No child left behind?

For five years since the No Child Left Behind federal law was enacted, there's been one constant: change.

As lawmakers across the country have pushed for changes in various sections of the law to make it more accommodating, or at least possible for their public school constituents to follow, there's yet another change on the horizon. By the end of this year, federal lawmakers say the law concerning special education students and recent immigrants who speak little or no English will be rewritten.

The aim is to inject more common sense into the law while sticking with its original promise to leave no child behind.

It's looking doubtful that the changes will be in place by the end of 2007. Currently, the law requires schools to have all students reading and doing math on grade level by 2014. That mandate includes special education students and children who are just learning English.

Michael Petrilli, who wrote a book about the law and helped oversee the first years of its implementation through the U.S. Department of Education, admits the No Child Left Behind law was not well designed for the two groups of students. "They are not going to meet the same standards at the same pace as other students."

Special education officials have been particularly vocal, calling the mandates unreasonable, even impossible, to reach.

"It's like saying we're going to put every child on a professional football team and expect them to perform at that level," said Lisa Highfield, the special education coordinator for Muscle Shoals schools.

"This law has forced us to put higher expectations on all kids and, in a way, that's good," she said. "But a lot hinges on intelligence quotient and that doesn't always accurately reflect what a child can do. It certainly doesn't reflect motivation of the kids taking tests."

There are many children whose IQs can't accurately be determined through testing. Autistic children often fall into that category, educators say.

Frankie and Karen Holt, of Muscle Shoals, have two daughters in seventh grade at Muscle Shoals Middle School. Both are on the general curriculum tract, but each has an Individual Educational Plan, a written protocol for their school day regarding academics and behavior. Morgan is 13 and has Asperger's Syndrome, a disorder in the autism spectrum that means she is high functioning but lacks certain social skills. She does well academically, making A's and B's.

Addison, 12, is autistic and her school curriculum is modified. She flaps her hands and makes impromptu noises. She can't reason well enough to comprehend directions for taking a standardized test, much less answer the questions correctly. On the other hand, she is gifted in the use of computers and in writing. Still, according to the prescribed outlines in No Child Left Behind, Addison must take the same tests as the general student population.

"It's absolutely ridiculous that she has to take those tests," Karen Holt said, adding that she understands the school is just following the law. "Working a two- or three-step math problem won't help her. She needs to know how to pay a cashier and expect change back. We've asked for alternate assessment for her but they can't legally do it, so she just has to sit there, not having a clue what she's doing on tests. It's frustrating for all of us."

Only 1 percent of the students in a district are allowed to take the alternate assessment, an easier, scaled-down version of material taught to reflect a separate set of standards and skills. To qualify for alternate assessment, a student must have an IQ score of 55 or below. Students scoring 56 and above are expected to take the standardized tests from the general curriculum. It's difficult, sometimes impossible, to get an accurate IQ reading on an autistic child, so Addison wasn't a candidate for alternate assessment. As a result, her teachers have to acclimate to her learning environment and learning style, while trying to control her sometimes sporadic behavior.

Meeting the testing needs of students in the IQ range of 56 to 65 is also a need the state has recognized, according to Brooke Bowers, the acting special education director for Lauderdale County schools.

"The state is working on this within the guidelines the federal government has given them," Bowers said. "Essentially, what we're trying to get is a second alternate assessment that hits this middle ground for kids in this 56 to 65 range who only have (academic abilities) of a very young child. It's about doing what's best for the child."

And what's best for the child is most often decided locally, by an IEP committee of the child's parents, teachers and administrators. According to Highfield, those decisions are increasingly being taken away from the IEP committee, in lieu of children being placed according to IQ status.

It's Highfield's contention that children like Addison would be better served through alternate assessment. That way, she could be evaluated not only in a way that she could respond, but in areas that benefit her.

"Doing what's best for children should still be our priority," Highfield said. "I certainly can understand the frustration the parents feel, because our hands are tied at the school level, also."

Adding to the dilemma is the stress placed on school systems that fail to meet standards set for school districts. If certain groups of students fail to meet specific goals, entire schools can be labeled as needing improvement. They face such repercussions as having to replace teachers and principals. Critics say that places enormous pressure on the lagging groups of students.

Karen Holt says she's sure Addison is "dragging down the numbers" and it bothers her greatly.

"I want the school to do well, overall, on all of its evaluations, and I don't know of a parent anywhere who wants his child to be the reason it doesn't do well," she said. "I want the school to push Addison, not baby sit, but I also know that these standardized tests she's taking aren't helping her a bit, they're just for the state. It's not helping her prepare for life in a group home when she's an adult or to have independence. For us, it just all comes down to that almighty IQ number."

Gloria Turner, director of assessment for the Alabama Department of Education, said the state is still investigating what can be done for those children who don't meet the criteria for alternate assessment.

"The State Department established the cutoff of 55 on the IQ test after looking at what 1 percent would be," Turner said. "The number of children who don't fall into that IQ categorization is small."

Turner said that if there is an additional assessment offered, it would have to be at grade level expectations, unlike the alternate assessment.

Even then, students like 13-year-old Adam Thomas, a member of the special needs class at Rogers School, could be in over his head academically.

Adam has Down syndrome. With an IQ of 58, his mother, Geanice, likens his academic ability to that of a 2-year-old. Until he was reassessed two weeks ago, Adam was on track to take all the standardized tests of the general curriculum.

"The school has done great with Adam, and his teachers know he's not capable of taking those tests," Geanice Thomas said, adding that Adam doesn't read and can't "bubble in" answers within the lines. "I don't know exactly what they'll do for testing purposes with him, but we're told he won't be taking the same standardized tests as the regular education kids. When I see how hard that school has worked to help Adam, it upsets me to think that the state would insist on testing him and pulling the school (scores) down. It's the craziest thing I've ever heard."

The Russellville school district, with its 31 percent Hispanic student population, is doubly challenged. Not only are many students not proficient in English, the district also serves all of Franklin County's special needs students.

"It is absolutely unrealistic to think that all students can be proficient by 2014," said Wayne Ray, Russellville's superintendent of education. "It's just not going to happen."

The law requires annual testing in reading and math in third through eighth grades and once in high school.

Roughly 10 percent of the nation's special education students - those with the most severe disabilities - take alternative tests under the law. Though easier than the regular exams, critics say the tests are still too difficult for some children. So, in addition to the small percentage who get the special test, the U.S. Education Department is considering allowing about one-fifth of the rest of the special education students to take alternative tests. They'll be harder than those tests given to the first group but easier than the typical tests.

There is still debate about the overall total - about 30 percent of special education students - being the right proportion of students to single out and whether states should be able to set their own policies.

U.S. Rep. Dale Kildee, of Michigan, who is in charge of the House subcommittee with jurisdiction over the education law, argues against making hasty changes.

"We're very cautious in changing so we don't have (schools) lose sight of the fact that they have to serve those kids well," Kildee said.

Janice Curtis, a longtime special education teacher at Rogers School, said she's careful not to blame all school shortcomings on No Child Left Behind.

"Sure, I have some negative opinions about No Child Left Behind, but I'm not willing to completely bash it either," she said. "The truth is, special education teachers everywhere could do a better job. We do need changes in the law, but it's also put a lot of teachers on their toes, and that's a good thing."

Another proposal being considered would give schools credit if their students, including those with disabilities or those learning English, make strides but fall short of a specific goal.

Lisa Singleton-Rickman can be reached at 740-5735 or lisa.singleton-rickman@timesdaily.com.

The Associated Press contributed to this report.