May 1, 2019
ESEA: The Promise Neighborhoods and Full-Service
Community Schools Programs
The Promise Neighborhoods and Full-Service Community
high-need applicants. Any funds that remain after making
Schools (FSCS) programs are authorized under the
these grants may be used by the Secretary for technical
Community Support for School Success subpart (Title IV-
assistance and evaluation.
F-2) of the Elementary and Secondary Education Act
(ESEA), most recently and comprehensively reauthorized
Entities eligible to apply for a grant under the program
by the Every Student Succeeds Act (ESSA; P.L. 114-95).
include institutions of higher education (IHEs), Indian
Both programs were previously authorized through the
tribes and tribal organizations, and nonprofit organizations.
annual appropriations process using authority available to
To be eligible, nonprofit organizations must partner with an
create programs of national significance under the ESEA
IHE, an Indian tribe or tribal organization, another
Fund for the Improvement of Education (formerly Title V-
nonprofit organization, a high-need local educational
D-1). The Promise Neighborhoods program was initially
agency (LEA), or an office of a chief elected official of a
created through the Department of Education
unit of local government. Priority in awarding grants is
Appropriations Act, 2010 (Division D, Title III of P.L. 111-
given to entities that will use the funds for evidence-based
117). The FSCS program was initially created as a
activities that demonstrate a statistically significant effect
demonstration program through the Department of
on improving student outcomes and other relevant
Education Appropriations Act, 2008 (Division G, Title III
outcomes.
of P.L. 110-161).
To receive a grant under this program, an eligible entity
Both the Promise Neighborhoods and FSCS programs are
must submit an application to the Secretary. Applications
designed to provide pipeline services, which deliver a
are required to include an analysis of the needs of children
“continuum of coordinated supports, services, and
in the community, a plan to provide pipeline services based
opportunities,” to children in distressed communities. Some
on the needs identified in the needs analysis, measurable
examples of pipeline services include early childhood
annual objectives based on the performance indicators
education programs, family and community engagement
selected by the Secretary, and a memorandum of
and support, workforce readiness activities, and mental
understanding (MOU) between each partner entity. The
health services and supports. Pipeline services are provided
MOU describes each partner’s “financial, programmatic,
based on the needs of the children in the communities
and long term commitment.”
served.
Funds awarded must be used for planning activities to
Promise Neighborhoods
“develop and implement pipeline services,” implementing
The purpose of the Promise Neighborhoods program is to
the services, and continuously evaluating the success of the
provide pipeline services to improve the academic and
program and improving it based on the findings. In the first
developmental outcomes of children living in some of the
year of the grant, grantees are required to use not less than
most distressed communities of the United States, and also
50% of the funds for planning activities. In the second year,
to schools implementing school improvement activities
grantees must use not less than 25% of the funds for this
under Title I-A of the ESEA. Distressed communities are
purpose.
neighborhoods with high concentrations of low-income
individuals or multiple signs of distress (e.g., high rates of
The Secretary selects program performance indicators,
poverty, academic failure, and juvenile delinquency).
which focus on academic and developmental outcomes.
These indicators must measure school readiness, high
The Secretary of Education (hereinafter referred to as the
school graduation rates, postsecondary education and career
Secretary) must award not less than 95% of the funds
readiness, and other relevant outcomes.
appropriated for the Promise Neighborhoods program to
eligible entities on a competitive basis. Not less than 15%
Grantees are required to submit annual reports to the
of the funds made available for competitive grants must be
Secretary. Reports must include the number and percentage
awarded to eligible entities in rural areas. The Secretary
of children in the neighborhood served by the grant, the
must award at least three grants each fiscal year. Grants
number and percentage of children using each pipeline
may be awarded for not more than five years, and may be
service offered, and data on the performance indicators.
extended for an additional two years. Grantees must match
Grantees are also required to make their reports publicly
100% of the amount received using federal, state, local, or
available and accessible to families in the community
private sources. The Secretary may require that a portion of
served by the grant.
the match be provided through private sources. The
Secretary may also adjust the matching requirements for
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link to page 2 ESEA: The Promise Neighborhoods and Full-Service Community Schools Programs
Full-Service Community Schools
purposes. They are required to provide at least three
The purpose of the FSCS program is to provide “support for
pipeline services by the date they receive the grant, and to
the planning, implementation, and operation of [full-service
implement at least two additional pipeline services after
community schools] that improve the coordination and
receiving the grant.
integration, accessibility, and effectiveness of services for
children and families,” particularly for children enrolled in
Grantees are required to conduct annual evaluations of their
high-poverty schools. A full-service community school is
progress toward accomplishing the aims of the FSCS
defined as a public elementary or secondary school that
program. They must use their evaluations to adjust their
participates in a community-based effort to provide
activities to meet the objectives. They must also make their
coordinated and integrated comprehensive services, such as
annual evaluations publicly available. Grantees that receive
education and health services, through community-based
multi-year awards are required to submit reports annually
organizations and public and private partnerships. Services
that provide current performance and financial expenditure
can be provided to students, families, and communities
information. The Secretary must conduct evaluations of the
during the school year (including on weekends) and during
effectiveness of grants toward fulfilling the purpose of the
the summer.
program.
The Secretary must award not less than 95% of the funds
Appropriations
appropriated to eligible entities on a competitive basis. An
Table 1 details appropriations for the Promise
eligible entity is a consortium of (1) one or more LEAs or
Neighborhoods and FSCS programs since their inception.
the Bureau of Indian Education and (2) one or more
community-based organizations, nonprofit organizations, or
Table 1. Appropriations for the Promise
other public or private entities. Not less than 15% of the
Neighborhoods and Full-Service Community Schools
funds made available for competitive grants must be
(FSCS) Programs: FY2008–FY2019
awarded to eligible entities in rural areas. The Secretary
Dollars in thousands
must award at least 10 grants each fiscal year. Grants may
be awarded for not more than five years, and may be
Promise
extended for an additional two years. The minimum annual
Fiscal Year
Neighborhoods
FSCS
grant amount is $75,000. Grantees must match some or all
of the grant using non-federal sources as determined by the
2008
–
$4,674
Secretary. The Secretary may require that a portion of the
2009
–
$5,368
match be provided through private sources, which can come
in part from in-kind contributions.
2010
$10,000
$10,155
2011
$29,940
$9,753
To receive a grant under the FSCS program, an eligible
entity must submit an application to the Secretary.
2012
$59,887
$10,094
Applications are required to include a needs assessment of
2013
$56,754
$5,344
students, families, and residents in the community;
measureable annual objectives to increase the number and
2014
$56,754
$10,649
percentage of students and families served; a plan to
2015
$56,754
$9,710
provide pipeline services based on the annual measurable
performance objectives; a plan for continuing to provide
2016
$73,254
$10,000
services after the end of the grant period; and a MOU
2017
$73,254
$10,000
between each partner entity. The MOU must describe each
partner’s role and how partners will help the eligible entity
2018
$78,254
$17,500
coordinate and provide pipeline services. In awarding
grants under the program, the Secretary is required to give
2019
$78,254
$17,500
priority to eligible entities that (1) will serve two or more
Source: Table prepared by CRS based on data from the U.S.
full-service community schools eligible to operate
Department of Education, Budget Service, annual appropriations
schoolwide programs under ESEA Title I-A, (2) include an
tables and Justifications of Appropriations Estimations to the Congress,
LEA that meets various eligibility requirements under the
various years.
Rural Education Achievement Program in ESEA Title V-B,
(3) are consortiums comprised of a “broad representation of
In 2018, 15 new FSCS grants and 3 Promise Neighborhood
stakeholders” or consortiums with a demonstrated history
continuation grants were awarded. Grant funds under both
of effectiveness, and (4) will use funds in accordance with
programs must be used to supplement, and not supplant,
program requirements for evidence-based activities that
federal, state, or local funds that would otherwise be
demonstrate a statistically significant effect on improving
available for activities authorized under the program.
student outcomes and other relevant outcomes.
Clarissa G. Cooper, Analyst in Education Policy
Funds can be used to coordinate existing pipeline services,
Rebecca R. Skinner, Specialist in Education Policy
provide new pipeline services, integrate services into a
coordinated continuum, and coordinate community-based
IF11196
and government-provided services. Grantees may use not
more than 10% of the grant in the first year for planning
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ESEA: The Promise Neighborhoods and Full-Service Community Schools Programs


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