ESEA: The Promise Neighborhoods and Full-Service Community Schools Programs
Updated May 4, 2022
ESEA: The Promise Neighborhoods and Full-Service
Community Schools Programs
The Promise Neighborhoods and Full-Service Community
must award at least three grants each fiscal year. Grants
Schools (FSCS) programs are authorized under the
may be awarded for not more than five years, and may be
Community Support for School Success (CSSS) subpart
extended for an additional two years. Grantees must match
(Title IV-F-2) of the Elementary and Secondary Education
100% of the amount received using federal, state, local, or
Act (ESEA), most recently and comprehensively
private sources. The Secretary may require that a portion of
reauthorized by the Every Student Succeeds Act (ESSA;
the match be provided through private sources. The
P.L. 114-95). Both programs were previously authorized
Secretary may also adjust the matching requirements for
through the annual appropriations process using authority
high-need applicants. Any funds that remain after making
available to create programs of national significance under
these grants may be used by the Secretary for technical
the ESEA Fund for the Improvement of Education
assistance and evaluation.
(formerly Title V-D-1). The Promise Neighborhoods
program was initially created through the Department of
Eligible entities include institutions of higher education
Education Appropriations Act, 2010 (Division D, Title III
(IHEs), Indian tribes and tribal organizations, and nonprofit
of P.L. 111-117). The FSCS program was initially created
organizations. To be eligible, nonprofit organizations must
as a demonstration program through the Department of
partner with an IHE, an Indian tribe or tribal organization,
Education Appropriations Act, 2008 (Division G, Title III
another nonprofit organization, a high-need local
of P.L. 110-161).
educational agency (LEA), or an office of a chief elected
official of a unit of local government. Priority in awarding
CSSS has two purposes. The first is to “significantly
grants is given to entities that will use the funds for
improve the academic and developmental outcomes of
evidence-based activities that demonstrate a statistically
children living in the most distressed communities in the
significant effect on improving student outcomes and other
United States.” The second purpose is to “provide support
relevant outcomes.
for the planning, implementation, and operation of full-
service community schools” that improve services for
To receive a grant under this program, an eligible entity
children and their families, particularly those attending
must submit an application to the Secretary. Applications
high-poverty schools.
are required to include, for example, an analysis of the
needs of children in the community, a plan to provide
Both the Promise Neighborhoods and FSCS programs are
pipeline services based on the needs identified in the needs
designed to provide pipeline services, which deliver a
analysis, measurable annual objectives based on the
“continuum of coordinated supports, services, and
performance indicators selected by the Secretary, and a
opportunities,” to children in distressed communities. Some
memorandum of understanding (MOU) between each
examples of pipeline services include early childhood
partner entity. The MOU describes each partner’s
education programs, family and community engagement
“financial, programmatic, and long term commitment.”
and support, workforce readiness activities, and mental
health services and supports. Pipeline services are provided
Funds awarded must be used for planning activities to
based on the needs of the children in the community served.
“develop and implement pipeline services,” implementing
the services, continuously evaluating the success of the
Promise Neighborhoods
program, and making program improvements based on the
Funds are provided under this program for the
findings. In the first year of the grant, grantees are required
“implementation of a comprehensive, effective continuum
to use not less than 50% of the funds for planning activities.
of coordinated services” that meet the first CSSS purpose
In the second year, grantees must use not less than 25% of
by carrying out activities in neighborhoods that have high
the funds for this purpose.
concentrations of low-income individuals, multiple signs of
distress (e.g., high rates of poverty, academic failure, and
The Secretary selects program performance indicators,
juvenile delinquency), and schools that are implementing
which focus on academic and developmental outcomes.
school improvement activities under Title I-A.
These indicators must measure school readiness, high
school graduation rates, postsecondary education and career
The Secretary of Education (hereinafter referred to as the
readiness, and other relevant outcomes.
Secretary) must award not less than 95% of the funds
appropriated for the Promise Neighborhoods program to
Grantees are required to submit annual reports to the
eligible entities on a competitive basis. Not less than 15%
Secretary. Reports must include the number and percentage
of the funds made available for competitive grants must be
of children in the neighborhood served by the grant, the
awarded to eligible entities in rural areas. The Secretary
number and percentage of children using each pipeline
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service offered, and data on the performance indicators.
evidence-based activities that demonstrate a statistically
Reports must be made publicly available and accessible to
significant effect on improving student outcomes and other
families in the community served by the grant.
relevant outcomes.
Full-Service Community Schools
Uses of funds include coordinating existing pipeline
The purpose of the FSCS program is to provide “support for
services, providing new pipeline services, integrating
the planning, implementation, and operation of [full-service
services into a coordinated continuum, and coordinating
community schools] that improve the coordination and
services provided by CBOs and government agencies.
integration, accessibility, and effectiveness of services for
Grantees are required to provide at least three pipeline
children and families,” particularly for children enrolled in
services by the date they receive the grant, and to
high-poverty schools. A full-service community school is
implement at least two additional pipeline services after
defined as a public elementary or secondary school that
receiving the grant. They may use not more than 10% of the
participates in a community-based effort to provide
grant in the first year for planning purposes.
coordinated and integrated comprehensive services, such as
education and health services, through community-based
Grantees are required to conduct annual evaluations of their
organizations and public and private partnerships. Services
programs and use the results to adjust their activities to
can be provided to students, families, and communities
meet their objectives. Grantees that receive multi-year
during the school year (including before and after school
awards are required to submit reports annually that provide
and on weekends) and during the summer.
current performance and financial expenditure information.
The Secretary must conduct evaluations of the effectiveness
The Secretary must award not less than 95% of the funds
of grants toward fulfilling the purpose of the program.
appropriated to eligible entities on a competitive basis. Not
less than 15% of the funds made available for competitive
Appropriations
grants must be awarded to eligible entities in rural areas. 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 (CBOs), nonprofit
Table 1. Appropriations for the Promise
organizations, or other public or private entities. The
Neighborhoods (PN) and Full-Service Community
Secretary must award at least 10 grants each fiscal year.
Schools (FSCS) Programs: FY2008–FY2022
Grants may be awarded for not more than five years, and
(dol ars in thousands)
may be extended for an additional two years. The minimum
annual grant amount is $75,000. Grantees must match some
Fiscal Year
PN
FSCS
or all of the grant using nonfederal sources as determined
by the Secretary. Grant funds provided for activities under
2008
–
$4,674
the FSCS program must be used to supplement, and not
supplant, federal, state, or local funds that would otherwise
2009
–
$5,368
be available for activities authorized under the program.
2010
$10,000
$10,155
Any funds that remain after making grants may be used by
the Secretary for technical assistance and evaluation.
2011
$29,940
$9,753
2012
$59,887
$10,094
To receive a grant under the FSCS program, an eligible
entity must submit an application to the Secretary.
2013
$56,754
$5,344
Applications are required to include, for example, a needs
2014
$56,754
$10,649
assessment of students, families, and residents in the
community; measureable annual objectives to increase the
2015
$56,754
$9,710
number and percentage of students and families served; a
2016
$73,254
$10,000
plan to provide pipeline services based on the annual
measurable performance objectives; a plan for continuing to
2017
$73,254
$10,000
provide services after the end of the grant period; and a
MOU between each partner entity. The MOU must describe
2018
$78,254
$17,500
each partner’s role and how partners will help the eligible
2019
$78,254
$17,500
entity coordinate and provide pipeline services.
2020
$80,000
$25,000
In awarding grants under the program, the Secretary is
2021
$81,000
$30,000
required to give priority to eligible entities that (1) will
serve two or more full-service community schools eligible
2022
$85,000
$75,000
to operate schoolwide programs under ESEA Title I-A or
Source: Table prepared by CRS based on data from the U.S.
include an LEA that meets various eligibility requirements
Department of Education, Budget Service, annual appropriations
under the Rural Education Achievement Program (ESEA
tables and Justifications of Appropriations Estimations to the Congress,
Title V-B), (2) are consortiums comprised of a “broad
various years.
representation of stakeholders” or consortiums with a
demonstrated history of effectiveness, and (3) will use
Rebecca R. Skinner, Specialist in Education Policy
funds in accordance with program requirements for
IF11196
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ESEA: The Promise Neighborhoods and Full-Service Community Schools Programs
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https://crsreports.congress.gov | IF11196 · VERSION 5 · UPDATED