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Tutoring, a key in No Child Left Behind, is raising questions

Schools, agencies spar on rules for US-funded service

WASHINGTON -- It sounded simple: Help low-income students perform better in public schools deemed in need of improvement by giving them tutors. And let the federal government pick up the tab.

But what seemed to be an easy way to address a component of President Bush's No Child Left Behind Act has become anything but. The federal government, state education departments, local school systems, and many of the 1,700 or so private education companies offering tutoring are battling over complex rules. Just who can tutor what, to whom -- and where?

''Nobody really knows how effective the providers are, in a highly valid way, with regard to helping kids," said Steven M. Ross, director of the Center for Research in Educational Policy at the University of Memphis. He is helping several states to devise statewide assessment tools.

Under No Child Left Behind, schools that fail to make adequate yearly progress and are deemed in need of improvement must offer eligible parents a choice: Change schools or use free after-school tutoring services. Eligibility is offered to low-income children who attend Title I schools, institutions at which a percentage of children qualify for free and reduced-price lunches on the basis of family income.

The number of students receiving tutoring under the program is expected to exceed last year's estimated 300,000, and accountability has emerged as the key issue.

Tutoring companies have said they can prove that they are effective. And some parents have said their children are being helped. Harriet Davis of Washington, D.C., said her son, Kasey, 11, got slightly better grades at year's end at Stuart-Hobson Middle School because of two hours a week of after-school tutoring by Catapult Learning, a leading private Supplemental Education Services provider. Kasey said he thought his reading comprehension improved.

State officials have said they need broader, more precise measurements. The first systemwide effort to attempt an evaluation was released recently by the Chicago school system, which had more than 60,000 students in 343 schools tutored under Supplemental Education Services in 2004-05. Officials concluded that they could not make broad deductions about whether the tutoring programs were working.

In addition to evaluation, smaller issues are causing major headaches, school administrators have said.

Should private tutors, for example, have access to school buildings? They do in the nation's capital because children can be tutored after school, Supplemental Education Services coordinator Tamika Maultsby said. In Los Angeles, however, tutors will not have such access next year; the program coordinator, Becki Robinson, said there is no room because the LA Unified School District runs so many other after-school programs.

Another issue: Can a school system break its contract with a private company whose tutors do not show up? Chicago school officials this year learned the hard way that the answer is complicated. Ginger Reynolds, the Illinois assistant superintendent for teaching and learning, said only the state -- not the local school system -- can approve providers and remove them from the list. So Chicago succeeded in ousting only a few providers, for flagrant violations. As a result, the state has just issued additional guidelines to strengthen the oversight of providers.

''It's incredibly difficult to implement this program," said Elizabeth Swanson, director of after-school programs in Chicago's public schools. ''This year, we are going to have 230,000 eligible children in 400 schools."

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