A r c h i v e d I n f o r m a t i o n

Biennial Evaluation Report - FY 93-94

Chapter 105

Federal, State, and Local Partnership for Educational Improvement

(CFDA No. 84.151)

I. Program Profile

Legislation: Chapter 2 of Title I of the Elementary and Secondary Education Act (ESEA) of 1965, as amended (20 U.S.C. 2911 et seq.) (expires September 30, 1999).

Purpose: To help State education agencies (SEAs) and local education agencies (LEAs) improve elementary and secondary education, meet the special educational needs of at-risk students, and support effective schools programs. SEAs and LEAs have discretion over the design and implementation of Chapter 2 programs.

Funding History

Fiscal Year	Appropriation	Fiscal Year	Appropriation
1982	$442,176,000	1989	$462,977,000
1983	450,655,000	1990	457,198,000
1984	450,655,000	1991	449,884,000
1985	500,000,000	1992	450,000,000
1986	478,403,000	1993	435,488,000
1987	500,000,000	1994	369,500,000
1988	478,700,000

II. Program Information and Analysis

Population Targeting

The statute contains no specified targeting provisions. However, SEAs are required to distribute funds to LEAs based on a State-determined formula that is adjusted to provide higher per pupil allocations to those districts with students whose education imposes a higher than average cost. SEAs and LEAs also have discretion to target Chapter 2 funds on groups such as students at risk of failure in school and of dropping out, students participating in gifted and talented and early childhood education programs, and educational personnel who could benefit from staff development.

Chapter 2 activities tend to serve all types of students, focusing neither on particular grade levels nor on particular students groups. The data from the national evaluation show that in larger school districts, Chapter 2 funds often are targeted for projects serving disadvantaged and at-risk students (III.1). In 1991-92, the average amount of Chapter 2 funds spent for projects serving disadvantaged students per district was $4,369; for the largest school districts, the amount was about $150,000 per district.

Services

Chapter 2 supports a wide array of activities--programs of professional development, programs using library or other instructional materials, and programs and services for students. Other than trends in expenditures, there is no defining characteristic or theme across Chapter 2 activities. All types of educational programs, activities, positions, and purchases have been funded by Chapter 2. The national evaluation found the following (III.1):

The six targeted assistance areas (mandated by the 1988 Amendments) have not served their intended purpose of focusing Chapter 2 on educational improvement because of their broad, vague, and overlapping nature. In most districts, they did not function in any way as a guiding factor in deciding how to spend Chapter 2 funds.
Approximately half of SEA Chapter 2 allocations are spent to deliver technical assistance services to districts and schools. Chapter 2-supported technical assistance at the local level generally translates into support for professional development activities (average amount was $3,510 in 1991-92) and innovative programs (average amount was $2,468 in 1991-92).
Local school districts targeted 40 percent of their total Chapter 2 allocations to programs to acquire and use library materials, computer software or hardware, and other instructional or educational materials. The mean amount was $11,239. LEAs allocated 16 percent of their funds for programs to serve students who are at risk or whose education entails higher-than-average costs.
In 1991-92, LEAs reported that the greatest expenditures to serve private school students were in the areas of instructional resource support (87 percent of districts) and computer hardware/software applications (45 percent).
At the local level, teachers are the largest group of staff supported by Chapter 2 funds (almost 51 percent of all staff supported by local Chapter 2 funds).

Program Administration

The Chapter 2 study (III.1) also found the following:

In 1991-92, $446 million in Chapter 2 funds were allocated to SEAs and local school districts. Local agencies received 81 perent of these funds; the rest were retained at the State level. In 1991-92 across districts of all sizes, the median amount of Chapter 2 funds at the local level was $8,410 and the mean amount was approximately $27,900.
The total allocation for administration by 50 States in 1991-92 was $14,197,627. SEAs perform a variety of administrative tasks, including: processing local applications, disbursing LEA grants, coordinating SEA programs, monitoring and evaluating State and local projects, operating Chapter 2 State Advisory Committees, disseminating State and Federal guidelines, providing technical assistance on regulations and educational programs, conducting on-site reviews and visits, and organizing periodic meetings for local Chapter 2 personnel.
At the local level, the goal of reduced administrative burden has been achieved, and only a small amount of Chapter 2 funding ($12,236,155, or 7 percent to 8 percent in 1991-92) was allocated to program administration.
There is typically no relationship between Chapter 2 administration and decisionmaking at the State level, with decisionmaking authority vested in a few hands at high levels of State education bureaucracies. Chapter 2 State Advisory Committees are not influential in SEA decisionmaking. Their input is acknowledged, but their role is strictly advisory.
SEAs tend to minimize accountability requirements. The accountability strategies used most often by SEAs for local Chapter 2 programs include review of LEA applications, review of LEA evaluations, and review of LEA documentation. Fewer than half of the SEAs indicated that they conduct yearly evaluation studies. Local accountability mechanisms are influenced largely by SEA accountability requirements that focus on assessing compliance with Federal and State regulations and on fiscal accountability.
In each State, on average, 314 district staff members are supported by local Chapter 2 funds (III.2).

III. Sources of Information

How Chapter 2 Operates at the Federal, State and Local Levels (Menlo Park, CA: SRI International, 1994).
Summary of Chapter 2 Annual Reports (Menlo Park, CA: SRI International, February 1994).

IV. Planned Studies

During FY 1990, the Department contracted with SRI International for a statutorily mandated national study of effective schools programs to describe such programs and the effects of Federal, State, and local policies and funding sources on such programs. The study has focused in particular on the use of Chapter 2 State funds to support and leverage effective schools strategies. The study has also attempted to assess the impact of such programs on students and schools. The final report was due in 1994.

V. Contacts for Further Information

Program Operations:: Daniel F. Bonner, (202) 260-2517
Program Studies:: Barbara Coates, (202) 401-1958

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