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REDUCING
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Local SuccessStories':! .
RED'UCING CLASS SIZE:
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u.s. Department of Education
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Local Success Stories
REDUCING CLASS SIZE
LESSONS ,FROM EARLY IMPLEMENTATION
When a recerd 53.2 millien students returned to. scheel this fall, students and their
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teachers in the early grades began to. benefit from a grewing natienal effert to. lewer class size. i'
This year, five States - Iewa, Maryland, Minneseta, New Yerk, and Wiscensin - enacted ne-yv
initiatives er significantly expanded existing initiatives to. lewer class size: As a result, seme 20
States new have class size reductien initiatives in place. And in July, every State received its :
share ef$1.2 billien previded by the U.S. Department efEducatien's new Class Size Reductien
Program,an initiative to. help cemmunitie,s hire 100,000 qualified teachers ever seven years in !
erder to. reduce class size in grades ene threugh three to. a natienal average ef 18 students.
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These funds are already being put to. geed use. Based en preliminary data frem nearly 46
percent <?fthe natien's scheel districts, the Department efEducatien estimates that:
• Mere than 29,000 teachers have been hired with FY 1999 Class Size Reductien Program,
funds.
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• 'Approximately 1.7 millien children are expected to. benefit directly in the 1999-2000 scheeli
year by being educated in smaller classes.
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• Scheel districts are'cencentrating this first installment ef funds so. that it makes a big
difference fer seme students immediately . Average class size in the early grades has been
reduced by mere than five students, fromappreximately 23 to. 18, in the schoels where the
vast majerity ef teachers hired with these funds teach.
,42% efthe teachers are teaching in first grade. In their scheels, average class size fell
from appreximately 23 students to. appreximately 17 students.
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23% efthe teachers are teaching in secend grade. In their scheels, average class size fel~
from 23 students to. less th~ 18 students.
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24% efthe teachers are teaching in third grade. In their scheels, average class size fell
from mere than 23 students to. just ever 18 students.· .
• In erder to. strengthen teacher quality, scheel districts are using approximately 8% eftqe
funds they received to. suppert prefessienal develepment fer teachers.
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�NEW STATE CLASS SIZE REDUCTION INITIATIVES
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Some 20 States have their own initiatives to lower class size. This year, at least five States
joined California, Indiana, Washington and other States to invest their own resources in bringing the'
benefits of smaller classes to their students. These new State initiatives are:
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• Iowa created the Class Size/Early Intervention Program to reduce class size inkindergartJn'
through third grade to 17 students for basic skills instruction. The State will phase in the program
over four years, allocating $10 million inthe first year, $20 million in the second, $30 million in
the third, and at least $30 million in the fourth. ,
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• Maryland established the Maryland Learning Success Program, an initiative to reduce cla~s size
in grades one and two, particularly for reading, to 20 students. The program, which will be
phased in over four years, requires school systems to set specific performanc~ targets and!
establishes a goal of hiring approximately 1,000teachers, while reserving additional f4nd~ for
professional development, supplies, and other implementation costs..,
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• Minnesota significantly expanded its class ~i:Ze reduction program in 1999, adding more tl~an
$100 million over two years to current funding levels of $90 million annually, The State's
program, which began in 1995, strives to reduce class size to 17 students in'kindergarten through
sixth grade, but requires districts to first'target kindergarten and first grade.
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• The State of New York began implementing its class size reduction program, which target~ funds
for reducing average class size in kindergarten through third grade to 20 students. Funded at $75
million this year, the program will be phased in over three years, with second-year funding
expected at $150 million and third-year funding at $225 million. Funds may be used for t~acher
salaries and benefits, as well as for one-time start-up costs for each new classroom; howe\ier, ,
funds may not be used for new buildings or professional development. The State targets funds to
school districts according to enrollment.
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• Wisconsin significantly 'expanded SAGE, its class size reduction program, from the current 78,
schools to an additional 400 to 500 schools. These schools, which typically have high nuritbers
of low-income students; participate in SAGE on a voluntary basis, signing contracts to reduce
class size in kindergarten through third grade to 15 students. To support this expansion, S~GE
funding rose from $18 million for 1999 to $58 million for ?OOO.
THE CLASS SIZE REDUCTION PROGRAM: HOW IT WORKS
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The Department of Education's Class Size Reduction Program was enacted a year ago as
part of the 1999 Department of Education Appropriations Act. In that bipartisan legislation,
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. Congress made a $1.2 billion down payment on President Clinton's proposal to help local
communities hire 100,000 qualified teachers ()ver seven years, in order to ,reduce class size in
grades one through three to a national average of 18 students. This year, the President sent
legislation to Congress to authorize the full seven-year effort, and his budget proposal asks
Congress to provide an additional $200 million in funding, raising the total to $1.4 billion for the
2000-0 I school year to help local communities hire an additional 8,000 teachers, for a total of ' :
37,000 teachers.
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�Program funds are' distributed to States by formula. All 50 States, the District of
Columbia, and Puerto Rico participate in the program. Because needs are greatest in the poore:st
communities, and because research shows that smaller classes provide the greatest benefits to tre '
most disadvantaged students, the program targets funds to high-poverty communities. Each
State distributes 80% of the funds to school districts based on the number of poor children in
each district. The remaining 20% is distributed on the basis of total enrollmerit. .
Class Size Reduction funds go directly to our nation's classrooms. Every dollar
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appropriated by Congress is allocated to local school districts. No funds may be used for Federal
or State administrative costs, and within school districts, no more than 3% ofthe funds may be i
used for administrative costs. Because small classes make the greatest difference when teachets
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are well-trained, school districts may use up to 15% of the funds for providing professionai
development to both n~wly hired and experienced teachers in the early grades. The remainder'
of the funds are for recruiting, hiring,'and training certified regular and special education
teachers aIld teachers of children with special needs, including te~chers certified through State
and local alternative routes.
Average class siz:e varies considerably from district to district. Although the Departmeqt
of Education estimates that average class size nationwide in grades one through three is just
above 22 students - and often considerably higher in large districts and high-poverty schools
there are districts where class size is already at or below 18 students. The Class Size Reduction
Program provides flexibility to accommodate these school districts, as well as the growing
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number of school districts that will reach a class size target of 18 students as, a resull of the
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program. Districts that have reduced class size in the early grades to 18 students may use
program funds to make further reductions in class size in those grades, to reduce class size in
other grades, or to take other steps to improve the quality of teaching.
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Currently, the program requires small, typically rural school districts that do not receive;
enough funds under the formula to hire an additional teacher and that have not reduced class siz~
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in the early grades to 18 students to form consortia with other school districts in order to receive
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funds. While a consortium is often an effective and efficient way for small districts to share
resources and achieve common objectives (for example; providing.professional development), I
sharing a teacher among school districts is almost never a workable strategy for lowering class .
size. Consequently, the Department of Education has waived the consortium requirement for i
each of the 40 States that sought a waiver. School districts in these States may hire additional
teachers by. combining program funds with local, State or other Federal funds, or may. use
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program funds to provide professional devdopment for their existing teachers.
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�RESEARCH UPDATE:
GROWING EVIDENCE THAT SMALLER CLASSES MAKE A DIFFERENCE·
In March 1999, the Department of Education released Reducing Class Size: What Do We
Know?(available on the Internet at http://ed.gov/pubslReducingClass). The report summarized t
substantial research showing that class size reduction in the early grades leads to higher student !
achievement in reading and math when class size is reduced to 15-20 students .. The benefits of !
smaller classes are greatest for disadvantaged and minority students. Additional studies, reported
recently, have confirmed and expanded on these findings:
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Smaller Classes Lead to Lasting Academic Improvements. Several new analyses of the
Tennessee Class Size Reduction program show that reducing class size has both immediate and long
term benefits. The benefits of participating in small classes . increase from year to year, both in the
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early grades when classes were small, and in subsequent years when students were placed in larger
classes. At the end of fifth grade, students who were in small Classes in grades one through three
were about half a school year (5 months) ahead of students from larger classes, in all subjects - !
reading, language arts, math and science. Further, follow-up studies of the same students show that
high school students who were in small classes in grades one through three beginning in 1985 w~re
less likely to be held back a year or be suspended compared with their peers from larger classes. '
Students from small classes were found to be making better grades in high school and taking more
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advanced courses: 1,2,3 .
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Teachers Benefit Too. Research on Wisconsin's class size reduction effort (SAGE) show that both
teachers and students benefit from smaller classes. Teachers spend more time on instruction andlless
time on discipline problems. Teachers say they know their students better, know where each chi~d is
in the learning process and can provide more individualized instruction. All ofthese improvements
in teaching are matched by increased student achievement, making teaching more rewarding. 4 i
Beyond Academics. The benefits of reduced class size in the early grades go beyond the well
documented improvements in reading, mathematics and science. Smaller classes also lead to better
identification of students who need special help, increased student participation and engagement;
improved behavior, and 'reduced retention in grade. In a recent book, Professor Charles Achilles:
concluded that the outcomes associated with small classes are the foundation of safe schools:
improved student behavior and human relations skills; increased participation in schooling and I
school-sanctioned events; increased sense of community in small classes; and generally improveCl
school climate where students, teachers and parents feel more comfortable. I
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Achilles. Charles (1999). Let's Put Kids First, Finally: Getting CI~s Size Right. Thousand Oaks, CA: Corwin Press,t Inc.
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Finn. Jeremy D. and Charles M. Achilles "Tennessee's Class Size Study: Findings, Implications, Misconceptions pp 91-109
in Educational Evaluation and Policy Analysis (EEPA), SPECIAL ISSUE Class Size: Issuesand New Findings, volJme
21, No.2 (Summer 1999). Washington, D.C.: American Educational Research Association.
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Pate-Bain, Helen; B. De Wayne Fulton, Jayne Boyd-Zaharias. Effects of Class Size Reduction in the Early Grades (K-3) on
High School Performance. Nashville: HEROS, Inc. 1999
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Molnar, Alex et. AI. "Evaluating the SAGE Program: A Pilot Program in Targeted Pupil-Teacher reduction in Wisconsin."
Pp. 165-177 in Educational Evaluation and Policy Analysis (EEPA), SPECIAL ISSUE Class Size: Issues and New :
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Findings, volume 21, No.2 (Summer \999). Washington, D.C.: American Educational Research Association.
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�IMPLEMENTATION CHALLENGES AND OPPORTUNITIES
The benefits of smaller classes with qualified teachers are clear. Available research,
including the Tennessee STAR study, the Wisconsin SAGE program, and an evaluation of
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California's class size reduction initiative, show that small classes with qualified teachers lead to
higher student achievement, more individualized attention for students, and fewer classroom i
disruptions. Small classes in the early grades give students a strong foundatioifin basic math and
reading skills. They also provide long term payoffs, includingJewer students retained in their:
grade, higher student achievement each year even after students are placed in larger classes, an9
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better student preparation for college.
Although it is important to lower class size, it is not easy. Many schools lack extra
classrooms for smaller classes. As the nation struggles to recruit and hire nearly two million
teachers over the next decade, many communities - especially high-poverty urban and rural
school districts _. are already experiencing difficulties in recruiting and retaining qualified
teachers. And State and local policymakers face the task of ensuring that lowering class size is·
an integral part of comprehensive reforms aimed at helping all children learn to high academic!
standards.
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Fortunately, the Class Size Reduction Program provides school districts with the
resources and flexibility they need to address these challenges. It also allows districts to use
program funds to help meet local education priorities, such as improving early reading
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achievement, turning around low performing schools, ending social promotion the right way, Or;
targeting help to the neediest students and schools. Indeed, although schools are only in the fidt
months of program implementation, school districts across the country are already demonstratiqg
how class size reduction can be an integral part of their efforts to boost student achievement anq
promote quality teaching.
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Recruiting qualified teachers
While disadvantaged students are most likely to benefit from small classes, high-poverty
urban and rur~l school districts face the most severe challenges in recruiting and retaining
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qualified·teachers. For example, the National Commission on Teaching and America's Future;
found 'that students.in schools with the highest concentrations of poverty - those who often !
need the most help from the best teachers - are most likely to be taught by teachers who are not
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fully qualified.
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The Class Size Reduction Program enables school districts to address their need for fully
qualified teachers. According to a recent report by the Council of Great City Schools, which
examined how 40 big city school districts are implementing the program, almost 90% of the
3,558 new teachers hired under the program have full certification. Only three school districts
reported employing instructors with emergency credentials.
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Philadelphia is using Federal class size reduction funds to address the related challenges
of teacher recruitment, support for new teachers, and class size reduction. In addition to hiring
34 fully certified teachers, the city has hired 254 "Literacy Interns," college graduates who lack
teacher certification. Many are mid-career adults making the transition to teaching. After
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intensive summer training in balanced approaches to literacy instruction, these interns now wotk
in self-contained, reduced-size classrooms under the supervision of fully certified teachers,
delivering research-based literacy instruction in kindergarten and first grade. They are also :
enrolled in alternative teacher education programs that lead to full certification. Once certified,
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the former Literacy Interns will teach in small classes on their own. Throughout their initial !
years in the classroom, the Literacy Interns receive an extraordinary amount of mentoring and I
support, and their students experience the benefits of smaller classes immediately. In sum,
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Philadelphia's unique strategy recruits capable people into teaching and ensures that they
become fully qualified.
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Using Class Size Reduction Program funds, the Jackson Public Schools in Mississippi:
hired 20 additional teachers and placed them in 20 low-performing elementary schools. Many;of
these teachers had previously retired or had left the district, but were recruited to return because
of the opportunity to teach in smaller classes and to work closely with other teachers. These
experienced teachers are also serving as mentors for less experienced teachers, and they often
team up with beginning teachers to provide regular support and supervision.
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Philadelphia and Jackson show how lowering class size can work hand in hand with
efforts to recruit and prepare qualified teachers. However, in some circumstances, class size
reduction can have unintended consequences. For example, California launched a major
statewide class size reduction program in 1996, investing approximately $1.5 billion annually
over the last three years. The first evaluation report showed that class size'reduction led to
increased student achievement. But the initiative has also led many experienced teachers to
leave jobs in urban school districts for teaching jobs in more attractive suburban systems.
Further, it has caused the widespread use of teachers with emergency credentials, particularly in
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high-poverty urban and rural districts.
The Clinton Administration monitored California's experiences carefully from the outs~t
and designed the Class Size Reduction Program to avoid such unintended consequences. For i
example, while California provides equal funding to all school districts regardless of need, the !
Federal program targets funds to high-poverty school districts, drawing teachers into these
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districts instead of creating opportunities for teachers in these districts to leave. Moreover, while
California school districts receive class size reduction funding only ifthey immediately meet a !
strict limit of20 students per class, the Federal program supports a more gradual approach,
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allowing school districts over time to reach the more flexible goal of reducing class size to 18
students on average. Furthermore, this gradual approach gives school districts more time to
recruit and hire qualified teachers. Finally, unlike California's program, the Federal program
invests in teacher quality by providing funds for teacher recruitment, preparation, and
professional development.
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�The Department of Education has worked closely with California education officials to
ensure that Federal class size reduction funds alleviate rather than exacerbate the difficulties i
faced by many school districts. The Department provided California school districts with a
waiver allowing them to use funds under this program to improve teacher quality or reduce class
size in other grade levels, once they have met the State class size target of 20 in the early grad~s.
Further, the Department required school districts with uncertified teachers in the early grades to
use a portion of these funds to help teachers complete certification requirements.
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The Long Beach Unified School District is using its Federal class size reduction funds t.o
hire 15 new teachers to reduce class size in ninth grade and to strengthen the quality .of teachers
they have already hired to reduce class size in the early grades. Federal funds support five
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internship programs to prepare and certify teachers currently holding emergency credentials. i
These programs pr~)Vide participants with support from experienced teachers, who meet regularly
with uncertified teachers and give feedback after observing them at work. Participants in the :
internship also take courses and provide 30 hours of instruction in support of the State's early
reading initiative while under the observation of a mentor teacher.
Improving early reading achievement
Students who are proficient readers by the end ofthird grade are more likely to succeed:
academically and graduate from high school. Reducing class size in grades one through three, :
especially when c.oupled with research-based approaches to reading instruction, is an effective !
way to improve reading achievement. A number of sch.ool districts throughout the country are:
using funds from the Class Size Reduction Program to support this strategy.
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In Maryland, for example, Montgomery County is combining Federal class size reductidn
funds with State and local funds to support its Early Reading Initiative in every first and second
grade class in the c.ounty. This initiative cuts class size to 15 students for a 90-minute period :
each day devoted to intensive reading and writing instruction. During this time, teachers use a ;
variety of techniques and activities that create a comprehensive literacy program to help studen~s
become proficient in all aspects of reading and writing. Teachers receive two weeks of intensive
instruction during the summer and participate in .ongoing professional development throughout I
the school year.
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In the State of Washington, Tacoma has targeted its $1 million in Federal class size .:
reducti.on funds to support its "Great Start" program, aimed at improving reading instruction and
achievement in the early grades. C.ombining Federal funds with State and local funds,Tacoma!
has reduced first grade class size t.o 15 or 16 students in .one-third .of its elementary sch.ools. As, a
result, 850 students in 57 first-grade classrooms are being taught in smaller classes. Their
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teachers receive training on how to teach reading, and they continue t.o improve their
effectiveness by meeting regularly to discuss which teaching practices work best for their
students.
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�Strengthening accountability and turning around low-performing schooRs
A growing number of States and school districts have strengthened accountability by
demanding educational progress from their schools. Title I requires every State and school
district to identify low-performing Title I schools and to help them develop and implement
improvement plans. Several school districts, including Atlanta, Birmingham, and New Orlearys,
are incorporating class size reduction into their approaches to turning around low performing i
schools. In Ohio, the Columbus Public Schools have hired 58 fully certified teachers with its;
Federal class size reduction funds, placing them in 13 high-poverty, low-performing schools. lIn
these schools, the program has reduced class size in grades one through three from 25 student$ to
approximately 15 students. These schools, as well as others in Columbus, are implementing I
proven models of reading instruction, such as Success for All, and they receive the professional
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development and support needed for effective implementation of these models.
Addressing space limitations
In many schools and school districts, space for additional teachers and smaller classes is
already available. In others, space is being "created" by using libraries, computer labs, or other
facilities. Ultimately, school districts will need additional classrooms for the teachers hired tol
reduce class size. To help address this long-tenrt need, President Clinton has proposed a $25 '
billion initiative to help State and local governments repair or replace 6,000 overcro*ded and i
unsafe schools by providing tax credits to subsidize the cost of school construction bonds.
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Until schools can expand their facilities, the Class Size Reduction Program allows sch601
districts lacking space to explore other ways of effectively providing the benefits of small clas~es
to students. ' Schools have tried a number of approaches, including:
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• having two certified teachers team teach in a single classroom either for part of the school •
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day or for the entire school day,
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• hiring an additional certified teacher for a grade level (e.g., providing three teachers for tw~
third grade classes) and dividing the students among the larger number of teachers for
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sustained instruction each day in priority subjects such as reading or math,
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• hiring an additional certified teacher who works with half the students in a class for reading
and math instruction, while the other half remains with the regular classroom teacher, or :
• converting to a year-round schedule.
Each of these approaches enables schools to take advantage of space that may be unuse:d
for part oftheschool day or school year. Each can provide smaller groups of students with
instruction from a highly qualified teacher for a significant block of time on a daily or regular :
basis. Each can ensure that students stay with the same teacher on a sustained basis. And none
requires students to be tracked by ability on a permanent or long-term basis.
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�CONCLUSION
A growing body of research involving large-scale, carefully controlled experiments
shows that lowering class size in the early grades will produce significant and lasting benefits for
students. The early implementation experience shows that the Class Size Reduction Program is
well on the way to helping schools throughout the country realize these benefits. The more th~n
29,000 teachers already hired under this program have helped bring about significant reduction
in class size in the early grades. Early experience also demonstrates that the program contains:
both the flexibility and the funds needed to help school districts tailor implementation to local i
needs and priorities, and to recruit, train, and hire qualified teachers.
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The Education Department's Class Size Reduction Program is part of the
Administration's comprehensive approach to improving student achievement by raising
standards, increasing accountability, improving teacher quality, and targeting help to schools and
students with the greatest need. Smaller classes will make the greatest difference if they are'
staffed with well-prepared, qualified teachers, if their schools are held accountable for helping I
students reach challenging academic standards, and if students receive extra help outside the i
classroom, through reading tuto~s, mentors, and after-school programs.
To ensure that each of these approaches receive adequate support, the President's FY ,
2000 budget pays particular attention to improving the quality of teaching in our classrooms. In
addition to the funds set aside for teacher professional development in the Class Size Reduction
Program, the President's budget requests significant increases for programs that help recruit ana
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prepare qualified new teachers, and equip them to use technology in the classroom. The budget
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also proposes significant investments in programs that train current teachers in effective
approaches to teaching reading in the early grades and meeting the needs of students with limit~d
English proficiency and other special needs. Taken together, these investments will help ensur~
that as we continue to reduce class size, there is a talented teacher in every classroom.
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Dublin Core
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Andrew Rotherham - Education Series
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Domestic Policy Council
Andrew Rotherham
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1999-2000
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<a href="http://clinton.presidentiallibraries.us/items/show/36329">Collection Finding Aid</a>
<a href="http://catalog.archives.gov/id/612954">National Archives Catalog Description</a>
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2011-0103-S
Description
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The Education Series highlights topics relating to class size reduction, test preparation, the Elementary and Secondary Education Act, charter schools, the digital divide, distance learning, youth violence in schools, teacher salaries, social promotion, Hispanic education, standardized testing, and after-school programs. The records include reports, draft legislation, memoranda, correspondence to and from organizations and community leaders that focus on education issues, articles, publications, email, and fact sheets relating to the Administration’s progress on education.
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Clinton Presidential Records: White House Staff and Office Files
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171 folders in 12 boxes
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[Local Success Stories Reducing Class Size] [Report]
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Domestic Policy Council
Andrew Rotherham
Education Series
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2011-0103-S
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Box 2
<a href="http://www.clintonlibrary.gov/assets/Documents/Finding-Aids/Systematic/2011-0103-S-edu.pdf">Collection Finding Aid</a>
<a href="http://catalog.archives.gov/id/612954">National Archives Catalog Description</a>
Provenance
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Clinton Presidential Records: White House Staff and Office Files
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