The No Child Left Behind Act of 2001 and
Community Schools

While the new ESEA legislation contains an increased emphasis on academic achievement and accountability, there are more federal dollars potentially available to support Community Schools.

This special edition of Community Schools Online summarizes the important implications of the No Child Left Behind Act of 2001 for community school advocates.

*The Coalition would like to thank Melissa Ganley for researching and preparing this report.*

Welcome to Community Schools Online where we provide updates on developments in the community schools field and the work of the Coalition. Please forward this e-mail to interested partners in your network and to related listservs. If you wish to subscribe to Community Schools Online, register at http://www.communityschools.org/about.html#email. To unsubscribe, send an email to ccs-l-off@lists.iel.org.

In December of 2001, Congress passed amendments to the Elementary and Secondary Education Act, commonly described as the No Child Left Behind Act. While the legislation contains much more emphasis on academic achievement and accountability, there are more federal dollars potentially available to support the Coalition's vision of a community school.

Three titles of the legislation have important implications for advocates of community schools. These are summarized below along with budget information for this fiscal year, 2002.

Click on each Title in the table below to read its important implications for community schools. "Keys to accessing resources for community schools" are provided at the end of each section.

Also listed are Web Links for the No Child Left Behind Act of 2001.

***A print-friendly version of this newsletter is available at www.communityschools.org/esea.pdf for your convenience.***

Title I, Part A of ESEA offers many opportunities to develop and expand Community School initiatives, particularly for those already engaged in partnerships. The Finance Project has clearly outlined many of these prospects in their newly issued report, Using Title I to Support Out-of-School Time and Community School Initiatives. Briefly summarized, "the significant increase in funding for local grants (Part A) under Title I by almost $1.6 billion allows Local Education Agencies to consider financing out-of-school time and community school strategies without limiting other programs now financed by Title I."

Title I and Community Schools
The $1.6 billion dollars is an increase of 20% in Title I funding. In order to take advantage of this increase in funds, community school advocates must clearly link community schools to creating the conditions for academic achievement. Fortunately, as the Finance Project states, "the new legislation encourages and/or requires schools to offer a broader range of services that support academic performance to students and their families, such as extended learning opportunities and parental involvement programs, as well as to coordinate and integrate the range of supports and services offered to school age children and youth. Out-of-school time and community school initiatives are important partners to assist schools in accomplishing the goals of the Title I program."

Given the potential in Title I, we are providing more detailed information about the program below. For even more information, see the Finance Project brief. http://www.financeproject.org/Brief10.pdf

The Plan - What Local Education Agencies must have to receive Title I funds (Sec. 1112)
Before receiving any funds, Local Education Agencies (LEAs) must create a plan explaining how the new money will support students in eligible school areas. (Commonly, the LEA is a local school district.) Every plan must include the following components:

Academic assessment Assistance to students so that they may meet academic goals Coordination and integration of services from other agencies, such as Head Start and Early Start How teachers, in consultation with parents and pupil services personnel, will identify the children most in need of services Plans for implementing effective parental involvement

The plan may also include:

Preschool programs Before and after school programs School-year extension programs

In addition to the necessary components of the plan, the LEA must provide assurances to the State and to the Community. These assurances include:

Informing eligible schools and parents of the programs and available funds; Providing technical assistance and support; and Collaborating with other agencies that provide services to children and families which may affect student performance.

A complete listing of Assurances may be found in Title I, Part A,
Sec. 1112, c.

Schoolwide Programs (Part A, Sec. 1114)
Community school advocates will find significant opportunities within Section 1114 - Schoolwide Programs. This program allows an LEA to use funds to upgrade the entire educational program of an eligible school. To be eligible for a schoolwide program, not less than 40% of the children in a school area must be from low-income families, or not less than 40% of children enrolled in the school must be from such families. If a school qualifies, funds can be used to assist the entire student population.

A school-wide program must include:

A comprehensive needs assessment of the entire school Schoolwide reform strategies to improve academic performance (this may include counseling, pupil services, mentoring services, and the integration of vocational and technical education programs) Instruction by highly qualified teachers Professional development for those responsible for enabling children in the school to meet the academic standards Strategies to attract high quality teachers Strategies to increase parental involvement (such as family literacy services) Plans for assisting preschool children in the transition from early childhood programs to local elementary school programs (such as Head Start, Even Start, Early Reading First) Measures to include teachers in the decisions regarding the use of academic assessment Additional assistance to struggling students Coordination and integration of Federal, State, and local services and programs (such as violence prevention, nutrition, housing, Head Start, adult education, vocational and technical education, and job training)

Targeted Assistance Schools - Part A, Sec. 1115
In a school where less than 40% of the population meets the eligibility guidelines, eligible students may receive funds under Section 1115. Funds available under this section are available to students who are eligible under other sections, are of school age, and are not at grade level. Targeted Assistance grants only serve those students who meet eligibility criteria, and cannot be used for schoolwide programs. The components of the Targeted Assistance School programs are essentially the same as under Sec. 1114.

Furthermore, under the Special Rules of Sec. 1115, if health, nutrition and other social services are not otherwise available to eligible children, and if funds are not reasonably available from other public or private sources, then a portion of the funds may be used to provide services, including:

The provision of basic medical equipment Compensation of a coordinator Professional development

The "Compensation of a Coordinator" provision is very significant for community schools. Federal dollars may be used to subsidize a position responsible for developing and coordinating community-school activities. Given the focus on coordination and integration under the school-wide program, a community school coordinator position could also be supported with these funds.

Parental involvement is vital in Title I. According to Sec. 1118, each LEA must reserve not less than 1 percent of their allocation to support parental involvement. The parental involvement plan should be written under the LEA's broader Title I plan (Sec. 1112). Activities that each school and LEA might undertake include:

Assist parents in understanding their child's academic progress and goals Provide clear materials and training to parents to assist their children in meeting academic goals, including literacy training. Educate staff in the value and contributions of parents; and parents can help as resources in educating staff. Coordinate and integrate parent involvement programs and activities with Head Start, Even Start, Reading First, Early Reading First, the Home Instruction Programs for Preschool Youngsters, and the Parents as Teachers Program Pay reasonable expenses associated with parental involvement activities, including transportation and child care costs to enable parents to participate in school-related meetings Establish a district wide parent advisory council Develop appropriate roles for community-based organizations and businesses in parent involvement activities

Keys to Accessing Title I Funds Partnership Building: Community agencies and organizations that have a track record of working in partnership with schools are likely to have the greatest success in accessing Title I monies. In these cases there are often already forums where leaders from education, youth development, health and human services, family support, community development and other arenas come together to discuss their common agendas. The increase in Title I monies can be a topic of discussion at these meetings. Keep in mind that there will be many competing demands for this money given budgetary constraints within the education community. Emphasize the opportunity to sustain what is working. Relationships with Principals: Where there are school-wide Title I programs, principals (and in some instances their school improvement teams as well) have a significant role in deciding how these funds should be used. Build on your existing relationships to make your case. Focus on Results: Organize whatever data you have on how community school strategies are helping improve results that are important to the mission of the school, e.g., student achievement, attendance, incidents of violence, suspension, parent involvement, student health and well being, etc. Spotlight the Role of the Community School Coordinator: The new legislation emphasizes coordination of public and private programs at the school site. This is the work of a Community School Coordinator. This person also reduces the burden of management on the principal. Title I could be a long term funding source for these positions. The Chicago Public Schools recently created a position in its personnel structure for a Community Resource Coordinator so that its principals know that using Title I funds for this purpose is acceptable. (See www.communityschools.org/crc.html for copy of the job description).

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Title IV is another area where additional funding may be available for community schools. Part A focuses on Safe and Drug Free Schools, while Part B focuses on 21st Century Community Learning Centers. Both parts can be useful to community school advocates.

Safe and Drug Free Schools
Safe and Drug Free Schools legislation provides grants to States for community drug and violence prevention, including early intervention. State grant funding has increased from $205,000,000 in 2001 to 264,733,000 in 2002. This reflects the legislation's emphasis on the role of states. Funds are allocated based upon the population of school age children in that State in relation to the population of school age children in all States.

Application Procedures
In order to receive funding, States must submit a state plan (Sec. 4113) that includes 19 parts. Listed here are four plan components that may interest community school advocates:

Contains a comprehensive plan for the use of funds Describes how the activities funded will foster a safe and drug free learning environment that supports academic achievement Provides an assurance that the application was developed in consultation and coordination with appropriate State officials and others, including the heads of the State health and mental health agencies, the head of the State child welfare agency and representatives of parents, students and community based organizations. Describes the special outreach activities that will be carried out by the State Educational agency and the chief executive officer of the State (Governor) to maximize the participation of community-based organizations of demonstrated effectiveness that provide services such as mentoring programs in low-income communities.

State Grants to Community Based Organizations
Once a State is in receipt of funds, the governor of a state may reserve up to 20% of the State funds for community-based organizations (CBOs) at the local level (Sec. 4112). Sub-grants will be awarded based on the quality of the program or activity, and how the program or activity meets the criteria of Sec. 4115 (Authorized Activities). "Priority shall be given to programs and activities that prevent illegal drug use and violence for children and youth who are not normally served by the SEA or LEA, and populations that need special services or additional services, such as youth in juvenile detention facilities, runaway or homeless children and youth, pregnant and parenting teenagers, and school dropouts."

State Allotments to LEAs
The State is then required to distribute not less than 93 percent of the remaining funds to its local education agencies. To be eligible for a sub-grant, LEAs must submit an application developed with State and local government representatives, representatives of the schools, school staff, parents, students, community based organizations and others with relevant expertise in drug and violence prevention (such as mental health and medical professionals and law enforcement officials).

Among a list of nine necessary application components, the following two stand out for community schools:

The LEA's performance measures for drug and violence prevention programs, including specific reductions in the prevalence of identified risk factors. Prevention activities that are designed to create and maintain safe and drug free environments.

Sec. 4115 lists the principles for effectiveness, the LEA requirements, and the approved activities. For a program or activity to meet the principles of effectiveness, it must be based on an assessment of objective data, be measurable, based on research evidence and analysis, and include ongoing consultation with program administration.

Programs must include activities to promote parent involvement and coordination with community groups and coalitions. The list of authorized activities includes:

Activities that involve families and community sectors in setting clear expectations against and consequences for violence and illegal use of drugs Expanded and improved school-based mental health services Conflict resolution and peer mediation Programs that encourage students to seek advice from and to confide in a trusted adult regarding concerns about violence and drug use Age appropriate violence prevention and education programs that address victimization associated with prejudice and intolerance, and that include activities designed to help students develop a sense of individual responsibility and respect for the rights of others, and to resolve conflicts without violence Developing and implementing character education programs Community service Programs that respond to the needs of students who are faced with domestic violence or child abuse

Safe and Drug Free - National Programs
Subpart 2 of Part A, Title IV refers to National Programs of the Safe and Drug Free schools and communities. Overall, the budget has increased from 205,000 in 2001 to 264,733 in 2002. Listed below is a breakdown of available funds, including changes from the 2001 budget:

*in thousands of dollars	2001	2002	Approximate Increase / Decrease
Fed. activities Sec. 4121	145,000	134,733	10,000 Decrease
Project SERV	10,000	0	10,000 Decrease
National Coordinator	50,000	37,500	12,500 Decrease
Community service for expelled or suspended students	0	50,000	50,000 Increase
Alcohol abuse reduction	0	25,000	25,000 Increase
Mentoring program	205,000	264,733	60,000 increase

For more information on Safe and Drug Free Schools National Programs, go to http://www.ed.gov/offices/OESE/SDFS/aboutsdf.html

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Note: The United States Department of Education has issued a Non-Regulatory Guidance Draft for 21st Century Community Learning Centers. This section draws on that guidance. If you have additional questions, please go to www.communityschools.org/nrgdraft.pdf for further information.

Part B of Title IV is commonly known as the 21st Century Community Learning Centers Program (21st CCLC). The purpose of this program is to provide students with academic enrichment activities during non-school hours that reinforce and complement the regular academic programs, and by offering students' families opportunities for literacy education and other related educational development. This language is narrower than the previous 21st Century provisions. It is more focused more explicitly on academic achievement. It also targets families of students rather than the entire community, though from a community school perspective this may be a distinction that makes relatively little difference.

21st Century Community Learning Center - Formula Grants
One key change is a shift of the 21st Century program from a federal discretionary grant program to a state administered program. States now must apply to the federal government for funds, and then create a grants competition within the state. The State must provide timely public notice of their intent to file an application, and make the application available for public review after submission. Each state may use up to 2% of the funds to administer the grant, and up to 3% for evaluation, technical assistance and monitoring.

States must ensure that 21st Century Community Learning Center programs are coordinated with other Federal, State and local programs. This is an important opportunity to encourage states to look at all federal and state programs focused on extended learning and after school programs, and find ways to enable communities and Local Education Agencies to plan and operate them more effectively and efficiently.

Before the funds are allocated to eligible local entities, the State must list the steps it will take to ensure that the funded programs implement effective strategies. Support for effective strategies may include technical assistance, training, evaluation, and the dissemination of promising practices.

What entities are eligible to apply for 21st CCLC funds?
The law has changed. In addition to LEAs, community-based organizations (including faith-based organizations), other public and private entities, or a consortium of two or more such agencies, organizations, or entities are now eligible to receive funds from an SEA. The statute encourages eligible organizations to collaborate in applying for funds.

How has the program changed?
The No Child Left Behind Act of 2001 made several significant changes to the program. These changes ensure that the program focuses on helping children in high-needs schools succeed academically through the use of scientifically-based practice and extended learning time. The new statute also provides additional State and local flexibility in how funds can be used to support higher academic achievement, and dramatically expands eligibility for 21st CCLC funding to public and private educational and youth-serving organizations. The changes noted below are drawn directly from the U.S. Department of Education's non-regulatory guidance.

The specific changes to the program's authorizing statute include:

Implementing activities based on rigorous scientific research. For the first time, the new authorizing statute provides principles of effectiveness to guide local grantees to identify and implement programs and activities that can directly enhance student learning. These activities must address the needs of the schools and communities, be continuously evaluated using performance measures, and - if appropriate - be based on scientific research. Focusing services on academic enrichment opportunities. Under the new legislation, grantees must provide academic enrichment activities to students in low-performing schools to help the students meet State and local standards in the core content areas, such as reading, math, and science. In addition, applicants may provide services to the families of children who are served in the program. Under the previous statute, grantees provide a broad array of services to children and community members. The new legislation allows community learning centers to serve adult family members of students, but not community members at large. Transferring program administration from the Federal to the State level. The new legislation turns over responsibility for managing the 21st CCLC program to the State educational agency (SEA) in each State. The U.S. Department of Education (the Department) will allocate funds to the SEAs by formula. The SEA will manage grant competitions and award grants to eligible organizations for local programs. States now will be accountable to the Department for ensuring that all statutory requirements are met. Under the previous legislation, the Department administered the 21stCentury Community Learning Centers program, managed a nationwide competition, and directly awarded over 1,600 grants to public schools and school districts that worked in collaboration with other public and nonprofit organizations, agencies, and educational entities. Expanding eligibility to additional organizations. The new legislation allows, in addition to local educational agencies (LEAs), community-based organizations (CBOs), including faith-based organizations and other public or private organizations, to directly receive funds from the State under this program. Under the previous authority, only public schools or local educational agencies could directly receive grants, although schools and districts applying for the grants were encouraged to collaborate with other public and nonprofit agencies. Targeting services to poor and low-performing schools. The new legislation requires States to make awards only to applicants that will primarily serve students that attend schools with a high concentration of poor students, giving priority to applicants serving children in low-performing schools. Funds granted under the previous authority were targeted more broadly to inner-city and rural public elementary, middle, secondary schools or a consortia of public schools. Requiring States to set funding priorities. As noted above, States must give priority to applications for projects that will serve children in schools designated as in need of improvement under Title I and that are submitted jointly by school districts receiving Title I funds and community-based organizations. This priority is new. The previous legislation did not mandate priorities, but strongly encouraged schools to collaborate with community-based organizations. Extending the duration of grant awards. States now have the discretion to award grants to local organizations for a period of three to five years. The previous law limited the duration of the grants to three years. Increasing accountability at the State and local levels. The new legislation requires States to develop performance indicators and performance measures that it can use to evaluate programs and activities. States must require local grantees to implement programs that meet specific principles of effectiveness. In addition, grantees must periodically evaluate their programs to assess progress toward achieving the goal of providing high-quality opportunities for academic enrichment. Expanding the range of locations in which local programs may take place. The new legislation provides support for services for children and their families in elementary or secondary schools or in any other location that is at least as available and accessible as the school. The previous legislation allowed for community learning centers to be located only in public elementary or secondary schools. Requiring funds to supplement and not supplant. Grantees must use program funds to supplement and not supplant other Federal, State, and local funds. This "supplement not supplant" provision was not included in the previous statute. Allowing States to require a local match. States may now require local grantees to match funds. Under the previous law no match was required. Requiring consultation and coordination. States must, in their State application, provide an assurance that the State application was developed in consultation and coordination with appropriate State officials, including the chief State school officer, other State agencies administering before- and after-school (or summer school) programs, the heads of the State health and mental health agencies or their designees, and representatives of teachers, parents, students, the business community, and community-based organizations, including faith-based organizations. Providing States with funds to carry out administrative responsibilities. Up to five percent of a State's 21st CCLC allocation may be reserved by the State for the administrative responsibilities associated with implementing a quality program. These funds may be used to plan the competition, manage a peer-review process, award the grants and monitor progress. State-level funds also may be used to strengthen the programs-to provide training and technical assistance to the local grantees and to conduct evaluations.

21st CCLC - How Communities Can Access the Funds
The State Education Agency will conduct a competitive grants program and provide funds to eligible entities serving students who primarily attend schools eligible for Title I programs, as well as a high percentage of low-income students. Awards must be sufficient in scope and size to address the needs of the program, but no less than $50,000 minimum per grant (not per school).

According to Sec. 4204, each application must include:

A description of the before and after school or summer recess activities, A description of how the activity is expected to improve academic achievement, An identification of Federal, State and Local programs that will be combined or coordinated with the proposed program, An assurance that the proposed program was developed and will be carried out in collaboration with the school, A description of how the activities will meet the principles of effectiveness, An assurance that the program will primarily target students who attend schools eligible for schoolwide programs under Title I, An assurance that funds will be used to increase the level of non-Federal funds that would be made available for programs and activities, A description of the partnership between a LEA, a community-based organization, and another public entity or private entity if appropriate, An evaluation of community needs and available resources and a description of how the program will address those needs, A demonstration that the eligible entity has experience or promise of success in providing educational and related activities that will complement and enhance the academic performance, achievement, and positive youth development of the students, A description of a preliminary plan for how the community learning center will continue after funding under this grant ends, An assurance that the community will be given notice of an intent to submit an application and that the application and any waiver request will be available for public review after submission of the application, A description of how the eligible entity will encourage and use appropriately qualified seniors to serve as volunteers, (if the eligible entity plans to use senior volunteers), Other information and assurances as the state educational agency may reasonably require.

Allowable Activities
The local competitive grant program priorities (other than the requirements listed in the statute) will be set by the State. Community school advocates will find many activities within Title IV, Part B that support and enhance their goals. The following activities are all allowed under the funding guidelines:

Remedial education Entrepreneurial education Art and music education Expanded library service Counseling programs Drug and violence prevention programs Math and science education Tutoring services Recreational activities Parental involvement and family literacy Character education programs Telecommunications and technology education Academic assistance to students who have been truant, suspended or expelled Language skills /academic achievement after school programs for limited English

Overall, Title IV supports the community school effort through broad goals under the Safe and Drug Free Schools and specific goals under 21st Century Community Learning Centers.

Given the academic focus on the revised 21st Century program and the fact that the state education agency is administering the program, community-based organizations and other public and private still need to build strong partnerships with local school districts as they pursue 21st century funding.

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Register now for Community Schools Work!
2002 National Forum
When: June 23-25, 2002
Where: Renaissance Washington DC Hotel, 999 9th Street, Washington, DC
Who: Parents, teachers, principals, superintendents, youth development professionals, health and social service professionals, policy makers, neighborhood/community development advocates - anyone committed to improving the quality of the education and development of America's youth. Community teams of any size are encouraged.
How: Go to www.communityschools.org/conference to register or e-mail blackwellw@iel.org for more details.

Additional Information
Check out http://www.communityschools.org/ for more information on the Coalition's work and progress. Contact Will Blackwell at blackwellw@iel.org to share important information involving community schools in your area and to learn more about their success across the nation.