Possible retention proposed for third graders who struggle with reading

Students who fail to demonstrate grade-level reading proficiency by the end of third grade could be held back under a measure considered by the Education Committee Jan. 27.

LB1050, introduced by Glenvil Sen. Dave Murman at the request of Gov. Jim Pillen, would amend the Reading Improvement Act and, beginning in the 2027-28 school year, require schools to administer reading assessments three times a year to students in kindergarten through third grade.

Students determined not to be reading at grade level under the statewide assessment could be retained. School districts then would provide intensive acceleration classes for those students, which would feature smaller student-to-teacher ratios and diagnostic assessments.

Under the bill, the state Department of Education would be required to develop a professional learning system to train early-grade teachers in evidence-based reading instruction and place regional coaches in schools to support implementation, funded through the Education Future Fund. The department also would approve reading assessments, set proficiency standards, provide technical assistance to districts and report annually to the Legislature.

Students exempt under federal disability law or those who have completed multiple years of intensive reading intervention would be excluded. Retention could occur only once, and if a reading deficiency is identified by Jan. 1, schools must notify parents or guardians by Feb. 1 and offer a meeting to review the student’s individualized reading improvement plan.

Murman said LB1050 is based largely on strategies including retention — often called the “Mississippi miracle” — that resulted in a dramatic rise in reading proficiency in Mississippi over the past decade.

Additionally, he said, Nebraska’s ranked 40th in 2024 in fourth grade reading scores on the National Assessment of Educational Progress, highlighting the need for solutions.

“Change is needed and it’s needed quickly,” Murman said.

Kenny Zoeller, director of the Governor’s Policy Research Office, testified in support of LB1050. Research shows that retention, when used as a last resort along with intensive intervention and targeted support, helps struggling students catch up by providing extra time and instruction, he said.

“Thoughtfully implemented third grade promotion policies improve long-term outcomes without causing harm,” Zoeller said.

Lisa Schonhoff of Bennington, a member of the State Board of Education, also testified in support of the bill on her own behalf. She said the measure would track student progress, identify struggling readers early and ensure schools provide the interventions and support students need.

Kathy Poehling, president of the Omaha Education Association, testified in opposition to LB1050. Retaining students solely based on reading proficiency overlooks the complexities of child development and the professional judgment of educators, she said.

“Research consistently shows that holding a child back can lead to significant social and emotional distress, and labels a student as a failure,” Poehling said.

Tim Royers, president of the Nebraska State Education Association, also opposed the bill, saying the positive outcomes seen in states like Mississippi were due to comprehensive support services, not retention.

The committee took no immediate action on the proposal.