaminationofstateattitudestowardwaivers.Highlightsstate’sconcernsabouthowthewaiversmighteffectapotentialreauthorization.(ViewanEducationWeeksummary.)“MappingStateProficiencyStandardsOntotheNAEPScales:VariationandChangeinStateStandardsforReadingandMathematics,2005-2009.”AlookathowthestandardsandexpectationssetundertheNoChildLeftBehindActcomparetothoseofthenation’sreportcard,theNationalAssessmentforEducationalProgress.(ViewanEducationWeeksummary.) AlysonKlein Follow Unfollow AssistantEditor,  EducationWeek AlysonKleinisanassistanteditorforEducationWeek. twitter email RelatedTags: NoChildLeftBehindAct EducationWeekResourcesThelatestnewsabouttheEveryStudentSucceedsActincluding,archives,Commentaries,andspecialfeatures.“SheenFadesasNCLBWaiversNearThreeYearMark,”byAlysonKlein.Examinesthepromiseandpitfallsofthewaivers,afterthreeyearsofimplementation.August2014.“NCLBWaivers:TheTwists,Turns,andTermstoKnow,”byAlysonKlein.AninteractivelookatthechangestheObamaadministrationhasmadeinwaiverpolicyandimplementation.August2014.“WaiverPlansWouldScrapPartsofNCLB,”byMicheleMcNeil.ExploresthedivergentaccountabilitysystemsproposedunderthefirstroundofNCLBwaivers.December2011.AcomprehensivelookatPresidentGeorgeW.Bush’slegacyoneducationandwhereNCLBfitsin.ByDavidHoff.December2008.“FramingtheDebate,”byLynnOlsonandDavidHoff.AnexplanationofwhatpolicymakerssawastheshortfallsoftheNoChildLeftBehindlawrightbeforeitwasduefora2007rewrite.December2006.HowtoCiteThisArticleKlein,A.(2015,April10).NoChildLeftBehind:AnOverview.EducationWeek.RetrievedMonthDay,Yearfromhttps://www.edweek.org/policy-politics/no-child-left-behind-an-overview/2015/04StaceyDecker,DeputyManagingEditorforDigitalcontributedtothisarticle. 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ViewJobs PrincipalJobs Findhundredsofjobsforprincipals,assistantprincipals,andotherschoolleadershiproles. ViewJobs AdministratorJobs Overathousanddistrict-leveljobs:superintendents,directors,more. ViewJobs SupportStaffJobs Searchthousandsofjobs,fromparaprofessionalstocounselorsandmore. ViewJobs CreateYourOwnJobSearch ReadNext EveryStudentSucceedsAct BidenEducationDepartmentApprovesOneRequesttoCancelStateTestsButRejectsOthers OfficialswillallowD.C.tocanceltests.Theydeniedsimilarrequestsfromtwootherstatesandapprovedlessextensivewaiverrequests. EvieBlad&AndrewUjifusa • 6minread Remove Savetofavorites Openimagecaption Closeimagecaption smolaw11/iStock/Getty EveryStudentSucceedsAct RepublicansTellMiguelCardonaHisPlanforESSAWaiversSeemstoViolatetheLaw TheEveryStudentSucceedsActdoesn'tpermittheeducationsecretarytoseekcertaindatahe'saskingfor,thetwoGOPlawmakerssay. AndrewUjifusa • 4minread Remove Savetofavorites Openimagecaption Closeimagecaption WhiteHousepresssecretaryJenPsaki,left,listensasEducationSecretaryMiguelCardona,center,speaksduringapressbriefingattheWhiteHouseonMarch17,2021. AndrewHarnik/AP EveryStudentSucceedsAct HowWillESSAHoldUpDuringCOVID-19?PandemicTeststheLaw'sResilience LawmakersdesignedESSAtolimitmandatescoveringissueslikehowtestsareused.Willthataffecthowwellthelawsurvivesthepandemic? AndrewUjifusa • 6minread Remove Savetofavorites EveryStudentSucceedsAct BetsyDeVosTellsStatesNottoExpectWaiversFromAnnualTests Thetestsrequiredbyfederallawarecrucialtohelpingschoolsrespondtothecoronaviruspandemicandhelpvulnerablestudents,theeducationsecretarysaidinalettertochiefstateschoolofficers. AndrewUjifusa • 3minread Remove Savetofavorites LoadMore▼ SignUp&SignIn Createafreeaccounttosaveyourfavoritearticles,followimportanttopics,signupforemailnewsletters,andmore. CreateAccount