BILL ANALYSIS �
SB 897
Page 1
Date of Hearing: August 6, 2014
ASSEMBLY COMMITTEE ON APPROPRIATIONS
Mike Gatto, Chair
SB 897 (Steinberg) - As Amended: July 2, 2014
Policy Committee: EducationVote:7-0
Urgency: No State Mandated Local Program:
No Reimbursable: No
SUMMARY
This bill sets forth a process for the state to consider
incorporating the College, Career, and Civic Life (C3) Framework
into California's history-social science framework and
standards, and
requires specified adult education courses and classes to
distribute information on government and civic education.
Specifically, this bill:
1)Requires, when California's history-social science framework
is revised as required by law, the IQC to consider whether and
how to incorporate the C3 Framework for Social Studies State
Standards into California's history-social science framework.
2)Requires the State Board of Education (SBE) to consider
incorporating the C3 Framework into the history-social science
content standards when those standards are next revised after
January 1, 2015.
3)Requires adult education courses in elementary and secondary
basic skills and classes for immigrants, provided pursuant to
the plans developed by regional consortia under the Adult
Education Consortium Program, to distribute basic information
on American government and civics that includes, but is not
limited to, instruction on federal, state, and local
government; the three branches of government; the importance
of civic engagement; and registering to vote.
4)Specifies that the requirement to distribute basic information
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on American government and civics in adult education courses
applies to any funding for the regional consortia provided in
the 2015-16 fiscal year (FY), or other legislation that takes
effect on or after January 1, 2015.
5)Expresses the intent of the Legislature that, consistent with
the requirements for a diploma of graduation from high school
and the course of study for training in citizenship, students
enrolled in courses and classes within the Adult Education
Consortium Program, in which instruction in American
government and civics is appropriate, shall receive
instruction in American government and civics.
6)Includes changes to the process for incorporating civics
education into the history-social science framework,
consistent with the provisions of AB 1599, to avoid chaptering
conflicts.
FISCAL EFFECT
1)Minor/absorbable costs to CDE to incorporate civic education
and voter education into the history social-science framework.
These requirements are consistent with legislation passed
last year (and subsequently chaptered out). The 2014-15
Budget Act provides $270,000 for CDE to finish the
history-social science framework and the science framework.
2)General Fund administrative cost pressure of approximately
$170,000 to the CDE if the IQC decides to update the
history-social science content standards and frameworks to
incorporate the C3 framework. General Fund/Proposition 98 cost
pressure, in the hundreds of thousands, for local education
agencies to incorporate the C3 framework into classroom
resources and professional development.
3)Potential General Fund/Proposition 98 costs, in the hundreds
of thousands, for school districts and community colleges to
distribute "basic information" on American government and
civics to students in every adult education course for
elementary and secondary basic skills, classes for immigrants
in citizenship and ESL and workforce preparation classes. CCCs
and school districts are not eligible for state reimbursement
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for this requirement because the affected courses are not
required to be taught.
In 2008-09, adult education programs enrolled 1.2 million
adult learners in almost 300 adult schools throughout
California. Adult education funding was made flexible
starting in 2009 and the state has not kept data on the number
of schools or classes provided since that time, therefore, it
is difficult to determine a statewide cost estimate. The bill
does not define "basic information" so costs will vary
depending on how each entity choses to provide this
information. For example, if schools determine they need to
purchase new curriculum, costs could be $1,500 per class.
Costs could be reduced to the extent materials are developed
and shared among providers of adult education courses.
COMMENTS
1)Purpose . Supporters of this bill, including the State Bar of
California, seek to emphasize the importance of civic
education by encouraging the state to consider whether and how
to incorporate the C3 framework into the content standards and
framework for history-social science. The bill also
encourages civic engagement among adult learners enrolled in
state schools by requiring basic information of government,
civic engagement, and registering to vote in some adult
education classes.
2)College, Career, and Civic Life (C3) Framework . The C3
Framework was developed by the Council of Chief State School
Officers (CCSSO) and the National Council for the Social
Studies and completed in 2013. According to the National
Council for the Social Studies, the C3 framework was developed
to assist states, districts and schools in framing their own
standards and curriculum requirements for social studies. The
concepts expressed in the C3 Framework illustrate the
disciplinary ideas, such as political structures, economic
decision making, spatial patterns, and chronological
sequencing, that help organize the curriculum and content
states select. The C3 framework is not part of the Common
Core but was designed to link social studies education to the
Common Core State Standards for English Language Arts and
Literacy in History/Social Studies.
The incorporation of the C3 framework into the curriculum
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standards and frameworks will likely create cost pressure on
LEAs to provide aligned instructional materials and
professional development activities. According to the C3
Framework guidance document, "states that decide to
incorporate the concepts of the C3 Framework into their state
standards will then need to engage in a rigorous local process
of selecting the appropriate content to be taught at each
grade level to ensure that students develop the knowledge and
skills to be civic-ready before graduation."
3)Status of history-social science standards and frameworks .
California curriculum is based on content standards that are
developed by the IQC and approved by the SBE. The curriculum
frameworks are guidelines for implementing these standards.
This bill contemplates incorporation of the C3 framework into
future revisions of the history-social science content
standards and frameworks.
California adopted academic content standards for Social
Studies in October, 1998 and has not modified these standards
since. Existing law does not provide for another revision of
these standards. With regard to the framework, current law
authorizes the SBE to adopt a revised framework for history
social science, but only after the CDE has completed work
related to the frameworks for the common core standards. CDE
was in the process of reviewing the history-social science
framework when the process was suspended in July 2009, due to
budget constraints.
The 2014-15 Budget Act includes $270,000 for the IQC to
complete the review and revision of the history-social science
framework as well as the science framework. The CDE
anticipates finishing the history-social science framework by
May 2015. CDE cites additional costs and possible delays in
the adoption of the history-social science frameworks, as well
as other pending framework such as science, to incorporate the
requirements of this bill.
4)Civic Education for Adult Pupils . Adult education is provided
by a number of delivery systems, including school districts,
community colleges, public libraries, nonprofit and
faith-based organizations, prisons, and county offices of
education. At least some adult education classes already
include civics and government education. For example, adults
who do not have a high school diploma are able to attend
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classes and complete a General Educational Development (GED)
test in order to receive a California High School Equivalency
Certificate. GED testing reports that 25% of the questions in
the social studies area are from the civics and government
content areas.
5)Clarifying amendment . Over the last few years, the
implementation of adult education has faced fiscal and policy
challenges. In recognition of some of these system challenges,
the 2013-14 education budget trailer bill (AB 86, Chapter 48,
Statutes of 2013) required the CDE and the CCC Chancellor's
Office to jointly implement an adult education planning
process. The legislation appropriated $25 million to
distribute to regional consortia to develop plans with the
shared goal of better serving the educational needs of
California's adult learners. The consortia are in the first
year of a two year planning process.
This bill requires classes and courses in elementary and
secondary basic skills and courses for immigrants, created by
the AB 86 consortia, to distribute basic information on
American government and civics. According to the author, the
intent of the bill is to require only new classes created
through the consortia to comply with this requirement. Staff
recommends an amendment to clarify this issue.
Analysis Prepared by : Misty Feusahrens / APPR. / (916)
319-2081