[Senate Report 109-348]
[From the U.S. Government Publishing Office]
Calendar No. 640
109th Congress Report
SENATE
2d Session 109-348
======================================================================
AMERICAN HISTORY ACHIEVEMENT ACT
_______
September 26, 2006.--Ordered to be printed
_______
Mr. Enzi, from the Committee on Health, Education, Labor, and Pensions,
submitted the following
R E P O R T
[To accompany S. 860]
The Committee on Health, Education, Labor, and Pensions, to
which was referred the bill (S. 860) to amend the National
Assessment of Educational Progress Authorization Act to require
State academic assessments of student achievement in United
States history and civics, and for other purposes, having
considered the same, reports favorably thereon with an
amendment in the nature of a substitute and recommends that the
bill (as amended) do pass.
CONTENTS
Page
I. Purpose and Need for Legislation.................................1
II. Summary..........................................................2
III. History of Legislation and Votes in Committee....................2
IV. Explanation of Bill and Committee Views..........................2
V. Cost Estimate and Unfunded Mandate Statement.....................4
VI. Application of Law to the Legislative Branch.....................5
VII. Regulatory Impact Statement......................................5
VIII.Section-by-Section Analysis......................................5
IX. Changes in Existing Law..........................................6
I. Purpose and Need for Legislation
The purpose of the American History Achievement Act is to
promote increased student achievement, academic standards, and
improved instruction in U.S. history and civics through more
frequent and improved data collection about student performance
in those subjects.
Studies show that American students are unfamiliar with
many of the influential people and landmark events of our
Nation's history. According to the 2001 National Assessment of
Education Progress (NAEP) U.S. history exam, the most recent
U.S. history NAEP test for which results are available, fewer
students have a basic understanding of American history than
any other subject we test, including math, science, and
reading.
The continued strength of our democracy and America's
standing in the world depend upon our children mastering and
appreciating our Nation's history and civic values.
II. Summary
The legislation authorizes the National Assessment
Governing Board to conduct a pilot program to administer the
National Assessment of Educational Progress (NAEP) assessments
in U.S. history and civics in not less than 10 States, in
grades 8 and 12. Data collected from this pilot program will
enable State comparisons of eighth- and twelfth-grade students'
knowledge and understanding of U.S. history and civics. The
legislation also increases the frequency with which the NAEP
tests in U.S. history are given at the national level. The
Commissioner for Education Statistics is directed to give a
priority to conducting such assessments at least once every 4
years in grades 4, 8, and 12.
III. History of Legislation and Votes in Committee
The American History Achievement Act was first introduced
by Senators Alexander and Kennedy on July 22, 2004 during the
108th Congress. The legislation, S. 2721, authorized pilot
State NAEP testing in U.S. history and was referred to the
Senate Committee on Health, Education, Labor, and Pensions. No
further action on S. 2721 was taken during the 108th Congress.
In the first session of the 109th Congress, the American
History Achievement Act was reintroduced by Senators Alexander
and Kennedy on April 20, 2005 as S. 860. The legislation, which
was referred to the Committee on Health, Education, Labor, and
Pensions, added authorization for pilot State NAEP testing in
civics. A hearing on the bill took place on June 30, 2005
before the Committee on Health, Education, Labor, and Pensions
Subcommittee on Education and Early Childhood Development. On
May 17, 2006, the Committee on Health, Education, Labor, and
Pensions by unanimous consent ordered the bill to be reported
favorably with an amendment in the nature of a substitute
offered by Senator Alexander and co-sponsored by Senator
Kennedy.
IV. Explanation of Bill and Committee Views
The committee believes this legislation represents an
important effort to increase the focus on the teaching of U.S.
history and civics in our Nation's schools. Existing data
clearly show that many of our students are uninformed about the
most fundamental aspects of our nation's history and civics,
rendering them ill-prepared to preserve and defend our
democracy and ideals. These facts are particularly troubling at
a time when our Nation's values are being challenged amid the
global war on terror.
Asked in a 2004 Hart-Teeter poll what the principal goal of
education should be, adults most often selected ``producing
literate, educated citizens who can participate in our
democracy.'' Unless efforts to more effectively teach history
and civics are undertaken, our students will fall short of that
goal.
This legislation contains two primary provisions to promote
increased student achievement in U.S. history and civics: more
frequent National Assessment of Educational Progress (NAEP)
testing in U.S. history, and a new State-level pilot of NAEP
exams in U.S. history and civics.
The National Assessment of Educational Progress (NAEP)
exams have been administered to a national sample of students
in grades 4, 8, and 12 in a variety of subjects since 1969, and
are the best available indicator of student achievement at the
national level. The most recent NAEP U.S. history test was
administered from January through March of 2006. Previously,
assessments in U.S. history were conducted in 2001, 1994, and
earlier. The committee believes that more frequent assessments
would create timelier and more meaningful information on
student performance that could help drive curricular
improvement. Therefore, the legislation directs the
Commissioner for Education Statistics to give a priority to
conducting NAEP U.S. history assessments at least once every 4
years in grades 4, 8, and 12.
The legislation would supplement these national-sample
assessments with State-specific samples by creating a pilot
State academic assessment program in U.S. history and civics.
Beginning in 1990, the National Assessment Governing Board has
periodically administered a State-level assessment in
mathematics in grade 8. Subsequent voluntary State-level
assessments have been conducted in grade 8 in reading, writing,
and science and at grade 4 in mathematics, reading, writing and
science. In addition, the No Child Left Behind Act requires all
States to participate in biennial NAEP assessments of fourth-
and eighth-grade reading and mathematics.
The legislation would authorize the National Assessment
Governing Board, in consultation with the Commissioner for
Education Statistics, to select 10 or more geographically
diverse States to participate in trial State assessments of
student achievement in U.S. history and civics in grades 8 and
12. A priority is given to administering the pilot assessments
in U.S. history. To minimize cost and disruption to academic
instruction and classroom routines, the pilot State assessments
are directed to be conducted in conjunction with previously
scheduled national-sample NAEP exams.
At the request of Congress, the National Assessment
Governing Board conducted a study to determine the feasibility
of conducting State-level assessments in U.S. history and
civics. In its report released in June 2006, the Board
concluded that it is feasible to conduct State-level
assessments in U.S. history and civics in grades 8 and 12 as
early as 2010 if Congress appropriates sufficient funding in
both Fiscal Year 2009 and Fiscal Year 2010. Accordingly, the
legislation authorizes $8.5 million for the fiscal year
preceding the conduct of the first trial assessment, $8.5
million for the fiscal year during which the first trial
assessment is conducted, and such sums as may be necessary for
each succeeding fiscal year. Under the legislation, the
National Assessment Governing Board is permitted to spend no
more than $500,000 per fiscal year to develop and administer
the trial State assessments.
This pilot program will generate data to evaluate States
based on their eighth- and twelfth-grade students' knowledge
and understanding of U.S. history and civics. Such data will
also encourage States and school districts to improve their
U.S. history and civics standards and curricula, and thereby
promote increased student achievement in these critical
subjects.
V. Cost Estimate and Unfunded Mandate Statement
U.S. Congress,
Congressional Budget Office,
Washington, DC, June 1, 2006.
Hon. Mike Enzi,
Chairman, Committee on Health, Education, Labor, and Pensions,
U.S. Senate, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for S. 860, the American
History Achievement Act.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Justin
Humphrey.
Sincerely,
Donald B. Marron,
Acting Director.
Enclosure.
S. 860--American History Achievement Act
Summary: S. 860 would amend the National Assessment of
Educational Progress Authorization Act (NAEPAA) and authorize
funds to conduct trial academic assessments of student
achievement in U.S. history and civics in grades 8 and 12 in at
least 10 geographically diverse states. The bill also would
direct the Commissioner of Education Statistics to give
priority to conducting national assessments of student
achievement in history at least once every four years in grades
4, 8, and 12.
The bill would authorize the appropriation of $8.5 million
for both the fiscal year preceding and the fiscal year during
the conduct of the trial assessments and such sums as may be
necessary for each fiscal year after those assessments are
completed. CBO assumes the first trial assessments would occur
in fiscal year 2010 and every four years thereafter and
estimates that outlays would total $14 million over the 2009-
2011 period. CBO assumes that the appropriations for 2009 and
2010 would be sufficient to cover all the costs of the
assessments and no additional funding would be necessary in
2011. The Congress appropriated $93 million for programs under
the NAEPAA in fiscal year 2006; those programs are set to
expire in fiscal year 2008 under current law.
S. 860 contains no intergovernmental or private-sector
mandates as defined in the Unfunded Mandates Reform Act (UMRA);
any costs to state, local, or tribal governments would be
incurred voluntarily.
Estimated Cost to the Federal Government: The estimated
budgetary impact of S. 860 is shown in the following table. CBO
estimates that implementing this bill would cost $14 million
over the 2009-2011 period and $3 million in 2012, assuming
appropriation of the authorized amounts. The estimated outlays
reflect historical spending patterns for these programs. These
costs would fall within budget function 500 (education,
employment, training, and social services).
----------------------------------------------------------------------------------------------------------------
By fiscal year, in millions of dollars--
-----------------------------------------------
2006 2007 2008 2009 2010 2011
----------------------------------------------------------------------------------------------------------------
SPENDING SUBJECT TO APPROPRIATION
Spending Under Current Law:
Estimated Authorization Level 1............................. 93 95 96 0 0 0
Estimated Outlays........................................... 94 94 95 73 28 4
Proposed Changes:
Estimated Authorization Level............................... ...... 0 0 9 9 0
Estimated Outlays........................................... ...... 0 0 2 6 6
Total Spending:
Estimated Authorization Level....................... 93 95 96 9 9 0
Estimated Outlays................................... 94 94 95 75 34 10
----------------------------------------------------------------------------------------------------------------
1 The 2006 amount is the total appropriated for the National Assessment of Educational Progress and the National
Assessment Governing Board in that year.
Intergovernmental and private-sector impact: S. 860
contains no intergovernmental or private-sector mandates as
defined in UMRA. The bill would authorize academic assessments
of history and civics, on a trial basis, for grades 8 and 12.
Any costs that states or local education agencies might incur
to participate in those assessments would be incurred
voluntarily.
Estimate prepared by: Federal Costs: Justin Humphrey.
Impact on State, Local, and Tribal Governments: Lisa Ramirez-
Branum. Impact on the Private Sector: Nabeel Alsalam.
Estimated approved by: Peter H. Fontaine, Deputy Assistant
Director for Budget Analysis.
VI. Application of Law to the Legislative Branch
The committee has determined that there is no impact of
this bill on the Legislative Branch.
VII. Regulatory Impact Statement
Pursuant to the requirements of paragraph 11(b) of rule
XXVI of the Standing Rules of the Senate, the committee has
determined that the bill will not have a significant regulatory
impact.
VIII. Section-by-Section Analysis
Section 1. Short title
This Act may be cited as the ``American History Achievement
Act.''
Section 2. Findings
This section states that Congress finds the following: the
2001 National Assessment of Educational Progress assessment in
United States history had the largest percentage of students
scoring below basic of any subject that was tested, including
mathematics, science, and reading; the 2001 National Assessment
of Educational Progress showed poor achievement in assessments
in United States history; America's past encompasses great
leaders and great ideas that contribute to our shared heritage
and to the principles of freedom, equality, justice, and
opportunity for all; an appreciation for the defining events in
our Nation's history can be a catalyst for civic involvement;
and that the strength of American democracy and our standing in
the world depend on ensuring that our children have a strong
understanding of our Nation's past.
Section 3. Amendment to the National Assessment of Educational Progress
Authorization Act
This section amends the National Assessment of Educational
Progress Authorization Act to direct the Commissioner for
Education Statistics to give a priority to conducting national
assessments of student achievement in U.S. History at least
once every 4 years in grades 4, 8, and 12. It also requires the
Commissioner to conduct trial State academic assessments, in at
least ten geographically diverse States, of student achievement
in U.S. History in grades 8 and 12, and in Civics in grades 8
and 12. These assessments are to be conducted in connection
with previously scheduled NAEP assessments administered to a
national sample of students.
Section 4. National Assessment Governing Board
This section directs the National Assessment Governing
Board, in consultation with the Commissioner for Education
Statistics, to select the States that will participate in the
trial State assessments.
Section 5. Authorization of appropriations
This section authorizes $8.5 million for the fiscal year
preceding the conduct of the first trial assessment, $8.5
million for the fiscal year during which the first trial
assessment is conducted, and such sums as may be necessary for
each succeeding fiscal year. Not more than $500,000 per fiscal
year shall be used by the National Assessment Governing Board
to develop and administer the trial State assessments.
Section 6. Conforming amendment
This section conforms the Education Sciences Reform Act of
2002 with the changes made to the National Assessment of
Educational Progress Authorization Act under Section 4.
IX. Changes in Existiing Law
In compliance with rule XXVI paragraph 12 of the Standing
Rules of the Senate, the following provides a print of the
statute or the part or section thereof to be amended or
replaced (existing law proposed to be omitted is enclosed in
black brackets, new matter is printed in italic, existing law
in which no change is proposed is shown in roman):
EDUCATION SCIENCES REFORM ACT OF 2002
SEC. 101. * * *
* * * * * * *
SEC. 113. DELEGATION.
(a) Delegation of Authority.--* * *
(1) nothing in this title or in the National
Assessment of Educational Progress Authorization Act
(except [section 302(e)(1)(J)] section 302(e)(1)(K) of
such Act) shall be construed to alter or diminish the
role, responsibilities, or authority of the National
Assessment Governing Board with respect to the National
Assessment of Educational Progress (including with
respect to the methodologies of the National Assessment
of Educational Progress described in section
302(e)(1)(E)) from those authorized by the National
Education Statistics Act of 1994 (20 U.S.C. 9001 et
seq.) on the day before the date of enactment of this
Act;
* * * * * * *
NATIONAL ASSESSMENT OF EDUCATIONAL PROGRESS AUTHORIZATION ACT
SEC. 301. * * *
* * * * * * *
SEC. 302. NATIONAL ASSESSEMENT GOVERNING BOARD.
(a) Establishment.--* * *
* * * * * * *
(e) Duties.--
(1) In general.--In carrying out its functions under
this section the Assessment Board shall--
(A) * * *
* * * * * * *
(I) take appropriate actions
needed to improve the form,
content, use, and reporting of
results of any assessment
authorized by section 303
consistent with the provisions
of this section and section
303; [and]
(J) in consultation with the
Commissioner for Education
Statistics, identify and select
the States that will
participate in the trial State
academic assessment described
in section 303(b)(3)(A)(iv);
and
[(J)] (K) plan and execute
the initial public release of
National Assessment of
Educational Progress reports.
The National Assessment of
Educational Progress data shall
not be released prior to the
release of the reports
described in [subparagraph (J)]
subparagraph (K).
* * * * * * *
SEC. 303. NATIONAL ASSESSMENT OF EDUCATIONAL PROGRESS.
(a) Establishment.--* * *
(b) Purpose; State Assessments.--
(1) Purpose.--* * *
(2) Measurement and reporting.--* * *
(A) * * *
* * * * * * *
(D) to the extent time and resources allow,
and after the requirements described in
subparagraph (B) are implemented and the
requirements described in subparagraph (C) are
met, conduct additional national assessments
and collect and report assessment data,
including achievement data trends, in a valid
and reliable manner on student academic
achievement in grades 4, 8, and 12 in public
and private elementary schools and secondary
schools in regularly scheduled intervals in
additional subject matter (with a priority in
conducting assessments in United States history
not less frequently than once every 4 years),
including writing, science, history, geography,
civics, economics, foreign languages, and arts,
and the trend assessment described in
subparagraph (F);
* * * * * * *
(3) State assessments.--
(A) In general.--The Commissioner for
Education Statistics--
(i) * * *
* * * * * * *
(iii) except as provided in clause
(iv), may conduct State academic
assessments of student achievement in
grades 4, 8, and 12 as described in
paragraph (2)(D); [and]
(iv) shall conduct (in connection
with assessments in United States
history and civics scheduled pursuant
to paragraph (2)(D)) trial State
academic assessments of student
achievement in United States history in
grades 8 and 12 in not less than 10
States representing geographically
diverse regions of the United States
and in civics in grades 8 and 12 in not
less than 10 States representing
geographically diverse regions of the
United States (with a priority given to
conducting assessments in United States
history);
[(iv)] (v) * * *
* * * * * * *
SEC. 305. AUTHORIZATION OF APPROPRIATIONS.
(a) In General.--* * *
* * * * * * *
(b) United States History and Civics Assessments.--
(1) In general.--In addition to amounts otherwise
appropriated under subsection (a)(1)(2), there are
authorized to be appropriated to carry out sections
303(b)(3)(A)(iv) and 302(e)(1)--
(A) $8,500,000 for the fiscal year preceding
the conduct of the first trial assessment
described in section 303(b)(3)(A)(iv);
(B) $8,500,000 for the fiscal year during
which the first trial assessment described in
section 303(b)(3)(A)(iv) is conducted; and
(C) such sums as may be necessary for each
fiscal year succeeding the fiscal year
described in subparagraph (B).
(2) Amounts for the national assessment governing
board.--From the amounts made available under
subparagraphs (A) and (B) of paragraph (1), not more
than $500,000 shall be available for each fiscal year
to carry out section 302(e)(1).
[(b)] (c) Availability.--Amounts made available under this
section shall remain available until expended.
* * * * * * *