Since the mid 1990s, members of the Idaho Legislature have become increasingly concerned about the effectiveness of the state's public school systems in teaching young children to read effectively. This concern grew out of a growing body of national research that documented reading as the primary, foundational skill associated with success in school as well as social and economic developments later in life. This concern prompted a number of actions: two interim legislative reading committees, testing of the reading levels of Idaho K-3 students, a legislative allocation of a million dollars to improve reading instruction, adoption by the State Board of Education of a Comprehensive Literacy Plan and passage in 1999 of a legislative package called the Idaho Comprehensive Literacy Act. An additional piece of legislation was passed into law in 2001 that established interim goals culminating in a requirement that schools insure that a minimum of 85% of all students were reading at grade level by the end of the third grade.

The Comprehensive Literacy Act represented a significant shift in educational policy in Idaho. In addition to providing funding for local school districts to improve reading instruction, the Literacy Act held schools and school districts accountable for reading education. The Act required the assessment of K-3 students' reading levels and the public reporting of the results of these assessments, it required additional training in
reading for all elementary teachers in the state and it also held teacher education programs accountable for documenting that pre-service teachers were able to teach reading effectively.

Two concurrent resolutions passed by the House/Senate and the Education Committees directed the State Board of Education, in cooperation with the State Department of Education, to conduct a study of reading education in Idaho. As a result of these resolutions, a Reading-Study Committee was formed with former state superintendent, Ann Fox, as chair. This large committee, composed of over 25 members and a number of consultants met for several months. The committee commissioned Professor George Canny of the University of Idaho to conduct a preliminary reading test of Idaho school children. The conclusions of the reading committee report included:

1) Learning to read is the most important and challenging skill taught in elementary school.

2) Forty percent of fourth graders in school in Idaho were reading below grade level.

3) The numbers of poor and/or non-readers in the state and in the nation are too high.

4) For all young children to reach their potential as readers, there must be a collaborative effort on the part of parents, educators and community members.

5) The knowledge and technology is available to help every child achieve his or her birthright to become a successful reader.

6) A variety of initiatives need to be carried out to guarantee every Idaho child's right to read.