BILL ANALYSIS                                                                                                                                                                                                    



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          Date of Hearing:   June 26, 2013

                           ASSEMBLY COMMITTEE ON EDUCATION
                                Joan Buchanan, Chair
                    SB 330 (Padilla) - As Amended:  June 18, 2013

           SENATE VOTE :   39-0
           
          SUBJECT  :   Pupil Instruction: Health Framework: Mental Health  
          Instruction

           SUMMARY  :   Incorporates, upon the next revision, instruction on  
          mental health into the Health Curriculum Framework.   
          Specifically,  this bill  :  

          1)Requires, when the Health Framework for Public Schools is next  
            revised, the Instructional Quality Commission (IQC) to develop  
            and recommend to the State Board of Education (SBE) a distinct  
            category on mental health instruction to educate pupils about  
            all aspects of mental health.

          2)Specifies that mental health instruction shall include, but is  
            not limit to, all of the following:
             a)   Reasonably designed and age-appropriate instruction on  
               the overarching themes and core principles of mental  
               health.
             b)   Defining common mental health challenges such as  
               depression, suicidal thoughts and behaviors, schizophrenia,  
               bipolar disorder, eating disorders, and anxiety, including  
               post-traumatic stress disorder.
             c)   Elucidating the services and supports that effectively  
               help individuals manage mental health challenges.
             d)   Promoting mental health wellness, which includes  
               positive development, social connectedness and supportive  
               relationships, resiliency, problem solving skills, coping  
               skills, self-esteem, and a positive school and home  
               environment in which pupils feel comfortable.
             e)   Ability to identify warning signs of common mental  
               health problems in order to promote awareness and early  
               intervention so pupils know to take action before a  
               situation turns into a crisis; and, specifies this should  
               include instruction on both of the following:
               i)     How to appropriately seek and find assistance from  
                 mental health professionals and services within the  
                 school district and in the community for themselves or  








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                 others.
               ii)    Appropriate evidence-based research and practices  
                 that are proven to help overcome mental health  
                 challenges.
             f)   The connection and importance of mental health to  
               overall health and academic success as well as to  
               co-occurring conditions, such as chronic physical  
               conditions and chemical dependence and substance abuse.
             g)   Awareness and appreciation about the prevalence of  
               mental health challenges across all populations, races,  
               ethnicities, and socioeconomic statuses, including the  
               impact of culture on the experience and treatment of mental  
               health challenges.
             h)   Stigma surrounding mental health challenges and what can  
               be done to overcome stigma, increase awareness, and promote  
               acceptance; and, specifies this shall include, to the  
               extent possible, classroom presentations of narratives by  
               peers and other individuals who have experienced mental  
               health challenges, and how they coped with their  
               situations, including how they sought help and acceptance.

          3)Requires the California Department of Education (CDE) to  
            convene stakeholders in the mental health and education  
            fields, including, but not limited to, stakeholders from  
            culturally, racially, and ethnically diverse communities,  
            representatives from all mental health professions, teachers,  
            counselors, parents, those involved in promoting mental  
            wellness, and those living with a mental health challenge and  
            their families, to provide input for the development of the  
            mental health instruction in the health framework; requires at  
            least one-half of the stakeholders convened to be current  
            elementary and secondary classroom teachers; and, requires the  
            CDE to review information and programs from other states and  
            countries.

          4)Authorizes a school district to provide mental health  
            instruction commencing with the 2013-14 school year. 

          5)Specifies that this measure does not require or authorize the  
            Instructional Quality Commission to recommend new health  
            education content standards.

          6)Makes findings and declarations of the Legislature relating to  
            the importance of mental health awareness; and, that all  
            California kindergarten and grades 1 to 12, inclusive, pupils  








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            have the opportunity to benefit from a comprehensive mental  
            health education curriculum.

           EXISTING LAW  :

          1)Declares Legislative intent that an adequate health education  
            program in the public schools is essential to continued  
            progress and improvement in the quality of public health in  
            this state and that comprehensive health education, taught by  
            properly trained person, is effective in the prevention of  
            disease and disability.  (Education code 51881)

          2)Defines "comprehensive health education programs" as all  
            educational programs offered in kindergarten and grades 1 to  
            12 in the public school system designed to ensure that pupils  
            will receive instruction to aid them in making decisions in  
            matters of personal, family, and community health.  (Education  
            code 51890)

          3)Requires the State Board of Education to adopt content  
            standards in the curriculum area of health education, based on  
            the recommendations of the Superintendent of Public  
            Instruction.  (Education code 51210.8)

           FISCAL EFFECT  :   According to the Senate Appropriations  
          Committee:

          1)Mental Health inclusion in Health framework: No new state  
            costs, because the next update of the Health framework will  
            include a mental health topic even absent this bill.

          2)Stakeholder work group: Potentially significant costs. The CDE  
            estimates $80,000 in costs to convene the specified  
            stakeholders to provide input for the framework.

           COMMENTS  :    Health Education Standards  .  California curriculum  
          is based on content standards.  The State Board of Education  
          (SBE) adopted Health Education Contend Standards for California  
          Public Schools, Kindergarten Through Grade Twelve on March 12,  
          2008.  The curriculum frameworks are guidelines of implementing  
          the adopted standards.  The health curriculum framework was  
          scheduled to be revised to align it to the 2008 health standards  
          but due to the fiscal situation in the State and resulting  
          budget actions, the development of curriculum frameworks and  
          adoption of instructional materials has been suspended until the  








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          2015-16 school year.  AB 2 X4 (Evans), Chapter 2, Statutes of  
          2009-10, prohibits the SBE from adopting or following any of the  
          procedures to adopt instructional materials, including following  
          the procedures related to framework development, through the  
          2012-13 school year.  SB 70 (Budget Committee) Chapter 7,  
          Statutes of 2011, extends this prohibition to the 2015-16 school  
          year.  The revision and adoption of a health framework may be  
          several years away given the existing fiscal challenges.  

          Despite the delay in the adoption of a health framework, the  
          committee should consider whether it is important to include  
          mental health education in the next revision of the health  
          framework.  California does not require the completion of a  
          health course as a condition for graduation from high school.   
          Districts are authorized to offer health education courses to  
          students and may require students to complete health education  
          coursework as a district graduation requirement.  

          As indicated by the Senate Appropriations Committee analysis,  
          the adopted standards for health education already include  
          references to mental health.  Within these standards, "Mental,  
          Emotional and Social Health" is one of six emphases across the  
          grade levels.  For example, in grades 7-12, the standards call  
          for instruction in describing the "importance of recognizing  
          signs of disordered eating and other common mental health  
          conditions" and analyzing the "signs of depression, potential  
          suicide, and other self-destructive behaviors."

          A number of bills have been introduced this year proposing to  
          require instruction include a specific topic.  The Committee  
          should consider the extent to which specific content should be  
          developed through statutory incorporation versus through the  
          Instructional Quality Commission (IQC) process.  The IQC is an  
          18-member commission consisting of one member of one member of  
          the Assembly, one member of the Senate, and 16 public members.   
          At least seven of the public members must have taught, written,  
          or lectured on the subject areas required for graduation.  The  
          IQC members have subject matter expertise and can balance  
          competing demands for limited instructional time.  Staff  
          recommends the bill be amended to specify that the IQC shall  
          consider developing and recommending for adoption by the state  
          board, a distinct category on mental health instruction to  
          educate pupils about all aspects of mental health.

           New Instructional Materials  :  The committee should consider that  








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          with the inclusion of this new topic in health education, it is  
          possible that health teachers may not have the necessary  
          experience to teach the detailed and specific topics included in  
          the bill and may need specialized training and resources.  It is  
          also unclear whether these resources already exist and how they  
          will be identified.  School districts may need to identify these  
          materials on their own.

          According to the author, mental health is important to overall  
          health, quality of life, and academic success. Mental health  
          challenges can interfere with daily activities, school work,  
          friendships, and can result in decreased productivity, pain, and  
          suffering.  Mental health challenges touch everyone affect all  
          age groups, races, ethnicities, and socioeconomic classes.  
          According to the National Institute of Health an estimated one  
          in five children and one in four adults live with some sort of  
          mental health challenge. In total, close to fifty percent of all  
          Americans will experience a mental health challenge over their  
          lifetime. This doesn't include those affected by the mental  
          health challenges of close friends and family.  Education is one  
          of the best ways to increase awareness and treatment, and reduce  
          the stigma associated with mental health challenges.  
          California's public education system is one of the most  
          effective means to provide each child with an opportunity to  
          acquire knowledge about mental health issues.  Current code  
          provides minimal, almost no, guidelines on what mental health  
          topics should be included in the state's comprehensive health  
          education programs. SB 330 puts into code specific issues the  
          state should include on mental health in its education  
          framework.  This bill would require the State Board of Education  
          and the Instructional Quality Commission to develop, and  
          recommend for adoption by the state board, a distinct category  
          on mental health instruction to educate pupils about all aspects  
          of mental health.

           Committee Amendment  : Specify that the IQC shall consider  
          developing and recommending for adoption by the state board, a  
          distinct category on mental health instruction to educate pupils  
          about all aspects of mental health.

           Related Legislation  :  AB 137 (Buchanan), pending in the Senate,  
          requires the IQC to receive input from specified experts on  
          civic learning the next time the history-social science  
          frameworks are developed and encourages civic learning content  
          to be integrated throughout the history-social science  








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          framework.

          AB 391 (Wieckowski), which was held in the Assembly  
          Appropriations Committee, specifies the next time the  
          history-social science frameworks are developed that they  
          encourage financial literacy and requires the SPI to update the  
          exiting consumer economics course to include instruction in  
          personal financial literacy.

          AB 424 (Donnelly) pending in the Senate, requires revisions to  
          the history/social science framework to encourage instruction in  
          the social sciences to include the development of democracy and  
          the history of the development of the United States  
          Constitution.

           REGISTERED SUPPORT / OPPOSITION  :

           Support 
           
          Association of California School Administrators
          California Association of Marriage and Family Therapists
          California Association of School Psychologists
          California Association of School Social Workers
          California Mental Health Directors Association
          California Psychological Association
          California State PTA
          Disabilities Rights California
          Long Beach Unified School District
          Los Angeles County Office of Education
          Los Angeles Unified School District
          Mental Health America of California
          National Alliance on Mental Illness
          National Association of Social Workers
          The Arc and United Cerebral Palsy California Collaboration
           
            Opposition 
           
          California Right to Life Committee, Inc. 

           Analysis Prepared by  :    Chelsea Kelley / ED. / (916) 319-2087