HOUSE OF REPRESENTATIVES STAFF ANALYSIS
BILL #: CS/HB 7011 PCB ELE 21-01 Student Literacy
SPONSOR(S): Education & Employment Committee, Early Learning & Elementary Education Subcommittee,
Aloupis
TIED BILLS: None IDEN./SIM. BILLS: SB 1898
REFERENCE ACTION ANALYST STAFF DIRECTOR or
BUDGET/POLICY CHIEF
Orig. Comm.: Early Learning & Elementary 16 Y, 0 N Wolff Brink
Education Subcommittee
1) PreK-12 Appropriations Subcommittee 13 Y, 0 N Bailey Potvin
2) Education & Employment Committee 19 Y, 0 N, As CS Wolff Hassell
SUMMARY ANALYSIS
Research shows that implementation of science-based reading instruction, i.e., evidence-based practices
supported by student outcomes, is the most effective way to teach children how to read, even children with
learning difficulties such as dyslexia. Parental involvement and a literacy-rich home environment have also
been shown to improve student literacy skills.
The bill requires the implementation of a Voluntary Prekindergarten through grade 8 Progress Monitoring
System beginning in the 2022-2023 school year. The system must be designed to provide Florida educators
with sufficient, high quality data to identify students with substantial deficiencies in reading and monitor the
effectiveness of interventions through continuous data collection.
The bill establishes the Reading Achievement Initiative for Scholastic Excellence (RAISE) Program, a system
of statewide literacy supports provided through 20 regional literacy expert support teams. The teams must
support schools identified as requiring assistance based on data from the progress monitoring system and
results from statewide, standardized English Language Arts assessments. Supports must include the provision
of evidence-based professional development and implementation of data-informed instruction using high-
quality instructional materials as well as effective interventions through the school’s multi-tiered system of
supports, and school improvement plans and school district reading plans.
The bill supports implementation of these programs by enhancing evidence-based teacher and administrator
training, requiring that the reading endorsement credential be updated, and providing for a new pathway to
earn the reading endorsement. Additionally, the bill requires participants in certain teacher preparation
programs to complete the reading endorsement competencies prior to graduation. The bill requires the Just
Read, Florida! Office to identify, as part of the instructional materials adoption process, instructional materials
that implement evidence-based practices and are accompanied by appropriate professional development and
streamlines the process by which school districts adopt identified instructional materials.
To support parents, the bill requires that school districts keep parents of struggling readers informed of their
students’ progress and the effectiveness of interventions, provide them materials explaining the exceptional
student education process, and notify parents of students who are evaluated for exceptional education
services or who require accommodations of school choice options. The bill also requires the Office of Early
Learning and early learning coalitions to provide guidance and planning to assist with the transition from
prekindergarten to kindergarten.
The bill will have a fiscal impact for the implementation of the progress monitoring system and the RAISE
program literacy supports. See Fiscal Analysis & Economic Impact Statement Section.
The bill provides an effective date of July 1, 2021.
This document does not reflect the intent or official position of the bill sponsor or House of Representatives .
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 FULL ANALYSIS
I. SUBSTANTIVE ANALYSIS
A. EFFECT OF PROPOSED CHANGES:
Background
In 2000, the National Reading Panel issued a final report after a years’ long analysis of available
research on how children learn to read and the most effective reading instruction methods.1 The
science of reading, supported by the findings of the National Reading Panel, focuses on teaching in five
components of reading: phonemic awareness; phonics; fluency; vocabulary; and comprehension.2
Research shows that instruction based on the science of reading is proven to provide students the
foundational skills needed to learn to read, even for those students with reading difficulties, such as
those with dyslexia.3
In response to the report’s findings, Florida made sweeping policy changes to incorporate the science
of reading into public school instruction. Florida implemented the Just Read, Florida! initiative;4 a
kindergarten through grade 3 reading policy, including a policy for retaining 3rd grade students who
read far below grade level;5 the federal Reading First program (funded by a grant from the United
States Department of Education);6 and established the reading endorsement credential to recognize
teachers who complete extensive training based on the science of reading.7 In 2006, Florida
implemented the requirements for the school district Comprehensive Research-Based Reading Plans
(CERP) and established the Just Read, Florida! Office (JRFO) within the Florida Department of
Education (DOE) to monitor and assist with statewide implementation.8
Florida’s efforts to improve reading instruction were reflected in the state’s results on the National
Assessment of Education Progress (NAEP), an assessment administered nationally every 2 years to
measure student knowledge across subject areas.9 Florida’s 4th grade reading scores improved
significantly between the 1998 and the 2007 assessments, with the average score rising 18 points, and
surpassing the national average.10 However, since the 2007 NAEP, Florida’s reading results, after a
period of continued improvement, regressed to near 2007 levels based on the 2019 administration of
the assessment.11
In 2017, in order to help more students receive evidence-based instruction from highly trained
instructional personnel, the Legislature required that the JRFO:
 identify proven reading instruction and intervention programs that incorporate explicit
systematic, and sequential approaches to evidence-based instruction;
1
National Reading Panel, Teaching Children to Read: An Evidence-Based Assessment of the Scientific Research Literature on
Reading and Its Implications for Reading Instruction (Apr. 13, 2000), available at
https://www.nichd.nih.gov/sites/default/files/publications/pubs/nrp/Documents/report.pdf.
2
Kymyona Burk, Ed.D, Foundation for Excellence in Education, How the Science of Reading is Transforming Education and
Opportunities for All Students, presentation before the Early Learning & Elementary Education Subcommittee, (Jan. 14, 2021).
3
Id. (As described in the National Reading Panel Report and summarized by Dr. Burk in her presentation to the subcommittee,
instruction and interventions based on the science of reading are evidence-based instruction and interventions.)
4
The initiative was established by Governor Jeb Bush in 2001. See Exec. Order No. 01-260 (2001).
5
Section 1008.25, F.S. The law requires that 3rd grade students that are severely below grade-level, and do not qualify for a good
cause exemption, must be retained. Students are severely below grade-level if they fail to achieve a Level 2 or higher on the statewide
standardized English Language Arts assessment. Students retained under this provision must receive intensive interventions and be
taught by a highly effective teacher certified or endorsed in reading. See s. 1008.25(5) and (7), F.S.
6
Cari Miller, Florida Department of Education, Office of Early Learning, Overview of Literacy Policy and Practice to Support
Educators & Improve Student Outcomes, presentation before the Early Learning & Elementary Education Subcommittee, (Feb. 16,
2021).
7
Id.
8
See s. 1011.62, F.S., and ss. 8 and 50, ch. 2006-74, L.O.F.
9
Kymyona Burk, Ed.D, Foundation for Excellence in Education, How the Science of Reading is Transforming Education and
Opportunities for All Students, presentation before the Early Learning & Elementary Education Subcommittee, (Jan. 14, 2021).
10
Id.
11
Id.
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  coordinate with the Lastinger Center for Learning at the University of Florida to develop training
for teachers, reading coaches, and principals on integration content knowledge-rich texts from
other core subject areas into reading instruction and evidence-based reading strategies; and
 review teacher certification and alternative certification requirements to determine whether skills
needed for evidence-based reading instruction are measured.12
The Legislature also required the DOE to review, by July 1, 2018, and at least once every 5 years
thereafter, specialization and coverage area requirements in the elementary, reading, and exceptional
student educational areas and recommend updates based upon any instructional or intervention
strategies identified by the DOE as proven to improve student reading performance.13 Additionally, the
uniform core curricula used by teacher preparation programs and educator preparation institutes must
include scientifically researched and evidence-based reading instruction strategies that improve reading
performance for all students.14 Full implementation of these policies has yet to occur and their impact
on instructional quality and student learning remains unclear.
Teacher Training and Certification related to Evidence-based Practices
Present Situation
Teacher Training in Evidence-based Practices
Effective implementation of evidence-based instruction relies on a teacher’s use of assessment and
data analysis to monitor student progress and guide instruction.15 Such instruction develops and
facilitates students’ development in the five components of reading and must be differentiated to each
student based on his or her needs.16 To assist with uniform implementation of effective instruction, the
DOE implemented a Multi-Tiered System of Supports (MTSS) for providing interventions through
targeted instruction and supplemental supports to students who require additional assistance with
reading.17 Florida’s MTSS tailors instruction and supports to the needs of each student through a
continual process of implementing interventions and evaluating the effectiveness of those
interventions.18 Interventions include additional instruction time, narrowed focus of lessons, and
reduced group size, including one-on-one instruction.19
In Florida, there are several ways in which instructional personnel who teach reading receive reading
instruction and intervention training, both through preservice preparation and in-service professional
development.
Teacher Preparation Curricula
Current law requires teacher preparation programs and teacher preparation institutes to use state-
adopted content standards to guide their curricula.20 The programs must also provide scientifically
researched and evidence-based reading instructional strategies that improve reading performance for
12
Section 16, ch. 2017-116, L.O.F.
13
Section 12, ch. 2017-116, L.O.F.
14
Sections 9 and 10, ch. 2017-116, L.O.F.
15
Cari Miller, Florida Department of Education, Office of Early Learning, Overview of Literacy Policy and Practice to Support
Educators & Improve Student Outcomes, presentation before the Early Learning & Elementary Education Subcommittee, (Feb. 16,
2021).
16
Id.
17
Florida Department of Education, Florida’s MTSS, http://florida-rti.org/floridaMTSS/index.htm (last visited April 12, 2021).
18
Id.
19
Florida Department of Education, Reading Instruction Resources, http://www.fldoe.org/academics/standards/just-read-fl/reading-
intervention.stml (last visited April 12, 2021).
20
Sections 1004.04(2)(b) and 1004.85(3)(a), F.S.
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 all students including explicit, systematic, and sequential approaches to teaching phonemic awareness,
phonics, vocabulary, fluency, and comprehension and multisensory intervention strategies.21 The State
Board of Education (SBE) adopted the definition of the Uniform Core Curricula in rule, incorporating the
above requirements.22
Although the law establishes requirements for school district personnel who supervise a preservice
teacher’s clinical field experience, including clinical educator training, a “highly effective” or “effective”
rating, and at least 3 years of prekindergarten through 12 teaching experience, there is no requirement
that the teacher have completed any specialized reading instruction.23 It is unknown how many clinical
supervisors who work with interns in a setting that requires teaching reading have received adequate
training in evidence-based reading instruction and intervention practices.
Professional Development
Each school district professional development system is required to provide in-service activities and
support targeted to the individual needs of teachers.24 Each school district’s professional development
system must provide for training to reading coaches, classroom teachers, and school administrators in:
 effective methods of identifying characteristics of conditions such as dyslexia and other causes
of diminished phonological processing skills;
 incorporating instructional techniques into the general education setting which are proven to
improve reading performance for all students; and
 using predictive and other data to make instructional decisions based on individual student
needs. 25
All elementary grades instructional personnel must be provided access to sufficient training so they can
meet certification or endorsement requirements established by the SBE with respect to reading
instruction and intervention.26
Additionally, the JRFO was established to implement the Just Read, Florida! initiative, which aimed to
help students become successful, independent readers.27 Among other things, the JRFO must:
 work with the Lastinger Center to develop training for K-12 teachers, reading coaches, and
school principals on effective content-area-specific reading strategies and the integration of
content-rich curriculum from other core subject areas into reading instruction;
 develop and provide access to sequenced, content-rich curriculum programming, instructional
practices, and resources that help elementary schools use state-adopted instructional materials
to increase students’ background knowledge and literacy skills; and
 work with the Florida Center for Reading Research to identify scientifically researched and
evidence-based reading instructional and intervention programs that incorporate explicit,
systematic, and sequential approaches to teaching phonemic awareness, phonics, vocabulary,
fluency, and text comprehension and incorporate decodable or phonetic text instructional
strategies.28
The William Cecil Golden Professional Development Program for School Leaders is a collaborative
network of state and national professional leadership organizations for school principals. The program
is designed to respond to Florida’s needs for quality school leadership and support the efforts of school
leaders in improving instruction and student achievement and developing and retaining quality
21
Id.
22
Rule 6A-5.066(1)(ii), F.A.C.
23
See s. 1004.04(5)(b)1., F.S.
24
Section 1012.98(4)(b)4., F.S.
25
Section 1012.98(4)(b)11., FS.
26
Id.
27
Section 8, ch. 2006-74, L.O.F. The initiative was established by Governor Jeb Bush in 2001. See Exec. Order No. 01-260 (2001).
28
See s. 1001.215(3), (4), and (8), F.S. Reading intervention includes evidence-based strategies frequently used to remediate reading
deficiencies and includes, but is not limited to, individual instruction, multisensory approaches, tutoring, mentoring, or the use of
technology that targets specific reading skills and abilities. Section 1001.215(8), F.S.
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 teachers. Professional development provided through the program must be based upon the Florida
Principal Leadership Standards and other school leadership standards.29
Professional Development Certification and Education Competency Programs
The DOE must develop, and individual school districts are permitted to develop, a competency-based
professional development certification and education competency program (PEC Program).30 The PEC
Programs are designed to enable a teacher currently holding a temporary teaching certificate to satisfy
the mastery of professional prepar