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Texas Even Start Administrative Manual

June 2004, (Revised January 2008, September 2008)

Even Start Guidance

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National Evaluation

Since Even Start’s first year, the legislation has included an evaluation requirement at the national level. Though the legislative mandate has changed slightly over the years, the national evaluation’s basic purposes have remained the same -- to describe Even Start projects and participants, to examine the performance and effectiveness of Even Start projects, and to identify effective Even Start projects for use in program improvement and technical assistance. There have been three national Even Start evaluations since the inception of the program.

The following overall findings have emerged from the three national evaluations completed to date: 1) Even Start projects are generally able to implement the legislatively required program elements. We cannot say that all of the services provided by Even Start projects are of excellent quality, but we do know that all of the legislatively required program elements are being provided and that the letter of the law is met by all but a very few grantees. 2) On average, Even Start participants make gains on measures of literacy. These gains are generally small, particularly given the very low literacy levels of children and adults when they start the program. 3) When information has been available from a randomly-assigned control group, Even Start participants have made literacy gains; however, the gains are no greater than the gains made by members of the control group.

The latest available evidence is from the third national Even Start evaluation’s Experimental Design Study (EDS). Compared with the Even Start population, the 18 EDS projects over-represent Even Start programs that serve ESL Hispanic families in urban areas. While such over-representation means that care should be taken in applying the findings to Even Start projects as a whole, almost 50 percent of the families served by Even Start are Hispanic and about 50 percent of the projects are in urban areas. Hence, the EDS findings apply to an important and growing part of the Even Start population. The key findings include:

• While Even Start children and parents made gains on literacy assessments and other measures, children and parents in the 18 Even Start programs that participated in the EDS did not gain more than children and parents in the control group, about one-third of whom also received early childhood education or adult education services.
• Even Start serves a very disadvantaged population. Compared with Head Start, Even Start parents are much less likely to have a high school diploma, and Even Start families have substantially lower annual household income.
• Even Start children and parents made small gains on literacy measures and scored low compared to national norms when they left the program. Even Start children gained four standard score points on the Peabody Picture Vocabulary Test, the same gain made by control group children and by children in the Head Start FACES study.
• Families in the program do not take full advantage of the services offered by Even Start projects; they participate in a small amount of instruction relative to their needs and program goals.
• While the early childhood classroom experiences provided by the EDS projects were of overall good quality, there was not sufficient emphasis on language acquisition and reasoning to produce measurable impacts and hence to achieve legislative outcomes. Further study is needed to better document the quality and content of Even Start’s instructional services.
• The extent to which parents and children participated in literacy services is related to child outcomes.

Each of the national evaluations has shown that Even Start is a complicated program that takes time to understand and implement fully. The focus on literacy for the family as a unit is a special challenge, as is the requirement to build on existing services to create a unified family literacy program in a community. Maintaining a literacy focus and ensuring that collaborators share the goals and objectives of Even Start are critical factors, since Even Start projects are held accountable for literacy outcomes, regardless of collaborators’ objectives. By integrating the four core instructional components, Even Start projects seek to provide a value-added dimension to families’ literacy experiences and outcomes. These characteristics make Even Start unique and exciting, but also difficult to evaluate.

The Department is implementing several strategies to help States and local projects improve program performance, in part, to directly respond to findings from the Third National Even Start Evaluation. ED is working with States and local projects to strengthen the quality of each instructional component and identify examples of local projects that are achieving significant results in student achievement. In addition, ED will conduct a peer review of State indicators of program quality to ensure that all States have indicators that reflect high standards, use appropriate assessment tools, and allow States to use their indicators to monitor and improve local projects. Also, ED is helping to improve the quality of State and local evaluations through development of a revised guide to local evaluation and accompanying technical assistance.

Classroom Literacy Interventions and Outcomes Study (CLIO) (2003-07)

Research evidence from previous national Even Start evaluations has prompted an evaluation effort to identify effective family literacy models. Two experimental evaluations have shown that Even Start projects, as currently implemented, have not been effective at increasing the literacy skills of participating children and their parents over and above that of control children and their parents. The CLIO study will test the effectiveness of various enhanced family literacy interventions in promoting: (a) literacy and other school readiness skills in low-income children; (b) parent literacy; and (c) parent involvement as teachers of their own child, especially in the area of early literacy. The goal of the CLIO study is to provide information for Even Start family literacy projects on the literacy gains made by children and parents who participate in projects offering different family literacy curricula.

Local Evaluation

Each Even Start project is required to conduct an independent evaluation of the program to be used for continuous program improvement. (Section 1235(15)) These evaluations are generally conducted annually and provide local projects with critical information on individual participant achievement results and areas of program strength and weakness. These evaluations also provide local projects, States, the Department, and the Congress with objective data about the activities and services provided by the project, all the participants served, the retention rates of those participants, and the achievement of all families in the project. (See Local Administration – Program Element #15 for more information.)

Indicators of Program Quality

Section 1240 requires each State that receives Even Start funds to develop indicators of program quality to use in monitoring, evaluating, and improving local Even Start programs within the State.

In addition, the Department encourages States to develop performance standards and benchmarks for each program indicator and use them for increased local program accountability and program improvement. Development of a complete system of accountability -- comprised of indicators of program quality and performance standards and benchmarks -- is important so that each State will have its own uniform and workable method to measure and evaluate whether or not local programs have made sufficient progress and improvement in participant outcomes. This accountability system will give each State objective and explicit data on which programs are showing gains in participant literacy, which ones need technical assistance and in what areas, and which programs should or should not receive continued funding.

Starting in 2003, the Department will also use it monitoring authority, under the General Education Provisions Act: (20 USC 1232f(b), 1234(c), and 1234(f)), to perform a peer review of States’ Even Start performance indicators. The review process will be used to ensure that all States have indicators that reflect high standards, and use appropriate assessment tools, and that States are able to use their indicators to monitor and improve local Even Start programs and participant literacy achievement results.

Federal Even Start funds are not the only source of funding for family literacy programs. Funding for family literacy programs or for individual components of a family literacy program may come from a variety of sources at the Federal, State, and local levels.

Common Definition of Family Literacy

The following Federal legislation shares a generally common definition of “family literacy services”:

• Elementary and Secondary Education Act of 1965 (as amended by the No Child Left Behind Act of 2001)
• Head Start Act of 1998
• Adult Education and Family Literacy Act (Workforce Investment Act)
• Community Services Block Grant Act

Title I, Part A

Title I, Part A of the ESEA provides formula grants to LEAs to improve the teaching and learning of children in high-poverty schools to enable them to meet challenging academic content and performance standards. The program emphasizes parental involvement and encourages each school to provide training to help parents work with their children to improve their school achievement.

Schools may use Title I, Part A funds to provide necessary literacy training for parents if all reasonably available sources of funding have been exhausted, and they are encouraged to work with communities to provide health, nutrition, and social services that are not otherwise available to the children being served. LEAs must reserve at least one percent of their Title I, Part A allocations for parent involvement activities including promoting family literacy and parenting skills, unless the one percent is $5,000 or less. (Section 1118(a)(3)) Title I, Part A funds may also be used for preschool programs for educationally disadvantaged children who reside in high-poverty areas.

In addition, section 1111(c)(14) requires SEAs to encourage LEAs and individual schools participating in Title I, Part A programs to offer family literacy services (using Title I, Part A funds), if the LEA or school determines that a substantial number of disadvantaged students have parents who do not have a high school diploma or its recognized equivalent or have low levels of literacy. (For additional information on Title I, Part A, go to http://www.ed.gov/programs/titleiparta/index.html.)

Early Reading First, Title I, Part B, Subpart 2

The Early Reading First program provides competitive grants to eligible school districts and other public and private organizations located in those school districts, to transform existing early education programs into centers of excellence that provide high-quality, early education to young children, especially those from low-income families. The overall purpose of the Early Reading First program is to prepare young children to enter kindergarten with the necessary language, cognitive, and early reading skills to prevent reading difficulties and ensure school success.

A variety of preschool programs located in eligible school districts, including Even Start family literacy programs, may apply for Early Reading First funds. All programs receiving Early Reading First grants must demonstrate how they: provide children with a high quality language- and literature-rich environment; provide professional development for staff in research-based early language and reading development; use a language and early literacy curriculum based in scientific research; and use screening assessments to effectively identify preschool-age children who may be at risk for reading failure. As Even Start programs primarily serve children from ages birth through seven, they are well equipped to ensure that there is continuity between preschool and kindergarten educational experiences, which is a key objective of the Early Reading First program. (For additional information on Early Reading First, go to http://www.ed.gov/programs/earlyreading/index.html.)

Migrant Education , Title I, Part C

The Migrant Education program (MEP) authorizes States to design services that bridge gaps in a student’s education caused by his or her parents’ moves to work in agriculture and other qualifying industries. Each State designs its services by giving priority to migratory children who are failing, or most at risk of failing, academically and whose education has been interrupted during the regular school year. Because of the nature of the migrant family lifestyle, migrant education programs generally coordinate resources and integrate services using Federal sources including Title I, Part A, State-administered Even Start, 21 st Century Community Learning Centers, Head Start, and Migrant and Seasonal Head Start programs, as well as State and local education, health, housing, and other programs. State and local migrant programs have also developed a wide array of strategies that enable projects that serve the same migrant students to communicate and coordinate with one another.

Family literacy activities are among the allowable strategies cited in section 1304 to meet the unmet needs of preschool migratory children. Migrant education funding is derived from a count of eligible children ages 3-21. Migrant education funds may provide family literacy services to children from birth and to their parents as well, depending on the State’s priority for providing services to migrant students. States and local migrant education projects, therefore, may choose family literacy as a means to serve migrant children and their parents.

It is important to note that, for highly mobile migrant families, progress in reaching literacy goals may require access to family literacy services that operate across school district, State, program, and national boundaries. Migrant Education Even Start (MEES), a set-aside program in Title I, Part B, Subpart 3 of the ESEA, is strengthening the capacity of its grantees to provide high-quality intensive services on a year-round basis. With planning, collaboration, and coordination that includes education funding, as well as community-based and volunteer programs, migrant education programs can leverage family literacy services no matter where migratory agricultural families travel to work and live. (For additional information on Migrant Education, go to http://www.ed.gov/about/offices/list/oese/ome/index.html.)

Head Start

Head Start provides comprehensive early childhood, health, disabilities, and family support services to 905,000 young children from low-income families, including more than 55,000 infants, toddlers, and pregnant women. Head Start's historic focus on serving economically disadvantaged young children through a two-generational strategy of early childhood and parent services meshes well with the goals and strategies of Even Start. Many local Head Start agencies are collaborating with Even Start programs, adult education providers, and other family literacy organizations in providing family literacy services. The Head Start and Even Start legislation share a common definition of "family literacy services”. The HHS Head Start Bureau and ED are partnering in a variety of initiatives, including national leadership forums, a major jointly funded training and technical assistance project with the National Center for Family Literacy, and joint efforts to develop outcome measures for local programs.

Adult Education

The Adult Education and Family Literacy Act (Title II of the Workforce Investment Act) provides important resources to fund the adult literacy component of a family literacy program. The three most common types of instruction that States support through adult education grants are: adult basic education for basic literacy services for adults whose skills are below the eighth grade level; adult secondary education for services designed to prepare students to obtain a high school equivalency diploma; and English literacy services for adults with limited English proficiency. Adult education funds may also be used in family literacy programs for support services such as child care and transportation. (For additional information on Adult Education, go to http://www.ed.gov/about/offices/list/ovae/index.html.)

Bureau of Indian Affairs

The BIA/Office of Indian Education Programs funds family literacy programs that are similar to Even Start family literacy programs. The Family and Child Education (FACE) program is implemented in 32 Bureau-funded schools, integrated within each school’s Consolidated School Reform Plan, and adopted as a research-based school reform model. FACE funds are provided to Bureau-funded schools to implement unique and culturally appropriate family literacy models.

FACE serves American Indian families with children ages birth to eight at home and at Bureau-funded schools. The requirements for enrollment are that families served live within the boundaries of a Bureau-funded school to which their children attend or would be eligible to attend upon reaching school age. FACE is a full-day program operating four days per week with one day set aside for planning. FACE operates on a school-year basis. Technical assistance is provided in an ongoing commitment to all FACE staff, K-3 teachers and school administrators at national meetings and on-site. Other non-Bureau programs such as Even Start and Indian Head Start have participated in the technical assistance trainings.

Education for Homeless Children and Youth, (McKinney-Vento Act)

Title X, Part C of the No Child Left Behind Act amended the McKinney-Vento Homeless Assistance Act, which authorizes State formula grants for the Education for Homeless Children and Youths program. The McKinney-Vento Act was enacted to confront the problems of homelessness in this nation and mandates State action to ensure that State and local educational agencies address barriers to the enrollment, attendance, and success in school of children and youth who are experiencing homelessness.

The McKinney-Vento program establishes an Office for the Education of Homeless Children and Youths in participating States and a local liaison in all LEAs. One of the duties of the local education agency liaison is to ensure that homeless families and pre-school-aged children receive educational services such as Even Start family literacy programs, if needed. LEA subgrants may be used to support developmentally appropriate early childhood education programs, not otherwise provided through Federal, State, or local funding, for preschool-aged homeless children. (For additional information on Education for Homeless Children and Youth, go to http://www.ed.gov/programs/homeless/index.html.)

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April 4, 2000

SUBJECT: Categorical Eligibility of Pre-Kindergarten Even Start Participants for Free Meal Benefits

TO: Regional Directors
Special Nutrition Programs
All Regions

Public Law 105-336, enacted October 31, 1998, reinstated categorical eligibility for pre-kindergarten Even Start participants participating in the Child and Adult Care Food Program (CACFP), beginning October 1, 1998. This memorandum supersedes our June 1995 guidance and sets forth operational guidance consistent with statutory changes. Furthermore, this memorandum extends this categorical eligibility provision to the National School Lunch Program (NSLP), the School Breakfast Program (SBP), the Special Milk Program for Children (SMP), and closed enrolled sites in the Summer Food Service Program (SFSP).

What is categorical eligibility?

To apply for free meal benefits under the Child Nutrition Programs, most households must submit a completed application indicating the household size and income. The official designated to approve applications compares the information submitted by the household to the Income Eligibility Guidelines that we issue annually to determine their eligibility for free and reduced price benefits. However, certain participating children are eligible for free meals based on their participation in other Federal programs (i.e. categorical or automatic eligibility), such as the Even Start Family Literacy Program.

What are the criteria for Even Start categorical eligibility?

For a child to be categorically eligible for free meals based on their participation in Even Start, three criteria must be met. First, the school or institution that is providing the child with Even Start services must be participating in CACFP, NSLP, SBP, SMP or SFSP. Second, the child must be enrolled as a participant in a Federally-funded Even Start Family Literacy Program. Third, the child must be at the pre-kindergarten level. Once a child has entered kindergarten, that child loses his or her categorical eligibility for free meals based upon Even Start. Additionally, categorical eligibility does not apply to other family members.

What documentation is required for categorical eligibility?

• Required documentation – To establish categorical eligibility for free meals in the CACFP, NSLP, SBP and SFSP or for free milk in the SMP, documentation of a child’s participation in a Federally-funded Even Start program and documentation that the child is at the pre-kindergarten level must be provided by an Even Start official.

Documentation of a child’s Even Start participation could include:

• An approved Even Start application for the child’s family; or
  
• As statement of enrollment in Even Start; or
  
• A list of children participation in Even Start.

Confirmation that the child has not yet entered kindergarten must be included in the documentation from the Even Start official.

• Re-Certification of Categorical Eligibility – At the beginning of each year, the official responsible for determining eligibility for free and reduced price meals in the CACFP, NSLP, SBP, and SFSP or free milk in the SMP must re-establish categorical eligibility for each Even Start child.

• Record Retention – The documentation of a child’s Even Start participation, including confirmation that the child has not yet entered kindergarten, must be maintained on file in accordance with the regulations governing the Child Nutrition Programs. These records must be readily available for review by the Department of Agriculture, the State agency, and other appropriate agencies.

What happens when categorical eligibility ends?

When a child is no longer categorically eligible for free meals under the criteria set forth in this memorandum, the child’s family must be provided an opportunity to apply for free and reduced price meals under standard free and reduced price application procedures of to obtain free meal benefits through direct certification. The school or institution is responsible for providing the family with instructions on how to apply for these benefits.

Please share this information with your State agencies as soon as possible. If you have any questions, please contact Mary Jane Whitney at (703) 305-2620.

SIGNED

STANLEY C. GARNETT
Director
Child Nutrition Division

Source: http://www.ed.gov/programs/evenstartformula/legislation.html?exp=0

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