Existing law establishes the Education Code, which addresses, among other subjects, elementary and secondary education, postsecondary education, and adult education.

This bill would make a nonsubstantive change to the provision naming that code.

SENATE COMMITTEE ON

Senator Sabrina Cervantes, Chair

2025 - 2026 Regular Session

AB 2354 (Gabriel) - Pupil instruction: California Serves Program

Bill Summary:

This bill expands the existing California Serves Program to promote access to effective service-learning for students in grades 6 through 12. This bill also requires the California Department of Education (CDE) to develop updated recommendations to the Legislature on evidence-based strategies to expand access to high-quality service-learning programs.

Fiscal Impact:

• By expanding the California Serves Program to include additional grade levels, this bill would likely result in additional, Proposition 98 General Fund cost pressures on the program, potentially in the low millions of dollars each year. The program currently distributes $5 million in annual grants. The bill’s expansion to students in grades six through eleven (in addition to the 12^th grade) would put increasing demand on the program and likely require additional funding.
• The CDE estimates one-time General Fund costs of $395,000 and $407,000 in ongoing costs and 2.0 positions to administer the expanded program.

Background:

Existing law establishes the California Serves Program under the CDE in collaboration with CaliforniaVolunteers, to promote access to effective service learning for pupils in grade 12 who are enrolled at participating LEAs, with the goal of expanding access for high school graduates in obtaining a State Seal of Civic Engagement (SSCE) through service learning. The program awards grants to LEAs to promote access to effective service-learning for students in grade twelve, with the goal of expanding access for high school graduates in obtaining an SSCE through service-learning. Allowable uses for grants include paid planning time for teachers to increase the use of service-learning in instruction, professional development on service-learning for administrators and teachers, and the purchase of instructional materials to help integrate service-learning in instruction.

Existing law establishes the SSCE, affixed to the diploma or transcript of an eligible pupil, to encourage, and create pathways for, pupils in elementary and secondary schools to become civically engaged in democratic governmental institutions at the local, state, and national levels.

Proposed Law:

This bill expands the existing California Serves Program to serve students in grades 6 through 12 inclusive.

This bill requires CDE, in collaboration with CaliforniaVolunteers, to do the following:

1. Review the available evidence on ways to incorporate effective service learning for pupils in grades 6 through 12, and, on or before January 1, 2028, provide recommendations to the Legislature, consistent with the recommended criteria and implementation guidance for the SSCE on evidence-based strategies to expand access to high-quality service-learning programs in LEAs serving grades 6 through 12, inclusive, and promote equitable access to these programs.
2. On or before January 1, 2028, develop and post on the CDE’s and CaliforniaVolunteers’ internet websites evidence-based strategies for expanding access to high-quality service-learning programs that may be used by teachers and LEAs for grades 6 through 12, inclusive.

This bill requires the annual evaluation report on service learning to be submitted by the CDE, in partnership with CaliforniaVolunteers, to specify the number of pupils by grade, in addition to other required data.

Related Legislation:

SB 1378 (Ochoa Bogh, 2026) requires the CDE to establish the California Excellence in Service Learning Designation Program to publicly recognize and designate schoolsites and LEAs that demonstrate excellence in service learning. SB 1378 is currently pending in the Assembly Appropriations Committee.

SB 584 (Limon, 2025) would have expanded the existing California Serves Program to promote access to effective service learning for grades 1 through 12; required LEAs to implement a Civic Engagement Pathways Program for pupils in grades 1 through 8; and required the Instructional Quality Commission (IQC), during its next consideration for the revision of the History and Social Sciences Framework, to include civic engagement experiences, as specified. This bill was held on the Suspense File in this committee.

Staff Comments:

The 2022 Budget Act included $5 million for the California Serves Program to promote access to effective service-learning for high school students and support them in obtaining an SSCE through service-learning. The program provides grants to eligible LEAs to help cover specified costs incurred in the development and facilitation of service-learning programs and to expand access for high school graduates in obtaining an SSCE. Applicant LEAs must have at least 55 percent of their student enrollment as unduplicated pupils and serve students in grade 12. Since its inception in 2022-23, the California Serves Grant Program has awarded 45 LEAs with award amounts ranging from roughly $24,000 to $500,000, which is the maximum grant amount. This bill would expand the eligibility criteria for the program to LEAs that serve students in grades 6 through 12, inclusive, rather than just 12^th grade. The bill also requires CDE to provide an updated set of recommendations to the Legislature on or before January 1, 2028, reflecting the expanded grade levels.

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Sasha Renée Pérez, Chair

2025 - 2026 Regular

Bill No: Hearing Date: June 24, 2026

Subject:

SUMMARY

This bill expands the existing California Serves Program to promote access to effective service-learning for students in grades 6 through 12, inclusive, and requires the California Department of Education (CDE), in partnership with CaliforniaVolunteers, to develop updated recommendations to the Legislature on evidence-based strategies to expand access to high-quality service-learning programs, as specified.

BACKGROUND

Existing law:

1. Establishes the California Serves Program under the CDE in collaboration with CaliforniaVolunteers, to promote access to effective service learning for pupils in grade 12 who are enrolled at participating local educational agencies (LEAs), with the goal of expanding access for high school graduates in obtaining a State Seal of Civic Engagement (SSCE) through service learning. (Education Code (EC) § 51475)
2. Establishes the California Serves Program for the purposes of awarding grants to promote access to effective service-learning for students in grade twelve, with the goal of expanding access for high school graduates in obtaining an SSCE through service-learning. Allowable uses for grants include:
   1. Paid planning time for teachers to increase the use of service-learning in instruction.
   2. Professional development on service-learning for administrators and teachers.
   3. Purchase of instructional materials to help integrate service-learning in instruction.
   4. Participation costs, including materials or travel expenses related to service-learning activities.
   5. Personnel costs for coordinating service-learning at the LEA or a school site.
   6. Participation costs associated with grant program evaluation. (EC § 51475)
3. Establishes the SSCE, affixed to the diploma or transcript of an eligible pupil, to encourage, and create pathways for, pupils in elementary and secondary schools to become civically engaged in democratic governmental institutions at the local, state, and national levels. (EC § 51475)

ANALYSIS

This bill:

1. Expands the existing California Serves Program to serve students in grades 6 through 12 inclusive.
2. Requires CDE, in collaboration with CaliforniaVolunteers, to do the following:
   1. Review the available evidence on ways to incorporate effective service learning for pupils in grades 6 through 12, and, on or before January 1, 2028, provide recommendations to the Legislature, consistent with the recommended criteria and implementation guidance for the SSCE on evidence-based strategies to expand access to high-quality service-learning programs in LEAs serving grades 6 through 12, inclusive, and promote equitable access to these programs.
   2. On or before January 1, 2028, develop and post on the CDE’s and CaliforniaVolunteers’ internet websites evidence-based strategies for expanding access to high-quality service-learning programs that may be used by teachers and LEAs for grades 6 through 12, inclusive.
3. Requires the annual evaluation report on service learning to be submitted by the CDE, in partnership with CaliforniaVolunteers, to specify the number of pupils by grade, in addition to other required data.

STAFF COMMENTS

1. Need for the bill. According to the author, “AB 2354 strengthens California’s investment in service-learning by allowing schools to implement programs across grades 6 through 12, rather than limiting access primarily to grade 12. By supporting multi-year service-learning opportunities, this bill will help ensure that all students have a meaningful opportunity to develop the skills and experiences needed to earn the State Seal of Civic Engagement.”
2. California Serves Program. The California Serves Program was established through the 2022 State Budget Act as a collaboration between the CDE and CaliforniaVolunteers to promote access to effective service-learning for high school students and support them in obtaining an SSCE through service-learning.

At the onset of the program, CDE and CaliforniaVolunteers were tasked with reviewing the available evidence on ways to incorporate effective service-learning for pupils in grades 9 through 12, and to provide recommendations to the Legislature consistent with the recommended criteria and guidance for the SSCE, on evidence-based strategies to expand access to high-quality service-learning programs. The final report, published in January 2024, issued the following recommendations:

• 1. Establish effective standards and indicators to guide the development of equitable, high-quality service-learning programs;
  2. Incorporate curriculum and strategies that encourage deep civic learning;
  3. Ensure teacher access to ongoing professional development and learning;
  4. Prioritize efforts to track who earns the SSCE; and
  5. Design meaningful infrastructure that promotes service-learning at all levels.

The corresponding California Serves Grant Program was also established in the 2022 Budget Act with an annual ongoing allocation of $5 million to provide grants to eligible LEAs to help cover specified costs incurred in the development and facilitation of service-learning programs and to expand access for high school graduates in obtaining an SSCE. To apply for this grant, applicant LEAs must (1) have at least 55% of their student enrollment be unduplicated pupils as defined in statute and (2) serve students in grade 12. While promoting access to effective service-learning for students in grade 12 is the focus and eligibility criteria, the grant program provides LEAs with the flexibility to also support such programming for students as early as grade 9.

Since its pilot year in the 2022-23 school year, the California Serves Grant Program has awarded 45 LEAs with award amounts ranging from $24,000 to $500,000—the maximum allowable under statute.

1. State Seal of Civic Engagement. This bill is intended to provide support to LEAs and charter schools serving students in grades 6 through 12 so that they may provide equitable student access to service-learning and the opportunity to earn the SSCE. On September 10, 2020, the State Board of Education (SBE) adopted criteria and guidance to award an SSCE to California students who demonstrate excellence in civics education and participation, and an understanding of the United States Constitution, the California Constitution, and the democratic system of government. To be eligible for the SSCE, students must:
   1. Be engaged in academic work in a productive way;
   2. Demonstrate a competent understanding of the United States and California constitutions; functions and governance of local governments; tribal government structures and organizations; the role of the citizen in a constitutional democracy; and democratic principles, concepts, and processes;
   3. Participate in one or more informed civic engagement project(s) that address real-world problems and require students to identify and inquire into civic needs or problems, consider varied responses, take action, and reflect on efforts;
   4. Demonstrate civic knowledge, skills, and dispositions through self-reflection; and
   5. Exhibit character traits that reflect civic-mindedness and a commitment to positively impact the classroom, school, community, and/or society.

Successful completion of the requirements is reflected by a seal affixed to student transcripts, diplomas, or certificates of completion. According to CDE’s 2024-25 school year data, 23,040 seals have been awarded to students across 492 schools that participate in the SSCE.

1. California Task Force on K-12 Civic Learning of 2014 (Task Force). In 2014, the Chief Justice of California and the State Superintendent of Public Instruction (SPI) formed the Task Force to develop a set of recommendations to improve civic learning in our schools to address the need to revitalize civic learning in our state. To this end, the Task Force made the following system-wide recommendations to improve civic learning in every district, in every school, for every child:
   1. Revise the California History-Social Science Content Standards and accompanying curriculum frameworks to incorporate an emphasis on civic learning, starting in kindergarten, so that all students acquire the civic knowledge, skills, and values they need to succeed in college, career, and civic life.
   2. Integrate civic learning into state assessment and accountability systems for students, schools, and districts. Civic knowledge, skills, values, and whether students are receiving learning opportunities that promote these outcomes must be assessed and linked to revised California History-Social Science Content Standards and relevant Common Core State Standards. This will enable periodic reporting to the Legislature and the public on the state of students’ civic learning.
   3. Improve professional learning experiences for teachers and administrators to help them implement civic learning in schools. Connect professional learning in civics to Common Core State Standards professional learning experiences.
   4. Develop an articulated sequence of instruction in civic learning across all of K-12, pegged to revised standards. At each grade level, civic learning should draw on the research-based and include work that is action-oriented and project-based and that develops digital literacy.
   5. Establish a communication mechanism so community stakeholders can easily connect with teachers and students on civic education and engagement. Students need to get out of the school building to practice civic engagement, and civic leaders need to come into schools to engage students.
   6. Provide incentives for local school districts to fund civic learning in Local Control Accountability Plans under the new Local Control Funding Formula (LCFF).
2. Practical effect of expanded eligibility. This bill would expand the eligibility criteria for the California Serves Grant Program to LEAs serving students in grades 6 through 12, inclusive, rather than just grade 12. As noted above, the foundational goal of the California Serves Program and Grant is to support students in obtaining an SSCE. SSCEs can only be conferred in high school and reflected on a student’s 11th- or 12th-grade transcript. While elementary and middle school students are not eligible to earn an SSCE, LEAs are encouraged to create pathways for those grade levels to become civically engaged as part of their experiences working toward earning the SSCE in high school, or to adopt a seal locally for elementary and middle school students. The committee may wish to consider that expanding eligibility for the California Serves Program without increasing the annual ongoing allocation may make the program more competitive and the funds less accessible to the high schools that participate in the SSCE program.
3. Prior and related legislation.

SB 1378 (Ochoa Bogh, 2026) requires the CDE to establish the California Excellence in Service Learning (CESL) Designation Program to publicly recognize and designate schoolsites and LEAs that demonstrate excellence in service learning. SB 1378 is currently in the Assembly Appropriations Committee.

SB 584 (Limon, 2025) would have expanded the existing California Serves Program to promote access to effective service learning for grades 1 through 12; required LEAs to implement a Civic Engagement Pathways Program for pupils in grades 1 through 8; and required the Instructional Quality Commission (IQC), during its next consideration for the revision of the History and Social Sciences Framework, to include civic engagement experiences, as specified. This bill was held in the Senate Appropriations Committee.

AB 422 (Jackson, Chapter 692, Statutes of 2025) requires the SPI, by January 1, 2027, to recommend revised criteria to the SBE for awarding the SSCE, including a demonstrated understanding of the importance of preserving democracy and its vital institutions.

AB 24 (Eggman, Chapter 604, Statutes of 2017) established the SSCE, to be affixed to the diploma of qualifying high school graduates, based on a demonstration of excellence in civics education and participation.

SUPPORT

GenUp (co-sponsor)

Jewish Family and Children's Services of San Francisco, the Peninsula, Marin and Sonoma Counties (co-sponsor)

Alameda County Office of Education

California State PTA

Center for Volunteer & Nonprofit Leadership

OPPOSITION

None received

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:AB 2354

Author:(Gabriel)

As Amended Ver:March 19, 2026

Majority vote

SUMMARY

Expands the California Serves Program to serve students in grades 6 through 12 and requires the California Department of Education (CDE), in partnership with the California Volunteers, to provide recommend effective service-learning strategies for grades 6 through 12.

Major Provisions

1. Expands the California Serves Program from being applicable to students in grade 12 only to include students in 6-12th grades.
2. Requires the CDE to provide recommendations to the Legislature on ways to incorporate effective service learning by January 1, 2028, and expands the scope to include students in 6-12^th grades.
3. Requires the CDE to post on its website by January 1, 2028, evidence-based strategies for expanding access to high-quality service-learning programs that may be used by teachers and local educational agencies (LEAs) serving students in 6-12^th grades.
4. Requires the annual evaluation report on service learning to be submitted by the CDE, in partnership with California Volunteers, to specify the number of pupils by grade, in addition to other required data.

COMMENTS

California Serves Grant Program was established in 2022. AB 181 (Committee on Budget) Chapter 52, Statutes of 2022, establishes the California Serves Grant Program and appropriates $5 million in annual funding, beginning with the 2022-23 fiscal year, to the CDE to award grants to LEAs to promote access to effective service learning for students in 12th grade with the goal of expanding access for high school graduates to obtain a State Seal of Civic Engagement. The maximum grant amount is $500,000 and eligible activities include:

1. Paid planning time for teachers to increase the use of service learning in instruction;
2. Professional development on service learning for administrators and teachers;
3. Purchase of instructional materials to help integrate service learning in instruction;
4. Participation costs, including materials or travel expenses related to service learning activities;
5. Personnel costs for coordinating service learning at the LEA or a school site; and
6. Participation costs associated with grant program evaluation.

Recommendations to expand service learning. The Legislature, in establishing the California Serves Grant Program, required the CDE in partnership with California Volunteers to provide recommendations to the Legislature on evidence-based strategies to expand access to high-quality service-learning programs in California high schools and promote equitable access to these programs. In their January 2024 report to the Legislature, the CDE provided 5 recommendations:

1. Establish effective standards and indicators of service-learning;
2. Incorporate curriculum and strategies that encourage deep civic learning;
3. Ensure teacher access to ongoing professional development and learning;
4. Prioritize efforts to track who earns the State Seal of Civic Engagement; and
5. Design meaningful infrastructure that promotes service-learning at all levels.

Service-learning vs. community service or volunteering. Service-learning is distinguished from volunteering or community service in that it connects service with structured opportunities to learn from the experience. The federal Learn and Serve program of the Corporation for National and Community Service defined service-learning as “a teaching and learning strategy that integrates meaningful community service with instruction and reflection to enrich the learning experience, teach civic responsibility, and strengthen communities.”

State Seal of Civic Engagement. This bill is intended to provide support to LEAs and charter schools serving students in grades 6-12 so that they may provide equitable student access to service-learning and the opportunity to earn the State Seal of Civic Engagement. AB 24 (Eggman), Chapter 604, Statutes of 2017, required the SBE to establish five criteria for the awarding of the State Seal of Civic Engagement. The SBE established these five criteria on September 10, 2020.

The five criteria are meant to provide LEAs with a Framework for making determinations of student qualifications required to earn the State Seal of Civic Engagement, based on their own local contexts. The criteria were written to ensure that no student is excluded from an opportunity to earn the State Seal of Civic Engagement based on academic ability, alternative school settings, or unique or unconventional expressions of civic engagement. The student must:

1. Be engaged in academic work in a productive way;
2. Demonstrate a competent understanding of the United States and California constitutions; functions and governance of local governments; tribal government structures and organizations; the role of the citizen in a constitutional democracy; and democratic principles, concepts, and processes;
3. Participate in one or more informed civic engagement project(s) that address real-world problems and require students to identify and inquire into civic needs or problems, consider varied responses, take action, and reflect on efforts;
4. Demonstrate civic knowledge, skills, and dispositions through self-reflection; and
5. Exhibit character traits that reflect civic-mindedness and a commitment to positively impact the classroom, school, community and/or society.

Growing number of State Seal of Civic Engagement earned. Participation in the State Seal of Civic Engagement program has been small but growing. According to the CDE, in the 2024-25 school year, 33 counties, 161 LEAs, and 492 schools were participating in the program. A total of 21,284 seals were attached to high school diplomas, as well as a small number to alternative diplomas, general education development certificates, and certificates of completion.

According to the Author

According to the author, "AB 2354 strengthens California's investment in service learning by allowing schools to implement programs across grades 6 through 12, rather than limiting access primarily to grade 12. By supporting multi-year service-learning opportunities, this bill will help ensure that all students have a meaningful opportunity to develop the skills and experiences needed to earn the State Seal of Civic Engagement."

Arguments in Support

According to the California Association of Student Councils, "Currently, the State Seal of Civic Engagement's (SSCE) design does not fully support a multi-year civic learning pathway that prepares students for meaningful engagement by graduation. Concentrating service-learning grant eligibility in grade 12 can limit a district's ability to build sustained civic engagement experiences across multiple years. Civic identity, community partnerships, and applied learning skills are developed progressively. When service-learning is compressed into a student’s final year, districts may struggle to meaningfully foster instruction, build long-term community relationships, or ensure equitable participation for all students. This structure can unintentionally create uneven access to SSCE-aligned opportunities, particularly in districts that lack pre-existing civic learning infrastructure.

AB 2354 would clarify that the California Serves Program promotes access to effective service learning for pupils in grades 6 to 12 who are enrolled at participating LEAs, rather than focusing primarily on grade 12. By expanding eligibility to begin at grade 6, the bill would allow LEAs to design and implement multi-year service-learning pathways rather than concentrating programming in grade 12 alone. This change would enable districts to foster civic knowledge and engagement beginning in the earlier years of middle school, strengthen partnerships with community organizations, and provide students with sustained opportunities to meet SSCE criteria. AB 2354 maintains the program's existing purpose and administrative structure while modernizing it to reflect how civic development occurs over time through sustained engagement."

Arguments in Opposition

None on file

FISCAL COMMENTS

According to the Assembly Appropriations Committee:

1. One-time General Fund costs of $394,000 and $407,000 ongoing annually to CDE to hire additional staff to oversee expanded program implementation and technical assistance.

The Budget Act of 2022 education omnibus trailer bill included a $5 million annual appropriation to establish the California Serves Program grant program, administered by CDE, to provide eligible grantees up to $500,000 annually to promote service-learning. The Budget Act also requires CDE to annually submit a report to the Legislature with an evaluation of the program, however, the Budget Act of 2022 did not provide additional resources for CDE to administer this grant program.

1. Potential Proposition 98 General Fund cost pressures of an unknown but likely significant amount, possibly in the low millions of dollars, to the extent the bill's expansion of eligible LEAs under the California Serves Programs results in a significant increase in applicants for grants and the Legislature appropriates additional funding to support this increase.

VOTES

ASM EDUCATION: 9-0-0

YES: Patel, Hoover, Alvarez, Bonta, Castillo, Garcia, Lowenthal, Pellerin, Zbur

ASM APPROPRIATIONS: 15-0-0

YES: Wicks, Hoover, Aguiar-Curry, Calderon, Caloza, Dixon, Fong, Mark González, Krell, Pacheco, Pellerin, Sharp-Collins, Solache, Ta, Tangipa

UPDATED

VERSION: March 19, 2026

CONSULTANT: Debbie Look / ED. / (916) 319-2087 FN: 0002681

Date of Hearing: May 13, 2026

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 2354

Author:(Gabriel) – As Amended Ver:March 19, 2026

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

SUMMARY:

This bill expands the California Serves program from grades nine through 12 to grades 6 through 12 and requires the California Department of Education (CDE), in partnership with CaliforniaVolunteers, to provide updated recommendations to the Legislature along with guidance and resources for local educational agencies (LEAs) regarding the program’s implementation by January 1, 2028.

FISCAL EFFECT:

1. One-time General Fund costs of $394,000 and $407,000 ongoing annually to CDE to hire additional staff to oversee expanded program implementation and technical assistance.

The Budget Act of 2022 education omnibus trailer bill included a $5 million annual appropriation to establish the California Serves Program grant program, administered by CDE, to provide eligible grantees up to $500,000 annually to promote service-learning. The Budget Act also requires CDE to annually submit a report to the Legislature with an evaluation of the program, however, the Budget Act of 2022 did not provide additional resources for CDE to administer this grant program.

1. Potential Proposition 98 General Fund cost pressures of an unknown but likely significant amount, possibly in the low millions of dollars, to the extent the bill’s expansion of eligible LEAs under the California Serves Programs results in a significant increase in applicants for grants and the Legislature appropriates additional funding to support this increase.

The Legislative Analyst’s Office recently warned of General Fund structural deficits of around $35 billion per year in the 2027-28 fiscal year and ongoing.

COMMENTS:

1. Purpose. According to the author:

AB 2354 strengthens California’s investment in service learning by allowing schools to implement programs across grades 6 through 12, rather than limiting access primarily to grade 12. By supporting multi-year service-learning opportunities, this bill will help ensure that all students have a meaningful opportunity to develop the skills and experiences needed to earn the State Seal of Civic Engagement.

1. Background. CDE administers the California Serves Program, established in 2022, in consultation with CaliforniaVolunteers, to provide opportunities for students in grade 12 to complete service-learning counting towards achievement of the State Seal of Civic Engagement. According to the federal Learn and Serve program of the Corporation for National and Community Service, service-learning is “a teaching and learning strategy that integrates meaningful community service with instruction and reflection to enrich the learning experience, teach civic responsibility, and strengthen communities.” This bill expands the California Serves Program from LEAs serving students in grade 12 to LEAs serving students in grades six through 12.

Analysis Prepared by: Aaron Heredia / APPR. / (916) 319-2081

Date of Hearing: April 22, 2026

ASSEMBLY COMMITTEE ON EDUCATION

Darshana R. Patel, Chair

ABPCA Bill Id:AB 2354 (

Author:Gabriel) – As Amended Ver:March 19, 2026

SUBJECT: Pupil instruction: California Serves Program

SUMMARY: Expands the California Serves Program to serve students in grades 6 through 12 and requires the California Department of Education (CDE), in partnership with the California Volunteers, to provide recommend effective service-learning strategies for grades 6 through 12. Specifically, this bill:

1. Expands the California Serves Program from being applicable to students in grade 12 only to include students in 6-12^th grades.
2. Requires the CDE to provide recommendations to the Legislature on ways to incorporate effective service learning by January 1, 2028, and expands the scope to include students in 6-12^th grades.
3. Requires the CDE to post on its website by January 1, 2028, evidence-based strategies for expanding access to high-quality service-learning programs that may be used by teachers and local educational agencies (LEAs) serving students in 6-12^th grades.
4. Requires the annual evaluation report on service learning to be submitted by the CDE, in partnership with California Volunteers, to specify the number of pupils by grade, in addition to other required data.

EXISTING LAW:

1. Establishes the California Serves Program, to be administered by the CDE in collaboration with the CaliforniaVolunteers to promote access for effective service learning for students in 12th grade to expand access for high school graduates in obtaining a State Seal of Civic Engagement. Requires the CDE, in partnership with CaliforniaVolunteers, by January 1, 2024, to review evidence and provide recommendations on ways to incorporate effective service learning for students in 9-12th grades and promote equitable access to these programs. (Education Code (EC) 51475)
2. Establishes the California Serves Program for the purposes of awarding grants to promote access to effective service learning for students in grade 12, with the goal of expanding access for high school graduates in obtaining a State Seal of Civic Engagement through service learning. Allowable uses for grants include:
   1. Paid planning time for teachers to increase the use of service learning in instruction;
   2. Professional development on service learning for administrators and teachers;
   3. Purchase of instructional materials to help integrate service learning in instruction;
   4. Participation costs, including materials or travel expenses related to service learning activities;
   5. Personnel costs for coordinating service learning at the LEA or a school site; and
   6. Participation costs associated with grant program evaluation. (EC 51475)
3. Establishes the 21st Century High School After School Safety and Enrichment for Teens (ASSETS) program to award grants for after-school enrichment programs for high school students. A program consists of an academic assistance element and an enrichment element that may include community service or service learning. (EC 8421).
4. Establishes a State Seal of Civic Engagement, to be affixed to the diploma of qualifying high school graduates, based on a demonstration of excellence in civics education and participation. (EC 51470)
5. Requires the State Superintendent of Public Instruction (SPI), on or before January 1, 2020, to recommend to the State Board of Education (SBE) criteria for awarding a State Seal of Civic Engagement to students who have demonstrated excellence in civics education and participation and have demonstrated an understanding of the United States Constitution, the California Constitution, and the democratic system of government. (EC 51470)
6. Requires the SPI, in developing criteria for the State Seal of Civic Engagement, to incorporate the Six Proven Practices for Effective Civic Learning, and to consult with a diverse group of credentialed, current, classroom teachers who teach the subject of history-social science, including government, in secondary schools. Requires the SPI to also consider including criteria based on each of the following:
7. Successful completion of history, government, and civics courses, including courses that incorporate character education;
8. Voluntary participation in community service or extracurricular activities; and
9. Any other related requirements as it deems appropriate.
10. Requires the SPI to ensure, to the greatest extent feasible, that the criteria:
11. Provide all students with an opportunity to earn the State Seal of Civic Engagement;
12. Recognize student excellence or outstanding achievement;
13. Are not based primarily on student achievement that is already recognized through grades or other standard measures of student achievement; and
14. To the extent possible, result in a seal that confers some benefit to students beyond secondary school. (EC 51471)
15. States that school district participation in this program is voluntary. (EC 51471)

FISCAL EFFECT: Unknown

COMMENTS:

Need for the bill. According to the author, “AB 2354 strengthens California’s investment in service learning by allowing schools to implement programs across grades 6 through 12, rather than limiting access primarily to grade 12. By supporting multi-year service-learning opportunities, this bill will help ensure that all students have a meaningful opportunity to develop the skills and experiences needed to earn the State Seal of Civic Engagement.”

California Serves Grant Program was established in 2022. AB 181 (Committee on Budget) Chapter 52, Statutes of 2022, establishes the California Serves Grant Program and appropriates $5 million in annual funding, beginning with the 2022-23 fiscal year, to the CDE to award grants to LEAs to promote access to effective service learning for students in 12^th grade with the goal of expanding access for high school graduates to obtain a State Seal of Civic Engagement. The maximum grant amount is $500,000 and eligible activities include:

• Paid planning time for teachers to increase the use of service learning in instruction;
• Professional development on service learning for administrators and teachers;
• Purchase of instructional materials to help integrate service learning in instruction;
• Participation costs, including materials or travel expenses related to service learning activities;
• Personnel costs for coordinating service learning at the LEA or a school site; and
• Participation costs associated with grant program evaluation.

Grants were awarded under this program as noted in the table below:

Source: CDE, 2026

Recommendations to expand service learning. The Legislature, in establishing the California Serves Grant Program, required the CDE in partnership with California Volunteers to provide recommendations to the Legislature on evidence-based strategies to expand access to high-quality service-learning programs in California high schools and promote equitable access to these programs. In their January 2024 report to the Legislature, the CDE provided 5 recommendations:

• Establish effective standards and indicators of service-learning;
• Incorporate curriculum and strategies that encourage deep civic learning;
• Ensure teacher access to ongoing professional development and learning;
• Prioritize efforts to track who earns the State Seal of Civic Engagement; and
• Design meaningful infrastructure that promotes service-learning at all levels.

Service-learning vs. community service or volunteering. Service-learning is distinguished from volunteering or community service in that it connects service with structured opportunities to learn from the experience. The federal Learn and Serve program of the Corporation for National and Community Service defined service-learning as “a teaching and learning strategy that integrates meaningful community service with instruction and reflection to enrich the learning experience, teach civic responsibility, and strengthen communities.”

Service-learning supports academic achievement, narrows achievement gap. A 2011 meta-analysis in the Journal of Experiential Education, A Meta-analysis of the Impact of Service-Learning on Students, of 62 studies involving 11,837 students found that, compared to controls, students who participated in service-learning programs demonstrated significant gains in five outcome areas: attitudes toward self, attitudes toward school and learning, civic engagement, social skills, and academic performance. The analysis also found that following certain recommended practices—such as linking to curriculum, community involvement, and reflection—were associated with better outcomes. A 2005 analysis of 217,000 student surveys found that “service [service-learning was not measured] of only one hour per week among lower-income students was related to significant reduction of the gap in achievement-related assets between higher and lower-income students.”

State Seal of Civic Engagement. This bill is intended to provide support to LEAs and charter schools serving students in grades 6-12 so that they may provide equitable student access to service-learning and the opportunity to earn the State Seal of Civic Engagement. AB 24 (Eggman), Chapter 604, Statutes of 2017, required the SBE to establish five criteria for the awarding of the State Seal of Civic Engagement. The SBE established these five criteria on September 10, 2020.

The five criteria are meant to provide LEAs with a Framework for making determinations of student qualifications required to earn the State Seal of Civic Engagement, based on their own local contexts. The criteria were written to ensure that no student is excluded from an opportunity to earn the State Seal of Civic Engagement based on academic ability, alternative school settings, or unique or unconventional expressions of civic engagement. The student must:

1. Be engaged in academic work in a productive way;
2. Demonstrate a competent understanding of the United States and California constitutions; functions and governance of local governments; tribal government structures and organizations; the role of the citizen in a constitutional democracy; and democratic principles, concepts, and processes;
3. Participate in one or more informed civic engagement project(s) that address real-world problems and require students to identify and inquire into civic needs or problems, consider varied responses, take action, and reflect on efforts;
4. Demonstrate civic knowledge, skills, and dispositions through self-reflection; and
5. Exhibit character traits that reflect civic-mindedness and a commitment to positively impact the classroom, school, community and/or society.

Growing number of State Seal of Civic Engagement earned. Participation in the State Seal of Civic Engagement program has been small but growing. According to the CDE, in the 2024-25 school year, 33 counties, 161 LEAs, and 492 schools were participating in the program. A total of 21,284 seals were attached to high school diplomas, as well as a small number to alternative diplomas, general education development certificates, and certificates of completion.

Six Proven Practices for Effective Civic Learning. Existing law required the SBE, in establishing criteria for the State Seal of Civic Engagement to incorporate the Six Proven Practices for Effective Civic Learning, developed by the Education Commission of the States. These Six Practices are:

1. Provide instruction in government, history, law, and democracy;
2. Incorporate discussion of current local, national, and international issues and events in the classroom, particularly those that young people view as important to their lives;
3. Design and implement programs that provide students with opportunities to apply what they learn through performing community service that is linked to the formal curriculum and classroom instruction;
4. Offer extracurricular activities that provide opportunities for young people to get involved in their schools or communities;
5. Encourage student participation in school governance; and
6. Encourage students’ participation in simulations of democratic processes and procedures.

California Volunteers established by Executive Order in 2006. Governor Schwarzenegger issued Executive Order S-24-06 on December 11, 2006, reestablishing the California Service Corps as the California Volunteers in the Governor’s Office, specifying the following duties and responsibilities to include, but not be limited to:

• Recruiting and mobilizing citizens for volunteer service by identifying service opportunities throughout the state and by recognizing citizens for the contributions they make as volunteers and participants in public service programs;
• Serving as the state's lead agency for community service and volunteerism, informing the public of the value of and need for greater community service and volunteerism in California, calling upon all Californians to become involved, and challenging public and private institutions to create and support community service and volunteer opportunities; and
• Partnering with other public agencies at the state, county and local levels, and the private and not-for-profit sectors to leverage greater resources and create more opportunities for service and volunteerism.

According to the current Governor’s website, “Led by the state’s Chief Service Officer, Josh Fryday, California Volunteers, Office of the Governor engages Californians in service, volunteering and civic action to tackle our State’s most pressing challenges while mobilizing all Californians to volunteer and serve in their communities. #CaliforniansForAll was launched in response to the COVID-19 pandemic to build on the efforts of California Volunteers to establish a statewide volunteer corps to help with the state’s response to emergencies and disasters. California Volunteers also administers the AmeriCorps programs in California with over 80 programs providing critical services to more than 160,000 Californians annually.”

Arguments in support. According to the California Association of Student Councils, “Currently, the State Seal of Civic Engagement’s (SSCE) design does not fully support a multi-year civic learning pathway that prepares students for meaningful engagement by graduation. Concentrating service-learning grant eligibility in grade 12 can limit a district’s ability to build sustained civic engagement experiences across multiple years. Civic identity, community partnerships, and applied learning skills are developed progressively. When service-learning is compressed into a student’s final year, districts may struggle to meaningfully foster instruction, build long-term community relationships, or ensure equitable participation for all students. This structure can unintentionally create uneven access to SSCE-aligned opportunities, particularly in districts that lack pre-existing civic learning infrastructure.

AB 2354 would clarify that the California Serves Program promotes access to effective service learning for pupils in grades 6 to 12 who are enrolled at participating LEAs, rather than focusing primarily on grade 12. By expanding eligibility to begin at grade 6, the bill would allow LEAs to design and implement multi-year service-learning pathways rather than concentrating programming in grade 12 alone. This change would enable districts to foster civic knowledge and engagement beginning in the earlier years of middle school, strengthen partnerships with community organizations, and provide students with sustained opportunities to meet SSCE criteria. AB 2354 maintains the program’s existing purpose and administrative structure while modernizing it to reflect how civic development occurs over time through sustained engagement.”

Related legislation. SB 1378 (Ochoa Bogh) of the 2025-26 Session requires the CDE to establish the California Excellence in Service Learning Designation Program to publicly recognize and designate schoolsites and LEAs that demonstrate excellence in service learning.

SB 578 (Limón) of the 2025-26 Session would have expanded the existing California Serves Program to promote access to effective service learning for grades 1 through 12; required LEAs to implement a Civic Engagement Pathways Program for pupils in grades 1 through 8; and required the Instructional Quality Commission (IQC), during its next consideration for the revision of the history and social sciences framework, to include civic engagement experiences, as specified. This bill was held in the Senate Appropriations Committee.

AB 1520 (Bonta) of the 2023-24 Session would have required the SPI by July 1, 2024, to select a partnership consisting of a county office of education (COE) and a community organization to serve as the State Seal of Civic Engagement Resource Lead. Would have required the State Seal of Civic Engagement Resource Lead to engage in a wide range of duties, including the coordination of support, provision of technical assistance, and delivery of professional learning to improve equitable access for students, especially those in marginalized communities, to the State Seal of Civic Engagement. This bill was held in the Assembly Appropriations Committee.

AB 181 (Committee on Budget) Chapter 52, Statutes of 2022, establishes the California Serves Program to be administered by the CDE in collaboration with CaliforniaVolunteers to promote access to effective service learning for students in 12^th grade, with the goal of expanding access for high school graduates in obtaining a State Seal of Civic Engagement.

AB 2116 (McCarty) of the 2021-22 Session would have established the California Serves Pilot Program for purposes of engaging pupils in grade 12, and requires the CDE, in collaboration with CaliforniaVolunteers, to conduct a study on ways to incorporate impactful service learning for pupils in grade 12. This bill was held in the Senate Appropriations Committee.

AB 2678 (McCarty) of the 2019-20 Session would have required CaliforniaVolunteers, in collaboration with the CDE and appropriate stakeholders, to conduct a study on ways to incorporate impactful service-learning for pupils in grade 12 and, on or before January 1, 2022, provide recommendations on how to integrate service learning. This bill was held in the Assembly Education Committee.

AB 189 (Low) of the 2017-18 Session would have required the Instructional Quality Commission (IQC) to develop a model curriculum on service-learning for pupils in ninth to 12th grade, for voluntary use by educators. This bill was vetoed by the Governor. The veto message read:

I believe this bill is unnecessary. The Instructional Quality Commission carefully considered the subject of service-learning when it was updating the History-Social Science Framework and embedded it throughout the curriculum framework that the State Board of Education subsequently adopted.

AB 24 (Eggman), Chapter 604, Statutes of 2017, establishes a State Seal of Civic Engagement, to be affixed to the diploma of qualifying high school graduates, based on a demonstration of excellence in civic education and participation.

AB 1689 (Low) of the 2015-16 Session would have required, beginning with the high school class of 2022-23, that at least one of the courses required for graduation include a service-learning component. The bill would have defined service-learning and also required the SPI to develop curriculum standards for courses that incorporate a service-learning component. This bill was held in the Assembly Appropriations Committee.

AB 524 (Low) of the 2015-16 Session would have required, beginning with the high school class of 2020-21, that at least one of the courses required for graduation include a service-learning component. The bill would have defined service-learning and also required the SPI to develop curriculum standards for courses that incorporate a service-learning component. This bill was held in the Assembly Appropriations Committee.

AB 127 (Jeffries) of the 2009-10 Session would have established the California Volunteers Commission, which would serve as California’s “State Commission” for purposes of the federal National and Community Service Trust Act of 1993 and it’s implementing rules and regulations. This bill was held in the Senate Appropriations Committee.

SB 984 (Polanco), Chapter 213, Statutes of 2000, establishes the Cesar Chavez Day of Service and Learning program to promote service to the communities of California in honor of the life and work of Cesar Chavez and authorized the local and state operated Americorps and Conservation Corps to submit proposals for programs that will engage pupils through their schools and school districts in community service that honors the life and work of Cesar Chavez.

AB 1911 (Wesson and Hertzberg) of the 1999-2000 Session would have required school districts offering grades 9 - 12 to offer students the opportunity to enroll in courses that include service-learning activities for credit toward graduation. This bill was held in the Senate Appropriations Committee.

REGISTERED SUPPORT / OPPOSITION:

Support

Alameda County Office of Education

California Association of Student Councils

Center for Volunteer & Nonprofit Leadership

GenUp

Jewish Family and Children's Services of San Francisco, the Peninsula, Marin and Sonoma Counties

Menlo-Atherton High School Service-learning Students

National Youth Leadership Council

Youth Service America

Opposition

None on file

Analysis Prepared by: Debbie Look / ED. / (916) 319-2087