Family literacy is receiving much attention at both state and national levels this year. Several state legislatures have recently enacted family literacy legislation, and Congress is now revising the Even Start Family Literacy program and considering a substantial increase in funding. Last year, Congress passed two laws that strengthen support for family literacy. The new laws call on states to create state plans that, for the first time, specifically include family literacy as a way to meet adult education, early childhood, and literacy needs. To assist family literacy leaders who are strengthening support for family literacy in their own states, this report highlights three states’ initiatives and analyzes how literacy leaders in each state successfully worked to improve the quality of family literacy services.
This is a momentous time for family literacy. It is receiving more attention than ever from policymakers at both state and federal levels. State legislatures have enacted family literacy legislation, and state leaders have implemented policy changes and funding increases to improve family literacy services statewide. Over the past 10 years, federal funding for family literacy has grown from $14.5 million to $135 million, and President Clinton recently proposed increasing funding by another $10 million next year. Later this year, Congress will take up Title I, Part B of the Elementary and Secondary Education Act, the Even Start Family
Literacy program, as part of its larger effort to improve elementary
and secondary education programs. Even Start provides funding for statewide
family literacy initiatives that coordinate local, state, and federal efforts.
Even Start requires states to develop "indicators of program quality" that
can be used to evaluate and improve programs within the state. It also
requires the Secretary of Education to support research on the components
of successful family literacy activities that could be used to improve
the quality of existing programs.
In 1998, Congress passed two laws that strengthen support for family literacy and require states to develop state plans that include provisions for family literacy: |
Family literacy is a field of learning that combines intensive, long-range services in early childhood education, adult basic skills education, and parental education and support. It can encompass welfare reform, school reform, and early childhood initiatives. The National Center for Family Literacy (NCFL), a national advocacy and training organization for family literacy, applies the term "family literacy" to comprehensive programs that:
Research into family literacy programs shows significant outcomes. For example, adults stay enrolled in family literacy programs longer than in most adult-only programs, maintain higher attendance rates, and significantly improve their employment status, self-confidence, and parenting skills. Children participating in family literacy programs make more improvements than would have been expected based on their development prior to enrolling in a family literacy program. Children also show a significant increase in reading books and visiting the library.
Benita Somerfield, Executive Director of the Barbara Bush Foundation for Family Literacy, writes that while most family literacy program directors have reported improvements in literacy skills, other behavioral changes have been equally remarkable. Directors describe additional positive outcomes such as:
For Even Start parents:
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In November 1998, Dr. Gary Eyre, former Director of Adult Education
in Arizona, surveyed states about their family literacy needs and concerns.
Forty-two states and territories responded, expressing "interest, needs,
and requests for further assistance in addressing family literacy as state
education agencies develop implementation plans for new state and federal
programs."
Thirteen states reported having state family literacy legislation and/or funding. When asked the primary policy concerns for family literacy initiatives or programs, survey responses included:
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Several states across the nation have made great strides for family literacy by passing legislation and making policy and funding changes. In 1985, Kentucky was the first state to develop intergenerational literacy legislation¾Parent and Child Education (PACE). This legislation became the model for the federal Even Start three years later. Within the last several years, other states, such as Arizona and Washington, have passed legislation creating statewide family literacy initiatives. Massachusetts, Pennsylvania, and Nevada have improved family literacy services through policy changes or funding increases.
The three states highlighted
in this update were selected because each demonstrates an unusually effective
approach to developing a statewide family literacy initiative. Following
is a summary of the initiatives of Arizona, Massachusetts, and Pennsylvania,
and their successful strategies to create strong statewide family literacy
services.
In 1994, the Arizona legislature passed a bill creating a two-year
family literacy pilot program. In 1996, the pilot program was renewed for
two years, and in 1998, Arizona's state legislature reauthorized the family
literacy program, brought it out of the pilot stage, and appropriated a
total of $1 million a year for 21 local programs.
How the Law was Passed
In 1991, Arizona began two demonstration programs that went on to flourish. These programs helped to promote implementation of a state initiative when their private funding was reduced in 1993. In learning that their programs were in jeopardy, staff and especially parents mobilized to
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ensure their continuation. Unwilling to allow their programs
to close, parents and state and local staff became involved in the political
process of finding other sources of support. Parents visited state political
leaders, invited these leaders to visit their program, spoke with neighbors,
and advocated for their program and family literacy.
A representative in the Arizona State House from the district where one of the demonstration programs was located was invited to visit family literacy programs. A supporter of adult education, he selected family literacy as his main focus for an improved comprehensive adult program. This legislator met with the demonstration program director and a supporter of adult education from the Arizona Department of Education to draft a bill to develop family literacy services statewide. Through extensive educational efforts, many conversations, and perseverance, these three individuals acquired additional support from other members of the legislature, the Governor, the State Superintendent of Public Instruction, and other political leaders. Sharon Darling, Director of the National Center for Family Literacy (NCFL), also aided the process by meeting with state legislators and the editorial board of the Arizona Star, whose endorsement of the effort helped build public support. |
In 1994, the family literacy
legislation was included in Success by Six, a popular state law providing
health screening and assistance to families in which there was the potential
for abuse. While initially hesitant to combine efforts with family literacy
supporters, the Success by Six community recognized that their chances
were strengthened by joining the two efforts, partly
because family literacy was politically appealing to some Success by
Six critics. The
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Arizona legislature failed to pass the bill in 1994, but, during
a special session, family literacy supporters convinced the Speaker to
reintroduce the bill, and it was passed.
At the end of the two initial pilot years, the Speaker of the Arizona House of Representatives requested an extension for the program, arguing that such a brief trial period was insufficient, considering the long-term benefits expected from family literacy. The Auditor General's report requested by the legislation showed initial positive outcomes. This, along with strong data supporting the connection between a child's school success and the parent's education level, was a significant factor in the renewal of the pilot in 1996 for two more years. By this time, the Success by Six community also strongly supported family literacy, and worked to ensure passage. Supported in part by
another favorable Auditor General report and an NCFL study, initiated by
the Arizona Department of Education, on the successes of the pilot project,
the Arizona legislature in 1998 reauthorized the family literacy program
and brought it out of the pilot stage from "Family Literacy Pilot Program"
to "Family Literacy Program." The legislature also appropriated $1 million
for the program in FY 1999.
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Over the past three years Massachusetts has created a statewide initiative of Family Literacy Challenge Grants, funded at $517,000 in state dollars in FY 1999. Massachusetts also funds 13 Even Start programs for a total investment of $1,855,594 in family literacy in FY 1999. In addition, Massachusetts has developed an extensive collaboration of organizations and agencies, all working together to promote family literacy throughout the Commonwealth.
The Commonwealth of Massachusetts has developed strong family literacy initiatives, taking a different course than the legislative route of Arizona. One of the strengths of Massachusetts’ programs is the broad group of stakeholders in the family literacy arena, which includes both Family Literacy Challenge Grants and the Massachusetts Family Literacy Consortium (MFLC), a strong collaboration of state agencies organized to prioritize family literacy.
Family Literacy Challenge Grants (FLCG), funded through a statewide initiative, are five-year grants similar to a scaled-down Even Start. FLCG grantees, which include public schools, Head Start programs, and non-profit and community-based organizations, serve families with children from ages three to 12. FLCG components include an adult education class that requires a minimum of five hours per week of parenting education for 32 weeks each year. Programs are also encouraged to offer home visits, child care, transportation, and other supports to families. FLCG was developed out of the Adult and Community Learning Services (ACLS) division of the Massachusetts Department of Education (MDOE). In 1996, ACLS created FLCG with local funds and federal adult education funds that require significant local matching funds. In FY 1999, a total of 15 FLCG programs are funded at an average of roughly $34,500, for a total of $517,000 in state investment in family literacy.
How Massachusetts Developed its Family Literacy
Initiative
A 1991 statewide family literacy
conference, organized by a librarian interested in adult literacy issues
and an Even Start evaluator, is credited for launching family literacy
efforts in Massachusetts. This conference brought together a diverse group
of leaders, including those from academia, workplace literacy programs,
libraries, programs involving families, and the Massachusetts Department
of Education, with the goal of having a variety of fields commit to improving
family literacy in the Commonwealth. The conference greatly increased interest
in making family literacy a priority, and provided the impetus for Massachusetts
to submit an application for federal money to fund a statewide family literacy
initiative, the Massachusetts Family Literacy Consortium (MFLC).
Three years ago, the collaborative
MFLC was organized to promote family literacy issues. MFLC is a group of
over 25 non-profit organizations and state agencies, including the Adult
Literacy Resource Institute, Head Start, Title I, and the Departments of
Education, Public Health, Mental Retardation, Corrections, Social Services,
and Transitional Assistance. All participating organizations share the
goal of promoting family literacy. The MFLC has brought attention to the
importance of family literacy, enabling the development of statewide initiatives
such as the FLCG. In its first 18-month period, MFLC achieved the following
goals:
Like Massachusetts and Arizona, Pennsylvania has created a strong statewide literacy plan. An initiative of the Governor’s Office to create a state family literacy program resulted in a 1998-99 budget earmark of $3 million, enabling the establishment of new family literacy programs in counties where there had been none, and the expansion of existing programs. The $3 million earmark is within the existing state adult literacy line item, administered by the Bureau of Adult Basic and Literacy Education (ABLE). Soon after the earmark, the $4.9 million federal Even Start Family Literacy Program was transferred to ABLE. Family literacy efforts are receiving a total of $7.9 million in Pennsylvania.
In September 1998, Pennsylvania
began to provide family literacy services. In order to assist families
at the same time that it provides adults with skills for the workforce,
Pennsylvania is partnering its welfare-to-work efforts with its family
literacy services. Family literacy programs are being initiated through
local educational agencies¾ such as school
districts, vocational-technical schools, and charter schools¾
and through eligible public or private nonprofit organizations. By combining
efforts with other resources such as Head Start, Title I, and welfare-to-work
programs, family literacy programs throughout the state are equipped to
provide educational skills for parents and children as well as job skills
training.
How Pennsylvania Developed its Family Literacy Services
Even Start in Pennsylvania
has historically been very strong, largely because of the leadership of
Pennsylvania Congressman Bill Goodling, author of Even Start and Chairman
of the powerful Committee on Education and the Workforce in the United
States House of Representatives. Because of the existing expertise in the
state, family literacy supporters had a base on which to build the political
support crucial in obtaining the Governor’s earmark.
Political support for family literacy was
developed within the Governor’s office by embedding family literacy into
the larger policy arena. By highlighting family literacy as a way to promote
several of the Governor’s large public policy priorities¾
such as welfare-to-work, Title I, libraries and summer reading, and the
Reading Excellence Act¾ advocates ensured
that family literacy was incorporated into the Governor’s initiatives.
For example, by working with the governor’s staff, advocates ensured that
the role of parents and the importance of parent involvement was recognized
and incorporated into the Governor’s elementary reading initiative, Read
to Succeed. Literacy advocates also illustrated the instrumental role family
literacy can play in workforce issues and collaborated with the Human Resource
Investment Council, (HRIC), the state workforce investment board, a high-powered
organization interested in adult literacy and workforce issues.
Literacy advocates invited the First Lady of Pennsylvania, Michele Ridge, to chair the ABLE Interagency Coordinating Council, a grassroots lobbying group that works to ensure state level coordination on behalf of adult |
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Through strong collaborative and educational efforts, the director of Pennsylvania’s Even Start program and other proponents of family literacy helped to bring about the Governor’s earmark. Steps in accomplishing this include frequent presentations at adult education conferences and writing articles for adult education newsletters. According to Pennsylvania’s Even Start director, "Even Start is not a stand-alone program. It is critical that collaboration between adult education and early childhood programs takes place."
Another collaboration led the Pennsylvania Association of Adult and Continuing Education (PAACE) to add a family literacy division to help promote family literacy efforts. For the second year in a row, PAACE has successfully encouraged Governor Ridge to sign a proclamation designating November 1 as Family Literacy Day in Pennsylvania, a day that helps to raise public awareness through a variety of activities throughout the state.
Once the $3 million earmark was given, the family literacy community mobilized quickly for the initiative’s first year of implementation. It lobbied to get Even Start transferred under ABLE, in order to build from the strong base of Even Start providers and collaborators, and to ensure consistent administration of the two programs as one family literacy program. ABLE hired focus groups to identify priority policy issues, and targeted resources to statewide evaluations of the initiative. ABLE also hired the NCFL to help provide training and technical assistance to programs. The policy decision was made to use Even Start as the primary model for family literacy programs.
Future plans for family literacy
initiatives in Pennsylvania include continuing to embed family literacy
in the Governor’s state policy priorities. The family literacy community
at both the state and local level is working to support the state Read
to Succeed initiative, as well as state welfare-to-work, workforce development,
and library initiatives. Program evaluation findings will be used to build
program quality and accountability standards.
In summary, keys to Pennsylvania’s success are:
Analysis of the achievements of three states show that while each success offers its own lessons, the following elements are vital in every case:
Author’s Note: A 1999 NCFL report, Family Literacy Legislation and Initiatives in Eleven States, authored by Tony Peyton, was used in gathering information for this update.
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Waterfront Plaza, Suite 200 325 West Main Street Louisville, KY 40202-4251 502/584-1133
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Literacy 1112 16th St., NW #340 Washington, DC 20036 202/955-6183
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U.S. Department of Education 330 C Street, SW, Room 4428 Washington, DC 20202 202/205-9685
National Adult Education Professional
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U.S. Department of Education 600 Independence Ave., SW Washington, DC 20202 202/260-0826
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The author would like to thank the following individuals for generously
sharing their expertise:
Bob Bickerton | Massachusetts Department of Education, Malden, Massachusetts |
Marilyn Box | Family Tree Project, Mesa County, Arizona |
Jessica Dilworth | Pima County Adult Education Family Literacy Project, Tuscon, Arizona |
Gary Eyre | Advance Associates & Consultants, Phoenix, Arizona |
William Hart | Arizona Department of Education, Phoenix, Arizona |
Mary LeGurin | U.S. Department of Education, Washington, DC |
Peggy Minnis | Webb Elementary School, Washington, DC |
Donald Paquette | Pennsylvania Department of Education, Harrisburg, Pennsylvania |
Tony Peyton | National Center for Family Literacy, Louisville, Kentucky |
Shelly Quezada | Massachusetts Board of Library Commissioners, Boston, Massachusetts |
Kathy Rodriguez | Massachusetts Department of Education, Malden, Massachusetts |
David Rosen | Adult Literacy Resource Institute, Boston, Massachusetts |
Benita Somerfield | Barbara Bush Foundation for Family Literacy, Washington, DC |
Special thanks to the members of the National Institute for Literacy’s
State Policy Advisory Group:
Edith Gower | National Alliance of Urban Literacy Coalitions, Houston, Texas |
Cheryl Keenan | Pennsylvania Department of Education, Harrisburg, Pennsylvania |
Lennox McClendon | Virginia Department of Education, Richmond, Virginia |
Jon Randall | Literacy Volunteers of America, Washington, DC |
This State Policy Update was produced by the National Institute for Literacy, an independent federal organization that is leading the effort toward a fully literate America. By fostering collaboration and innovation, the Institute helps build and strengthen state, regional, and national literacy infrastructures, with the goal of ensuring that all Americans with literacy needs receive the high-quality education and basic skills services necessary to achieving success in the workplace, family and community.Mary Parke Project manager and author
Alice Johnson Editor
For additional copies, please call ED Pubs toll free (877) 433-7827, or visit the National Institute for Literacy website at www.nifl.gov. Copies will be available after April 8, 1999.