The House Education Committee sent House Bill 84 to the floor Wednesday with a 8-6 vote.

The measure, sponsored by Democratic Rep. Karen Morgan, would prohibit schools from advancing first- or second-graders to the next grade unless they have made a year's worth of improvement in reading skills or can read on grade level. No matter how much improvement third-graders made, they would be held back if they could not read on grade level.

Schools would be required to notify parents by the middle of the school year if their students were not on track for promotion. In addition, the bill mandates that schools offer services such as personalized tutoring, before- and after-school programs and summer school for those struggling students.

"I consider it to be a safety net for poor readers," said Morgan, of Cottonwood Heights. "It'll change lives."

The measure would be phased in beginning with next year's kindergarteners. English learners and students with disabilities would be exempt.

Morgan said she sees the bill as the accountability piece to 2004 legislation that made $30 million available for school districts to beef up their reading programs in kindergarten through third grade.

That money should be targeted to students who have a hard time with reading, she said.

"I believe this is the next step," she said. "We must ensure our struggling readers get the help they need."

One Davis School District official warned that a state policy to hold kids back could do more harm than good.

"I agree with the intent, but my concern is that the decision to retain a child is a painful, complex one best made by a teacher who has worked with the child . . . and parents," said Sandy Peterson, an assistant superintendent in Davis School District.

Several studies show that students who repeat a grade suffer lower self-esteem and are more likely to drop out.

Morgan said the threat of retention will be enough to spur most teachers, parents and students to focus their efforts and improve students' literacy skills long before they have to repeat a grade.

As a mother of a struggling reader, Polly Tribe said she supports the bill - as long as it emphasizes helping students.

"I just want to make sure we don't penalize the child for the inadequate training of teachers," she said.

Asked whether it was possible for all children to read by the end of third grade, state schools Superintendent Patti Harrington said: "Not all tomatoes ripen at the same time, even if they're on the same vine."

Accomplishing the bill's goals will require great teachers, and strong district and school leadership, she said.

rlynn@sltrib.com