How States Are Strengthening Literacy Policies

In recent years, many states have enacted policies intended to improve literacy outcomes for students. These policies cover a wide range of science-based approaches along the continuum of prevention and intervention. Common state policies include the development and adoption of high-quality curricula, requiring pre-service educator candidates to complete coursework and pass a reading instruction assessment prior to licensure, and professional learning for in-service educators and administrators. Below is an overview of each policy approach and examples that were recently enacted or came into effect.

Literacy Curriculum Requirements

ECS identified at least 18 states with policies related to literacy curricula; some require districts to adopt a curriculum from a state-approved list, while others only specify the requirements or standards around evidence- or science-based literacy instruction with which local districts must comply in their curricula.

• Massachusetts H.B. 5511 (2026) requires districts to adopt high-quality curricula aligned with evidence-based literacy instruction. The bill establishes a special revenue fund for the development of free instructional resources meeting the standards of high-quality materials, and districts will be required to adopt materials approved by the department of education beginning in school year 2027-28.
• North Carolina S.B. 387 (2021) required the state board of education to develop literacy instruction standards and a model literacy implementation plan aligned with the science of reading. Local districts must evaluate their literacy curriculum and align it to the board standards, then submit a report to the state education agency for review. All modified literacy curricula were required to be in place beginning in the 2024-25 school year.
• Virginia S.B. 616 (2022) required the department of education to develop a list of evidence-based literacy curricula and intervention programs to be approved by the state board of education. Beginning in school year 2024-25 local school boards were required to develop a literacy plan that uses curricula and programs from the list developed by the department, unless the department approves an alternate program consistent with evidence-based literacy instruction.

Pre-Service Educator Requirements

Many states have taken steps to ensure that educators receive sufficient preparation in literacy instruction prior to entering the classroom. This may include requiring coursework specific to evidence-based literacy concepts grounded in the science of reading, as well as requiring candidates to pass a test demonstrating knowledge of such concepts as a condition of licensure. Based on statutes and administrative regulations from ECS’ 50-State Comparison on K-3 Policies and enactments from the most recent legislative sessions, ECS identified at least 37 states that specify pre-service requirements for literacy concepts grounded in the science of reading for all teachers of certain grade levels.

As of 2024, the National Council on Teacher Quality identified at least 21 states that require educator candidates to pass a test rated as “strong” in measuring knowledge of the science of reading.

• California A.B. 1454 (2025) requires the state commission on teacher credentialing to update preparation standards for teacher candidates by January 2028. The standards must be aligned with the state’s English Language Arts/English Language Development (ELA/ELD) Framework, evidence-based means of teaching foundational reading skills, and the state’s program guidelines for dyslexia.
• Kentucky S.B. 9 (2022) requires teacher preparation programs for early childhood or elementary education to provide evidence-based reading instructional programming related to reading instruction in the areas of phonemic awareness, phonics, fluency, vocabulary, and comprehension. Effective in the 2024-25 school year, the bill also requires all ECE or elementary teachers seeking certification to pass an exam on reading instruction.
• Washington H.B. 1295 (2026) requires the educator standards board to revise competency standards for literacy-related endorsements, including elementary education. The revised standards must be incorporated by teacher preparation programs within two years of the finalized revisions.
• In addition to requiring teacher candidates to pass the Foundations of Reading Test, Wisconsin passed A.B. 321 (2023) to require a teacher preparation program to demonstrate that its instruction prepares teachers to teach reading and language arts using science-based early reading instruction and that it does not provide instruction on teaching reading and language arts that incorporates three-cueing.

In-Service Educator Professional Development

Another strategy states use to bolster educator expertise in literacy instruction is requiring professional development for in-service educators serving certain grades. Based on statutes and administrative regulations from ECS’ 50-State Comparison on K-3 Policies and enactments from the most recent legislative sessions, ECS identified at least 26 states with these policies.

• In addition to establishing requirements for educator preparation programs, Arizona S.B. 1572 (2021) also requires all certified K-5 teachers providing literacy instruction to obtain a literacy endorsement and pass the Foundations of Reading assessment beginning in 2025. The endorsement, which is made available at no cost, may be fulfilled by approved college coursework or trainings in the science of reading. Currently certified teachers must obtain the endorsement by 2028.
• New Jersey S.B. 2644 (2024) required all districts to provide professional development to educators serving preschool through sixth grade beginning in 2025. The bill established a working group tasked with providing recommendations for several policy provisions, including professional development. The state department of education recently released some of the group’s recommendations, which includes a plan to expand availability of an existing professional development module in early literacy.
• Utah S.B. 127 (2022) requires all K-3 teachers and elementary principals to complete an early literacy professional learning opportunity by 2025. It also requires districts to apply for grant funding to provide the required training.

Comprehensive Literacy Policies

While some states have enacted literacy policies incrementally over multiple years, others have crafted sweeping legislation that addresses multiple components related to the science of reading. Below are recent state examples.

• Georgia B. 538 (2023), also known as the Early Literacy Act, establishes requirements for high-quality curriculum, screeners, interventions, and pre- and in-service teacher training. Implementation of all provisions began in the 2025-26 school year.
• Illinois B. 2243 (2023) required the state board to develop a comprehensive literacy plan by January 2024. The bill also required the board to provide guidance to local districts in selecting high-quality curricula and developing literacy plans, and to provide training and coaching to teachers at no cost.
• New Mexico S.B. 37 (2026) establishes new requirements for pre-service teacher preparation, in-service professional development, literacy coaching, K-3 reading assessments, interventions, and adoption of high-quality instructional materials. These provisions will be implemented in the 2026-7 and 2027-28 school years.
• Oregon B. 3198 (2023, Enacted) created the Early Literacy Success Initiative. The Initiative includes several programs aimed at improving literacy outcomes in the state, including grants for school districts that may be used for a variety of research-aligned strategies. This funding is intended primarily for the benefit of students in grades Pre-K through 3 and may include professional development and coaching, extended learning programs, high-dosage tutoring, the adoption of research-aligned curricula, and employment of literacy specialists. H.B. 3040 (2025) modified the Initiative to designate stricter requirements for the use of funds. The bill allows the state education agency to require school districts to adopt specified instructional materials or participate in certain trainings if the district does not meet the literacy goals established in its early literacy success plan.

Student Outcomes

In 2022, the National Assessment of Educational Progress (NAEP) showed a decrease in the national average 4^th grade reading score, with this decrease reflected in most states and no significant change in the remaining states. The recently released 2024 NAEP scores showed a continued downward trend, with five states scoring lower than 2022 and the remaining states showing no significant change. Achievement gaps between student groups, such as those from low-income backgrounds, also continued to widen.

Only Mississippi and Louisiana have seen statistically significant increases to their NAEP reading scores over the last decade. Some state-administered assessment scores have shown some improvement, but due to a lack of comparability across state assessments NAEP remains the best measure of growth. These results, while sobering, should not necessarily be attributed to a lack of efficacy in states’ literacy policies. While dozens of states have enacted policies related to the science of reading over the last several years, implementation efforts in many states are still ongoing. Some states with newly enacted policies are currently or will soon be conducting evaluations to measure progress and identify areas for improvement.

Additional Resources

• 50-State Comparison: K-3 Policies – Education Commission of the States, 2023. This resource reviews all 50 states’ policies on a variety of kindergarten through third grade topics, including literacy interventions, teacher training, and retention. Update for 2026 scheduled for release in September.
• Comprehensive Early Literacy Policy: A State-by-State Analysis – ExcelinEd, 2024. This toolkit provides an inventory of each state’s policies around teacher supports, assessment, intervention, and retention.
• Science of Reading Legislation and Implementation State Scan – Council of Chief State School Officers, 2024. This resource provides a deeper look at each state’s literacy policies and implementation efforts.