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Following the U.S. Supreme Court's ruling that the Cleveland Scholarship and Tuition Program did not violate the First Amendment of the U.S. Constitution (Zelman v. Simmons-Harris, 2002), many proponents of private school choice expected voucher programs to sprout throughout the United States. Almost a decade after the Zelman ruling, however, there has yet to be an outpouring of new state or federally sponsored voucher programs. While new programs have emerged, their number remains limited compared to other forms of school choice. As of 2011, only eight states and Washington, D.C., provide publicly financed vouchers for students to attend private schools, and these programs are limited to serving either low-income students or those eligible for special education services.

The slow expansion of vouchers could be explained by debates linked to the legal, political, and policy contexts in which vouchers are evolving. Voucher proponents contend that awarding school aid directly to parents—rather than to local school bureaucracies—will set in motion market pressures that encourage competition among private and public schools and that push educational quality upward. Arguments espousing the benefits of increased consumer choice and competition, as well as the right of parents to direct their children's education, are similarly used. Critics argue that the theoretical underpinnings of voucher reform are unproven and highly contested and that a number of negative consequences attributable to voucher programs have been more persuasively demonstrated in recent research. This entry examines these contested issues and focuses on student achievement of voucher students.

Existing Voucher Programs

In the United States, only about 67,000 students use publicly funded vouchers, according to the pro-voucher Alliance for School Choice, or roughly one-thousandth of 1% of all students. This number is striking when compared to other forms of school choice. Charter schools, which are schools of choice freed from most state and local regulations governing schools including student catchment zones, now enroll more than 1.7 million students in 41 states. Approximately one fourth of these students (23.5%) attend schools run by for-profit education management companies. An additional 1.5 million students are homeschooled each year. Even the number of private school students, a historically stable population, has increased over the past decade to 5.1 million in 2010, accounting for nearly 11% of the total U.S. student population, compared to 9% in 1993.

The first voucher program was enacted in Milwaukee, Wisconsin, in 1989. The Milwaukee Parental Choice Program (MPCP) granted students from families with incomes not exceeding 175% of the federal poverty line vouchers to attend nonsectarian private schools. Student participation was capped at no more than 1% of total district enrollments. In 1995, new legislation expanded the program to include sectarian schools and raised the student cap to 15% of the total district enrollments, or roughly 15,000 students. Over the past decade, encroachments against this new cap again prompted legislation. In 2006, the number of potential MPCP participants was increased to 22,500 and eligibility was extended to students from families with incomes at or below 220% of the federal poverty line. Evaluations of MPCP show that participating schools are overwhelmingly populated by minority students, as are Milwaukee's traditional public schools.

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