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Request a DemoIndiana governor signs legislation to hold back more third graders. Here’s who it could impact.
[Editor: The legislation for this proposal, Senate Bill 1, won approval from the General Assembly, and Gov. Eric Holcomb signed it into law March 11.
Gist
The Indiana Senate approved a bill Tuesday that could lead to thousands of more Hoosier third graders getting held back each year.
Under Senate Bill 1, a priority of both Senate Republican leadership and Gov. Eric Holcomb, schools would be required to hold back third graders who fail the state reading test unless they qualify for a narrowly-tailored exception.
The goal of Senate Bill 1, which also contains a number of more proactive measures, is to make sure all students learn how to read. In 2023, nearly one in five third graders failed the IREAD-3 test.
“While some would say retention isn’t good for a child, let’s think about this,” said bill author Sen. Linda Rogers. “What isn’t good is to move that student on without foundational reading skills.”
The bill passed out of the Senate by a 36-13 vote with four Republicans joining Democrats in opposing the bill.
What Senate Bill 1 does
Rogers, a Republican from Granger, has repeatedly emphasized that her goal is not to simply hold back more students. To her point, Senate Bill 1 does do a lot more than just strengthen retention rules, but the portion of the bill about which students to hold back has been the most controversial.
Senate Bill 1 would require schools to offer the IREAD test starting in second grade, something a majority of Indiana schools already do. Students who fail would still have to take the test in third grade as well, and would have another chance the following summer if they fail again.
That means students would have three tries to pass the test before any retention measures kicked in.
Schools also would be required to offer summer school to students in second and third grade who are not proficient in reading, but students wouldn’t be required to participate.
If none of those measures work, and a student still continues to fail the IREAD test, starting in 2025 schools would be required to hold them back unless they qualified for a “good cause exemption,” such as most English-Language Learner students, those enrolled in special education or those who have already repeated third grade.
“This is not a retention bill,” Rogers said on the Senate floor. “Retention is the absolute last resort after we have exhausted all other methods to help struggling readers.”
Rogers’ bill would add a new exception for students who fail the IREAD test but pass the third grade math exam, which would have enabled 583 students to qualify for an exception had SB 1 been in place for the 2023 school year. Most of the students who fail IREAD are also failing the math test.
According to the latest legislative fiscal analysis of the bill, an estimated additional 6,300 students could be held back in 2026 due to the change — or 16 times the number that were held back in 2023. Of the nearly 14,000 third graders who failed the IREAD test in 2023, some 400 students had to retake third grade.
Rogers is optimistic the actual numbers of students who would have to retake third grade will be much lower than estimated due to the amount of other more proactive approaches implemented under the bill.
But some people and groups have concerns about the retention piece of the bill.
During a committee hearing, Rachel Burke, a mom and former president of the Indiana Parent Teacher Association, warned the retention policies would have negatively impacted her own daughter, who failed the IREAD test in third grade after struggling with epilepsy.
Her daughter was never held back and Burke said her daughter is now in 11th grade and ranked No. 4 out of 820 students.
“Painting with broad strokes is dangerous,” Burke said. “It was apparently obvious to the educators surrounding my daughter that she just needed more time, and that time didn’t need to still be in third grade.”
Does holding back students help or hurt them?
Retention is a controversial concept in part because studies on its impact show mixed results.
A study on the impact of Indiana’s 2012-2017 retention policy found that those students who didn’t pass the IREAD and repeated third grade performed better in math and English language achievement in fourth grade than their peers with similar IREAD scores.
Other studies on similar policies in Florida, Mississippi and Chicago came to similar conclusions about the academic benefits of holding back a student in grade school.
The Indiana study, though, did not follow the students into high school, so the long-term impact on holding young students back is less clear. One 2017 Texas study found that grade school retention increased the odds of a student dropping out in high school.
Data on non-academic outcomes for grade-level retention is even murkier. The Indiana study found no statistical evidence that holding back students adversely impacted their attendance or led to more disciplinary problems. But a separate study on Florida’s policy found disciplinary issues increased among third graders that had to repeat the grade.
Vince Edwards, the principal at Fortville Elementary School, completed his doctoral dissertation at Ball State University on test-based retention policies and is regularly involved in conversations about whether to hold students back.
So he knows the pros and cons well. He thinks the current policy — which largely gives teachers, schools and parents discretion over who to advance as long as those who fail the reading test continue to receive third grade reading instruction — is a better approach than requiring across-the-board retention.
“I think it’s a legitimate intervention,” Edwards said during committee testimony on the bill, “but I also think it’s an intervention that needs to be used very sparingly and in specific cases.”
Sen. Eric Bassler, R-Washington, was one of four Republicans to vote against the bill on the Senate floor. He told the story of how he didn’t learn to read until 5th grade — and wasn’t held back — but still got the help he needed.
“That’s the thing that gives me pause is does [holding back students] have a stigma on young people that we could address in some other way?” Bassler asked.
What's next?
The bill now moves to the House, which will likely be receptive to the legislation.
House Republicans included in their list of priorities a plan to “support efforts to make Indiana the No. 1 state in the nation for third grade reading proficiency by 2027.”
All bills will have to be finalized by mid-March when lawmakers are required to wrap up the legislative session.
Update: The legislation for this proposal, Senate Bill 1, won approval from the General Assembly, and Gov. Eric Holcomb signed it into law March 11.
Contact Kaitlin Lange on X @kaitlin_lange or email her at [email protected].
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How McCormick, Braun view abortion, taxes and other key issues
A Democrat-turned-Republican and Republican-turned-Democrat will soon face off in the race to become Indiana’s next governor.
Sen. Mike Braun, who voted as a Democrat prior to 2012, captured the Republican nomination in Tuesday’s primary. Jennifer McCormick, formerly a Republican Superintendent of Public Instruction, will represent the Democrats.
Voters will decide the state’s next chief executive in November.
A State Affairs analysis of the candidates’ campaign platforms and public statements found key differences — and a few similarities — in their planned approaches to a variety of issues impacting Hoosier voters.
Here is how they match up.
Abortion
Braun: As a senator, Braun has long supported abortion restrictions.
In 2020, he called for the Supreme Court to re-examine Roe v. Wade.
In 2023, he proposed federal legislation that would have required parental notification before any unemancipated minor could seek an abortion. He said at the time: “Hoosiers put their trust in me to stand up for the unborn, and that’s what I’ve been proud to do every day in the Senate.”
He has since signaled support for the state’s abortion ban. His platform reads: “State lawmakers must work to ensure the gains we have made to protect life are secured and strengthened.”
McCormick: In a Tuesday interview with State Affairs, McCormick said her candidacy represented a referendum on reproductive rights.
“I’m going to fight to restore those rights under any authority I can, working in a bipartisan fashion, using our committees, board and our agencies. I also know, too, what everybody’s fear is: that they’re [Republicans] not going to restore those rights and will take [restrictions] further.”
From her platform: “Indiana’s Republican-led extreme abortion ban has taken away the right of women to make deeply personal decisions regarding their own health care.”
Marijuana
Braun: At a March 26 Republican primary debate, Braun suggested an openness to legalizing medicinal marijuana.
“It’s gonna hit all of us. I’m gonna listen to law enforcement — they have to put up with the brunt of it,” he said. “Medical marijuana is where I think the case is best made that maybe something needs to change. But I’ll take my cue from law enforcement there as well. … I hear a lot of input where [medical marijuana is] helpful, and I think that you need to listen and see what makes sense.”
McCormick: The Democrat’s platform also addresses medical marijuana legalization, while speculating on possible recreational use.
“We will fight for the legalization of medical marijuana as a source of state revenue established on a well-regulated marketplace and monitored by a Cannabis Task Force in order to study the issues, opportunities and potential obstructions associated with recreational marijuana legalization.”
McCormick said she would also support expunging low-level marijuana-related convictions.
Taxes
Braun: At a March 19 National Federation of Independent Business forum, Braun said the state’s property tax system “went out of whack because it couldn’t respond to inflation like we’ve never seen before.”
“The way you finance any lower taxes would be to bank on the government being run more efficiently,” he said.
His platform also calls for government spending cuts to finance lower taxes: “Reducing the size of government is the key to cutting taxes, and Mike Braun will work through every state agency to find ways to save money while delivering high-quality services to taxpayers.”
McCormick: McCormick also spoke about taxes at the March 19 forum.
“I agree with a revamp of our taxing system,” she said. “But also it’s about not just how we’re getting our revenue, it’s about our expenditures. Yes, we need to fix our gas tax. Yes, we need to look at the income tax. But here’s the thing: There are hidden taxes we’re not having a conversation about.”
Her platform also references the possibility of combining state agencies as a way to save money.
Education
Braun: In his platform, Braun supports broadening school choice and parental rights.
“As a former school board member, Mike Braun knows parents are the primary stakeholders in their children’s education and every family, regardless of income or zip code, should be able to enroll in a school of their choice and pursue a curriculum that prepares them for a career, college or the military,” the platform reads.
Braun also pledged to ensure critical race theory and discussions about gender are banned in public schools.
McCormick: Education is one of McCormick’s primary issues, according to her platform.
She calls for the elimination of statewide testing, increased early childhood reading and child care options and a minimum base salary of $60,000 for all K-12 teachers.
McCormick also addresses the state’s school choice movement.
“We will call for a pause in the expansion of school privatization efforts while requiring fiscal and academic accountability and transparency for all of Indiana schools that receive public tax dollars,” her platform reads.
U.S.-Mexico border
Braun: Braun’s television ads have touched on border security, and his platform calls for increased focus on the area.
“Joe Biden and the left have created a humanitarian and national security crisis on our southern border,” the platform reads. “As governor, Mike will continue to support and enact the America First policies that were working. Otherwise, every town will become a border town.”
McCormick: McCormick’s border-related plans are more focused on facilitating legal immigration.
“We will work with local, state and federal officials in supporting an immigrant system that creates a safe, timely, orderly and humane pathway for those seeking legal immigration while keeping our communities and those responsible for border security safe,” her platform reads.
Contact Rory Appleton on X at @roryehappleton or email him at [email protected].
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