Improving Early Literacy in Colorado:
Realizing the Promise of the READ Act

March 2016

EXECUTIVE SUMMARY
Stand for Children believes that all children, regardless of their background, should graduate
from high school prepared for, and with access to, a college education. In 2009, Stand
for Children Colorado (Stand Colorado) began partnering with parents, communities, and
organizations to improve educational outcomes for students. In 2012, Stand Colorado
and our coalition partners spearheaded efforts to pass the Reading to Ensure Academic
Development (READ) Act, which introduced innovative policies to support children reading
by the end of third grade. The ability to read is a fundamental skill that students must
possess in order to be successful throughout school and after high school. Children entering
fourth grade with significant reading deficiencies (SRDs) are far more likely to struggle
throughout the rest of their academic careers. As a result, it is critical that rigorous literacy
interventions remain at the top of Colorado’s education priorities.
This paper analyzes the implementation of policies that promote literacy in grades K-3. The
READ Act is a significant first step to ensuring that students are successful readers, and it is
vital that the Colorado State Board of Education (SBE) and Colorado Department of Education
(CDE) take action to continue implementation of this legislation. These recommendations
are intentionally limited in scope. This paper focuses on specific regulatory actions the state
can enact quickly to directly improve implementation of the READ Act and consequently
promote successful literacy outcomes for Colorado students. Consequently, this paper offers
three recommendations that CDE and SBE should follow to support ongoing implementation
of the READ Act and ensure that students achieve essential academic benchmarks.
•	

Recommendation 1: The SBE should align the regulations governing the content
standards for teacher preparation program accreditation and reauthorization
with the most recent legislative changes and explicitly include the components of
literacy instruction required in the READ Act. The SBE must use its authority to
ensure preparation programs thoughtfully comply with the standards.

•	

Recommendation 2: The SBE and CDE should replace the current educator licensing
exam with both a rigorous literacy-specific exam that is aligned with all components
of the READ Act and a performance-based general assessment. These two exams
will capture more meaningful data for teacher preparation programs and teacher
candidates about their areas of strength and areas for improvement.

•	

Recommendation 3: The SBE and CDE should use current reporting requirements
to ensure that the lowest performing districts are successfully implementing the
READ Act by requiring districts to demonstrate how they are complying with the
READ Act, offering professional development for current educators, and using
funding provided through the READ Act.

Colorado’s READ Act is a first step to ensuring that students successfully graduate from
high school ready for college and career. Stand Colorado is steadfastly committed to
improving reading outcomes for students across Colorado. As literacy rates increase and
more children succeed in school, the state will see remarkable results.
Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

1

BACKGROUND
“College- and Career-Ready” Begins with Reading by Third Grade
Perhaps no milestone is more critical in a student’s academic career than their ability
to read by the end of third grade. Mastery of other academic subjects requires a strong
foundation in basic literacy skills. Building on this foundation, students will continue to
hone and develop more complex reading and reading comprehension skills as they
progress through school. For these reasons, students who cannot read proficiently by
the end of third grade are four times more likely than proficient students to drop out
of school before earning a diploma.1 Students who fall behind in reading between
kindergarten and third grade (the early grades) are unlikely to catch up to their peers,
and the gap between struggling and proficient readers only tends to grow over time. 2
Similar to these national trends, too many Colorado students

Perhaps no milestone is more
critical in a student’s academic
career than the ability to read by
the end of third grade.

struggle with reading and are not reading proficiently by the end
of third grade. The National Assessment of Educational Progress
(NAEP), which is administered by the National Center for
Education Statistics, is a highly regarded, objective indicator of
student knowledge and skills in reading and mathematics. In

2015, 61% of Colorado students in fourth grade scored below proficient on the NAEP
reading assessment. 3 The results are worse for some subgroups of students,
specifically students of color and students in poverty. Of Colorado’s Black students,
73% scored below proficient, indicating that only 27% were proficient or advanced. 4
Even more troubling, only 20% of Hispanic students scored at proficient or advanced,
which means that a staggering 80% were below proficient. 5

Students who cannot read
proficiently by the end of third
grade are four times more likely
than proficient students to drop out
of school before earning a diploma.

For more than a decade, there has been a large gap between
the performance of students of color and the performance of
their White counterparts.6 Furthermore, the NAEP reading
assessment highlighted that a mere 21% of students who
were eligible for free-or reduced-lunch scored at or above
proficient.7 These struggling readers will almost certainly
face challenges throughout their education. If left unaddressed,

these challenges will most likely continue into adulthood.

1	
2	
3	
4	
5	
6	
7	

2

Fiester, L. (2013). Early warning confirmed: A research update on third-grade reading.
Baltimore, M.D.: The Annie E. Casey Foundation. Retrieved from: www.aecf.org
Ibid., 4.
United States Department of Education. (2015). 2015 reading state snapshot report,
Colorado, Grade 4. Washington, D.C.: National Center for Education Statistics.
Retrieved from: https://www.cde.state.co.us/assessment/naep2015gr48reading
Ibid., 1.
Ibid., 1.
Ibid., 1.
Ibid., 1.
Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

The READ Act: Colorado’s Commitment to
Early Literacy
Recognizing both the importance of proficient reading
by the end of third grade and the significant number
of students who need more help reaching that
goal, Colorado legislators unanimously passed the
bipartisan READ Act in 2012. The intent of the READ

Key Provisions of the READ ACT
The READ Act focuses on K-3 literacy development, literacy
assessment, and individual intervention plans for students
identified as having a significant reading deficiency (SRD).
A student with a SRD is defined as one who does not
meet the minimum skill levels for reading competency in

Act is to ensure that districts use effective assessments

the areas of phonemic awareness, phonics, vocabulary

to identify whether a student’s reading progress is on

development, reading fluency, including oral skills, and

track and to focus resources and interventions to help

reading comprehension established for the student’s grade

the state’s most struggling readers. This legislation,
which replaced the Colorado Basic Literacy Act,
requires schools and educators to identify students
who are the most significantly behind in their reading
abilities. The READ Act also allocates additional state
funds for proven intervention services.
Colorado is a strong local-control state, therefore
much of the work of READ Act implementation and
effective literacy instruction is the responsibility
of districts. Three years after the passage of the
READ Act, the initial results are promising. Schools
and districts that are implementing the READ Act
with fidelity have seen a decrease in the number of
students identified as having a SRD. 8 The districts
with the most immediate improvements have taken
intentional steps to use data from READ Act-aligned
assessments to inform instruction, update their
instructional materials, and provide meaningful
professional development to teachers to ensure that
they can effectively teach literacy.9
Colorado’s work implementing the READ Act is off to

level. Additional funding is provided to districts to help their
most struggling readers in grades K-3. In order to receive
these funds, districts and schools are required to:
§	Assess student’s literacy development in the five
essential domains of reading;
§	Identify which students have a SRD and need additional
support to improve their reading skills;
§	In coordination with a student’s parents, develop an
individual intervention plan, READ Plan, for each SRDdesignated student;
§	Allow grade-level retention as an intervention option
for SRD-designated students;
§	Report specific data to CDE about the status and
progress of SRD-designated students. Districts are
encouraged to report details about which interventions
they use through their READ Act funds; schools and
districts are expected to use this data in their school
and district improvement plans.
________________
	
Colorado Reading to Ensure Academic Development
Act, Co. Gen. Assemb. 12-1238 (2012), § 22-7-1202.

a solid start, but it is not yet complete. As Colorado’s
school districts, leaders, and educators work to implement the READ Act, the state can
take a number of steps to ensure that new educators are adequately prepared to utilize
the best practices in literacy instruction. The state plays a critical role in supporting the
work of districts and reinforcing the focus on best practices for literacy instruction in
the early grades.
8	

9	

Montgomery, P. & Hasbrouch, J. (2015). The Colorado READ Act: An evaluation
of implementation and outcomes after year one. Denver, CO: Colorado Succeeds.
Retrieved from: http://www.coloradosucceeds.org/publications/Colorado_Succeeds_
READ_Act_Implementation_Study.pdf
Ibid., 24.

Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

3

Colorado Can and Should Do More
The READ Act identifies best practices in literacy instruction, and CDE has been
working to align academic standards and classroom instruction to these practices.
Throughout this process, Stand Colorado has been an advocate for improving practices
in reading instruction. Our state’s teachers and students

As Colorado’s school districts,
leaders, and educators work to
implement the READ Act, the
state can take a number of steps
to ensure that new educators are
adequately prepared to utilize the
best practices in literacy instruction.

deserve support and access to information, yet they are not
receiving the help or information that they need. Teachers
regularly express that they feel unprepared to teach students
to read when using the scientifically-based best practices,
commonly referred to as scientifically-based reading research
(SBRR). Studies have underscored teachers’ concerns, finding
that “teachers often have minimal understanding of how
students learn to read and write or why many of their students

experience difficulty with this most fundamental task of schooling.”10 This is likely the
result of many factors within teacher preparation programs and school districts, all
of which have contributed to a climate in which teachers routinely feel unprepared
to effectively teach literacy.
Some teachers are immersed in high-quality SBRR instruction during their
undergraduate work only to be placed in a district or school that has not thoroughly
implemented the READ Act. These teachers struggle to

Recently, two highly-regarded educator
organizations, the International Literacy
Association (ILA) and the National
Council of Teachers of English (NCTE),
echoed the concerns of teachers with
regards to their literacy preparation.

reconcile their training with the expectations of their new
employers. Other teachers are enrolled in preparation
programs that have not updated their training to
acknowledge the methodology endorsed by the READ
Act. These teachers are forced to invest additional time
and energy in professional development. Making matters
worse for all teachers, the current state licensure exam,

the PRAXIS II, offers minimal information regarding candidates’ level of preparedness
to teach literacy using SBRR best practices.11
Recently, two highly-regarded educator organizations, the International Literacy
Association (ILA) and the National Council of Teachers of English (NCTE), echoed the
concerns of teachers with regards to their literacy preparation. In a panel presentation
at the International Literacy Association Conference, William Teale noted “both ILA
and NCTE agree with the general consensus that there is really a need for immediate
and continuous improvement in the education of teachers throughout the school
10	 Moats, L. (2009). Still wanted: Teachers with knowledge of language. Journal of
Learning Disabilities. 42 (5), 387. doi: 10.1177/0022219409338735
11	 Reschly, D.J., Smart, S.M, & Oliver, R.M. (2007). Innovation configurations to
improve teacher preparation in reading, classroom behavior management, and
inclusive practices. In Dwyer, C.A. (Ed.) America’s challenge: Effective teachers for
at-risk schools and students. Washington, D.C: National Comprehensive Center for
Teacher Quality. Retrieved from: http://www.gtlcenter.org/sites/default/files/docs/
NCCTQBiennialReport.pdf

4

Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

grades with respect to their preparation to teach reading and writing really well.”12
Unfortunately, research indicates that teacher education programs are not fulfilling
their crucial role in preparing teachers with these important skills.13 One study found
that a mere 15 percent of education schools expose teacher candidates to the best
practices of reading instruction and that only four of 227 texts used in educator
preparation programs provided a comprehensive review of scientifically-based
practices.14 In Colorado specifically, educator preparation programs vary greatly
in their approaches to literacy instruction and their adoption of best practices for
literacy instruction as outlined in the READ Act.
In an effort to determine how to address these concerns and identify how to better
support teachers and students, Stand Colorado conducted a comprehensive review
of current best practices in literacy acquisition; analyzed national organizations’
recommendations for improving teacher preparation in early literacy including ILA,
NCTE, the National Council on Teaching Quality (NCTQ), the Council of Chief State School
Officers (CCSSO), the Center on Great Teachers and Leaders at American Institutes for
Research, the Annie E. Casey Foundation, the U.S. Department of Education, and the
Education Commission of the States (ECS); spoke with multiple teacher preparation
programs at Colorado institutions of higher education; and finally, analyzed relevant
state statutes and rules that relate to reading. This analysis resulted in the conclusion
that Colorado statue is very strong but specific areas of implementation of the READ
Act can be improved through actions by the State Board of Education (SBE) and CDE.
Outlined later in this paper are recommendations for three key areas of improvement
that together would allow for full implementation of the READ Act and better literacy
instruction in schools. While there are many opportunities to promote literacy in the
early grades – from high quality, full-day kindergarten and preschool to family literacy
initiatives – this report is limited to non-legislative recommendations that the state
can quickly enact to support successful ongoing implementation of current statute,
specifically the READ Act. In addition, while this paper recommends changes within
several state-level systems, such as educator licensure, these recommendations are
intended to be limited in scope to only those changes that directly relate to the READ
Act. Most importantly, these recommendations will help Colorado students and the
state to realize the promise of the READ Act - for all students to be successful readers
by the end of third grade.

12	 Teale, W.H. (2015). Cultivating literacy achievement through quality teacher
preparation. Panel discussion at the International Literacy Association Conference,
St. Louis, MO. Retrieved from: https://ilamedia.eduvision.tv/default.aspx
13	 Smart, S.M., & Reschly, D.J. (2007). Barriers to the preparation of highly qualified
teachers: Teacher preparation in reading. Retrieved from: http://www.gtlcenter.org/
sites/default/files/docs/June2007Brief.pdf
14	 Walsh, K., Glaser, D., Wilcox, D.D. (2006). What education schools aren’t teaching
about reading and what elementary teachers aren’t learning. Washington, D.C.:
National Council on Teacher Quality.
Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

5

OBSTACLES & OPPORTUNITIES
Obstacle: Colorado does not have clear literacy requirements for teacher preparation
programs and does not hold programs accountable.
Recommendation: The SBE should align the regulations governing the content

standards for teacher preparation program accreditation and reauthorization
with the most recent legislative changes, and explicitly include the components of
literacy instruction required in the READ Act. The SBE must use its authority to
ensure preparation programs thoughtfully comply with the standards.
Colorado currently has an accreditation system that is supposed to ensure teacher
preparation programs meet state-mandated minimum requirements. While this system
does not oversee every aspect of individual programs or endorsement and licensure
areas within programs, it outlines basic content requirements and should guarantee
that all programs at a minimum equip all teacher candidates with the fundamental
knowledge and skills necessary to be successful their own classrooms. Unfortunately,
the state’s system of accreditation and reauthorization of teacher preparation programs
is flawed. It has not been updated to reflect recent statutory changes or state policies.
This leaves teacher preparation programs without clear state-level requirements for
their courses. In addition, the SBE has not used its authority in the accreditation and
reauthorization process to ensure that teacher preparation programs are meeting the
state’s minimum requirements consistently within and across their programs.
In Colorado, teacher preparation programs are jointly accredited by the Department
of Higher Education (CDHE) and CDE. CDHE approves all aspects of preparation
programs except for their academic content. Specifically, CDHE reviews preparation
programs according to a set of performance criteria.15 CDE reviews a preparation
program’s content according to the content standards defined in rule and applicable
to each specific endorsement area. Since the adoption of several recent education
reforms, the content standard requirements, which are described in rule, have not
been aligned to statute. In particular, the content standards have not been aligned to
READ Act requirements. This leaves teacher preparation programs with inconsistent
criteria for program accreditation or reauthorization and a lack of clarity about the
state-required content for their programs. CDE is nearing completion of an 18-month
process to align literacy requirements for teacher preparation programs. The final step
in the alignment process is for the SBE to approve and adopt the new, aligned rules.
The SBE uses the content standards defined in rule to determine whether the content
for an endorsement area or initial licensure program meets the state requirements.
If a program or area does not meet the requirements, the SBE has the authority to
15	 Colorado Department of Higher Education. (2014). Reauthorization process for
educator preparation programs. Denver, CO: Author. Retrieved from: https://www.cde.
state.co.us/cdeprof/epp_index

6

Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

recommend that accreditation be denied or placed at-risk of being denied. Statute
requires that CDHE abide by the SBE’s recommendation.16 However, according to the
most current data available, the SBE has never recommended that a program or
institution be refused accreditation nor be placed on “at-risk” status.17 This trend is
similar to national patterns. According to a speech by former Secretary of Education
Arne Duncan, “out of roughly 1,400 teacher preparation programs nationwide, states
have identified only 38 as low-performing… fewer states have taken action to actually
improve a low-performing program.”18 Even with broader criteria – including an atrisk designation as well as a low-performing one – only 24 states and Puerto Rico
have indicated concerns about any preparation programs during the same period.19
Like many other states, Colorado’s SBE is missing the opportunity to exercise its
authority to ensure that educator preparation programs are successfully meeting the
requirements laid out in statue and rule.
Obstacle: Colorado’s current educator licensure exams fail to test candidates for their
understanding of how to teach literacy.
Recommendation: The SBE and CDE should replace the current educator licensing
exam with both a rigorous literacy-specific exam that is aligned with all components
of the READ Act, and a performance-based general assessment. These two exams
will capture more meaningful data for teacher preparation programs and teacher
candidates about their areas of strength and areas for improvement.
Given the variation within and across teacher preparation programs 20 and the need for
all teachers to be fully prepared to teach reading based on best practices identified
in state statute and rule, there should be a checkpoint to ensure that all new teachers
are adequately prepared to effectively teach literacy. This checkpoint should be the
state-mandated educator licensure exam, which all teacher candidates must pass in
order to teach in the state, regardless of which traditional preparation program they
attended. A meaningful licensure exam has the potential to be a useful measure of
16	 Colorado Department of Education. (2015). Educator preparation program approval
and reauthorization. Denver, CO: Author. Retrieved from: http://www.cde.state.co.us/
cdeprof/epp_index
17	 United States Department of Education, Office of Postsecondary Education. (2013).
Preparing and credentialing the nation’s teachers: The Secretary’s ninth report on
teacher quality. Washington, D.C.: Author. Retrieved from: http://www2.ed.gov/about/
reports/annual/teachprep/index.html
18	 United States Department of Education. (2010). Secretary Arne Duncan’s remarks
to National Council for Accreditation of Teacher Education. Retrieved from: http://
www.ed.gov/news/speeches/secretary-arne-duncans-remarks-national-councilaccreditation-teacher-education
19	 United States Department of Education, Office of Postsecondary Education. (2013).
Preparing and credentialing the nation’s teachers: The Secretary’s ninth report on
teacher quality. Washington, D.C.: Author. Retrieved from: http://www2.ed.gov/about/
reports/annual/teachprep/index.html
20	 Council of Chief State School Officers. (2012). Our responsibility, our promise:
Transforming educator preparation and entry into the profession. Washington,
DC: Author. Retrieved from: http://www.ccsso.org/Documents/2012/Our%20
Responsibility%20Our%20Promise_2012.pdf
Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

7

Massachusetts’ Teacher Licensure

candidate readiness and to help give teacher candidates

Massachusetts checks its teacher candidates’

about individual and organizational areas of strength and

preparedness to teach reading before they

areas in need of improvement. Unfortunately, Colorado’s

can receive a license. All Early Childhood and

current licensure exams do not provide teacher candidates

Elementary teaching candidates are required

or preparation programs with this information.

and teacher preparation programs valuable feedback

to demonstrate their understanding of best

In Colorado, the state approved licensure exams are the

practices in literacy acquisition and instruction

PRAXIS II and the PLACE, both of which test a candidate’s

through an assessment called the Massachusetts

knowledge of subject matter content rather than teaching

Tests for Educator Licensure (MTEL): Foundations

practices or demonstrations of instructional ability. Only

of Reading Exam. This is a stand-alone exam

a small portion of each exam, however, is dedicated to

that candidates must pass in addition to other

determining a candidate’s knowledge of SBRR and literacy

subject matter tests. Unlike Colorado’s educator

instruction. As a result, a candidate could pass the exam

licensing exams, the pass rates for the MTEL

overall without demonstrating a strong understanding of

Foundations of Literacy test are more selective.

SBRR components. For example, a candidate could score

In the 2013-2014 academic year, roughly 4,300

very low on the literacy-specific questions in the licensure

teacher candidates took the MTEL Foundations

exam and still pass if they answered most questions in the

of Literacy exam, and only 67.1% of those

other sections correctly. Therefore, even when a candidate

candidates earned a passing score.

passes the state’s current licensing exam, there is no

________________
	
Massachusetts Department of Elementary
and Secondary Education. (2014). Annual
summary of candidate passing rates by
test: Cumulative for all candidates and by
gender, ethnicity, and primary language.
Retrieved from: http://www.doe.mass.edu/
mtel/2014ResultsByCategory.pdf

guarantee that the candidate has the skills and knowledge
to help their students master the ability to read.
Other states have experienced similar problems with their
licensing procedures and have made improvements. One
promising practice other states are using is including a
literacy-specific assessment in addition to their general

educator licensing exam.

21

Massachusetts, in particular, has adopted and implemented a

scientifically-based literacy assessment that all early childhood and elementary educators
must pass in order to obtain a Massachusetts teaching license. At this critical time in
READ Act implementation, CDE should reevaluate Colorado’s teacher licensing exams
and recommend a new exam with literacy-specific, required components, which the SBE
should adopt. Colorado would be able to better serve its teacher candidates and their
students with the adoption of a high-quality literacy assessment, as part of the educator
licensing process.

21	 Rowland, J. (2015). Trends in teacher certification: Equipping teachers to prepare
proficient readers. Denver, CO: Education Commission of the States. Retrieved from:
http://www.ecs.org/clearinghouse/01/16/81/11681.pdf

8

Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

Obstacle: Districts, which are responsible for READ Act implementation, have adopted
READ Act aligned curricula, assessments, and supports for teachers to varying
degrees, but the SBE has not utilized its authority to monitor implementation or push
districts to implement READ Act with fidelity.
Recommendation: The SBE and CDE should use current reporting requirements to
ensure that the lowest performing districts are successfully implementing the READ
Act by requiring districts to demonstrate how they are complying with the READ Act,
offering professional development for current educators, and using funding provided
through the READ Act.
Individual school districts have the primary responsibility for implementing the
READ Act. However, preliminary research indicates that districts implement statemandated policies, especially regarding literacy instruction, with varying degrees of
fidelity and effectiveness. 22 Therefore, CDE and the SBE should use their authority
and resources to ensure that districts with the greatest need – those designated as
turnaround and priority improvement districts – are successfully and thoroughly
implementing the READ Act.
Most districts with a “turnaround” or “priority improvement” designation have
multiple areas in which they need to significantly improve. While there is not a direct
correlation between the number of students who can read at or above grade level by
third grade and the district performance framework status, nearly every district with
a rating of “turnaround” or “priority improvement” has an unacceptably low number
of students who are proficient in reading by third grade. When it comes to reading
achievement in the early grades, the highest rated districts have an average of 25%
more students who can read proficiently than the lowest rated districts. 23 Given the
importance of literacy proficiency for all students, it is critical that struggling districts,
in particular, focus on improving the literacy outcomes of their students in the early
grades. This could be done through the state-required district improvement plans.
Currently, CDE requires that every school district annually submit a Unified
Improvement Plan (UIP), which demonstrates the work being done to promote student
achievement and continuous improvement throughout the district. The SBE under
advisement from CDE is responsible for reviewing the UIPs. District UIP templates for
turnaround districts are very broad. They allow districts to focus on any issue that
they deem important and any program that has some level of established success in
struggling districts.

22	 Piasta, S. (2004). Beginning reading instruction in Massachusetts public schools:
Research, policy, and teachers’ knowledge and beliefs. Retrieved from: http://
crossworks.holycross.edu/fenwick_scholar/16
23	 Colorado Department of Education Data base. SchoolView Data Center (2012-2014).
District level third grade reading tests scores across districts. [Data File] Retrieved
from: https://edx.cde.state.co.us/schoolview/datacenter/
Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

9

The SBE and CDE should exercise their authority to require a thorough reporting in
the UIPs of how “turnaround” or “priority improvement” districts are implementing
the READ Act. The SBE and CDE should seek to find out what assessments and
curriculum the district is using and identify whether or not they are aligned with
the READ Act. They should also require that all districts identify and provide highquality professional development to assist current teachers with fundamental skills
they need to effectively teach literacy. While the cost of professional development can
be exorbitant, there are affordable options, including CDE’s own program, READing
Foundations Academy, a READ Act-aligned program that is provided at no cost to
districts. 24 In addition, CDE and the SBE should require schools to demonstrate how
they are complying with the parent notification requirement of the READ Act. The
READ Act is one of the few, if not only, Colorado statutes that mandate communication
from the school to the parent when a student is identified as having a (SRD). Parents
can be powerful partners in the development of their child’s reading skills, and it is
imperative that districts fully implement the READ Act by involving parents in their
student’s individualized reading improvement plan, called a “READ plan.”
Finally, districts receive what is known as “READ Act funding” based on the number
of students identified as having a SRD. As a condition of receiving those funds,
districts are required to report the following to CDE’s Office of Literacy: the number of
students identified as having an SRD, the academic progress made by SRD designated
students, and the number of students retained between grades as a result of SRD
designation. However, districts are currently not asked to report detailed information
about the products or services that they purchase with READ Act funds. They are
only required to report in which of four categories the funds are spent - full day
kindergarten, intervention services, pull-out services, or summer school. It is in the
student’s best interest to ensure that state funds are being spent on programs that
effectively improve literacy and that are aligned with the READ Act.

24	 Colorado Department of Education Office of Literacy. (2015). Professional
development opportunities. Retrieved from: https://www.cde.state.co.us/
coloradoliteracy/professionaldevelopmentopportunities

10

Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

CONCLUSION:
Colorado recognizes the importance of reading by the end of third grade. To help
ensure that all students meet this critical milestone, the state has adopted the READ
Act, which provides information and resources for our
most struggling readers to help get them on track.
Schools and educators have been working for the last
several years to fully implement the READ Act, but their
efforts are hindered by the fact that many educators do
not know how to help students master the most
fundamental and critical skill of their entire academic
careers: how to read. CDE and the SBE need to do more
to support teacher candidates, strengthen educator
preparation programs, and ensure high-quality literacy
instruction in all districts.
Specifically, SBE and CDE should take the following
actions to improve the implementation of the READ Act:
•	Align the content standards for teacher preparation

Individually, these changes would create
meaningful improvements to Colorado’s
education system and guarantee that
more students are reading proficiently
by the end of third grade. Collectively,
these recommendations combined with
other recent reforms made in Colorado
will ensure that children have an even
greater likelihood of reaching this
critical milestone. The ability to read is
vital to a student’s success throughout
their education and plays a key role in
helping all Colorado students graduate
from high school ready for college,
career or military service.

program accreditation and reauthorization with the
most recent legislative changes and explicitly include the components of literacy
instruction required in the READ Act and use its authority to ensure preparation
programs thoughtfully comply with the standards.
•	Replace the current educator licensing exam with both a rigorous literacy-specific
exam that is aligned with all components of the READ Act and a performancebased general assessment in order to capture more meaningful data for teacher
preparation programs and teacher candidates about their areas of strength and
areas for improvement.
•	Use current reporting requirements to ensure that the lowest performing
districts are successfully implementing the READ Act by requiring that districts
demonstrate how they are complying with the READ Act, providing professional
development for current educators, and using funding provided through the
READ Act.
Individually, these changes would create meaningful improvements to Colorado’s
education system and guarantee that more students are reading proficiently by the end
of third grade. Collectively, these recommendations combined with other recent reforms
made in Colorado will ensure that children have an even greater likelihood of reaching
this critical milestone. The ability to read is vital to a student’s success throughout their
education and plays a key role in helping all Colorado students graduate from high school
ready for college, career, or military service.
Improving Early Literacy in Colorado: Realizing the Promise of the READ Act

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IMPROVING EARLY LITERACY IN COLORADO: REALIZING THE PROMISE OF THE READ ACT
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