BILL ANALYSIS
SB 381
Page A
Date of Hearing: July 8, 2009
ASSEMBLY COMMITTEE ON EDUCATION
Julia Brownley, Chair
SB 381 (Wright) - As Amended: May 4, 2009
SENATE VOTE : 32-2
SUBJECT : High school instruction: course of study
SUMMARY : Prohibits a school district from adopting a graduation
requirement that requires the completion of additional
coursework to meet or exceed the requirements and prerequisites
for admission to a four-year California public university unless
the district also adopts an optional graduation requirement that
requires the completion of an equal amount of coursework to
attain entry-level employment skills in business or industry
upon graduation from high school. Specifically, this bill :
1)Specifies that the optional graduation requirement shall
include the state high school graduation requirements and a
sequence of at least three career and technical education
(CTE) courses.
2)Provides that the governing board of the school district shall
ensure that the sequence of CTE courses is aligned with the
curriculum content standards for career and technical
education adopted by the State Board of Education (SBE).
3)Requires the governing board of any school district
maintaining a high school to prescribe courses of study
designed to provide every pupil with the opportunity to be
prepared to enter the world of work with sufficient marketable
skills and knowledge for legitimate remunerative employment.
EXISTING LAW :
1)Establishes the following minimum high school graduation
requirements for pupils in grades 9-12, inclusive:
a) Three years of English;
b) Two years of math;
c) Two years of science;
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d) Three years of social studies, including a one-semester
course in American government and civics and a one-semester
course in economics;
e) One course in visual or performing arts or foreign
language;
f) Two courses in physical education; and,
g) Other coursework that the governing board of the school
district may specify.
2)Specifies that governing boards, with the active involvement
of parents, administrators, teachers, and pupils, shall adopt
alternative means for pupils to complete the prescribed course
of study which may include practical demonstration of skills
and competencies, supervised work experience or other outside
school experience, CTE classes, courses offered by regional
occupational centers or programs (ROC/Ps), interdisciplinary
study, independent study, and credit earned at a postsecondary
institution.
3)Requires that specified alternative modes for completing the
prescribed course of study shall be made available to pupils,
parents, and the public.
4)Requires districts maintaining any of grades 7-12, inclusive,
to offer to all otherwise qualified pupils in those grade
levels a course of study that fulfills the requirements and
prerequisites for admission to California's public
institutions of postsecondary education.
5)Requires districts maintaining any of grades 7-12, inclusive
to offer to all otherwise qualified pupils a course of study
that provides an opportunity for pupils to attain entry-level
employment skills in business or industry upon graduation from
high school.
6)Requires, commencing with the 2003-04 school year and each
year thereafter, at least one course, or a combination of the
two courses, in mathematics required to be completed by pupils
while in grades 9 to 12, inclusive, prior to receiving a
diploma of graduation from high school, meet or exceed the
rigor of the content standards for Algebra I, as adopted by
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the SBE.
FISCAL EFFECT : This bill is keyed non-fiscal, however, the
Assembly Appropriations Committee has requested this bill be
referred to them. If this bill is passed by the Assembly
Education Committee, it will be referred to the Committee on
Appropriations to consider the fiscal implications.
COMMENTS : Background materials on this bill were not received
in a timely manner from the author.
The state has established minimum graduation requirements for
all students but high school graduation requirements vary among
school districts across the state as local districts are
authorized to adopt graduation requirements beyond the
statutorily required courses. Completion of the minimum state
and local coursework graduation requirements, passage of the
high school exit exam, and completion of an Algebra 1 course
must be satisfied in order for a pupil to receive a high school
diploma in California.
This bill prohibits a school district from adopting a graduation
requirement that requires the completion of additional
coursework to meet or exceed the requirements and prerequisites
for admission to a four-year California public university unless
the district also adopts an optional graduation requirement that
requires the completion of an equal amount of coursework to
attain entry-level employment skills in business or industry
upon graduation from high school. This bill further requires
the optional graduation requirement to include all the state
graduation requirements and at least three CTE courses.
The Board of Admissions and Relations with schools (BOARS)
establishes the subject areas and pattern of courses required
for minimum eligibility for freshman admission to the University
of California (UC). These requirements are known as the A-G
requirements, and the California State University (CSU) system
also accepts courses certified by BOARS as minimum eligibility
requirements. The A-G requirements consist of 15 courses and
three recommended courses as follows:
----------------------------------------------
|History/Social Science - 2 years required |
|----------------------------------------------|
|English - 4 years required |
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|----------------------------------------------|
|Mathematics - 3 years required, 4 years |
|recommended |
|----------------------------------------------|
|Laboratory Science - 2 years required, 3 |
|years recommended |
|----------------------------------------------|
|Language Other than English - 2 years |
|required, 3 years recommended |
|----------------------------------------------|
|Visual and Performing Arts - 1 year required |
|----------------------------------------------|
|College-Preparatory Electives - 1 year |
|required |
----------------------------------------------
This bill raises several policy questions for this Committee to
consider.
Local control : Local communities across the state have
initiated efforts to increase access to college preparatory
coursework to improve college-going rates in those communities.
Most recently, the Oakland Unified School District decided to
make the college preparatory curriculum the default curriculum
for high school graduation for students entering high school in
2011. This decision was in response to civil rights groups and
student activists who called on the school board to enroll all
high school pupils in the sequence of courses required for
admission to California universities. The Oakland Tribune notes
that students led the way in the effort to raise graduation
standards in the district.<1>
Several studies have documented the continuing
under-representation of Latinos and African American in
institutions of higher education. According to the California
Educational Opportunity Report, by the University of California
Los Angeles, Institute of Democracy, Education and Access
(UCLA/IDEA), "Over a million (1,049,414) California high school
students attend schools that do not offer enough A-G courses for
all students to take the college preparatory curriculum. While
over half of the high schools serving majority white and Asian
students lack sufficient A-G courses, more than two-thirds of
---------------------------
<1> Murphy, Katy. "Oakland Public Schools to Ramp Up College
Prep Courses, Graduation Requirements." Oakland Tribune. June
12, 2009. www.insidebayarea.com
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the high schools with a majority of underrepresented students
face this problem."
The San Jose Unified School District and the Los Angeles Unified
School District have adopted similar resolutions and now require
all pupils to complete the "A-G" course requirements for high
school graduation. The new requirements of this bill will have
an impact on districts such as these that had made the decision
to make the A-G curriculum the default high school graduation
requirement in previous years. If this bill is enacted, these
districts will have to comply with an additional mandate or
reverse their policies, because the mandate imposed by this bill
could be cost prohibitive.
Should the state create policies that would interfere with local
control by imposing costly mandates that would prohibit local
school districts from implementing sequences of courses or
curricula that exceed the state minimum graduation requirements?
Lower standards and not necessarily more CTE : An argument could
be made that this bill will have a chilling effect on districts
that are considering adopting even a single graduation
requirement that is above the state minimum requirements, if
that single requirement meets one of the courses in the A-G
course sequence. For example, statute requires three years of
English for high school graduation, but the "A-G" course
sequence requires four years of English, hence if a district
chooses to require four years of English, as many do, without
necessarily adopting the complete A-G sequence, that district
will have to comply with the additional mandated provisions in
this bill. Districts will be dissuaded from adopting any
graduation requirement that may be beyond the state minimum
requirements, or compelled to curtail existing graduation
requirements if those requirements also meet one of the A-G
course requirements, in order to avoid the mandate of this bill.
This will potentially result in districts adopting less
academically rigorous high school graduation standards or in
districts lowering their graduation requirements for all
students and may not necessarily result in an increase in the
number of CTE course offerings, which appears to be the goal of
this bill. The end result could be counterproductive to the
desired result and to expanding opportunities for pupils.
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Not only could this bill limit the postsecondary opportunities
for all pupils, but it could also result in a drastic step
backwards in the attempt to provide a more rigorous and relevant
curriculum for all pupils that will prepare them for life after
high school.
Dual graduation tracks : This bill requires for districts that
adopt a requirement that meets or exceeds the A-G course
sequence to also adopt "an optional graduation requirement that
requires the completion of an equal amount of coursework to
attain entry-level employment skills in business or industry
upon graduation from high school" and specifies that this
optional graduation requirement shall include the state high
school graduation requirements outlined in statute and a
sequence of at least three career and technical education (CTE)
courses.
It is unclear as to what "an equal amount of coursework to
attain entry-level employment skills in business or industry"
means. It can be argued that entry-level employment skills vary
by industry so it is unclear as to how a district would
implement such an optional graduation requirement.
This optional graduation requirement would be an alternative to
the college preparatory curriculum, thus clearly requiring a
two-track system in districts that choose to adopt a requirement
that meets the A-G course sequence. This is contrary to recent
research around CTE and recent legislative efforts to integrate
academics with CTE through multiple pathway programs. Recent
research suggests that the concept of "multiple pathways" would
end "the tired debate about whether high school students need
more rigorous academics or a more relevant career-focused
curriculum.<2> The idea behind "multiple pathways" is the
restructuring of high school education into pathways that
prepare students for college, career and civic responsibility.
Integrated curriculum : The "multiple pathways" approach is a
promising strategy that can deliver a rigorous and relevant
curriculum that includes core academics, applied learning and
CTE. Multiple pathway programs make core academic subjects more
relevant and applied and provide access to technical courses and
---------------------------
<2> Oakes, Jeannie, et al. Multiple Perspectives on Multiple
Pathways: Preparing California's Youth for College Career and
Civic Responsibility. UCLA/IDEA and UC/ACCORD. 2007.
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work-based learning opportunities. The integration of career
based themes and content across all subject areas is a promising
approach that would give students the opportunity to access both
core content and CTE without having to choose one over the
other.
A report due to the Legislature by the end of this year may
provide policy makers important information on the feasibility
to expand career multiple pathway programs. A measure enacted
last year, AB 2648 (Bass, Carter & Furutani), Chapter 681,
Statutes of 2008, required the Superintendent of Public
Instruction (SPI) to develop, in conjunction with specified
individuals, a report that explores the feasibility of expanding
and establishing career multiple pathway programs. AB 2648
requires the report to include specified components, including,
but not limited to, methods for developing and sharing models of
integrated curriculum and instruction, strategies for increasing
the course options and instructional time for pupils in high
school, and recommendations for supporting regional coalitions
in planning and developing the programs. The report is due to
the Legislature by December 1, 2009.
Furthermore, a Little Hoover Commission study on CTE "found
encouraging evidence that CTE -in its modern, academically
demanding form- can deliver an alternative approach to learning
that can keep students engaged, help improve grade point
averages and prepare students for both the work world and higher
education."
The California Dropout Research Project also released a report
entitled, Solving California's Dropout Crisis which estimated
that only about two thirds of California's students graduate on
time and that dropping out and low achievement have many shared
causes such as poor attendance, low engagement and low-quality
instruction. One of the recommendations in the report suggested
that the state should consider more options for students to meet
the graduation requirements and points out that, "An increasing
number of states have pursued the idea of multiple pathways for
students to meet high school graduation requirements such as
through career and technical education courses."
Should policies encourage integration of CTE and academic course
work or require separate high school graduation tracks for
college preparation and employment preparation?
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In addition, this bill redefines the role of high schools by
requiring the governing board of any school district maintaining
a high school to prescribe courses of study to provide every
pupil "with the opportunity to be prepared to enter the world of
work with sufficient skills and knowledge for legitimate
remunerative employment," whereas current law requires school
districts to provide a course of study to provide "skills and
knowledge required for adult life." Would it be prudent to
leave current law in place relative to the requirement on high
schools to prepare pupils for adult life?
The bill requires at least three CTE courses as part of the
optional graduation requirements for the non college preparatory
track. Assuming the concept of dual tracks is an acceptable
policy for this Committee, an argument could be made that a
graduation track that prepares pupils for the world of work
should also include subject areas such as foreign language. It
has been argued that foreign languages provide valuable skills
for pupils to compete successfully in the global economy,
nevertheless there is no concrete requirement for foreign
language to be part of this alternative track. It would be an
option but not a requirement.
There is evidence that CTE has a role in engaging students in
academic learning and there is much support in expanding
opportunities that prepare pupils to make choices for life after
high school. In its current form, however, it is questionable
whether this bill will achieve the desired result.
It should be noted that under current law, districts are
required to adopt alternative means for pupils to complete the
prescribed course of study which may include practical
demonstration of skills and competencies, supervised work
experience or other outside school experience, CTE classes,
courses offered by ROC/Ps, interdisciplinary study, independent
study, and credit earned at a postsecondary institution.
Districts have the option of adopting alternatives for pupils to
complete high school graduation requirements.
PPIC report: A recent report by the Public Policy Institute of
California (PPIC) reveals that the state's demand for highly
skilled workers will increase over the next 15 years. PPIC
states, "California's economy is becoming increasingly dependent
on highly educated workers. But unless young adults'
college-going and college graduation rates increase
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substantially, the supply of graduates is not likely to meet the
demand. PPIC projects that by 2025, 41 percent of jobs will
require at least a bachelor's degree- but only 35 percent of
California adults will have college diplomas. To put it another
way, if current trends persist, the state will face a shortfall
of one million college graduates. Moreover, adults with a high
school diploma or less will outnumber the jobs available to
people with that level of education."
Arguments in support : The Professional Beauty Federation of
California writes, "With ROP funding flexibility, CAHSEE
remediation, a state mandated curriculum that ignores CTE, and
the theoretical/academic focus of the University of California's
admission criteria when evaluating secondary courses for 'A-G'
compliance, most high school students who desire to concurrently
enroll in a beauty college so that they complete high school
licensed to practice cosmetology or barbering will be prevented
from doing so; this is unfair to these focused students who have
clear career aspirations, and it is poor fiscal policy since
this postpones the economic contributions of these students upon
leaving high school."
The California Correctional Peace Officers Association writes,
"We also strongly believe that a robust CTE curriculum will make
school more relevant by meeting the needs of students, which
will help reduce the dropout rate. As a result of a reduction
in the dropout rate and putting more young people on meaningful
career paths, we'll improve public safety, as statistics show
there is a correlation between the dropout rate and the
incarceration rate."
The International Union Automobile, Aerospace and Agricultural
Implement Workers of America (UAW) writes, "SB-381 simply
ensures that when local districts make choices to add on to the
state graduation requirements, that they do so in a manner that
is consistent with the laws and expectations of the State of
California."
Arguments in opposition : The California Teachers Association
writes, "SB 381 would inadvertently promote academic tracking.
We encourage all schools to monitor the discriminatory academic
tracking of minority students. Areas of concern are the
over-representation of minority students in low ability and
special education classes and the under-representation of these
student in college-prep and accelerated programs and courses
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such as GATE, Honors and Advanced Placement. This bill creates
separate pathways to graduation instead of encouraging the
integration of career technical education and academic courses
that are systematically linked for a more well-rounded
education."
InnerCity Struggle writes, "SB 381 will impede district reform
efforts to improve college-going rates, placing a stranglehold
on districts taking courageous steps toward increasing rigor for
all students. It will require the prohibitively costly addition
of new courses, new teachers to teach them, and new facilities
to house them."
Public Advocates Inc. writes, "Contrary to the stated purpose of
SB 381 supporters, SB 381 will not help students at risk of
dropping out because it does not provide school districts with
the resources for support, interventions, or even development of
the optional CTE coursework for these students. SB 381 places
unreasonable conditions for passing an A-G graduation policy on
low-income communities and communities of color that want to
raise academic standards in their high schools because of
limited time to take additional CTE coursework in the school
day."
Related legislation : AB 554 (Furutani) adds one course to the
existing minimum high school graduation requirements and
includes career technical education (CTE) as an option to
fulfill this additional requirement. AB 554 was held in the
Assembly Appropriations Committee suspense file.
Previous legislation : AB 2648 (Bass, Carter & Furutani),
Chapter 681, Statutes of 2008, requires the SPI to develop, in
conjunction with specified individuals, a report that explores
the feasibility of expanding and establishing career multiple
pathway programs.
SB 672 (Torlakson) of 2008 requires high schools participating
in the California Enhanced Instructional Time Program, pursuant
to Senate Bill 681 (Torlakson) of 2008, to adopt a graduation
policy that requires pupils to complete two courses in CTE. SB
672 was held in the Assembly Education Committee.
AB 400 (Nu?ez) of 2007 requires the SPI to incorporate into the
Academic Performance Index (API) the rates at which pupils are
offered and complete a course of study that fulfills UC and CSU
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admission requirements and at which pupils are offered and
complete a course of study that provides the skills and
knowledge necessary to attain entry-level employment upon
graduation from high school. AB 400 was vetoed by Governor
Schwarzenegger with a message that read in part:
I respect the intention to provide schools the
incentive to expand access to A-G college admission
required courses, and expand course offering in Career
Technical Education program. I am open to
opportunities to accomplish that goal. However, I must
maintain that the Academic Performance Index (API)
should continue to be based on objective, reliable,
valid and consistent statistical measurements.
Currently, a school's API is based solely on its
students' performance on academic achievement tests.
This bill, however, would require that, by no later
than June 30, 2014, the weight given such tests be
reduced to 50 percent with the remaining 50 percent
based on high school graduation rates, the percentage
of students fulfilling the requirements for admission
to public postsecondary institutions, and the
percentage of students who graduate prepared for
entry-level employment in business or industry.
REGISTERED SUPPORT / OPPOSITION :
Support
Associated General Contractors of California
Association of Plumbing & Mechanical Contractors
California Agricultural Teachers Association
California Association of Sheet Metal & Air Conditioning
Contractors' National Association
California Automotive Business Coalition
California Business Education Association
California Chapters of the National Electrical Contractors
Association
California Correctional Peace Officers Association
California Grain and Feed Association
California Industrial & Technology Education Association
California Labor Federation
California Legislative Conference of Plumbing, Heating & Piping
Industry
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California Manufacturers & Technology Association
California Pear Growers Association
California Seed Association
California Space Authority
California State Floral Association
California Warehouse Association
Construction Industry Legislative Conference
Golden State Builders Exchanges
International Union Automobile, Aerospace and Agricultural
Implement Workers of America
North State Building Industry Association
Pacific Egg and Poultry Association
Professional Beauty Federation of California
State Building & Construction Trades Council, AFL-CIO
Western State Petroleum Association
Opposition
African American Parent/Community Coalition for Educational
Equity
Alliance for a Better Community
Applied Research Center
Association of Black Social Workers of Greater Los Angeles
Association of California School Administrators
Boyle Heights Learning Collaborative
California Business for Education Excellence
California School Boards Association
California Teachers Association
California Tomorrow
Californians for Justice
Central American Resource Center
Central City Neighborhood Partners
Centro Latino for Literacy
CollegeBoard
Community Coalition
Ed Trust West
Education Consortium of San Diego County (25 Organizations)
Families in Schools
Fielding Graduate Institute-Joyce Jermaine Watts
Hispanas Organized for Political Equality
InnerCity Struggle
Latino Issues Forum
Los Angeles Area Chamber of Commerce
Los Angeles Parent Organizing Network
Los Angeles Small Schools Center
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Mexican American Legal Defense and Educational Fund
Office of LAUSD School Board President Monica Garcia
Parent Institute for Quality Education
Parent Leadership Action Network
Parents for Unity
Public Advocates
Salvadoran American Leadership and Educational Fund
San Fernando Valley Partnership
United Way of Greater Los Angeles
Urban Education Partnership
We Advocate Gender Equity
Youth Together
Analysis Prepared by : Marisol Avi?a / ED. / (916) 319-2087