Existing law establishes the State Board of Education, and requires the state board to adopt rules and regulations, not inconsistent with the laws of the state, to govern the public elementary and secondary schools of the state. Existing law requires the state board to determine all questions of policy within its powers. Pursuant to these powers, the state board has adopted a policy known as the California English Learner Roadmap State Board of Education Policy: Educational Programs and Services for English Learners, also known as the EL Roadmap Policy, for the stated purpose of assisting the State Department of Education in providing guidance to local educational agencies with respect to educating English learners attending California public schools.

This bill would require the department to develop a statewide implementation plan for the EL Roadmap Policy. In developing the plan, the bill would require the department to convene an advisory committee with representation from specified entities. The bill would require the department to include in the plan, among other things, clear and measurable statewide goals of implementation and a system of monitoring and accountability of the implementation of the departments plan. The bill would require the department to, on or before November 1, 2026, submit a report with the statewide implementation plan for the EL Roadmap Policy to the appropriate policy and fiscal committees of the Legislature. The bill would require the department to annually report, commencing January 1, 2027, to the appropriate policy and fiscal committees of the Legislature on local educational agencies that are engaged in the implementation of the plan, as provided.

Existing law establishes the State Board of Education, and requires the state board to adopt rules and regulations, not inconsistent with the laws of the state, to govern the public elementary and secondary schools of the state. Existing law requires the state board to determine all questions of policy within its powers. Pursuant to these powers, the state board has adopted a policy known as the California English Learner Roadmap State Board of Education Policy: Educational Programs and Services for English Learners, also known as the EL Roadmap Policy, for the stated purpose of assisting the State Department of Education in providing guidance to local educational agencies with respect to educating English learners attending California public schools.

This bill would require the department to develop a statewide implementation plan for the EL Roadmap Policy. In developing the plan, the bill would require the department to convene an advisory committee with representation from specified entities. The bill would require the department to include in the plan, among other things, clear and measurable statewide goals of implementation and a system of monitoring and accountability of the implementation of the departments plan. The bill would require the department to, on or before November 1, 2026, submit a report with the statewide implementation plan for the EL Roadmap Policy to the appropriate policy and fiscal committees of the Legislature. The bill would require the department to annually report, commencing January 1, 2027, to the appropriate policy and fiscal committees of the Legislature on local educational agencies that are engaged in the implementation of the plan, as provided.

Existing law establishes the State Board of Education, and requires the state board to adopt rules and regulations, not inconsistent with the laws of the state, to govern the public elementary and secondary schools of the state. Existing law requires the state board to determine all questions of policy within its powers. Pursuant to these powers, the state board has adopted a policy known as the California English Learner Roadmap State Board of Education Policy: Educational Programs and Services for English Learners, also known as the EL Roadmap Policy, for the stated purpose of assisting the State Department of Education in providing guidance to local educational agencies with respect to educating English learners attending California public schools.

This bill would require the department to develop a statewide implementation plan for the EL Roadmap Policy. In developing the plan, the bill would require the department to establish 3 positions within the department, as provided, to develop the plan and to subsequently support school districts, county offices of education, and charter schools in implementing the plan. convene an advisory committee with representation from specified entities. The bill would require the department to include in the plan, among other things, clear and measurable statewide goals of implementation and a system of monitoring and accountability of the implementation of the departments plan. The bill would require the department to, on or before November 1, 2026, submit a report with the statewide implementation plan for the EL Roadmap Policy to the appropriate policy and fiscal committees of the Legislature. The bill would require the department to annually report, commencing January 1, 2027, to the appropriate policy and fiscal committees of the Legislature on local educational agencies that are engaged in the implementation of the plan, as provided.

Existing law establishes the State Board of Education, and requires the state board to adopt rules and regulations, not inconsistent with the laws of the state, to govern the public elementary and secondary schools of the state. Existing law requires the state board to determine all questions of policy within its powers. Pursuant to these powers, the state board has adopted a policy known as the California English Learner Roadmap State Board of Education Policy: Educational Programs and Services for English Learners, also known as the EL Roadmap Policy, for the stated purpose of assisting the State Department of Education in providing guidance to local educational agencies with respect to educating English learners attending California public schools.

This bill would require the department to develop a statewide implementation plan for the EL Roadmap Policy. In developing the plan, the bill would require the department to identify establish 3 positions within the department, as provided, to develop the plan and to subsequently support school districts, county offices of education, and charter schools in implementing the plan. The bill would require the department to include in the plan, among other things, clear and measurable statewide goals of implementation and a system of monitoring and accountability of the implementation of the departments plan. The bill would require the department to, on or before November 1, 2025, 2026, submit a report with the statewide implementation plan for the EL Roadmap Policy to the appropriate policy and fiscal committees of the Legislature. The bill would require the department to annually report, commencing January 1, 2027, to the appropriate policy and fiscal committees of the Legislature on local educational agencies that are engaged in the implementation of the plan, as provided.

Existing law establishes the State Board of Education, and requires the state board to adopt rules and regulations, not inconsistent with the laws of the state, to govern the public elementary and secondary schools of the state. Existing law requires the state board to determine all questions of policy within its powers. Pursuant to these powers, the state board has adopted a policy known as the California English Learner Roadmap State Board of Education Policy: Educational Programs and Services for English Learners, also known as the EL Roadmap Policy, for the stated purpose of assisting the State Department of Education in providing guidance to local educational agencies with respect to educating English learners attending California public schools.

This bill would require the department to develop a statewide implementation plan for the EL Roadmap Policy. In developing the plan, the bill would require the department to identify 3 positions within the department, as provided, to develop the plan and to subsequently support school districts, county offices of education, and charter schools in implementing the plan. The bill would require the department to include in the plan, among other things, clear and measurable statewide goals of implementation and a system of monitoring and accountability of the implementation of the plan. The bill would require the department to, on or before November 1, 2025, submit a report with the statewide implementation plan for the EL Roadmap Policy to the appropriate policy and fiscal committees of the Legislature. The bill would require the department to annually report, commencing January 1, 2027, to the appropriate policy and fiscal committees of the Legislature on local educational agencies that are engaged in the implementation of the plan, as provided.

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 2074

Author:(Muratsuchi and Alvarez)

As Amended Ver:August 15, 2024

Majority vote

SUMMARY

Requires the California Department of Education (CDE) to develop a statewide implementation plan for the English Learner (EL) Roadmap Policy.

Senate Amendments

1. Delete the requirement that the CDE identify three positions within the CDE Multilingual Support Division that would be funded and designated to develop the EL Roadmap Policy statewide implementation plan and support local educational agencies (LEAs) in implementing the plan.
2. Require that a report on with the statewide implementation plan for the EL Roadmap Policy be submitted to the Legislature by November 1, 2026, instead of November 1, 2025.

COMMENTS

EL Roadmap for California. In July 2017, the SBE adopted the California EL Roadmap Policy. The Roadmap is intended to articulate a common vision and mission for educating ELs and to assist the CDE in providing guidance to LEAs in order to welcome, understand, and educate the diverse population of students who are ELs attending California public schools.

The vision of the Roadmap is: "ELs fully and meaningfully access and participate in a twenty-first century education from early childhood through grade twelve that results in their attaining high levels of English proficiency, mastery of grade level standards, and opportunities to develop proficiency in multiple languages." The principles of the Roadmap are shown below:

1. Principle One: Assets-Oriented and Needs-Responsive Schools
2. Principle Two: Intellectual Quality of Instruction and Meaningful Access
3. Principle Three: System Conditions that Support Effectiveness
4. Principle Four: Alignment and Articulation Within and Across Systems

What has prevented wider adoption of the EL Roadmap? According to a report, Moving the California EL Roadmap Forward: Lessons Learned from EL RISE!, published by Californians Together and EL RISE!, there are a number of challenges to widespread implementation of the EL Roadmap:

1. We recognize the deep implications of how the EL Roadmap policy differs from previous policy. The EL Roadmap represents a sea-change in how EL policy is approached. Compared to previous EL policies it signals a mindset paradigm shift in content, and requires more intensive meaning-making, engagement, collaboration, and planning to implement.
2. We are facing a basic lack of understanding and capacity for meeting the needs and leveraging the assets of ELs. California educators' current baseline understanding of ELs is inadequate as a foundation for translating the EL Roadmap policy into action and for delivering effective instruction, programs, and services.
3. We know EL expertise matters. EL expertise is desperately needed throughout the system and is inadequately staffed.
4. We see a lack of alignment and coherence across the system. Result: ELs and EL work remain largely siloed and marginalized, and the comprehensive vision of the EL Roadmap is a challenge to implement.
5. We need to focus our leaders' and administrators' attention. When the attention of school leaders and administrators is thoroughly applied, powerful movement occurs, and ELs benefit. All our leaders' energy to achieve intersectionality, form partnerships, and direct investments in time and capacity-building must be concentrated on the four ELR Principles for multiple roles in the system.

According to the Author

"California enrolls 1.1 million English learner students and 60% of young children in the state have a home language other than English. For these students, academic gaps persist with too many never achieving English proficiency, and academic outcomes remaining unacceptably low. AB 2074 will ensure the vision to adequately serve California's English learners truly gets to the classroom."

Arguments in Support

The California Association for Bilingual Education writes, "As an asset based, comprehensive, aspirational and principles-based policy, the EL Roadmap differs significantly from previous EL policies – by requiring involvement of multiple roles, departments and functions within the school system, as well as alignment across initiatives and across levels of the system. Yet the road to fulfilling its promise has not yet been adequately scoped or supported.

Currently there is no state plan for building awareness, a sense of urgency, and opportunity related to implementing the EL Roadmap policy. There is no alignment and no coherence across state initiatives reflecting the EL Roadmap policy and principles – nor is there guidance for Local Educational Agencies to incorporate and build alignment and coherence at the local level across programs and services. There is no monitoring of the implementation of the EL Roadmap, nor is there accountability for its implementation. Importantly, no CDE positions are state funded and designated to support the implementation of this critically important state policy for English learners. This bill will ensure the vision to adequately serve English learners truly gets to the students by having a statewide plan for implementation and staff at CDE to oversee/guide the implementation."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Senate Appropriations Committee, this bill could result in General Fund costs, potentially in the low hundreds of thousands of dollars each year, for CDE to comply with the bill's requirements.

VOTES:

ASM EDUCATION: 6-0-1

YES: Muratsuchi, Addis, Bonta, Flora, Hoover, McCarty

ABS, ABST OR NV: Alvarez

ASM APPROPRIATIONS: 15-0-0

YES: Wicks, Sanchez, Arambula, Bryan, Calderon, Wendy Carrillo, Dixon, Mike Fong, Grayson, Haney, Hart, Jim Patterson, Pellerin, Ta, Villapudua

ASSEMBLY FLOOR: 72-0-8

YES: Addis, Aguiar-Curry, Alanis, Alvarez, Arambula, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Juan Carrillo, Wendy Carrillo, Chen, Connolly, Davies, Dixon, Flora, Mike Fong, Vince Fong, Friedman, Gabriel, Gallagher, Garcia, Gipson, Grayson, Haney, Hart, Hoover, Irwin, Jackson, Jones-Sawyer, Kalra, Lackey, Lee, Low, Lowenthal, Maienschein, McCarty, McKinnor, Muratsuchi, Stephanie Nguyen, Ortega, Pacheco, Papan, Jim Patterson, Joe Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Rendon, Reyes, Rodriguez, Sanchez, Santiago, Schiavo, Soria, Ta, Ting, Valencia, Villapudua, Waldron, Wallis, Ward, Weber, Wilson, Wood, Zbur, Robert Rivas

ABS, ABST OR NV: Cervantes, Megan Dahle, Essayli, Holden, Mathis, Luz Rivas, Blanca Rubio, Wicks

UPDATED

VERSION: August 15, 2024

CONSULTANT: Tanya Lieberman / ED. / (916) 319-2087 FN: 0004974

 THIRD READING  

Bill No: AB 2074

Author: Muratsuchi (D) and Alvarez (D)

Amended: 8/15/24 in Senate

Vote: 21

SENATE EDUCATION COMMITTEE: 7-0, 6/19/24

AYES: Newman, Ochoa Bogh, Cortese, Glazer, Gonzalez, Smallwood-Cuevas, Wilk

SENATE APPROPRIATIONS COMMITTEE: 7-0, 8/15/24

AYES: Caballero, Jones, Ashby, Becker, Bradford, Seyarto, Wahab

ASSEMBLY FLOOR: 72-0, 5/23/24 - See last page for vote

SUBJECT: Pupil instruction: English Learner Roadmap Policy: statewide implementation plan

SOURCE: California Association for Bilingual Education

Californians Together

DIGEST:

This bill requires the California Department of Education (CDE) to assist local educational agencies (LEAs) in implementing the plan. It also requires CDE to submit a report on the statewide plan as well as an annual progress report on implementation of the plan.

ANALYSIS:

Existing law:

1. Through initiative statute (Proposition 58, approved by voters in November, 2016), requires that public schools ensure students obtain English language proficiency. Requires school districts to solicit parent/community input in developing language acquisition programs. Requires instruction to ensure English acquisition as rapidly and effectively as possible. Authorizes school districts to establish dual language immersion programs for both native and non–native English speakers. (Education Code (EC) § 300-340)
2. Defines EL to mean a student who is “limited English proficient” as that term is defined in the federal No Child Left Behind Act of 2001 (20 U.S.C. Sec. 7801(25), EC § 306)
3. Requires school districts and county offices of education (COE) to, at a minimum, provide ELs with a structured English immersion program and requires school districts and COEs to provide to students, effective and appropriate instructional methods, including, but not limited to, establishing language acquisition programs. (EC § 305)
4. Defines “language acquisition programs” as educational programs designed to ensure English acquisition as rapidly and as effectively as possible, and that provide instruction to students on the state-adopted academic content standards, including the English language development (ELD) standards. (EC § 306)
5. States that language acquisition programs may include, but are not limited to dual-language immersion programs, transitional or developmental programs for ELs, and structured English immersion programs for ELs in which nearly all classroom instruction is provided in English, but with curriculum and a presentation designed for students who are learning English. (EC § 306)
6. Establishes requirements for the identification and reclassification of students as ELs. (EC § 313) and defines Long Term EL (LTEL) and “EL at risk of becoming an LTEL.” (EC § 313.1)
7. Establishes the Educator Workforce Investment Grants (EWIG) program, to support one or more competitive grants for professional learning opportunities for teachers and paraprofessionals, including $10 million for qualified entities for developing and delivering professional learning opportunities which support the implementation of effective language acquisition programs for EL students, which may include integrated language development within and across content areas, bilingual and biliterate proficiency, and building and strengthening capacity to implement the EL Roadmap Policy. (AB 185, Committee on Budget, Chapter 571, Statutes of 2022)
8. Establishes the State Seal of Biliteracy (SSB), which certifies attainment of a

high level of proficiency by a graduating high school student in one or more languages, in addition to English, and certifies that a graduate meets all of the specified criteria. (EC § 51461)

This bill:

1. Requires CDE develop a statewide implementation plan for the EL Roadmap Policy and in developing that plan to convene an advisory committee with representation from LEAs, teachers from TK-through grade 12, parents of ELs, nonprofit organizations with experience in implementing the EL Roadmap Policy.
2. Requires that the plan include all of the following:
   1. A brief summary at the beginning of the plan that states why the statewide implementation plan is being created and its importance to bring awareness, a sense of urgency, and opportunity as it relates to the plan.
   2. Clear and measurable statewide goals of implementation.
   3. Alignment and coherence across state initiatives that reflect the EL Roadmap Policy and principles.
   4. How to incorporate the EL Roadmap Policy meaningfully within the statewide system of support.
   5. Guidance for the LEAs agencies to incorporate and build alignment and coherence at the local level across programs and services.
   6. A system of monitoring and accountability of the implementation of the plan.
3. Requires CDE to submit a report with the statewide implementation plan for the EL Roadmap Policy to the appropriate policy and fiscal committees of the Legislature by November 1, 2026.
4. Requires CDE to submit an annual progress report to the appropriate policy and fiscal committees of the Legislature commencing January 1, 2027, that identifies LEAs that engaged in the implementation of the plan, including, but not limited to, LEAs that contacted CDE for assistance in implementation and those that offered professional development opportunities to assist educators in implementing the plan.

Comments

Need for the bill. According to the sponsors of the bill Californians Together and California Association for Bilingual Education, “currently there is no state plan for building awareness, a sense of urgency, and opportunity related to implementing the EL Roadmap policy. There is no alignment and no coherence across state initiatives reflecting the EL Roadmap policy and principles – nor is there guidance for Local Educational Agencies (LEAs) to incorporate and build alignment and coherence at the local level across programs and services. There is no monitoring of the implementation of the EL Roadmap, nor is there accountability for its implementation. Importantly, no CDE positions are state funded and designated to support the implementation of this critically important state policy for English learners.” The author further asserts, “California enrolls 1.1 million English learner students and 60% of young children in the state have a home language other than English. For these students, academic gaps persist with too many never achieving English proficiency, and academic outcomes remaining unacceptably low. AB 2074 will ensure the vision to adequately serve California’s English learners truly gets to the classroom.”

ELs in California. According to the CDE, in the 2022-23 school year, there were approximately 1.1 million ELs in California public schools, representing 19.01 percent of the total enrollment. The majority of ELs (65.8 percent) are enrolled in the elementary grades K-6 with the remaining 34.2 percent enrolled in grades 7-12. The statewide average rate of annual reclassification of ELs to English proficient is approximately 15.9 percent. Of the state’s EL population, 82 percent are Spanish speakers. It is CDE’s goal to support LEAs to ensure that ELs acquire full proficiency in English as rapidly and effectively as possible, attain parity with native English speakers, and achieve the same rigorous grade-level academic standards that are expected of all students.

EL Roadmap policy. In 2017, the State Board of Education (SBE) adopted the California EL Roadmap to assist the CDE in providing guidance to LEAs in understanding the diverse population of students who are ELs attending California public schools from preschool to graduation. It is a comprehensive policy aimed at improving educational outcomes for ELs in the state. As stated, the policy aims to encourage innovative implementation of evidence-based practices for curricula materials adoption and development, instruction, professional development, and leadership that are responsive to the differentiated strengths and needs of ELs. It also seeks to strengthen appropriate assessment tools and practices. To support its vision, the policy outlines four foundational principles; 1) create assets-oriented and needs-responsive schools: 2) ensure intellectual quality of instruction and meaningful access; 3) create system conditions that support effectiveness; and 4) alignment and articulation with and across systems. This bill seeks to promote greater awareness and full implementation of this policy statewide.

Related report. In 2020, the state Legislature funded $10 million in a three-year Educator Workforce Investment Grants for EL Roadmap implementation, emphasizing awareness-building and capacity-building. EL RISE! (English Learner Roadmap Implementation for Systemic Excellence) partnership received one of the grants. Their report, “Moving the California English Learner Roadmap Forward: Lessons Learned from EL RISE!” identifies key findings from the group’s work and provides recommendations for implementation of the EL Roadmap. It highlights the EL Roadmap Policy’s potential to drive positive change in EL education when supported by robust professional development, strong leadership, and systemic commitment at the local and state level. This bill is a direct result of the report. The following is a summary of the key findings and recommendations in relation to this bill. Key findings:

• 1. Compared to previous EL policies, the EL Roadmap Policy signals a mindset paradigm shift in content and requires stronger engagement, collaboration, and planning to implement.
  2. California educators’ current understanding of ELs is inadequate as a foundation for translating the EL Roadmap Policy into action and delivering effective instruction, programs, and services.
  3. There is a lack of alignment and coherence across the system that makes the vision of the EL Roadmap Policy a challenge to implement.
  4. Leaders and administrators must give careful attention to each princple of the EL Roadmap Policy in order for ELs to benefit.

Recommendations to the Legislature. The report also included recommendations to LEAs and school site leaders. The following is a summary of the recommendations to the state Legislature. Provide state resources for state-funded staff within CDE to lead the implementation of the EL Roadmap, sponsor meetings, lead the development of a state plan for enactment, and facilitate and model cross-divisional work for its successful completion at all levels of the system.

Enact legislation that requires LEAs to develop EL Roadmap aligned EL master plans that are beyond a minimal compliance focus and respond to the aspirational principles-based call of the EL Roadmap, and directing the CDE to develop a state plan for implementation of the EL Roadmap.

Recognize the need and provide resources for regional and local staffing with EL expertise charged with leading capacity building and implementation of the EL Roadmap. This would enable COEs and LEAs to incorporate additional staff positions, time, resources, and support to realize EL Roadmap through adequate investments in professional learning, local planning, and EL expertise staffing.

In order to address recommendations related to state resources, guidance and planning this bill seeks to require that CDE create a comprehensive statewide implementation plan for the EL Roadmap Policy. The bill would further require that specific elements be incorporated into the plan, including clearly defined and quantifiable statewide implementation goals, as well as a system for monitoring and ensuring accountability for the plan.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

According to the Senate Appropriations Committee analysis, this bill could result in General Fund costs, potentially in the low hundreds of thousands of dollars each year, for CDE to comply with the bill’s requirements.

SUPPORT: (Verified 8/15/24)

California Association for Bilingual Education (Co-Source)

Californians Together (Co-Source)

ACLU California Action

Alliance for a Better Community

Asian Americans Advancing Justice Southern California

Association of Two-Way Dual Language Education

California Asian Pacific American Bar Association

California Teachers Association

California Teachers of English to Speakers of Other Languages

Catalyst California

Children Now

Dear Asian Youth

Delta Kappa Gamma International - Chi State

EdVoice

Hispanas Organized for Political Equality

Los Angeles County Office of Education

Loyola Marymount University - Center for Equity for English Learners

Parent Institute for Quality Education

Sobrato Early Academic Language

Teach Plus - California

The Children's Partnership

The Education Trust - West

Unidos US

OPPOSITION: (Verified 8/15/24)

None received

ASSEMBLY FLOOR: 72-0, 5/23/24

AYES: Addis, Aguiar-Curry, Alanis, Alvarez, Arambula, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Juan Carrillo, Wendy Carrillo, Chen, Connolly, Davies, Dixon, Flora, Mike Fong, Vince Fong, Friedman, Gabriel, Gallagher, Garcia, Gipson, Grayson, Haney, Hart, Hoover, Irwin, Jackson, Jones-Sawyer, Kalra, Lackey, Lee, Low, Lowenthal, Maienschein, McCarty, McKinnor, Muratsuchi, Stephanie Nguyen, Ortega, Pacheco, Papan, Jim Patterson, Joe Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Rendon, Reyes, Rodriguez, Sanchez, Santiago, Schiavo, Soria, Ta, Ting, Valencia, Villapudua, Waldron, Wallis, Ward, Weber, Wilson, Wood, Zbur, Robert Rivas

NO VOTE RECORDED: Cervantes, Megan Dahle, Essayli, Holden, Mathis, Luz Rivas, Blanca Rubio, Wicks

Prepared by: Olgalilia Ramirez / ED. / (916) 651-4105

8/18/24 17:50:00

**** END ****

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anna Caballero, Chair

2023 - 2024 Regular Session

AB 2074 (Muratsuchi) - Pupil instruction: English Learner Roadmap Policy: statewide implementation plan

Bill Summary:

This bill requires the California Department of Education (CDE) to establish three staff positions to develop a statewide implementation plan for the English Learner (EL) Roadmap and to assist local educational agencies (LEAs) in implementing the plan.

*********** ANALYSIS ADDENDUM – SUSPENSE FILE ***********

The following information is revised to reflect amendments

adopted by the committee on August 15, 2024

Fiscal Impact:

This bill could result in General Fund costs, potentially in the low hundreds of thousands of dollars each year, for CDE to comply with the bill’s requirements.

Committee Amendments:

Remove the requirement for CDE to establish the three staff positions.

-- END --

SENATE COMMITTEE ON

Senator Anna Caballero, Chair

2023 - 2024 Regular Session

AB 2074 (Muratsuchi) - Pupil instruction: English Learner Roadmap Policy: statewide implementation plan

Bill Summary:

This bill requires the California Department of Education (CDE) to establish three staff positions to develop a statewide implementation plan for the English Learner (EL) Roadmap and to assist local educational agencies (LEAs) in implementing the plan.

Fiscal Impact:

The CDE estimates General Fund costs of $501,000 in the first year of implementation and then $492,000 thereafter to comply with the bill’s requirements.

Background:

Proposition 58, as approved by voters in November, 2016, requires that public schools ensure students obtain English language proficiency. It requires school districts to solicit parent/community input in developing language acquisition programs, and also requires instruction to ensure English acquisition as rapidly and effectively as possible. Further, Proposition 58 authorizes school districts to establish dual language immersion programs for both native and non–native English speakers.

Existing law requires the SBE to approve standards for English language development for students whose primary language is other than English. These standards are required to be comparable in rigor and specificity to the adopted standards for English language arts, mathematics, and science. The SBE has adopted a policy known as the California English Learner Roadmap policy, also known as the EL Roadmap, for the purpose of assisting the CDE with providing guidance to local educational agencies (LEAs) with respect to educating English learners attending California public schools.

In 2017, the SBE adopted the California English Learner Roadmap to assist the CDE in providing guidance to LEAs in welcoming and understanding the diverse population of students who are English learners attending California public schools from preschool to graduation. The policy aims to encourage innovative district and school implementation of evidence-based practices for curricula materials adoption and development, instruction, professional development and leadership that are responsive to the differentiated strengths and needs of English learners and strengthening appropriate assessment tools and practices. Further, the policy establishes a state vision of success for English learners and outlines four foundational principles to support its vision.

Proposed Law:

This bill requires the CDE to develop a statewide implementation plan for the EL Roadmap Policy and, in developing that plan, do all of the following: convene an advisory committee with representation from LEAs, teachers from TK-through grade 12, parents of ELs, nonprofit organizations with experience in implementing the EL Roadmap Policy. This bill also establishes three positions within CDE that will be funded and designated to develop the EL Roadmap Policy statewide implementation plan and support LEAs in implementing the plan.

This bill requires that the plan include all of the following:

1. A brief summary at the beginning of the plan that states why the statewide implementation plan is being created and its importance to bring awareness, a sense of urgency, and opportunity as it relates to the plan.
2. Clear and measurable statewide goals of implementation.
3. Alignment and coherence across state initiatives that reflect the EL Roadmap Policy and principles.
4. How to incorporate the EL Roadmap Policy meaningfully within the statewide system of support.
5. Guidance for the LEAs agencies to incorporate and build alignment and coherence at the local level across programs and services.
6. A system of monitoring and accountability of the implementation of the plan.

This bill requires the CDE to submit a report with the statewide implementation plan for the EL Roadmap Policy to the appropriate policy and fiscal committees of the Legislature by November 1, 2026. It also requires the CDE to submit an annual progress report to the appropriate policy and fiscal committees of the Legislature commencing January 1, 2027, that identifies LEAs that engaged in the implementation of the plan, including, but not limited to, LEAs that contacted CDE for assistance in implementation and those that offered professional development opportunities to assist educators in implementing the plan.

Related Legislation:

AB 2071 (Juan Carrillo, 2024) would establish the English Learner Roadmap Implementation Grant Program, and requires the SBE to develop and adopt a California English Learner Roadmap Parent Toolkit. AB 2071 is pending on the Suspense File in this committee.

AB 185 (Committee on Budget, Chapter 571, Statutes of 2022) appropriates $20 million to support one or more competitive Educator Workforce Investment Grants for professional learning opportunities for teachers and paraprofessionals, including $10 million for qualified entities for developing and delivering professional learning opportunities which support the implementation of effective language acquisition programs for EL students, which may include integrated language development within and across content areas, bilingual and biliterate proficiency, and building and strengthening capacity to implement the EL Roadmap Policy.

SB 75 (Committee on Budget and Fiscal Review, Chapter 51, Statutes of 2019) appropriated $10 million to create and deliver professional learning opportunities designed to implement the California EL Roadmap Policy.

Staff Comments:

This bill would establish three positions at CDE to develop the EL Roadmap Policy statewide implementation plan and support LEAs in implementing the plan. The CDE indicates that it does not currently have the capacity to identify three existing positions to support these activities, and therefore would require three additional positions at a cost of approximately $501,000 in the first year and then $492,000 thereafter.

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Josh Newman, Chair

2023 - 2024 Regular

Bill No: Hearing Date: June 19, 2024

Subject:

SUMMARY

This bill requires the California Department of Education (CDE) to establish three staff positions to develop a statewide implementation plan for the English Learner (EL) Roadmap and to assist local educational agencies (LEAs) in implementing the plan. It also requires CDE to submit a report on the statewide plan as well as an annual progress report on implementation of the plan.

BACKGROUND

Existing law:

1) Through initiative statute (Proposition 58, approved by voters in November,

2016), requires that public schools ensure students obtain English language proficiency. Requires school districts to solicit parent/community input in developing language acquisition programs. Requires instruction to ensure English acquisition as rapidly and effectively as possible. Authorizes school districts to establish dual language immersion programs for both native and non–native English speakers. (Education Code (EC) § 300-340)

2) Defines EL to mean a student who is “limited English proficient” as that term is defined in the federal No Child Left Behind Act of 2001 (20 U.S.C. Sec. 7801(25), EC § 306)

3) Requires school districts and county offices of education (COE) to, at a minimum, provide ELs with a structured English immersion program. (EC § 305)

4) Requires school districts and COEs to provide to students, effective and appropriate instructional methods, including, but not limited to, establishing language acquisition programs. (EC § 305)

5) Defines “language acquisition programs” as educational programs designed to ensure English acquisition as rapidly and as effectively as possible, and that provide instruction to students on the state-adopted academic content standards, including the English language development (ELD) standards. (EC § 306)

6) States that language acquisition programs may include, but are not limited to dual-language immersion programs, transitional or developmental programs for ELs, and structured English immersion programs for ELs in which nearly all classroom instruction is provided in English, but with curriculum and a presentation designed for students who are learning English. (EC § 306)

7) Establishes requirements for the identification and reclassification of students as ELs. (EC § 313)

8) Defines Long Term EL (LTEL) and “EL at risk of becoming an LTEL.” (EC §

313.1)

9) Establishes the Educator Workforce Investment Grants (EWIG) program, to

support one or more competitive grants for professional learning opportunities for teachers and paraprofessionals, including $10 million for qualified entities for developing and delivering professional learning opportunities which support the implementation of effective language acquisition programs for EL students, which may include integrated language development within and across content areas, bilingual and biliterate proficiency, and building and strengthening capacity to implement the EL Roadmap Policy. (AB 185, Committee on Budget, Chapter 571, Statutes of 2022)

10) Establishes the State Seal of Biliteracy (SSB), which certifies attainment of a high

level of proficiency by a graduating high school student in one or more languages, in addition to English, and certifies that a graduate meets all of the specified criteria. (EC § 51461)

ANALYSIS

This bill:

1. Requires CDE develop a statewide implementation plan for the EL Roadmap Policy and in developing that plan do all of the following:
   1. Convene an advisory committee with representation from LEAs, teachers

from TK-through grade 12, parents of ELs, nonprofit organizations with experience in implementing the EL Roadmap Policy.

• 1. Establish three positions within CDE that will be funded and designated to

develop the EL Roadmap Policy statewide implementation plan and support LEAs in implementing the plan.

1. Requires that the plan include all of the following:
   1. A brief summary at the beginning of the plan that states why the statewide

implementation plan is being created and its importance to bring awareness, a sense of urgency, and opportunity as it relates to the plan.

• 1. Clear and measurable statewide goals of implementation.
  2. Alignment and coherence across state initiatives that reflect the EL

Roadmap Policy and principles.

• 1. How to incorporate the EL Roadmap Policy meaningfully within the

statewide system of support.

• 1. Guidance for the LEAs agencies to incorporate and build alignment and

coherence at the local level across programs and services.

• 1. A system of monitoring and accountability of the implementation of the

plan.

1. Requires CDE to submit a report with the statewide implementation plan for the EL Roadmap Policy to the appropriate policy and fiscal committees of the Legislature by November 1, 2026.
2. Requires CDE to submit an annual progress report to the appropriate policy and fiscal committees of the Legislature commencing January 1, 2027, that identifies LEAs that engaged in the implementation of the plan, including, but not limited to, LEAs that contacted CDE for assistance in implementation and those that offered professional development opportunities to assist educators in implementing the plan.

STAFF COMMENTS

1. Need for the bill. According to the sponsors of the bill Californians Together and California Association for Bilingual Education, “currently there is no state plan for building awareness, a sense of urgency, and opportunity related to implementing the EL Roadmap policy. There is no alignment and no coherence across state initiatives reflecting the EL Roadmap policy and principles – nor is there guidance for Local Educational Agencies (LEAs) to incorporate and build alignment and coherence at the local level across programs and services. There is no monitoring of the implementation of the EL Roadmap, nor is there accountability for its implementation. Importantly, no CDE positions are state funded and designated to support the implementation of this critically important state policy for English learners.” The author further asserts, “California enrolls 1.1 million English learner students and 60% of young children in the state have a home language other than English. For these students, academic gaps persist with too many never achieving English proficiency, and academic outcomes remaining unacceptably low. AB 2074 will ensure the vision to adequately serve California’s English learners truly gets to the classroom.”
2. ELs in California. According to the CDE, in the 2022-23 school year, there were approximately 1.1 million ELs in California public schools, representing 19.01 percent of the total enrollment. The majority of ELs (65.8 percent) are enrolled in the elementary grades K-6 with the remaining 34.2 percent enrolled in grades 7-12. The statewide average rate of annual reclassification of ELs to English proficient is approximately 15.9 percent. Of the state’s EL population, 82 percent are Spanish speakers. It is CDE’s goal to support LEAs to ensure that ELs acquire full proficiency in English as rapidly and effectively as possible, attain parity with native English speakers, and achieve the same rigorous grade-level academic standards that are expected of all students.
3. EL Roadmap policy. In 2017, the State Board of Education (SBE) adopted the California EL Roadmap to assist the CDE in providing guidance to LEAs in understanding the diverse population of students who are ELs attending California public schools from preschool to graduation. It is a comprehensive policy aimed at improving educational outcomes for ELs in the state. As stated, the policy aims to encourage innovative implementation of evidence-based practices for curricula materials adoption and development, instruction, professional development, and leadership that are responsive to the differentiated strengths and needs of ELs. It also seeks to strengthen appropriate assessment tools and practices. To support its vision, the policy outlines four foundational principles; 1) create assets-oriented and needs-responsive schools: 2) ensure intellectual quality of instruction and meaningful access; 3) create system conditions that support effectiveness; and 4) alignment and articulation with and across systems. This bill seeks to promote greater awareness and full implementation of this policy statewide.
4. Related report. In 2020, the state Legislature funded $10 million in a three-year Educator Workforce Investment Grants for EL Roadmap implementation, emphasizing awareness-building and capacity-building. EL RISE! (English Learner Roadmap Implementation for Systemic Excellence) partnership received one of the grants. Their report, “Moving the California English Learner Roadmap Forward: Lessons Learned from EL RISE!” identifies key findings from the group’s work and provides recommendations for implementation of the EL Roadmap. It highlights the EL Roadmap Policy’s potential to drive positive change in EL education when supported by robust professional development, strong leadership, and systemic commitment at the local and state level. This bill is a direct result of the report. The following is a summary of the key findings and recommendations in relation to this bill.

Key findings

• 1. Compared to previous EL policies, the EL Roadmap Policy signals a mindset paradigm shift in content and requires stronger engagement, collaboration, and planning to implement.
  2. California educators’ current understanding of ELs is inadequate as a foundation for translating the EL Roadmap Policy into action and delivering effective instruction, programs, and services.
  3. There is a lack of alignment and coherence across the system that makes the vision of the EL Roadmap Policy a challenge to implement.
  4. Leaders and administrators must give careful attention to each principle of the EL Roadmap Policy in order for ELs to benefit.

Recommendations to the Legislature.

The report also included recommendations to LEAs and school site leaders. The following is a summary of the recommendations to the state Legislature:

• 1. Provide state resources for state-funded staff within CDE to lead the implementation of the EL Roadmap, sponsor meetings, lead the development of a state plan for enactment, and facilitate and model cross-divisional work for its successful completion at all levels of the system.
  2. Enact legislation that requires LEAs to develop EL Roadmap aligned EL master plans that are beyond a minimal compliance focus and respond to the aspirational principles-based call of the EL Roadmap, and directing the CDE to develop a state plan for implementation of the EL Roadmap.
  3. Recognize the need and provide resources for regional and local staffing with EL expertise charged with leading capacity building and implementation of the EL Roadmap. This would enable COEs and LEAs to incorporate additional staff positions, time, resources, and support to realize EL Roadmap through adequate investments in professional learning, local planning, and EL expertise staffing.

In order to address recommendations related to state resources, guidance and planning this bill seeks to require that CDE create a comprehensive statewide implementation plan for the EL Roadmap Policy, mandate that CDE establish staff positions to develop and support the plan, as well as assist school districts, county offices of education, and charter schools in implementing it. The bill would further require that specific elements be incorporated into the plan, including clearly defined and quantifiable statewide implementation goals, as well as a system for monitoring and ensuring accountability for the plan.

1. Related legislation.

AB 2071 (Juan Carrillo, 2024) would establish the English Learner Roadmap Implementation Grant Program and make an appropriation for this purpose, and requires the SBE to develop and adopt a California English Learner Roadmap Parent Toolkit. AB 2071 was heard and approved by this committee on June 12, 2024.

AB 185 (Committee on Budget, Chapter 571, Statutes of 2022) appropriates $20 million, through the 2024-25 fiscal year, to support one or more competitive EWIG grants for professional learning opportunities for teachers and paraprofessionals, including $10 million for qualified entities for developing and delivering professional learning opportunities which support the implementation of effective language acquisition programs for EL students, which may include integrated language development within and across content areas, bilingual and biliterate proficiency, and building and strengthening capacity to implement the EL Roadmap Policy.

SB 75 (Committee on Budget and Fiscal Review, Chapter 51, Statutes of 2019) appropriated $10 million to create and deliver professional learning opportunities designed to implement the California EL Roadmap Policy.

SB 594 (Rubio, 2019-20) would have established the California EL Roadmap Initiative under the administration of the CDE and California Collaborative for Educational Excellence (CCEE). This bill was held in the Assembly Education Committee.

AB 714 (McCarty, Chapter 342, Statutes of 2023) required the CDE to maintain information on its website relating to the education of recently arrived immigrant students (newcomers), to annually publish enrollment and other information about newcomers on its website; requires the Instructional Quality Commission (IQC) to consider adding content to help teachers meet the unique needs of newcomers to the next revision of the English Language Arts (ELA)/ELD curriculum framework and recommended instructional materials; and revises the definition of newcomers to align with the federal definition for purposes of specified educational rights in existing law.

SB 952 (Limon, 2021-22) would have revised and recasted an existing three-year competitive dual language grant program administered by the CDE for schools. This bill was held in the Assembly Appropriations Committee.

AB 2514 (Thurmond, Chapter 763, Statutes of 2018) establishes the Pathways to Success Grant Program, for the purpose of providing grants for the establishment and expansion of dual language immersion programs, developmental bilingual programs for ELs, and early learning dual language learners (DLL) programs.

AB 130 (Committee on Budget, Chapter 44, Statutes of 2021) appropriates $10 million for a dual language immersion grant program, to award 25 one-time grants over a period of 3 fiscal years to eligible entities to expand or establish dual language immersion programs.

AB 1363 (L. Rivas, Chapter 498, Statutes of 2021) required the Superintendent of Public Instruction (SPI) to develop procedures for providers to identify and report data on DLLs enrolled in the California State Preschool Program (CSPP).

AB 1012 (Reyes, 2019-20) would have required, upon appropriations for this purpose, the CDE to provide grants to LEAs for, among other purposes, professional learning for child development providers so that they can support the development of DLLs. This bill was held in the Assembly Appropriations Committee.

AB 952 (Reyes, 2017-18) would have required the Commission on Teacher Credentialing (CTC) to establish a process to identify short-term, high-quality pathways to address the shortage of bilingual education teachers. This bill was vetoed by the Governor, who stated:

“California recently provided funds to support teachers and paraprofessionals interested in becoming bilingual teachers. This past spring the Commission awarded one-time grants to higher education institutions that sought to create or improve four-year integrated teacher education programs, including for bilingual teachers. Before making additional investments on this matter I believe it's wise to first assess the success of our current programs.”

AB 99 (Committee on Budget, Chapter 15, Statutes of 2017) established the Bilingual Teacher Professional Development Program and requires the CDE to allocate grant funding for purposes of providing professional development services to specified teachers and paraprofessionals to provide instruction to ELs.

SUPPORT

California Association for Bilingual Education (Co-Sponsor)

Californians Together (Co-Sponsor)

ACLU California Action

Alliance for a Better Community

Asian Americans Advancing Justice Southern California

Association of Two-Way Dual Language Education

California Teachers Association

California Teachers of English to Speakers of Other Languages

Catalyst California

Children Now

Dear Asian Youth

Delta Kappa Gamma International - Chi State

EdVoice

Hispanas Organized for Political Equality

Los Angeles County Office of Education

Loyola Marymount University - Center for Equity for English Learners

Parent Institute for Quality Education

Sobrato Early Academic Language

Teach Plus - California

The Children's Partnership

The Education Trust - West

UnidosUS

OPPOSITION

None received

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:AB 2074

Author:(Muratsuchi and Alvarez)

As Introduced Ver:February 5, 2024

Majority vote

SUMMARY

Requires the California Department of Education (CDE) to develop a statewide implementation plan for the English Learner (EL) Roadmap Policy.

Major Provisions

1. Requires the CDE to develop a statewide implementation plan for the EL Roadmap Policy, as specified.
2. Defines the EL Roadmap Policy for purposes of this measure to mean the California English Learner Roadmap State Board of Education Policy: Educational Programs and Services for English Learners adopted by the State Board of Education (SBE) on July 12, 2017.
3. Defines local educational agency (LEA) for purposes of this measure to mean a school district, county office of education (COE), or charter school.
4. Requires the CDE to develop a statewide implementation plan for the EL Roadmap Policy. In doing so, requires the CDE to:
5. Convene an advisory committee with representation from all of the following:
6. LEAs;
7. Teachers who teach students in preschool, transitional kindergarten, kindergarten, or any of grades 1 to 12, inclusive;
8. Parents of students who are ELs; and
9. Nonprofit organizations with experience in implementing the EL Roadmap Policy.
10. Identify three positions within the CDE that will be funded and designated to develop the EL Roadmap Policy statewide implementation plan and support LEAs in implementing the plan.
11. Requires the CDE to submit an annual progress report to the appropriate policy and fiscal committees of the Legislature, commencing January 1, 2027, that identifies LEAs that engaged in the implementation of the plan, including, but not limited to, LEAs that contacted the CDE for assistance in implementation and those that offered professional development opportunities to assist educators in implementing the plan.

COMMENTS

EL Roadmap for California. In July 2017, the SBE adopted the California EL Roadmap Policy. The Roadmap is intended to articulate a common vision and mission for educating ELs and to assist the CDE in providing guidance to LEAs in order to welcome, understand, and educate the diverse population of students who are ELs attending California public schools.

The vision of the Roadmap is: "ELs fully and meaningfully access and participate in a twenty-first century education from early childhood through grade twelve that results in their attaining high levels of English proficiency, mastery of grade level standards, and opportunities to develop proficiency in multiple languages." The principles of the Roadmap are shown below:

1. Principle One: Assets-Oriented and Needs-Responsive Schools
2. Principle Two: Intellectual Quality of Instruction and Meaningful Access
3. Principle Three: System Conditions that Support Effectiveness
4. Principle Four: Alignment and Articulation Within and Across Systems

What has prevented wider adoption of the EL Roadmap? According to a report, Moving the California EL Roadmap Forward: Lessons Learned from EL RISE!, published by Californians Together and EL RISE!, there are a number of challenges to widespread implementation of the EL Roadmap:

1. We recognize the deep implications of how the EL Roadmap policy differs from previous policy. The EL Roadmap represents a sea-change in how EL policy is approached. Compared to previous EL policies it signals a mindset paradigm shift in content, and requires more intensive meaning-making, engagement, collaboration, and planning to implement.
2. We are facing a basic lack of understanding and capacity for meeting the needs and leveraging the assets of ELs. California educators' current baseline understanding of ELs is inadequate as a foundation for translating the EL Roadmap policy into action and for delivering effective instruction, programs, and services.
3. We know EL expertise matters. EL expertise is desperately needed throughout the system and is inadequately staffed.
4. We see a lack of alignment and coherence across the system. Result: ELs and EL work remain largely siloed and marginalized, and the comprehensive vision of the EL Roadmap is a challenge to implement.
5. We need to focus our leaders' and administrators' attention. When the attention of school leaders and administrators is thoroughly applied, powerful movement occurs, and ELs benefit. All our leaders' energy to achieve intersectionality, form partnerships, and direct investments in time and capacity-building must be concentrated on the four ELR Principles for multiple roles in the system.

According to the Author

"California enrolls 1.1 million English learner students and 60% of young children in the state have a home language other than English. For these students, academic gaps persist with too many never achieving English proficiency, and academic outcomes remaining unacceptably low. AB 2074 will ensure the vision to adequately serve California's English learners truly gets to the classroom."

Arguments in Support

The California Association for Bilingual Education writes, "As an asset based, comprehensive, aspirational and principles-based policy, the EL Roadmap differs significantly from previous EL policies – by requiring involvement of multiple roles, departments and functions within the school system, as well as alignment across initiatives and across levels of the system. Yet the road to fulfilling its promise has not yet been adequately scoped or supported.

Currently there is no state plan for building awareness, a sense of urgency, and opportunity related to implementing the EL Roadmap policy. There is no alignment and no coherence across state initiatives reflecting the EL Roadmap policy and principles – nor is there guidance for Local Educational Agencies to incorporate and build alignment and coherence at the local level across programs and services. There is no monitoring of the implementation of the EL Roadmap, nor is there accountability for its implementation. Importantly, no CDE positions are state funded and designated to support the implementation of this critically important state policy for English learners. This bill will ensure the vision to adequately serve English learners truly gets to the students by having a statewide plan for implementation and staff at CDE to oversee/guide the implementation."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Assembly Appropriations Committee, ongoing General Fund costs to CDE of about $490,000 annually for three staff to implement the requirements of this bill.

VOTES

ASM EDUCATION: 6-0-1

YES: Muratsuchi, Addis, Bonta, Flora, Hoover, McCarty

ABS, ABST OR NV: Alvarez

ASM APPROPRIATIONS: 15-0-0

YES: Wicks, Sanchez, Arambula, Bryan, Calderon, Wendy Carrillo, Dixon, Mike Fong, Grayson, Haney, Hart, Jim Patterson, Pellerin, Ta, Villapudua

UPDATED

VERSION: February 5, 2024

CONSULTANT: Tanya Lieberman / ED. / (916) 319-2087 FN: 0003134

Date of Hearing: April 10, 2024

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 2074

Author:(Muratsuchi) – As Introduced Ver:February 5, 2024

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill requires the California Department of Education (CDE) to designate three staff to develop a statewide implementation plan for the English Learner Roadmap and to assist local education agencies (LEAs) in implementing the plan.

Specifically, this bill:

1. Requires CDE to establish statewide goals for implementation, monitor implementation, and ensure accountability for implementing the plan at LEAs.
2. Requires CDE, by November 1, 2025, to submit the statewide implementation plan to the Legislature. The bill also requires CDE to annually report to the Legislature, beginning January 1, 2027, about LEA implementation of the plan.

FISCAL EFFECT:

Ongoing General Fund costs to CDE of about $490,000 annually for three staff to implement the requirements of this bill.

According to the Legislative Analyst’s Office, the General Fund faces a structural deficit in the tens of billions of dollars over the next several fiscal years.

COMMENTS:

1. Purpose. According to the author:

California enrolls 1.1 million English learner students and 60% of young children in the state have a home language other than English. For these students, academic gaps persist with too many never achieving English proficiency, and academic outcomes remaining unacceptably low. AB 2074 will ensure the vision to adequately serve California’s English learners truly gets to the classroom.

1. Background. In 2017, SBE adopted the California English Learner Roadmap. The Roadmap provides guidance to LEAs on welcoming and educating English learners in grades K-12. While some schools have implemented elements of the Roadmap, widespread implementation has been stunted by several variables, including the COVID-19 pandemic, lack of English learner expertise locally, and staffing challenges, among others.

This bill requires CDE develop a plan for implementing the Roadmap statewide.

1. Related Legislation. AB 2071 (Juan Carrillo) appropriates $30 million to create a grant program at CDE to implement the English Learner Roadmap at LEAs. The bill also requires the State Board of Education to develop and adopt an English Learner Roadmap parent toolkit by December 31, 2025. The bill in pending before this committee.
2. Prior Legislation. AB 185 (Committee on Budget), Chapter 571, Statutes of 2022, provided $10 million, through the 2024-25 fiscal year, for entities to develop and deliver professional learning opportunities to support English learners.

SB 75 (Committee on Budget and Fiscal Review), Chapter 51, Statutes of 2019, appropriated $10 million to create and deliver professional learning opportunities designed to implement the English Learner Roadmap Policy.

Analysis Prepared by: Natasha Collins / APPR. / (916) 319-2081

Date of Hearing: March 20, 2024

ASSEMBLY COMMITTEE ON EDUCATION

Al Muratsuchi, Chair

ABPCA Bill Id:AB 2074 (

Author:Muratsuchi) – As Introduced Ver:February 5, 2024

SUBJECT: Student instruction: English Learner Roadmap Policy: statewide implementation plan

SUMMARY: Requires the California Department of Education (CDE) to develop a statewide implementation plan for the English Learner (EL) Roadmap Policy. Specifically, this bill:

1. Requires the CDE to develop a statewide implementation plan for the EL Roadmap Policy, as specified.
2. Defines the EL Roadmap Policy for purposes of this measure to mean the California English Learner Roadmap State Board of Education Policy: Educational Programs and Services for English Learners adopted by the State Board of Education (SBE) on July 12, 2017.
3. Defines local educational agency (LEA) for purposes of this measure to mean a school district, county office of education (COE), or charter school.
4. Requires the CDE to develop a statewide implementation plan for the EL Roadmap Policy. In doing so, requires the CDE to:
5. Convene an advisory committee with representation from all of the following:
6. LEAs;
7. Teachers who teach students in preschool, transitional kindergarten, kindergarten, or any of grades 1 to 12, inclusive;
8. Parents of students who are ELs; and
9. Nonprofit organizations with experience in implementing the EL Roadmap Policy.
10. Identify three positions within the CDE that will be funded and designated to develop the EL Roadmap Policy statewide implementation plan and support LEAs in implementing the plan.
11. Requires the CDE to submit an annual progress report to the appropriate policy and fiscal committees of the Legislature, commencing January 1, 2027, that identifies LEAs that engaged in the implementation of the plan, including, but not limited to, LEAs that contacted the CDE for assistance in implementation and those that offered professional development opportunities to assist educators in implementing the plan.

EXISTING LAW:

FISCAL EFFECT: Unknown

COMMENTS:

Need for the bill. According to the author, “California enrolls 1.1 million English learner students and 60% of young children in the state have a home language other than English. For these students, academic gaps persist with too many never achieving English proficiency, and academic outcomes remaining unacceptably low. AB 2074 will ensure the vision to adequately serve California’s English learners truly gets to the classroom.”

EL Roadmap for California. In July, 2017, the SBE adopted the California EL Roadmap Policy. The Roadmap is intended to articulate a common vision and mission for educating ELs and to assist the CDE in providing guidance to LEAs in order to welcome, understand, and educate the diverse population of students who are ELs attending California public schools.

The vision of the Roadmap is: “ELs fully and meaningfully access and participate in a twenty-first century education from early childhood through grade twelve that results in their attaining high levels of English proficiency, mastery of grade level standards, and opportunities to develop proficiency in multiple languages.” The principles of the Roadmap are shown below:

A different kind of policy. The EL Roadmap is described in a report, Moving the California EL Roadmap Forward: Lessons Learned from EL RISE!, published by Californians Together and EL Roadmap Implementation for Systemic Excellence (EL RISE!), as:

A different kind of policy—a state policy for a local control era and a broad policy embracing the language and cultural assets of students after two decades of a narrow English-only policy in the state. The policy is:

• Aspirational: It turns the tide from bottom-line, compliance-prescriptive approaches to instead describing the system of education we want for our state’s 1.1 million ELs for equitable access, academic success, and active participation in this multilingual global world—including the promise of biliteracy.
• Research-based: It draws upon the knowledge and accumulated expertise related to effective approaches to dual language development, second language development, and culturally and linguistically supportive pedagogy.
• Principles-driven: It describes a core set of principles to guide aligned action across the P-12 system meant to be enacted by all educators and multiple levels of our educational system.
• Comprehensive: The EL Roadmap covers all aspects of EL schooling, from school climate to support services to classroom practice to the philosophy.”

What does EL Roadmap implementation look like? The CDE notes that the EL Roadmap principles and elements are general enough that they can be applied in ways that fit each LEA’s context and can be implemented to reflect the unique strengths and needs of ELs across California.

The CDE has produced a self-reflection rubric for use by LEAs which provides descriptors of different levels of implementation, from minimally to very responsive. Recognizing that local implementation will look different in each LEA, below is a sample of those descriptors, at the highest level of implementation, shown for Roadmap Principle 1.

Principle #1: Assets-Oriented and Needs-Responsive Schools

What has prevented wider adoption of the EL Roadmap? According to a report, Moving the California EL Roadmap Forward: Lessons Learned from EL RISE!, published by Californians Together and EL RISE!, there are a number of challenges to widespread implementation of the EL Roadmap:

• We recognize the deep implications of how the EL Roadmap policy differs from previous policy. The EL Roadmap represents a sea-change in how EL policy is approached. Compared to previous EL policies it signals a mindset paradigm shift in content, and requires more intensive meaning-making, engagement, collaboration, and planning to implement.
• We are facing a basic lack of understanding and capacity for meeting the needs and leveraging the assets of ELs. California educators’ current baseline understanding of ELs is inadequate as a foundation for translating the EL Roadmap policy into action and for delivering effective instruction, programs, and services.
• We know EL expertise matters. EL expertise is desperately needed throughout the system and is inadequately staffed.
• We see a lack of alignment and coherence across the system. Result: ELs and EL work remain largely siloed and marginalized, and the comprehensive vision of the EL Roadmap is a challenge to implement.
• We need to focus our leaders’ and administrators’ attention. When the attention of school leaders and administrators is thoroughly applied, powerful movement occurs, and ELs benefit. All our leaders’ energy to achieve intersectionality, form partnerships, and direct investments in time and capacity-building must be concentrated on the four ELR Principles for multiple roles in the system. Simple to say, but not easy to do.

Educator Workforce Investment Grants (EWIG). The 2019-20 Budget appropriated $10 million to create and deliver professional learning opportunities designed to implement the California EL Roadmap Policy. The CDE awarded two EWIG: EL Roadmap Policy Implementation grants for $5 million each, with a grant period beginning April 3, 2020, and ending June 30, 2023. Those grants went to Californians Together/EL RISE! and the California Association for Bilingual Education (CABE) Multilingual California Project (MCaP). Some of the grant outcomes include:

• Working with a network of 20 partnering COEs, EL RISE! designed and delivered 44 different professional learning modules addressing a comprehensive range of EL education issues, preschool through graduation, and explicitly focusing on a wide range of roles within the system (district leaders, site administrators, classroom teachers, counselors, school board members, higher education faculty, parents, and families). These offerings were delivered multiple times, for a total of 645 sessions facilitated across the 20 COEs. These covered preschool, elementary and secondary levels, and both dual language and English-instructed classrooms. A variety of delivery modalities addressed local contexts and needs and accommodated the realities of a COVID-impacted system. Over the course of the three-year grant, EL RISE! served educators from 547 LEAs and 18 public and private universities across the state, which included over 8,000 teachers, 53 paraprofessionals, over 2,700 administrators, over 1,700 support staff, nearly 100 counselors, over 180 school board members, and nearly 30 higher education staff.

An external evaluation elicited participant feedback surveys at the close of each session. Four out of five (81%) participants reported that EL RISE! increased their skills and strategies for implementing research based practices to enact the EL Roadmap; almost all (95%) reported that the resources provided through the trainings (e.g., reflection and planning tools, case studies, “playbooks” and toolkits) were useful to them implementing the policy.

• CABE's Multilingual California Project (MCaP) was a statewide alliance with Butte COE, Fresno County Superintendent of Schools, Orange County Department of Education, San Bernardino County Superintendent of Schools, San Diego COE, and San Diego State University. CABE and its partners, known collectively as the MCaP Alliance, are recognized statewide as expert leaders in professional learning, coaching, EL instruction, and research in PK-16 education. The Multilingual California Project over a 3-year period delivered a statewide professional learning model to strengthen the capacity of districts in implementing the four principles of the California EL Roadmap Policy and accelerate the academic and multilingual opportunities, and outcomes of ELs across California. Using a four-stage implementation model, MCaP provided statewide access to and understanding of the EL Roadmap Policy and its implementation, while also providing guidance and support to districts for focused, in-depth strategic development and implementation of the EL Roadmap. Despite the disruptions and challenges posed by the COVID-19 pandemic, MCaP annually served over 13,000 educators across 491 LEAs and 54 COEs, served approximately 400 families and indirectly impacted over 44,000 students. In total, they offered 231 professional learning opportunities to educators and over 30 parent and family engagement sessions.

AB 185 (Committee on Budget), Section 54, provided $20 million, through the 2024-25 fiscal year, to support one or more competitive EWIG grants for professional learning opportunities for teachers and paraprofessionals, including $10 million for qualified entities for developing and delivering professional learning opportunities which support the implementation of effective language acquisition programs (ELAP) for EL students, which may include integrated language development within and across content areas, bilingual and biliterate proficiency, and building and strengthening capacity to implement the EL Roadmap Policy. Professional learning opportunities for teachers, paraprofessionals, school leaders, and counselors are to include strategies for high-quality instruction aligned to the Quality Professional Learning Standards. The CDE awarded the EWIG: ELAP funds to four COEs that formed consortia to provide free professional development to interested LEAs.

According to the CDE, in the first six months of implementation, EWIG: ELAP lead grantees provided 11 professional learning sessions for 807 participants, addressing topics such as integrated and designated ELD, dual language pedagogy, and the implementation of ELD through the lens of the EL Roadmap Principles.

ELs in California. According to the CDE, as of the 2022-23 school year, over 2 million students, comprising roughly 35% of all students, were either current or former ELs. This total was composed of:

• A total of 2,310,311 students (ELs and Fluent English Proficient students) speak a language other than English in their homes. This number represents about 39.5% of all students;
• 1,112,535 were current ELs, or 19.0% of all students;
• 927,723 were Reclassified Fluent English Proficient (RFEP), or 15.9% of all students;
• 144,190, or 7.1% of ELs, were At-Rrisk of becoming LTELs;
• 226,535, or 11.1% of ELs, were LTELs;
• 236,323, or 11.6% of ELs had been ELs for more than four years but were not At-Risk or LTELs; and
• Spanish was the most commonly spoken home language, at 82% of all ELs. Vietnamese was second at 2% of all ELs.

Arguments in support. The California Association for Bilingual Education writes, “As an asset based, comprehensive, aspirational and principles-based policy, the EL Roadmap differs significantly from previous EL policies – by requiring involvement of multiple roles, departments and functions within the school system, as well as alignment across initiatives and across levels of the system. Yet the road to fulfilling its promise has not yet been adequately scoped or supported.

Currently there is no state plan for building awareness, a sense of urgency, and

opportunity related to implementing the EL Roadmap policy. There is no alignment and

no coherence across state initiatives reflecting the EL Roadmap policy and principles –

nor is there guidance for Local Educational Agencies to incorporate and build

alignment and coherence at the local level across programs and services. There is no

monitoring of the implementation of the EL Roadmap, nor is there accountability for its

implementation. Importantly, no CDE positions are state funded and designated to

support the implementation of this critically important state policy for English learners.

This bill will ensure the vision to adequately serve English learners truly gets to the

students by having a statewide plan for implementation and staff at CDE to

oversee/guide the implementation.”

Related legislation. AB 2071 (Juan Carrillo) of the 2023-24 Session would establishes the English Learner Roadmap Implementation Grant Program and make an appropriation for this purpose, and requires the SBE to develop and adopt a California English Learner Roadmap Parent Toolkit.

AB 185 (Committee on Budget), Chapter 571, Statutes of 2022, appropriates $20 million, through the 2024-25 fiscal year, to support one or more competitive EWIG grants for professional learning opportunities for teachers and paraprofessionals, including $10 million for qualified entities for developing and delivering professional learning opportunities which support the implementation of effective language acquisition programs for EL students, which may include integrated language development within and across content areas, bilingual and biliterate proficiency, and building and strengthening capacity to implement the EL Roadmap Policy.

SB 75 (Committee on Budget and Fiscal Review), Chapter 51, Statutes of 2019, appropriated $10 million to create and deliver professional learning opportunities designed to implement the California EL Roadmap Policy.

SB 594 (Rubio) of the 2019-20 Session would have established the California EL Roadmap Initiative under the administration of the CDE and California Collaborative for Educational Excellence (CCEE). This bill was held in the Assembly Education Committee.

AB 714 (McCarty), Chapter 342, Statutes of 2023, requires the CDE to maintain information on its website relating to the education of recently arrived immigrant students (newcomers), to annually publish enrollment and other information about newcomers on its website; requires the Instructional Quality Commission (IQC) to consider adding content to help teachers meet the unique needs of newcomers to the next revision of the English Language Arts (ELA)/ELD curriculum framework and recommended instructional materials; and revises the definition of newcomers to align with the federal definition for purposes of specified educational rights in existing law.

SB 952 (Limon) of the 2021-22 Session would have revised and recasted an existing three-year competitive dual language grant program administered by the CDE for schools. This bill was held in the Assembly Appropriations Committee.

AB 2514 (Thurmond), Chapter 763, Statutes of 2018, establishes the Pathways to Success Grant Program, for the purpose of providing grants for the establishment and expansion of dual language immersion programs, developmental bilingual programs for ELs, and early learning dual language learners (DLL) programs.

AB 130 (Committee on Budget), Chapter 44, Statutes of 2021, appropriates $10 million for a dual language immersion grant program, to award 25 one-time grants over a period of 3 fiscal years to eligible entities to expand or establish dual language immersion programs.

AB 1363 (L. Rivas), Chapter 498, Statutes of 2021, requires the Superintendent of Public Instruction (SPI) to develop procedures for providers to identify and report data on DLLs enrolled in the California State Preschool Program (CSPP).

AB 1012 (Reyes) of the 2019-20 Session would have required, upon appropriations for this purpose, the CDE to provide grants to LEAs for, among other purposes, professional learning for child development providers so that they can support the development of DLLs. This bill was held in the Assembly Appropriations Committee.

AB 952 (Reyes) of the 2017-18 Session would have required the Commission on Teacher Credentialing (CTC) to establish a process to identify short-term, high-quality pathways to address the shortage of bilingual education teachers. This bill was vetoed by the Governor, who stated:

California recently provided funds to support teachers and paraprofessionals interested in becoming bilingual teachers. This past spring the Commission awarded one-time grants to higher education institutions that sought to create or improve four-year integrated teacher education programs, including for bilingual teachers. Before making additional investments on this matter I believe it's wise to first assess the success of our current programs.

AB 99 (Committee on Budget), Chapter 15, Statutes of 2017, establishes the Bilingual Teacher Professional Development Program and requires the CDE to allocate grant funding for purposes of providing professional development services to specified teachers and paraprofessionals to provide instruction to ELs.

REGISTERED SUPPORT / OPPOSITION:

Support

Association of Two-way Dual Language Education
California Association for Bilingual Education
California Charter School Association
California Teachers of English to Speakers of Other Languages
Californians Together
Children Now
Parent Institute for Quality Education
Sobrato Early Academic Language
Teach Plus
The Center for Equity for English Learners, Loyola Marymount University
The Children's Partnership
Unidos US

Approximately 600 individuals

Opposition

None on file

Analysis Prepared by: Tanya Lieberman / ED. / (916) 319-2087