Access to Arts Education:
Inclusion of Additional Questions in Education's Planned Research Would Help Explain Why Instruction Time Has Decreased for Some Students
GAO-09-286: Published: Feb 27, 2009. Publicly Released: Feb 27, 2009.
Under the No Child Left Behind Act (NCLBA), districts and schools must demonstrate adequate yearly progress (AYP) for all students. Because schools may spend more time improving students' academic skills to meet NCLBA's requirements, some are concerned that arts education might be cut back. To determine how, if at all, student access to arts education has changed since NCLBA, the Congress asked: (1) has the amount of instruction time for arts education changed and, if so, have certain groups been more affected than others, (2) to what extent have state education agencies' requirements and funding for arts education changed since NCLBA, (3) what are school officials in selected districts doing to provide arts education since NCLBA and what challenges do they face in doing so, and (4) what is known about the effect of arts education in improving student outcomes? GAO analyzed data from the U.S. Department of Education (Education), surveyed 50 state arts officials, interviewed officials in 8 school districts and 19 schools, and reviewed existing research.
According to data from Education's national survey, most elementary school teachers--about 90 percent--reported that instruction time for arts education stayed the same between school years 2004-2005 and 2006-2007. The percentage of teachers that reported that instruction time had stayed the same was similarly high across a range of school characteristics, irrespective of the schools' percentage of low-income or minority students or of students with limited English proficiency, or the schools' improvement under NCLBA. Moreover, about 4 percent of teachers reported an increase. However, about 7 percent reported a decrease, and GAO identified statistically significant differences across school characteristics in the percentage of teachers reporting that the time spent on arts education had decreased. Teachers at schools identified as needing improvement and those with higher percentages of minority students were more likely to report a reduction in time spent on the arts. Because Education's survey did not include questions about why instruction time changed, GAO was not able to determine the reasons for the disparities its analysis identified. A new study of NCLBA implementation that Education plans to undertake may collect information on the uses of instruction time, among other topics. However, Education has not yet determined if it will collect information on the reasons instruction time changed for certain groups. While basic state requirements for arts education in schools have remained unchanged in most states, state funding levels for arts education increased in some states and decreased in others, according to GAO's survey of state arts officials. Arts education officials attributed the funding changes to state budget changes to a greater extent than they did to NCLBA or other factors. School principals have used several strategies to provide arts education; however, some struggled with decreased budgets and competing demands on instruction time, according to those GAO interviewed. Strategies for maintaining arts education include seeking funding and collaborative arrangements in the arts community. Competing demands on instruction time were due to state education agency or school district actions taken to meet NCLBA proficiency standards. Overall, research on the effect of arts education on student outcomes is inconclusive. Some studies that examined the effect of arts education on students' reading and math achievement found a small positive effect, but others found none.
Recommendation for Executive Action
Status: Closed - Implemented
Comments: Education has planned a study to continue to examine the Elementary and Secondary Education Act of 1965 (ESEA) Title I and Title II implementation issues. Education has developed surveys for the study that include questions regarding changes in students' access to arts education and the reasons for those changes. The department submitted the forms clearance package for the surveys to the Office of Management and Budget (OMB) on June 29, 2012 and is going forward with the survey. Education had planned initial data collection for spring 2013. To allow for inclusion of questions for states, school districts and schools about No Child Left Behind Act (NCLBA) waiver implementation, data collection has been postponed until spring 2014. The information on students' access to arts education will be collected, analyzed and disseminated to school districts then, along with this related NCLBA information.
Recommendation: To help identify factors that may contribute to changes in access to arts education for certain student subgroups, the Secretary of Education should require that the department's planned study of NCLBA implementation include questions in its surveys asking survey respondents to describe the reasons for any changes in instruction time they report. Once the information has been collected and analyzed, Education could disseminate it to school districts and schools to help them identify and develop strategies to address any disparities in access.
Agency Affected: Department of Education