BILL ANALYSIS Ó SENATE COMMITTEE ON EDUCATION Carol Liu, Chair 2013-2014 Regular Session BILL NO: AB 137 AUTHOR: Buchanan AMENDED: May 6, 2013 FISCAL COMM: Yes HEARING DATE: June 12, 2013 URGENCY: No CONSULTANT: Lynn Lorber SUBJECT : History-social science framework: civics. SUMMARY This bill requires the Instructional Quality Commission, when revising the history-social science framework, to receive input from civics learning experts and consider how civics and history instruction includes the application of that content. BACKGROUND Academic content standards define the knowledge, concepts, and skills that pupils should acquire at each grade level (the "what"). Curricular frameworks are the blueprint for implementing the standards, and include criteria by which instructional materials are evaluated (the "how"). The processes for reviewing frameworks and adopting instructional materials have been suspended since July 28, 2009. The State Board of Education (SBE) is specifically prohibited from reviewing frameworks and adopting instructional materials until the 2015-16 school year, except as provided below. (Education Code § 60200.7) Notwithstanding the suspension, current law: 1) Requires the SBE to adopt revised frameworks that are aligned to the common core standards in: a) Mathematics by November 30, 2013. b) English language arts by May 30, 2014. (EC § 60207) AB 137 Page 2 2) Authorizes the SBE to adopt a revised framework for history social science, but only after the California Department of Education has completed work related to the frameworks for the common core standards. (EC § 60200.8) Civics is generally included in the history-social science standards and framework, with several references to the United States and California Constitutions and democracy. Current law requires the SBE and the California Department of Education (CDE) to request that the Instructional Quality Commission (IQC) review and revise, as necessary, the course requirements in the history-social science framework to ensure that minimum standards for courses in American government and civics include sufficient attention to teaching students how to interact, in a practical manner, with state and local governmental agencies and representatives to solve problems and to petition for changes in laws and procedures. When the history-social science framework is revised, the IQC must ensure that the following historical documents are incorporated into the framework, as appropriate: The Declaration of Independence. The United States Constitution, including the Bill of Rights. The Federalist Papers. The Emancipation Proclamation. The Gettysburg Address. George Washington's Farewell Address. (EC § 33540) ANALYSIS This bill requires the Instructional Quality Commission, when revising the history-social science framework, to receive input from civics learning experts and consider how civics and history instruction includes the application of that content. Specifically, this bill: AB 137 Page 3 1) Requires the Instructional Quality Commission, whenever the history-social science framework is revised, to do all of the following: a) Receive input from civics learning experts for the purpose of integrating civics learning content, concepts and skills, at all appropriate grade levels, with the standards in core curriculum areas. b) Consider how civics and history instruction, at all appropriate grade levels, includes, in addition to the acquisition of content knowledge, the application of that content to develop the competence and skills needed for civic engagement. 2) Specifies that civics learning experts include civics education program providers, associations of civics educators, and organizations dedicated to research on civics learning. 3) Requires the State Board of Education and California Department of Education to request the Instructional Quality Commission to ensure that course requirements for American government and civics are included in all history and social science courses and grade levels, as appropriate. 4) States legislative intent that the requirements imposed by this bill be satisfied through the existing process to revise and update the history-social science framework. STAFF COMMENTS 1) Need for the bill . According to the author, "While the intent of any civic education is to provide students with an understanding of our national and state governments, civic education goes far beyond an academic understanding of democracy. The ultimate goal of any civic education program must be to encourage individuals to actively engage in the practice of democracy in the United States and other countries. Civic education in our K-12 schools is a AB 137 Page 4 critical first step to ensure that the principles of democracy continue." 2) History-social science framework . The most recent version of the history-social science framework was adopted by the State Board of Education (SBE) in 2005. A review of this framework was underway and nearly complete when the state suspended the process due to budget constraints in July 2009. Current law prohibits the State Board of Education (SBE) from revising curricular frameworks or criteria by which instructional materials are evaluated until the 2015-16 school year, other than for the common core standards in English language arts and mathematics and the history-social science framework. The Instructional Quality Commission is expected to complete the process of updating the history-social science framework in the Fall of 2017. This bill states intent that the current history-social science framework process satisfies the requirements of this bill, ensuring that the review process would not be restarted from the beginning (the review of this framework was suspended prior to the 60-day comment period and, once resumed, will include input from civics learning experts as required by this bill). 3) Fiscal impact . According to the Assembly Appropriations Committee analysis, to the extent the requirements of this bill can be met through the scheduled history-social science curriculum framework review process, there will be minor, absorbable General Fund costs to the California Department of Education (CDE) to implement this measure. If these requirements cannot be achieved within the existing review process, there will likely be one-time General Fund administrative costs to CDE between $75,000 and $100,000. 4) Technical amendment needed . This bill requires the Instructional Quality Commission to receive input from civics learning experts for the purpose of integrating civics instruction with the standards in core curriculum areas, with a cross-reference to the standards adopted by the SBE. Staff recommends an AB 137 Page 5 amendment to also reference the common core standards that have been adopted by the SBE, which include literacy standards in history-social science, science and technical subjects. (On page 2, line 22, after "60605" insert "and 60605.8.") 5) Related legislation . AB 123 (Bonta) requires the SBE to ensure the state curriculum, frameworks and evaluation criteria include instruction on the contributions of immigrants, including Filipino Americans, to the farm labor movement in the United States. AB 123 is pending in the Senate. AB 166 (Hernandez) requires the next revision of the curricular frameworks for history-social science, mathematics, and health to include financial literacy, as specified. AB 166 is scheduled to be heard by this Committee on June 12. AB 391 (Wieckowski) requires the history-social science curriculum framework, when it is revised, to ensure it encourages instruction related to the understanding of personal finances, including budgeting, savings, credit and loans, identity theft, and paying for postsecondary education. AB 391 also requires information on budgeting, savings, loans, identity theft/security, and planning for postsecondary education to be included in a one semester instructional program entitled consumer economics for use in grades 7-12. AB 391 was held on the Assembly Appropriations Committee's suspense file. AB 424 (Donnelly) requires the Instructional Quality Commission, when revising the history-social science framework, to consider incorporating into the framework the Magna Carta. Articles of Confederation, and California Constitution. AB 424 also requires the Commission to encourage instruction that promotes an understanding of the governments of California and the United States. AB 424 is pending in the Senate. AB 700 (Gomez) requires the Instructional Quality Commission, when revising the history-social science framework, to include voter education information in the high school American Government and civics courses, including information on the importance of AB 137 Page 6 registering to vote in local, state, and federal elections, and where how to access the voter information pamphlet and other materials to become an informed voter, to be included. AB 700 is pending in the Senate. SB 521 (Wyland) requires the SBE and CDE to request the Instructional Quality Commission, when revising the history-social science framework, to update the courses in American Government and civics to include the comparative differences between the rights of the citizens in American and those in other countries, and the connection of civics and American government to western civilizations. SB 521 is pending in this Committee. SB 552 (Calderon) authorizes social science instruction in grades 7-12 to include instruction on violence awareness. SB 552 is pending in the Assembly Education Committee. SB 696 (Block) requires the Superintendent of Public Instruction to report to the Legislature and recommend to the SBE for adoption a project-based assessment to measure the civics learning objectives contained in the history-social science framework for grades 6-12. SB 696 was held on the Senate Appropriations Committee's suspense file. SB 619 (Yee) requires the CDE, if private funds are secured for this purpose, to develop and make available online a state employee civics orientation on federal and state government by January 1, 2015. SB 619 was held on the Senate Appropriations Committee's suspense file. SUPPORT Association of California School Administrators California Chamber of Commerce California Federation of Teachers California Teachers Association Sonoma County Bar Association AB 137 Page 7 OPPOSITION None on file.