Reading improvement bill advanced with retention changes

A measure aimed at strengthening support for young Nebraska students who struggle with reading earned first-round approval March 26 after lawmakers amended it to include more parental input.

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

Students experiencing a “persistent reading deficiency” at the end of third grade — based on performance on the statewide reading assessment, alternate reading assessments or a test-based student portfolio — could be required to repeat the grade, with districts required to  provide “intensive acceleration” classes featuring smaller student-to-teacher ratios and diagnostic assessments.

Retention would be limited to once per student and the policy would exempt students with disabilities or who already have received interventions.

The bill also would require the state Department of Education to develop training for early-grade teachers in evidence-based reading instruction and to place regional coaches in schools, paid for through the Education Future Fund. The department would approve assessments, set proficiency standards, provide technical assistance and submit annual reports to the Legislature.

Murman said Nebraska’s fourth-grade reading scores rank about 40th in the nation, a sign that the state’s current approach is falling short and that stronger, data-driven interventions are needed. The bill is intended to identify struggling readers early and provide targeted support, he said.

“When a child is retained due to a persistent reading deficiency, that child isn’t being punished,” Murman said. “They need help.”

An Education Committee amendment would replace the bill with a revised version that would delay implementation, modify how third-grade retention is applied and expand early literacy and dyslexia supports.

Beginning in the 2028-29 school year, students who are not proficient in reading by the end of third grade generally would be retained, but parents could request a meeting with school officials and would have the final say if there is disagreement regarding retention. The amendment also would exempt from retention English language learners who have received English instruction for less than two years.

Additionally, beginning in the 2027-28 school year, districts would be required to screen K-2 students for dyslexia risk and provide interventions through a multi-tiered system of support. The amendment clarifies that a medical diagnosis would not be required to obtain those services.

Murman said the committee amendment would maintain school accountability for reading proficiency while adding flexibility, increasing parental involvement and giving school districts more time to prepare for the bill’s implementation.

Bellevue Sen. Rita Sanders supported the bill and amendment, saying the delayed timeline — with key provisions not taking effect until the 2028-29 school year — gives lawmakers time to address funding and ensure districts have the resources they need.

Sen. Mike Jacobson of North Platte opposed the bill, citing concerns about the potential cost to school districts and whether the state would provide adequate funding. He questioned both the wisdom of imposing a statewide mandate and the effectiveness of retention as a tool.

Also opposing the bill, Lincoln Sen. Danielle Conrad said that while the amendment would improve the proposal, LB1050 still would relies too heavily on retention and does not fully address the root causes of reading struggles.

Literacy challenges often are tied to factors such as poverty and a lack of early childhood education and reading support at home, she said, warning that retention could harm students’ self-esteem and long-term outcomes.

“Retention is not the silver bullet,” Conrad said.

Sen. Ashlei Spivey of Omaha also raised concerns that the bill would have a disproportionate impact on Black and brown students, who already face gaps in reading proficiency. She said relying on retention risks reinforcing existing inequities rather than addressing the underlying barriers those students face.

“We have to be honest about who this is going to impact the most,” Spivey said.

Following the 32-5 adoption of the committee amendment, senators advanced LB1050 to select file 26-10.