Existing law provides various programs for youth and adolescent health, including requiring a youth sports organization that elects to offer an athletic program to ensure athletes have access to an automated external defibrillator during official practice and regulating youth football. Existing law also authorizes a community youth athletic program to request state and federal level criminal history information for volunteer or hired coach candidates.

This bill, the Youth Sports for All Act, would require the State Public Health Officer to establish and convene the Blue Ribbon Commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity to conduct a comprehensive study on the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports, as provided, on or before July 1, 2026, or 6 months after implementation commences as described below, whichever is later. The bill would require the commission to submit the study to the Legislature and the Governor on or before January 1, 2028, or 2 years after implementation commences, whichever is later. The bill would make implementation of its provisions contingent upon an appropriation by the Legislature or upon the State Department of Public Health obtaining sufficient funds from federal, nonprofit, or private sources.

This bill would create the Youth Sports Blue Ribbon Commission Fund in the State Treasury and would authorize moneys in the account to be expended by the department, upon appropriation by the Legislature, for purposes of the commission. The bill would create the Youth Sports Blue Ribbon Commission Special Fund Subaccount within the fund for the receipt and deposit of the aforementioned federal, nonprofit, or private moneys, and would continuously appropriate moneys in the subaccount to the department for purposes of the commission, thereby making an appropriation.

This bill would repeal its provisions on January 1, 2033.

Existing law provides various programs for youth and adolescent health, including requiring a youth sports organization that elects to offer an athletic program to ensure athletes have access to an automated external defibrillator during official practice and regulating youth football. Existing law also authorizes a community youth athletic program to request state and federal level criminal history information for volunteer or hired coach candidates.

This bill, the Youth Sports for All Act, would require the State Public Health Officer to establish and convene the Blue Ribbon Commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity to conduct a comprehensive study on the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports, as provided, on or before July 1, 2026, or 6 months after implementation commences as described below, whichever is later. The bill would require the commission to submit the study to the Legislature and the Governor on or before January 1, 2028, or 2 years after implementation commences, whichever is later. The bill would make implementation of its provisions contingent upon an appropriation by the Legislature or upon the State Department of Public Health obtaining sufficient funds from federal, nonprofit, or private sources.

This bill would create the Youth Sports Blue Ribbon Commission Fund in the State Treasury and would authorize moneys in the account to be expended by the department, upon appropriation by the Legislature, for purposes of the commission. The bill would create the Youth Sports Blue Ribbon Commission Special Fund Subaccount within the fund for the receipt and deposit of the aforementioned federal, nonprofit, or private moneys, and would continuously appropriate moneys in the subaccount to the department for purposes of the commission, thereby making an appropriation.

This bill would repeal its provisions on January 1, 2033.

Existing law provides various programs for youth and adolescent health, including requiring a youth sports organization that elects to offer an athletic program to ensure athletes have access to an automated external defibrillator during official practice and regulating youth football. Existing law also authorizes a community youth athletic program to request state and federal level criminal history information for volunteer or hired coach candidates.

This bill, the Youth Sports for All Act, would require the Secretary of California Health and Human Services and other relevant agencies or departments as determined by the secretary, to, on or before March 1, 2026, State Public Health Officer to establish and convene the Blue Ribbon Commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity to conduct a comprehensive study on the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports, as provided. provided, on or before July 1, 2026, or 6 months after implementation commences as described below, whichever is later. The bill would require the commission to submit the study to the Legislature and the Governor on or before January 1, 2027, or one year 2028, or 2 years after implementation commences, whichever is later. The bill would make implementation of its provisions contingent upon an appropriation by the Legislature or upon the California Health and Human Services Agency State Department of Public Health obtaining sufficient funds from federal, nonprofit, or private sources.

This bill would create the Youth Sports Blue Ribbon Commission Fund in the State Treasury and would authorize moneys in the account to be expended by the agency, department, upon appropriation by the Legislature, for purposes of the commission. The bill would create the Youth Sports Blue Ribbon Commission Special Fund Subaccount within the fund for the receipt and deposit of the aforementioned federal, nonprofit, or private moneys, and would continuously appropriate moneys in the subaccount to the agency department for purposes of the commission, thereby making an appropriation.

This bill would repeal its provisions on January 1, 2030. 2033.

Existing law provides various programs for youth and adolescent health, including requiring a youth sports organization that elects to offer an athletic program to ensure athletes have access to an automated external defibrillator during official practice and regulating youth football. Existing law also authorizes a community youth athletic program to request state and federal level criminal history information for volunteer or hired coach candidates.

This bill, the Youth Sports for All Act, would require the Secretary of California Health and Human Services and other relevant agencies or departments as determined by the Secretary, secretary, to, on or before March 1, 2026, establish and convene the Blue Ribbon Commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity to conduct a comprehensive study on the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports, as provided. The bill would require the commission to, on or before January 1, 2027, to submit the study to the Legislature and the Governor. Governor on or before January 1, 2027, or one year after implementation commences, whichever is later. The bill would make implementation of its provisions contingent upon an appropriation by the Legislature or upon the California Health and Human Services Agency obtaining sufficient funds from federal, nonprofit, or private sources. The

This bill would create the Youth Sports Blue Ribbon Commission Fund in the State Treasury and would authorize moneys in the account to be expended by the agency, upon appropriation by the Legislature, for purposes of the commission. The bill would create the Youth Sports Blue Ribbon Commission Special Fund Subaccount within the fund for the receipt and deposit of the aforementioned federal, nonprofit, or private moneys, and would continuously appropriate moneys in the subaccount to the agency for purposes of the commission, thereby making an appropriation. The

This bill would repeal its provisions on January 1, 2029. 2030.

Existing law provides various programs for youth and adolescent health, including requiring a youth sports organization that elects to offer an athletic program to ensure athletes have access to an automated external defibrillator during official practice and regulating youth football. Existing law also authorizes a community youth athletic program to request state and federal level criminal history information for volunteer or hired coach candidates.

This bill, the Youth Sports for All Act, would require the Secretary of California Health and Human Services and other relevant agencies or departments as determined by the Secretary, to, on or before March 1, 2026, establish and convene the Blue Ribbon Commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity to conduct a comprehensive study on the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports, as provided. The bill would require the commission to, on or before January 1, 2027, submit the study to the Legislature and the Governor. The bill would make its provisions contingent upon an appropriation by the Legislature or upon the California Health and Human Services Agency obtaining sufficient funds from federal, non-profit, nonprofit, or private sources. The bill would create the Youth Sports Blue Ribbon Commission Fund in the State Treasury and would authorize moneys in the account to be expended by the agency, upon appropriation by the Legislature, for purposes of the commission. The bill would create the Youth Sports Blue Ribbon Commission Special Fund Subaccount within the fund for the receipt and deposit of the aforementioned federal, nonprofit, or private moneys, and would continuously appropriate moneys in the subaccount to the agency for purposes of the commission, thereby making an appropriation. The bill would repeal its provisions on January 1, 2029.

Existing law authorizes public and private secondary schools to participate in interscholastic sports, and authorizes schools to enter into associations or consortia to enact and enforce rules relating to eligibility for, and participation in, these activities. Existing law recognizes the California Interscholastic Federation to be a voluntary organization that consists of school and school-related personnel with responsibility for administering interscholastic athletic activities in secondary schools.

Existing law authorizes public and private secondary schools to participate in interscholastic sports, and authorizes schools to enter into associations or consortia to enact and enforce rules relating to eligibility for, and participation in, these activities. Existing law recognizes the California Interscholastic Federation to be a voluntary organization that consists of school and school-related personnel with responsibility for administering interscholastic athletic activities in secondary schools.

This bill would state the intent of the Legislature to enact subsequent legislation relating to a study to evaluate the creation of a California Department of Youth Sports.

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 749

Author:(McKinnor and Quirk-Silva)

As Amended Ver:September 2, 2025

Majority vote

SUMMARY

AB 749 requires the State Public Health Officer to convene a Blue Ribbon Commission on the development of a California Department of Youth Sports, with specified members, to conduct a study on the need for a centralized entity charge with supporting and regulating.

Senate Amendments

Senate amendments redirect responsibility for the commission from the Secretary of the California Health and Human Services Agency to the State Public Health Officer in the California Department of Public Health (CDPH), allow additional time for the commission to complete its required report, and other conforming changes.

COMMENTS

Background. While the Department of Education oversees physical education requirements and athletics in California schools, outside of the schools, no state entity currently regulates youth sports. State law in the area is spotty and largely related to specific safety issues such as safety protocols around head injuries, training regarding sudden cardiac arrest, and regulation of tackle football. In other contexts, sports facilities themselves are regulated, particularly swimming pools, again to ensure safety. CDPH does have a Nutrition and Physical Activity Branch within its Center for Healthy Families to address nutrition security and physical activity through statewide, regional, and local programs and partnerships with an emphasis on communities that experience the greatest health disparities. Through funding provided by the U.S. Department of Agriculture Supplemental Nutrition Assistance Program-Education and the U.S. Centers for Disease Control and Prevention (CDC), the branch's annual budget is approximately $81 million, of which approximately $55 million is dedicated to local projects across the state. In addition to funding local programs, the branch manages a statewide social marketing campaign, implements state level nutrition and physical activity policy strategies, and supports the Governor's Advisory Council on Physical Fitness and Mental Well-Being.

The Governor’s Advisory Council on Physical Fitness and Mental Well-Being (Council) was created by the Governor in June 2021 in response to changes in health behaviors brought about by the COVID-19 pandemic. The Council was funded in the 2022-2023 budget with a one-time investment of $10 million to be available until June 30, 2025, $7.5 million of which was spent. The remaining $2.5 million was reappropriated to continue the work of the Council.

The Council's goals are as follows:

1. Promote evidence-based, daily mindfulness and breathwork practices for youth and families, especially at schools.
2. Promote all types of physical activity for youth and families with a focus on daily movement, skill development and play, especially at schools.
3. Reimagine a more positive and inclusive sports and fitness culture for California youth and families to bolster health, community and belonging for all Californians.

The Council started an initiative "Move Your Body, Calm Your Mind" to provide guidance and resources on physical activity and mental well-being, increase awareness about the benefits of movement, sport, nutrition, and overall mental wellness; encourage intergenerational physical fitness activities, promote equitable access to outdoor and physical activities for underserved communities; and facilitate collaboration among federal, state, and local agencies, education, business and industry, and others. Among the activities of the initiative is an effort to train 25,000 coaches across California in positive youth coaching by the end of 2025.

Gaps in access to youth sports. The LA84 Foundation published a 2024 report on play equity in California with several key findings related to youth physical activity and access to sports based on quantitative and qualitative surveys of households with school-aged children. The report found that a majority of California youth are less active than they should be according to the CDC’s recommendation that youth engage in at least 60 minutes of physical activity each day, with ten percent of youth who are "never" active and only 39% of youth having daily physical education at school. The rates of physical activity are lowest for Latinas and Black females, Latino youth in general, youth with disabilities, youth with annual household incomes below $50,000 and youth in the Inland Empire. The only subgroups with the majority meeting the CDC’s guidelines is youth in households with incomes of at least $100,000 and White male youth. The study did find that access to organized sports and structured play has the potential to increase levels of regular physical activity but that parents identified cost as a key barrier to accessing youth sports. The study also found support for increased state funding for sports.

According to the Author

"The current youth sports landscape is highly fragmented and unfair. Existing practices, pay-to-play models, a lack of facilities, the absence of statewide coaching and safety standards, hyper-competitive leagues, and inaccessible community-based programs deny every child the opportunity to reap the lifelong benefits of youth sports participation which include positive socioemotional development, community cohesion, mental and physical health, academic success, and overall healthier and stronger communities. This bill is a crucial first step towards engaging with experts on the establishment of a centralized entity charged with improving access, involvement, and the sustainability of youth sports across California leading to healthier and more resilient youth, young adults, and communities."

Arguments in Support

Sponsor, the Play Equity Fund, and many supporters write that the current landscape remains highly fragmented and unfair. The pay-to-play models, lack of facilities, the absence of coaching standards, and inaccessible community sports programs deny children the opportunity to achieve wellness, academic success, and positive socioemotional development. While two out of three children in California are not meeting CDC standards for daily physical activity, 915,000 youth in California have a current diagnosis of anxiety, behavioral or conduct problems, depression or other mental health conditions. They state that addressing the current youth sports landscape is crucial, as research has consistently shown that sports participation and physical activity lead to improved physical health, mental health, and more resilient adolescents and young adults.

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Senate Committee on Appropriations, this bill has unknown one-time General Fund costs, potentially hundreds of thousands to low millions, for CHHS (now CDPH) to convene the commission and conduct the study.

VOTES:

ASM ARTS, ENTERTAINMENT, SPORTS, AND TOURISM: 7-0-2

YES: Ward, Elhawary, McKinnor, Ortega, Quirk-Silva, Valencia, Zbur

ABS, ABST OR NV: Lackey, Jeff Gonzalez

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

ASSEMBLY FLOOR: 62-3-14

YES: Addis, Aguiar-Curry, Ahrens, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Chen, Connolly, Davies, Elhawary, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hart, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Ward, Wicks, Wilson, Zbur, Rivas

NO: DeMaio, Gallagher, Patterson

ABS, ABST OR NV: Alanis, Castillo, Dixon, Ellis, Flora, Jeff Gonzalez, Hadwick, Hoover, Lackey, Macedo, Sanchez, Ta, Tangipa, Wallis

UPDATED

VERSION: September 2, 2025

CONSULTANT: Brian V. Anderson, Jr. / A.,E.,S., & T. / (916) 319-3450 FN: 0001884

 THIRD READING  

Bill No: AB 749

Author: McKinnor (D) and Quirk-Silva (D), et al.

Amended: 9/2/25 in Senate

Vote: 21

SENATE HEALTH COMMITTEE: 9-2, 7/9/25

AYES: Menjivar, Durazo, Gonzalez, Limón, Padilla, Richardson, Rubio, Weber Pierson, Wiener

NOES: Valladares, Grove

SENATE APPROPRIATIONS COMMITTEE: 5-2, 8/29/25

AYES: Caballero, Cabaldon, Grayson, Richardson, Wahab

NOES: Seyarto, Dahle

ASSEMBLY FLOOR: 62-3, 6/2/25 - See last page for vote

SUBJECT: Youth Sports for All Act

SOURCE: Play Equity Fund

DIGEST:

This bill requires the State Public Health Officer to convene a Blue Ribbon Commission on the development of a California Department of Youth Sports, with specified members, to conduct a study on the need for a centralized entity charge with supporting and regulating.

Senate Floor Amendments of 9/2/25 redirect responsibility for the commission from the Secretary of the California Health and Human Services Agency to the State Public Health Officer in the Department of Public Health, allow additional time for the commission to complete its required report, and other conforming changes.

ANALYSIS:

Existing law:

1. Establishes the California Department of Public Health (CDPH), directed by a state Public Health Officer, to be vested with all the duties, powers, purposes, functions, responsibilities, and jurisdiction as they relate to public health and licensing of health facilities, as specified. Authorizes the department to perform specified activities relating to the protection, preservation, and advancement of public health. [Health and Safety Code (HSC) §131050 and §131085]
2. Defines a “youth sports organization” as an organization, business, nonprofit entity, or a local governmental agency that sponsors or conducts amateur sports competitions, training, camps, or clubs in which persons 17 years of age or younger participate. [HSC §124235]
3. Requires a youth sports organization to comply with certain requirements related to athletes suspected of sustaining a concussion or head injury, or who has passed out or fainted, including removal from the athletic activity and a prohibition on returning until he or she is evaluated by a licensed health care provider. Requires youth sports organizations to give both a concussion and head injury information sheet, and a sudden cardiac arrest information sheet, to each athlete on an annual basis. [HSC §124235]
4. Requires each coach, administrator, and referee, umpire, or other game official of the youth sports organization to successfully complete concussion and head injury and sudden cardiac arrest prevention education at least once, either online or in person, before supervising an athlete in an activity of the youth sports organization. [HSC §124235]
5. Establishes the California Youth Football Act, which establishes additional requirements on youth sports organizations that conduct a tackle football program, including requiring a minimum of one certified emergency medical technician, state-licensed paramedic, or higher-level medical professional to be present during all games, and requiring coaches to annually receive first aid, CPR, and automated external defibrillator (AED) certification. [HSC §124240 and §124241]
6. Prohibits local governmental entities from discriminating on the basis of sex or gender in the operation, conduct, or administration of community youth athletics programs or in the allocation of parks and recreational facilities that enable or support these programs and includes specified factors to determine whether discrimination exists. [Government Code (GOV) § 53080.]

This bill:

1. Requires the CDPH State Public Health Officer to establish and convene a Blue Ribbon Commission (commission) on the development of a California Department of Youth Sports or an equivalent centralized entity to conduct a comprehensive study to review the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports by July 1, 2026 or six months after the implementation of this bill pursuant to the appropriation made in 10) below, whichever is later.
2. Requires the commission to be composed of the following:
3. The State Public Health Officer or their designee;
4. Ten members appointed by the Governor;
5. Three members appointed by the Senate Committee on Rules; and,
6. Three members appointed by the Speaker of the Assembly.
7. Requires the appointing authorities to take into consideration the diversity of the state so that the commission’s composition reflects the communities of California and requires each member appointed in 2) above to have expertise in one or more of the following areas:
8. Convening state, local, and national organizations focused on addressing barriers in youth sports;
9. Designing and implementing equitable strategies and programs to expand youth access to sports and play, including by providing technical assistance;
10. Community-based youth development, including youth sports, play, physical activity, mental health, training, and coaching;
11. Californians with disabilities, including adaptive youth sports programs;
12. Publicly operated youth sports programs;
13. Academic or research-informed knowledge of youth sports, youth development, physical education, or equivalent fields of study;
14. Playing or supporting youth sports, including athletes and parents; and,
15. Being a member of or representing an equity-focused organization that works with an impacted community whose lived experience with youth sports will inform the work of the commission.
16. Requires the commission to be cochaired by the State Public Health Officer or their designee and an appointed member selected by members of the commission.
17. Requires the commission to meet quarterly in meetings open to the public. Requires commissioners to serve without compensation except for necessary traveling and other expenses incurred in performing their duties.
18. Requires the commission to conduct a study of the following youth sports issues:
19. An assessment of the need for a centralized entity to improve access to and involvement in sports for all youth, regardless of race, sex, sexual orientation, gender identity, disability, income, or geographic location that addresses specified issues such as disparities in programming quality and availability; safety protocols; inclusivity; increasing sports and activities in daily life of youth; statewide coaching certification requirements and training; a mechanism for state investment in youth sports; potential state and local funding initiatives to reduce or eliminate financial barriers to youth sports participation;
20. An evaluation of and recommendations for the duties, powers, and responsibilities of a centralized entity that includes specified information related to appropriate levels of oversight via law or regulation of safety and licensing requirements for coaches and staff; determine which youth sports benefit from support and regulation from a centralized entity; development and administration of licensing and safety requirements and access and quality standards; strategies to improve access and equity; coordination with relevant state, local, and federal entities; avoiding duplication of efforts among entities; and identifying gaps in data and developing data collection and reporting requirements; and,
21. A review and recommendations regarding the costs of creating and sustaining a centralized entity and potential funding sources including federal, state, private, and philanthropic sources.
22. Requires the study to also include analyses of models of centralized youth sports entities in other states and countries.
23. Authorizes CDPH to contract with an external entity such as an institution of higher education or nonprofit organization to conduct the study.
24. Requires the commission to publically present the study and provide opportunity for public feedback and to submit the study to the Legislation and the Governor by January 1, 2028 or two years after the implementation pursuant to 10) below, whichever is later.
25. Conditions implementation of this bill upon an appropriation in the annual Budget Act or another statute or CDPH having obtained sufficient funds from federal, nonprofit, or private sources to augment an appropriation made to implement this bill.
26. Creates the Youth Sports Blue Ribbon Commission Fund in the State Treasury and the Youth Sports Blue Ribbon Commission Special Fund Subaccount for the receipt and deposit of the funds, continuously appropriates this funding without regard to fiscal year, and permits the funding to be expended by CDPH to implement this bill.
27. Sunsets this bill on January 1, 2033.
28. States legislative findings regarding unregulated coaching in youth sports, fragmentation and lack of coordination among youth sports organizations, disparities in access to youth sports, dangers of the pay-to-play model, and the need for a centralized entity at the state level to address inequities and promote inclusive, accessible, and affordable youth sports programs and coaching education.

Comments

According to the author of this bill:

The current youth sports landscape is highly fragmented and unfair. Existing practices, pay-to-play models, a lack of facilities, the absence of statewide coaching and safety standards, hyper-competitive leagues, and inaccessible community-based programs deny every child the opportunity to reap the lifelong benefits of youth sports participation which include positive socioemotional development, community cohesion, mental and physical health, academic success, and overall healthier and stronger communities. This bill is a crucial first step towards engaging with experts on the establishment of a centralized entity charged with improving access, involvement, and the sustainability of youth sports across California leading to healthier and more resilient youth, young adults, and communities.

Background

State policy involving youth sports. While the Department of Education oversees physical education requirements and athletics in California schools, outside of the schools, no state entity currently regulates youth sports. State law in the area is spotty and largely related to specific safety issues such as safety protocols around head injuries, training regarding sudden cardiac arrest, and regulation of tackle football. In other contexts, sports facilities themselves are regulated, particularly swimming pools, again to ensure safety. CDPH does have a Nutrition and Physical Activity Branch within its Center for Healthy Families to address nutrition security and physical activity through statewide, regional, and local programs and partnerships with an emphasis on communities that experience the greatest health disparities. Through funding provided by the U.S. Department of Agriculture Supplemental Nutrition Assistance Program-Education and the U.S. Centers for Disease Control and Prevention (CDC), the branch’s annual budget is approximately $81 million, of which approximately $55 million is dedicated to local projects across the state. In addition to funding local programs, the branch manages a statewide social marketing campaign, implements state level nutrition and physical activity policy strategies, and supports the Governor’s Advisory Council on Physical Fitness and Mental Well-Being.

The Governor’s Advisory Council on Physical Fitness and Mental Well-Being (Council) was created by the Governor in June 2021 in response to changes in health behaviors brought about by the COVID-19 pandemic. The Council was funded in the 2022-2023 budget with a one-time investment of $10 million to be available until June 30, 2025, $7.5 million of which was spent. The remaining $2.5 million was reappropriated to continue the work of the Council. The Council’s goals are as follows: a) promote evidence-based, daily mindfulness and breathwork practices for youth and families, especially at schools; b) promote all types of physical activity for youth and families with a focus on daily movement, skill development and play, especially at schools; and, c) reimagine a more positive and inclusive sports and fitness culture for California youth and families to bolster health, community and belonging for all Californians. The Council started an initiative “Move Your Body, Calm Your Mind” to provide guidance and resources on physical activity and mental well-being, increase awareness about the benefits of movement, sport, nutrition, and overall mental wellness, encourage intergenerational physical fitness activities, promote equitable access to outdoor and physical activities for underserved communities, and facilitate collaboration among federal, state, and local agencies, education, business and industry, and others. Among the activities of the initiative is an effort to train 25,000 coaches across California in positive youth coaching by the end of 2025.

Gaps in access to youth sports. The LA84 Foundation published a 2024 report on play equity in California with several key findings related to youth physical activity and access to sports based on quantitative and qualitative surveys of households with school-aged children. The report found that a majority of California youth are less active than they should be according to the CDC’s recommendation that youth engage in at least 60 minutes of physical activity each day, with ten percent of youth who are “never” active and only 39% of youth having daily physical education at school. The rates of physical activity are lowest for Latinas and Black females, Latino youth in general, youth with disabilities, youth with annual household incomes below $50,000 and youth in the Inland Empire. The only subgroups with the majority meeting the CDC’s guidelines is youth in households with incomes of at least $100,000 and White male youth. The study did find that access to organized sports and structured play has the potential to increase levels of regular physical activity but that parents identified cost as a key barrier to accessing youth sports. The study also found support for increased state funding for sports.

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

According to the Senate Appropriations Committee, this bill has unknown one-time General Fund costs, potentially hundreds of thousands to low millions, for CHHS (now CDPH) to convene the commission and conduct the study.

SUPPORT: (Verified 9/2/25)

Play Equity Fund (source)

Accelerated Results Coaching

Access Youth Academy

Angel City FC

Antelope Valley Partners for Health

ANTS Sports

Ball for Life Oakland

Beat the Streets Los Angeles

Boyle Heights Youth Football and Cheer

Boys & Girls Clubs of Carson

Boys & Girls Clubs of the Los Angeles Harbor

Boys & Girls Clubs of West San Gabriel Valley & Eastside

Business of Student Success

California Afterschool Network

California Association for Health, Physical Education, Recreation & Dance

California State PTA

Center for Healing and Justice Through Sport

Change the Tune

City of San Diego

Disability Rights California

Empowering Leadership in Latina Athletes

Eric Paredes Save a Life Foundation

Football for Her

Girls Inc. of Alameda County

Harlem Lacrosse - Los Angeles

Hollenbeck Police Activities League

Home Field Advantage

Kids Enjoy Exercise Now LA

KinFlow, Inc.

Kuul Play

Los Angeles Dodgers

Los Angeles Rams

Los Angeles Sparks

My Yute Soccer

Natasha Watley Foundation

Nike

Oakland Genesis

Oakland Girls Softball League

Oakland Roots and Soul Sports Club

P1440 Foundation

Playworks

Pools of Hope

Positive Coaching Alliance

Rainbow Labs

Rose Bowl Aquatics Center

Russell Westbrook Why Not? Foundation

Southern California Tennis Association

Sports and Social Change

Street Soccer USA

USC Schwarzenegger Institute

Woodcraft Rangers

YMCA of Metropolitan Los Angeles

Two individuals

OPPOSITION: (Verified 9/2/25)

None received

ARGUMENTS IN SUPPORT: Sponsor, the Play Equity Fund, and many supporters write that the current landscape remains highly fragmented and unfair. The pay-to-play models, lack of facilities, the absence of coaching standards, and inaccessible community sports programs deny children the opportunity to achieve wellness, academic success, and positive socioemotional development. While two out of three children in California are not meeting CDC standards for daily physical activity, 915,000 youth in California have a current diagnosis of anxiety, behavioral or conduct problems, depression or other mental health conditions. They state that addressing the current youth sports landscape is crucial, as research has consistently shown that sports participation and physical activity lead to improved physical health, mental health, and more resilient adolescents and young adults.

ASSEMBLY FLOOR: 62-3, 6/2/25

AYES: Addis, Aguiar-Curry, Ahrens, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Chen, Connolly, Davies, Elhawary, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hart, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Ward, Wicks, Wilson, Zbur, Rivas

NOES: DeMaio, Gallagher, Patterson

NO VOTE RECORDED: Alanis, Castillo, Dixon, Ellis, Flora, Jeff Gonzalez, Hadwick, Hoover, Lackey, Macedo, Sanchez, Ta, Tangipa, Wallis

Prepared by: Jen Flory / HEALTH / (916) 651-4111

9/3/25 18:31:25

**** END ****

 THIRD READING  

Bill No: AB 749

Author: McKinnor (D) and Quirk-Silva (D), et al.

Amended: 7/14/25 in Senate

Vote: 21

SENATE HEALTH COMMITTEE: 9-2, 7/9/25

AYES: Menjivar, Durazo, Gonzalez, Limón, Padilla, Richardson, Rubio, Weber Pierson, Wiener

NOES: Valladares, Grove

SENATE APPROPRIATIONS COMMITTEE: 5-2, 8/29/25

AYES: Caballero, Cabaldon, Grayson, Richardson, Wahab

NOES: Seyarto, Dahle

ASSEMBLY FLOOR: 62-3, 6/2/25 - See last page for vote

SUBJECT: Youth Sports for All Act

SOURCE: Play Equity Fund

DIGEST:

This bill requires the Secretary of the California Health and Human Services Agency to convene a Blue Ribbon Commission on the development of a California Department of Youth Sports, with specified members, to conduct a study on the need for a centralized entity charge with supporting and regulating.

ANALYSIS:

Existing law:

1. Establishes the California Health and Human Services Agency (CHHS), which consists of the following departments and offices: Aging, Child Support Services, Community Services and Development, Developmental Services, Health Care Access and Information, Health Care Services, Managed Health Care (DMHC), Public Health (CDPH), Rehabilitation, Social Services (CDSS), State Hospitals, the Center for Data Insights and Innovation, the Emergency Medical Services Authority, the Office of Technology and Solutions Integration, the Office of Law Enforcement Support, the Office of the Surgeon General, the Office of Youth and Community Restoration, and the State Council on Developmental Disabilities. [Government Code [GOV] §12803 and §12806]
2. Establishes the California Department of Public Health (CDPH), directed by a state Public Health Officer, to be vested with all the duties, powers, purposes, functions, responsibilities, and jurisdiction as they relate to public health and licensing of health facilities, as specified. Authorizes the department to perform specified activities relating to the protection, preservation, and advancement of public health. [Health and Safety Code [HSC] §131050 and §131085]
3. Defines a “youth sports organization” as an organization, business, nonprofit entity, or a local governmental agency that sponsors or conducts amateur sports competitions, training, camps, or clubs in which persons 17 years of age or younger participate. [HSC §124235]
4. Requires a youth sports organization to comply with certain requirements related to athletes suspected of sustaining a concussion or head injury, or who has passed out or fainted, including removal from the athletic activity and a prohibition on returning until he or she is evaluated by a licensed health care provider. Requires youth sports organizations to give both a concussion and head injury information sheet, and a sudden cardiac arrest information sheet, to each athlete on an annual basis. [HSC §124235]
5. Requires each coach, administrator, and referee, umpire, or other game official of the youth sports organization to successfully complete concussion and head injury and sudden cardiac arrest prevention education at least once, either online or in person, before supervising an athlete in an activity of the youth sports organization. [HSC §124235]
6. Establishes the California Youth Football Act, which establishes additional requirements on youth sports organizations that conduct a tackle football program, including requiring a minimum of one certified emergency medical technician, state-licensed paramedic, or higher-level medical professional to be present during all games, and requiring coaches to annually receive first aid, CPR, and automated external defibrillator (AED) certification. [HSC §124240 and §124241]
7. Prohibits local governmental entities from discriminating on the basis of sex or gender in the operation, conduct, or administration of community youth athletics programs or in the allocation of parks and recreational facilities that enable or support these programs and includes specified factors to determine whether discrimination exists. [GOV § 53080.]

This bill:

1. Requires the CHHS Secretary and other relevant agencies or departments as determined by the Secretary to establish and convene a Blue Ribbon Commission (commission) on the development of a California Department of Youth Sports or an equivalent centralized entity to conduct a comprehensive study to review the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports.
2. Requires the commission to be composed of the following:
3. The CHHS Secretary or the Secretary’s designee;
4. Ten members appointed by the Governor;
5. Three members appointed by the Senate Committee on Rules; and,
6. Three members appointed by the Speaker of the Assembly.
7. Requires the appointing authorities to take into consideration the diversity of the state so that the commission’s composition reflects the communities of California and requires each member appointed in 2) above to have expertise in one or more of the following areas:
8. Convening state, local, and national organizations focused on addressing barriers in youth sports;
9. Designing and implementing equitable strategies and programs to expand youth access to sports and play, including by providing technical assistance;
10. Community-based youth development, including youth sports, play, physical activity, mental health, training, and coaching;
11. Californians with disabilities, including adaptive youth sports programs;
12. Publicly operated youth sports programs;
13. Academic or research-informed knowledge of youth sports, youth development, physical education, or equivalent fields of study;
14. Playing or supporting youth sports, including athletes and parents; and,
15. Being a member of or representing an equity-focused organization that works with an impacted community whose lived experience with youth sports will inform the work of the commission.
16. Requires the commission to be cochaired by the CHHS Secretary or designee and an appointed member selected by members of the commission.
17. Requires the commission to meet quarterly in meetings open to the public. Requires commissioners to serve without compensation except for necessary traveling and other expenses incurred in performing their duties.
18. Requires the commission to conduct a study of the following youth sports issues:
19. An assessment of the need for a centralized entity to improve access to and involvement in sports for all youth, regardless of race, sex, sexual orientation, gender identity, disability, income, or geographic location that addresses specified issues such as disparities in programming quality and availability; safety protocols; inclusivity; increasing sports and activities in daily life of youth; statewide coaching certification requirements and training; a mechanism for state investment in youth sports; potential state and local funding initiatives to reduce or eliminate financial barriers to youth sports participation;
20. An evaluation of and recommendations for the duties, powers, and responsibilities of a centralized entity that includes specified information related to appropriate levels of oversight via law or regulation of safety and licensing requirements for coaches and staff; determine which youth sports benefit from support and regulation from a centralized entity; development and administration of licensing and safety requirements and access and quality standards; strategies to improve access and equity; coordination with relevant state, local, and federal entities; avoiding duplication of efforts among entities; and identifying gaps in data and developing data collection and reporting requirements; and,
21. A review and recommendations regarding the costs of creating and sustaining a centralized entity and potential funding sources including federal, state, private, and philanthropic sources.
22. Requires the study to also include analyses of models of centralized youth sports entities in other states and countries.
23. Authorizes CHHS to contract with an external entity such as an institution of higher education or nonprofit organization to conduct the study.
24. Requires the commission to publically present the study and provide opportunity for public feedback and to submit the study to the Legislation and the Governor by January 1, 2027 or one year after the implementation pursuant to 10) below.
25. Conditions implementation of this bill upon an appropriation in the annual Budget Act or another statute or CHHS having obtained sufficient funds from federal, nonprofit, or private sources to augment an appropriation made to implement this bill.
26. Creates the Youth Sports Blue Ribbon Commission Fund in the State Treasury and the Youth Sports Blue Ribbon Commission Special Fund Subaccount for the receipt and deposit of the funds, continuously appropriates this funding without regard to fiscal year, and permits the funding to be expended by CHHS to implement this bill.
27. Sunsets this bill on January 1, 2030.
28. States legislative findings regarding unregulated coaching in youth sports, fragmentation and lack of coordination among youth sports organizations, disparities in access to youth sports, dangers of the pay-to-play model, and the need for a centralized entity at the state level to address inequities and promote inclusive, accessible, and affordable youth sports programs and coaching education.

Comments

According to the author of this bill:

The current youth sports landscape is highly fragmented and unfair. Existing practices, pay-to-play models, a lack of facilities, the absence of statewide coaching and safety standards, hyper-competitive leagues, and inaccessible community-based programs deny every child the opportunity to reap the lifelong benefits of youth sports participation which include positive socioemotional development, community cohesion, mental and physical health, academic success, and overall healthier and stronger communities. This bill is a crucial first step towards engaging with experts on the establishment of a centralized entity charged with improving access, involvement, and the sustainability of youth sports across California leading to healthier and more resilient youth, young adults, and communities.

Background

State policy involving youth sports. While the Department of Education oversees physical education requirements and athletics in California schools, outside of the schools, no state entity currently regulates youth sports. State law in the area is spotty and largely related to specific safety issues such as safety protocols around head injuries, training regarding sudden cardiac arrest, and regulation of tackle football. In other contexts, sports facilities themselves are regulated, particularly swimming pools, again to ensure safety. CDPH does have a Nutrition and Physical Activity Branch within its Center for Healthy Families to address nutrition security and physical activity through statewide, regional, and local programs and partnerships with an emphasis on communities that experience the greatest health disparities. Through funding provided by the U.S. Department of Agriculture Supplemental Nutrition Assistance Program-Education and the U.S. Centers for Disease Control and Prevention (CDC), the branch’s annual budget is approximately $81 million, of which approximately $55 million is dedicated to local projects across the state. In addition to funding local programs, the branch manages a statewide social marketing campaign, implements state level nutrition and physical activity policy strategies, and supports the Governor’s Advisory Council on Physical Fitness and Mental Well-Being.

The Governor’s Advisory Council on Physical Fitness and Mental Well-Being (Council) was created by the Governor in June 2021 in response to changes in health behaviors brought about by the COVID-19 pandemic. The Council was funded in the 2022-2023 budget with a one-time investment of $10 million to be available until June 30, 2025, $7.5 million of which was spent. The remaining $2.5 million was reappropriated to continue the work of the Council. The Council’s goals are as follows: a) promote evidence-based, daily mindfulness and breathwork practices for youth and families, especially at schools; b) promote all types of physical activity for youth and families with a focus on daily movement, skill development and play, especially at schools; and, c) reimagine a more positive and inclusive sports and fitness culture for California youth and families to bolster health, community and belonging for all Californians. The Council started an initiative “Move Your Body, Calm Your Mind” to provide guidance and resources on physical activity and mental well-being, increase awareness about the benefits of movement, sport, nutrition, and overall mental wellness, encourage intergenerational physical fitness activities, promote equitable access to outdoor and physical activities for underserved communities, and facilitate collaboration among federal, state, and local agencies, education, business and industry, and others. Among the activities of the initiative is an effort to train 25,000 coaches across California in positive youth coaching by the end of 2025.

Gaps in access to youth sports. The LA84 Foundation published a 2024 report on play equity in California with several key findings related to youth physical activity and access to sports based on quantitative and qualitative surveys of households with school-aged children. The report found that a majority of California youth are less active than they should be according to the CDC’s recommendation that youth engage in at least 60 minutes of physical activity each day, with ten percent of youth who are “never” active and only 39% of youth having daily physical education at school. The rates of physical activity are lowest for Latinas and Black females, Latino youth in general, youth with disabilities, youth with annual household incomes below $50,000 and youth in the Inland Empire. The only subgroups with the majority meeting the CDC’s guidelines is youth in households with incomes of at least $100,000 and White male youth. The study did find that access to organized sports and structured play has the potential to increase levels of regular physical activity but that parents identified cost as a key barrier to accessing youth sports. The study also found support for increased state funding for sports.

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

According to the Senate Appropriations Committee, this bill has unknown one-time General Fund costs, potentially hundreds of thousands to low millions, for the CHHS to convene the commission and conduct the study.

SUPPORT: (Verified 8/29/2025)

Play Equity Fund (source)

Accelerated Results Coaching

Access Youth Academy

Angel City FC

Antelope Valley Partners for Health

ANTS Sports

Ball for Life Oakland

Beat the Streets Los Angeles

Boyle Heights Youth Football and Cheer

Boys & Girls Clubs of Carson

Boys & Girls Clubs of the Los Angeles Harbor

Boys & Girls Clubs of West San Gabriel Valley & Eastside

Business of Student Success

California Afterschool Network

California Association for Health, Physical Education, Recreation & Dance

California State PTA

Center for Healing and Justice Through Sport

Change the Tune

City of San Diego

Disability Rights California

Empowering Leadership in Latina Athletes

Eric Paredes Save a Life Foundation

Football for Her

Girls Inc. of Alameda County

Harlem Lacrosse - Los Angeles

Hollenbeck Police Activities League

Home Field Advantage

Kids Enjoy Exercise Now LA

KinFlow, Inc.

Kuul Play

Los Angeles Dodgers

Los Angeles Rams

Los Angeles Sparks

My Yute Soccer

Natasha Watley Foundation

Nike

Oakland Genesis

Oakland Girls Softball League

Oakland Roots and Soul Sports Club

P1440 Foundation

Playworks

Pools of Hope

Positive Coaching Alliance

Rainbow Labs

Rose Bowl Aquatics Center

Russell Westbrook Why Not? Foundation

Southern California Tennis Association

Sports and Social Change

Street Soccer USA

USC Schwarzenegger Institute

Woodcraft Rangers

YMCA of Metropolitan Los Angeles

Two individuals

OPPOSITION: (Verified 8/29/2025)

None received

ARGUMENTS IN SUPPORT: Sponsor, the Play Equity Fund, and many supporters write that the current landscape remains highly fragmented and unfair. The pay-to-play models, lack of facilities, the absence of coaching standards, and inaccessible community sports programs deny children the opportunity to achieve wellness, academic success, and positive socioemotional development. While two out of three children in California are not meeting CDC standards for daily physical activity, 915,000 youth in California have a current diagnosis of anxiety, behavioral or conduct problems, depression or other mental health conditions. They state that addressing the current youth sports landscape is crucial, as research has consistently shown that sports participation and physical activity lead to improved physical health, mental health, and more resilient adolescents and young adults.

ASSEMBLY FLOOR: 62-3, 6/2/25

AYES: Addis, Aguiar-Curry, Ahrens, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Chen, Connolly, Davies, Elhawary, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hart, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Ward, Wicks, Wilson, Zbur, Rivas

NOES: DeMaio, Gallagher, Patterson

NO VOTE RECORDED: Alanis, Castillo, Dixon, Ellis, Flora, Jeff Gonzalez, Hadwick, Hoover, Lackey, Macedo, Sanchez, Ta, Tangipa, Wallis

Prepared by: Jen Flory / HEALTH / (916) 651-4111

8/29/25 20:53:01

**** END ****

SENATE COMMITTEE ON

Senator Anna Caballero, Chair

2025 - 2026 Regular Session

AB 749 (McKinnor) - Youth Sports for All Act

Bill Summary:

AB 749 would require the Secretary of California Health and Human Services to establish and convene the Blue Ribbon Commission on the Development of a California Department of Youth Sports.

Fiscal Impact:

Unknown one-time General Fund costs, potentially hundreds of thousands to low millions, for the California Health and Human Services Agency to convene the commission and conduct the study.

Background:

Current law defines “youth sports organization” to mean “an organization, business, nonprofit entity, or a local governmental agency that sponsors or conducts amateur sports competitions, training, camps, or clubs in which persons 17 years of age or younger participate.” A youth sports organization that elects to offer an athletic program must comply with all of the following:

• An athlete who is suspected of sustaining a concussion or other head injury, or who has passed out or fainted, in an athletic activity must be immediately removed from the athletic activity for the remainder of the day, and cannot be permitted to return to any athletic activity until the athlete is evaluated by a licensed healthcare provider; the athlete cannot be permitted to return to athletic activity until the athlete receives written clearance to return to athletic activity from a licensed healthcare provider; if the licensed healthcare provider determines that the athlete sustained a concussion or other head injury, the athlete must also complete a graduated return-to-play protocol of no less than seven days in duration under the supervision of a licensed healthcare provider; and if the licensed healthcare provider suspects that the athlete has a cardiac condition that puts the athlete at risk for sudden cardiac arrest or other heart-related issues, the athlete must remain under the care of the licensed healthcare provider to pursue followup testing until the athlete is cleared to play.
• If an athlete who is 17 years of age or younger has been removed from athletic activity due to a suspected concussion or due to fainting or another suspected cardiac condition, the youth sports organization must notify a parent or guardian of that athlete of the time and date of the injury, the symptoms observed, and any treatment provided to that athlete for the injury.
• On a yearly basis, the youth sports organization must give both a concussion and head injury and a sudden cardiac arrest information sheet to each athlete. The information sheet must be signed by the athlete and/or parent or guardian, as specified.
• On a yearly basis, the youth sports organization must offer concussion and head injury and sudden cardiac arrest prevention education, or related educational materials, or both, to each coach, administrator, and referee, umpire, or other game official of the youth sports organization.
• The youth sports organization must require both of the following:
• Each coach, administrator, and referee, umpire, or other game official of the youth sports organization must be required to successfully complete the concussion and head injury and sudden cardiac arrest prevention education offered at least once, either online or in person, before supervising an athlete in an activity of the youth sports organization.
• The youth sports organization must post related information, as specified, online, or provide educational materials to athletes and parents, or both.
• The youth sports organization must identify both of the following:
• Procedures to ensure compliance with the requirements for providing concussion and head injury and sudden cardiac arrest prevention education and a concussion and head injury and sudden cardiac arrest prevention information sheet.
• Procedures to ensure compliance with the athlete removal provisions and the return-to-play protocol.
• Annually give the Opioid Factsheet for Patients published by the Centers for Disease Control and Prevention to each athlete. The athlete and, if the athlete is 17 years of age or younger, the athlete’s parent or guardian must sign a document acknowledging receipt of the Opioid Factsheet for Patients and return that document to the youth sports organization before the athlete initiates practice or competition.
• Commencing January 1, 2027, ensure that its athletes have access to an automated external defibrillator (AED) during any official practice or match. If an AED is administered during an applicable medical circumstance, the AED must be administered by a medical professional, coach, or other person designated by the youth sports organization, who holds AED certification and who complies with any other qualifications required pursuant to federal and state law applicable to the use of an AED.

Current law also imposes requirements on a youth sports organization that conducts a tackle football program. For purposes of youth tackle football programs, a “youth sports organization” is defined as “an organization, business, or nonprofit entity that sponsors or conducts amateur sports competition, training, camps, clinics, practices, or clubs.”

Proposed Law:

Specific provisions of the bill would:

• Require the Secretary of California Health and Human Services and other relevant agencies or departments as determined by the secretary, to, on or before March 1, 2026, establish and convene the Blue Ribbon Commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity to conduct a comprehensive study to review the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports.
• Specify the membership of the commission.
• Specify components of the study.
• Authorize the California Health and Human Services Agency to enter into a contract with an external entity, including an institution of higher education or a nonprofit organization with relevant expertise, to conduct the study.
• Require the commission to submit the study to the Legislature and the Governor; and require the commission, before finalizing the study and before submission to the Legislature and the Governor, to publically present the study and provide an opportunity for public feedback.
• Require that implementation is contingent upon either of the following:
  • An appropriation for its purposes in the annual Budget Act or another statute.
  • Sufficient funds being obtained by the California Health and Human Services Agency from federal, nonprofit, or private sources for the purposes of implementation.
• Authorize the California Health and Human Services Agency to use funds from federal, nonprofit, or private sources to augment an appropriation made to implement the bill’s provisions.
• Create the Youth Sports Blue Ribbon Commission Fund and provide that moneys in the fund may be expended by the California Health and Human Services Agency, upon appropriation by the Legislature, for the purposes of implementing the bill’s provisions.
• Create the Youth Sports Blue Ribbon Commission Special Fund Subaccount in the Youth Sports Blue Ribbon Commission Fund, for the receipt and deposit of only federal, nonprofit, or private moneys; and provide that moneys in the subaccount are continuously appropriated without regard to fiscal years to, and may be expended by, the California Health and Human Services Agency for the purposes of implementing the bill’s provisions.
• Repeal the bill’s provisions on January 1, 2030.

-- END --

SENATE COMMITTEE ON HEALTH

Senator Caroline Menjivar, Chair

BILL NO: AB 749

SUBJECT: Youth Sports for All Act

SUMMARY:

Requires the Secretary of the California Health and Human Services Agency to convene a Blue Ribbon Commission on the development of a California Department of Youth Sports, with specified members, to conduct a study on the need for a centralized entity charge with supporting and regulating youth sports in California by January 1, 2027.

Existing law:

1. Establishes the California Health and Human Services Agency (CHHS), which consists of the following departments and offices (hereinafter “departments”): Aging, Child Support Services, Community Services and Development, Developmental Services, Health Care Access and Information, Health Care Services, Managed Health Care (DMHC), Public Health (CDPH), Rehabilitation, Social Services (CDSS), State Hospitals, the Center for Data Insights and Innovation, the Emergency Medical Services Authority, the Office of Technology and Solutions Integration, the Office of Law Enforcement Support, the Office of the Surgeon General, the Office of Youth and Community Restoration, and the State Council on Developmental Disabilities. [GOV §12803 and §12806]
2. Establishes the California Department of Public Health (CDPH), directed by a state Public Health Officer, to be vested with all the duties, powers, purposes, functions, responsibilities, and jurisdiction as they relate to public health and licensing of health facilities, as specified. Authorizes the department to perform specified activities relating to the protection, preservation, and advancement of public health. [HSC §131050 and §131085]
3. Defines a “youth sports organization” as an organization, business, nonprofit entity, or a local governmental agency that sponsors or conducts amateur sports competitions, training, camps, or clubs in which persons 17 years of age or younger participate. [HSC §124235]
4. Requires a youth sports organization to comply with certain requirements related to athletes suspected of sustaining a concussion or head injury, or who has passed out or fainted, including removal from the athletic activity and a prohibition on returning until he or she is evaluated by a licensed health care provider. Requires youth sports organizations to give both a concussion and head injury information sheet, and a sudden cardiac arrest information sheet, to each athlete on an annual basis. [HSC §124235]
5. Requires each coach, administrator, and referee, umpire, or other game official of the youth sports organization to successfully complete concussion and head injury and sudden cardiac arrest prevention education at least once, either online or in person, before supervising an athlete in an activity of the youth sports organization. [HSC §124235]
6. Establishes the California Youth Football Act, which establishes additional requirements on youth sports organizations that conduct a tackle football program, including requiring a minimum of one certified emergency medical technician, state-licensed paramedic, or higher-level medical professional to be present during all games, and requiring coaches to annually receive first aid, CPR, and automated external defibrillator (AED) certification. [HSC §124240 and §124241]
7. Prohibits local governmental entities from discriminating on the basis of sex or gender in the operation, conduct, or administration of community youth athletics programs or in the allocation of parks and recreational facilities that enable or support these programs and includes specified factors to determine whether discrimination exists. [GOV § 53080.]

This bill:

1. Requires the CHHS Secretary and other relevant agencies or departments as determined by the Secretary to establish and convene a Blue Ribbon Commission (commission) on the development of a California Department of Youth Sports or an equivalent centralized entity to conduct a comprehensive study to review the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports.
2. Requires the commission to be composed of the following:
3. Seven members appointed by CHHS representing: a statewide parents association; youth athletes; an institution of higher education with relevant academic knowledge of youth sports, youth development, physical education, or equivalent fields of study; an organization with relevant expertise in youth mental health; an organization representing publicly funded youth sports programs; a statewide organization that advocates for Californians with disabilities;
4. One member appointed by the Governor’s Advisory Council on Physical Fitness and Mental Well-Being;
5. One member appointed by the Governor;
6. Five members appointed by one of each of the following organizations: Play Equity Fund; Positive Coaching Alliance; Playworks; Center for Healing and Justice Through Sport; California Interscholastic Federation;
7. One member appointed by a statewide organization that represents municipalities and local governments that operate youth sports; and,
8. One or more additional members appointed by CHHS as needed to support the work of the commission.
9. Requires the commission to be cochaired by one of the members appointed by CHHS in 2a) above and the member appointed by the Play Equity Fund.
10. Requires the commission to conduct a study of the following youth sports issues:
11. An assessment of the need for a centralized entity to improve access to and involvement in sports for all youth, regardless of race, income, or geographic location that addresses specified issues such as disparities in programming quality and availability; safety protocols; inclusivity; increasing sports and activities in daily life of youth; statewide coaching certification requirements and training; a mechanism for state investment in youth sports; potential state and local funding initiatives to reduce or eliminate financial barriers to youth sports participation;
12. An evaluation of and recommendations for the duties, powers, and responsibilities of a centralized entity that includes specified information related to appropriate levels of oversight via law or regulation of safety and licensing requirements for coaches and staff; determine which youth sports benefit from support and regulation from a centralized entity; development and administration of licensing and safety requirements and access and quality standards; strategies to improve access and equity; coordination with relevant state, local, and federal entities; avoiding duplication of efforts among entities; and identifying gaps in data and developing data collection and reporting requirements; and,
13. A review and recommendations regarding the costs of creating and sustaining a centralized entity and potential funding sources including federal, state, private, and philanthropic sources.
14. Requires the study to also include analyses of models of centralized youth sports entities in other states and countries.
15. Authorizes CHHS to contract with an external entity such as an institution of higher education or nonprofit organization to conduct the study.
16. Requires the commission to publically present the study and provide opportunity for public feedback and to submit the study to the Legislation and the Governor by January 1, 2027.
17. Conditions implementation of this bill upon an appropriation in the annual Budget Act or another statute or CHHS having obtained sufficient funds from federal, nonprofit, or private sources to augment an appropriation made to implement this bill.
18. Creates the Youth Sports Blue Ribbon Commission Fund in the State Treasury and the Youth Sports Blue Ribbon Commission Special Fund Subaccount for the receipt and deposit of the funds, continuously appropriates this funding without regard to fiscal year, and permits the funding to be expended by CHHS to implement this bill.
19. Sunsets this bill on January 1, 2029.
20. States legislative findings regarding unregulated coaching in youth sports, fragmentation and lack of coordination among youth sports organizations, disparities in access to youth sports, dangers of the pay-to-play model, and the need for a centralized entity at the state level to address inequities and promote inclusive, accessible, and affordable youth sports programs and coaching education.

FISCAL EFFECT:

According to the Assembly Appropriations Committee: Annual costs of approximately $580,000 for fiscal years 2026-27 through 2028-29 to the California Department of Public Health (CDPH) to hire a full-time position and acquire two contracts to complete the feasibility analysis and assist with commission meetings. Costs are to CDPH as the Secretary of CHHS would likely need to delegate its responsibilities.

PRIOR VOTES:

COMMENTS:

1. Author’s statement. According to the author, the current youth sports landscape is highly fragmented and unfair. Existing practices, pay-to-play models, a lack of facilities, the absence of statewide coaching and safety standards, hyper-competitive leagues, and inaccessible community-based programs deny every child the opportunity to reap the lifelong benefits of youth sports participation which include positive socioemotional development, community cohesion, mental and physical health, academic success, and overall healthier and stronger communities. This bill is a crucial first step towards engaging with experts on the establishment of a centralized entity charged with improving access, involvement, and the sustainability of youth sports across California leading to healthier and more resilient youth, young adults, and communities.
2. State policy involving youth sports. While the Department of Education oversees physical education requirements and athletics in California schools, outside of the schools, no state entity currently regulates youth sports. State law in the area is spotty and largely related to specific safety issues such as safety protocols around head injuries, training regarding sudden cardiac arrest, and regulation of tackle football. In other contexts, sports facilities themselves are regulated, particularly swimming pools, again to ensure safety. CDPH does have a Nutrition and Physical Activity Branch within its Center for Healthy Families to address nutrition security and physical activity through statewide, regional, and local programs and partnerships with an emphasis on communities that experience the greatest health disparities. Through funding provided by the U.S. Department of Agriculture Supplemental Nutrition Assistance Program-Education and the U.S. Centers for Disease Control and Prevention (CDC), the branch’s annual budget is approximately $81 million, of which approximately $55 million is dedicated to local projects across the state. In addition to funding local programs, the branch manages a statewide social marketing campaign, implements state level nutrition and physical activity policy strategies, and supports the Governor’s Advisory Council on Physical Fitness and Mental Well-Being.

The Governor’s Advisory Council on Physical Fitness and Mental Well-Being (Council) was created by the Governor in June 2021 in response to changes in health behaviors brought about by the COVID-19 pandemic. The Council was funded in the 2022-2023 budget with a one-time investment of $10 million to be available until June 30, 2025, $7.5 million of which was spent. The remaining $2.5 million was reappropriated to continue the work of the Council. The Council’s goals are as follows: a) promote evidence-based, daily mindfulness and breathwork practices for youth and families, especially at schools; b) promote all types of physical activity for youth and families with a focus on daily movement, skill development and play, especially at schools; and, c) reimagine a more positive and inclusive sports and fitness culture for California youth and families to bolster health, community and belonging for all Californians. The Council started an initiative “Move Your Body, Calm Your Mind” to provide guidance and resources on physical activity and mental well-being, increase awareness about the benefits of movement, sport, nutrition, and overall mental wellness, encourage intergenerational physical fitness activities, promote equitable access to outdoor and physical activities for underserved communities, and facilitate collaboration among federal, state, and local agencies, education, business and industry, and others. Among the activities of the initiative is an effort to train 25,000 coaches across California in positive youth coaching by the end of 2025.

1. Gaps in access to youth sports. The LA84 Foundation published a 2024 report on play equity in California with several key findings related to youth physical activity and access to sports based on quantitative and qualitative surveys of households with school-aged children. The report found that a majority of California youth are less active than they should be according to the CDC’s recommendation that youth engage in at least 60 minutes of physical activity each day, with ten percent of youth who are “never” active and only 39% of youth having daily physical education at school. The rates of physical activity are lowest for Latinas and Black females, Latino youth in general, youth with disabilities, youth with annual household incomes below $50,000 and youth in the Inland Empire. The only subgroups with the majority meeting the CDC’s guidelines is youth in households with incomes of at least $100,000 and White male youth. The study did find that access to organized sports and structured play has the potential to increase levels of regular physical activity but that parents identified cost as a key barrier to accessing youth sports. The study also found support for increased state funding for sports.
2. Related legislation. AB 932 (Irwin) would extend state law prohibiting sex or gender discrimination in youth athletics to local educational agencies and school and recreation facilities and resources. AB 932 is set for hearing on July 16, 2025 in the Senate Education Committee.

AB 310 (Alanis) would delay the implementation of a requirement that youth sports organizations ensure their athletes have access to an AED during any official practice or match by one year. Requires youth sports organizations to ensure their coaches are certified to perform CPR and operate an AED, and have a written cardiac emergency response plan, beginning January 1, 2028. AB 310 is pending on the Senate Floor.

AB 387 (Alanis) requires that any public or private local facility with a permanent sports infrastructure used for youth sports program to procure and maintain the AED and ensure the youth sports organization has access to it. Additionally, at other locations that are not a public or private local facility with a permanent sports infrastructure, the youth sports organization would only be required to ensure access to an AED when an AED already exists at that location. AB 387 is set for hearing on July 9, 2025 in this Committee.

AB 708 (Valencia) would require a youth sports organization conducting a tackle football program to allow participants to use safety equipment, including soft shelled add-ons on football helmets and would authorize a court to grant injunctive relief and attorney’s fees and costs to prevailing plaintiffs seeking to remedy violations of this bill. AB 708 is pending in the Senate Appropriations Committee.

1. Prior legislation. AB 1467 (Alanis, Chapter 24, Statutes of 2023) requires a youth sports organization that elects to offer an athletic program to ensure that by January 1, 2027, its athletes have access to an AED during any official practice or match.
   
   AB 1 (Cooper, Chapter 158, Statutes of 2019) enacts the California Youth Football Act, which establishes certain requirements on youth football, including limiting full-contact practices to 30 minutes per day, and no more than two days per week, and requires an EMT or higher-level medical professional to be present during all games, and one independent non-rostered individual to be present at all practice locations with the authority to evaluate and remove any youth tackle football participant from practice who exhibits an injury.
   
   SB 1397 (Hill, Chapter 1014, Statutes of 2018) extends the requirement that buildings constructed after January 1, 2017 have an AED on the premises, to apply this requirement to existing buildings that undergo a significant modification on or after January 1, 2020.
   
   AB 2009 (Maienschein, Chapter 646, Statutes of 2018) requires a school district or charter school that elects to offer any interscholastic athletic program to ensure that there is a written emergency action plan in place, and to acquire at least one AED for each school.
   
   SB 287 (Hueso, Chapter 449, Statutes of 2015), requires certain buildings with capacities of 200 persons or greater, as specified, constructed on or after January 1, 2017, to have an AED on the premises.
   
2. Support. Sponsor, the Play Equity Fund, and many supporters write that the current landscape remains highly fragmented and unfair. The pay-to-play models, lack of facilities, the absence of coaching standards, and inaccessible community sports programs deny children the opportunity to achieve wellness, academic success, and positive socioemotional development. While two out of three children in California are not meeting CDC standards for daily physical activity, 915,000 youth in California have a current diagnosis of anxiety, behavioral or conduct problems, depression or other mental health conditions. They state that addressing the current youth sports landscape is crucial, as research has consistently shown that sports participation and physical activity lead to improved physical health, mental health, and more resilient adolescents and young adults.
3. Policy comment. While a commission focused on increasing quality and equity with regards to youth sports may be warranted, the proposed make-up of the commission is highly prescriptive, with specific organizations who must select members or co-chair the commission named explicitly. There is also no room for the Legislature to select members. This puts private organizations in the role of making decisions for the government. The author may want to consider other ways that organizations with expertise in youth sports equity and quality, including the sponsors, may be included in the work of the commission. Additionally, in the language regarding the goal of improving access to youth sports across demographics, the author should consider adding sex, sexual orientation, gender identity, and disability status to the list, which currently includes race, income, or geographic location.

SUPPORT AND OPPOSITION:

Support: Play Equity Fund (sponsor)

Accelerated Results Coaching

Access Youth Academy

Angel City FC

Antelope Valley Partners for Health

ANTS Sports

Ball for Life Oakland

Beat the Streets Los Angeles

Boyle Heights Youth Football and Cheer

Boys & Girls Clubs of Carson

Boys & Girls Clubs of the Los Angeles Harbor

Boys & Girls Clubs of West San Gabriel Valley & Eastside

Business of Student Success

California Afterschool Network

California Association for Health, Physical Education, Recreation & Dance

California State PTA

Center for Healing and Justice Through Sport

Change the Tune

City of San Diego

Disability Rights California

Empowering Leadership in Latina Athletes

Eric Paredes Save a Life Foundation

Football for Her

Girls Inc. of Alameda County

Harlem Lacrosse - Los Angeles

Hollenbeck Police Activities League

Home Field Advantage

Kids Enjoy Exercise Now LA

KinFlow, Inc.

Kuul Play

Los Angeles Dodgers

Los Angeles Rams

Los Angeles Sparks

My Yute Soccer

Natasha Watley Foundation

Nike

Oakland Genesis

Oakland Girls Softball League

Oakland Roots and Soul Sports Club

P1440 Foundation

Playworks

Pools of Hope

Positive Coaching Alliance

Rainbow Labs

Rose Bowl Aquatics Center

Russell Westbrook Why Not? Foundation

Southern California Tennis Association

Sports and Social Change

Street Soccer USA

USC Schwarzenegger Institute

Woodcraft Rangers

YMCA of Metropolitan Los Angeles

Two individuals

Oppose: None received

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:AB 749

Author:(McKinnor and Quirk-Silva)

As Amended Ver:May 23, 2025

Majority vote

SUMMARY

This bill would require the Secretary of California Health and Human Services (CHHS) to establish and convene a Blue Ribbon Commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity to conduct a comprehensive study on the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports.

Major Provisions

1. Requires the Secretary of CHSS, and other relevant agencies or departments as determined by the secretary, to establish and convene a commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity, on or before March 1, 2026.
2. Establishes the composition of the commission, which includes a minimum of 16 individuals, with at least eight appointed by CHHS, one appointed by the Governor, one appointed by the Governor's Advisory Council on Physical Fitness and Mental Well-Being, and the remaining six appointees from various statewide organizations that operate youth sports
3. Requires the commission to conduct a study of youth sports, which must be provided to the Legislature and the Governor by January 1, 2027, including the following:
4. An assessment of the need and potential for a centralized entity to improve access to, and involvement in, sports for all youth, regardless of race, income, or geographic location.
5. An evaluation of and recommendations for the duties, powers, and responsibilities of a centralized entity.
6. A review of, and recommendations for, the costs of creating and sustaining a centralized entity, as well as potential funding including state, federal, private, and philanthropic sources.
7. Establishes the Youth Sport Blue Ribbon Commission Fund in the State Treasury, and a subaccount to deposit either a General Fund appropriation or funding from other sources, including federal, nonprofit, or private moneys.

COMMENTS

Background. California is set to host numerous major sporting events in the coming years, including the NBA All-Star Game (2026), Super Bowl LX (2026), Super Bowl LXI (2027), the FIFA World Cup (2026), and the 2028 Olympic and Paralympic Games. As California prepares to become the center of the sports and tourism world, the state must examine the status of youth sports throughout the state to ensure that all youth are accessing the powerful benefits of sports, play, and physical activity.

In California, children are experiencing unprecedented health and mental health challenges with limited resources to cope and build resilience. Twelve percent of children in California have a current diagnosis of anxiety, behavioral or conduct problems, depression or other mental health conditions. Adverse Childhood Experiences (ACEs) affect nearly two million children in California across socioeconomic lines, putting them at risk for health, behavioral, and learning problems. Mental health disorders contribute an enormous burden on the health and well-being of individuals, families, and society, and have an estimated annual cost of $247 billion. Additionally, 17% (estimated 6.8 million) of California youth ages 6 to 17 are obese. Finally, the average time spent each day on screens for non-educational reasons is now 5 1/2 hours for tweens and 8 1/2 hours for teens. More screen time can be associated with more severe symptoms of depression, anxiety, inattention and aggression.

Structured sports and physical activities are essential in combating these issues, promoting physical health, enhancing mental well-being, building connections, and fostering life skills such as social-emotional learning. A recent study out of the University of Chicago has also found that school sports participation was significantly associated with academic achievement, positive body-image perceptions, and self-esteem. Despite the demonstrated power of sports participation to change youth trajectories, quality programming and well-trained coaches with a basic understanding of youth development competencies are lacking in youth sports. The current landscape of youth sports denies every child the opportunity to achieve wellness, academic success, and positive socioemotional development. The decline of structured school-based sports programs, and a pay-to-play community youth sports system is leaving millions of young people on the sidelines or out of the game completely.

The lack of physical activity and access to structured sports disproportionately impacts low-income, youth of color. In addition, important gaps in access to sport and play are most acute for Latinas, Black/African American females, youth with disabilities, and those with annual family incomes of less than $50,000. Importantly, parents strongly support greater investment in ensuring all youth have opportunities to engage in sports, play and physical activity. There are various positive efforts to promote access to physical activity for California's youth; however, the state lacks a centralized entity and a sustainable framework to ensure fair access to quality sports and physical activity for all children.

Establishing a California Youth Sports Commission or Department would address critical issues affecting youth health and development. Furthermore, AB749 will begin the path forward to ensuring California is a model for the country and broader international community. While the United States does not have a youth sports department or governing entity, a vast majority of countries around the world do. This presents an opportunity for California to lead the nation by demonstrating a commitment to fairness, equality, and positive youth development through the unifying experience of sports.

According to the Author

"The current youth sports landscape is highly fragmented and unfair. Existing practices, pay-to-play models, a lack of facilities, the absence of statewide coaching and safety standards, hyper-competitive leagues, and inaccessible community-based programs deny every child the opportunity to reap the lifelong benefits of youth sports participation which include positive socioemotional development, community cohesion, mental and physical health, academic success, and overall healthier and stronger communities. AB 749 is a crucial first step towards engaging with experts on the establishment of a centralized entity charged with improving access, involvement, and the sustainability of youth sports across California' leading to healthier and more resilient youth, young adults, and communities."

Arguments in Support

According to the sponsor of the bill, the Play Equity Fund, in support, "Despite our organization's unwavering commitment to ensuring every child has access to quality youth sports and play experiences, the current landscape remains highly fragmented and unfair. The pay-to-play models, lack of facilities, the absence of coaching standards, and inaccessible community sports programs deny every child the opportunity to achieve wellness, academic success, and positive socioemotional development.

"AB 749 requires the California Health and Human Services Agency to establish a Blue-Ribbon Commission to examine the current landscape of youth sports and make recommendations for establishing a centralized entity to ensure fair access to quality sports for all youth in California. Addressing the current youth sports landscape is crucial as research has consistently shown that sports participation and physical activity lead to improved physical health, mental health, and more resilient adolescents and young adults."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Assembly Appropriations Committee: Annual costs of approximately $580,000 for fiscal years 2026-27 through 2028-29 to the California Department of Public Health (CDPH) to hire a full-time position and acquire two contracts to complete the feasibility analysis and assist with commission meetings. Costs are to CDPH as the Secretary of CHHS would likely need to delegate its responsibilities.

VOTES

ASM ARTS, ENTERTAINMENT, SPORTS, AND TOURISM: 7-0-2

YES: Ward, Elhawary, McKinnor, Ortega, Quirk-Silva, Valencia, Zbur

ABS, ABST OR NV: Lackey, Jeff Gonzalez

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

UPDATED

VERSION: May 23, 2025

CONSULTANT: Brian V. Anderson, Jr. / A.,E.,S., & T. / (916) 319-3450 FN: 0000922

Date of Hearing: May 7, 2025

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 749

Author:(McKinnor) – As Amended Ver:March 28, 2025

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

SUMMARY:

This bill creates the Blue Ribbon Commission on the Development of a California Department of Youth Sports under the jurisdiction of the Secretary of California Health and Human Services (CHHS) and requires, on or before March 1, 2026, the commission convene and conduct a comprehensive study, contingent upon funding, to review the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports.

Specifically, this bill prescribes the commission membership include 16 representatives with expertise relevant to areas such as youth sports, youth development, youth mental health, youth coaching, and California Interscholastic Federation (CIF) competition, among others. The bill requires the study conducted include an assessment of the need and potential for a centralized entity to improve access to and involvement in sports for all youth of all backgrounds and address issues such as disparities in access to quality programs, improving training, safety, and equity and inclusion protocols, and increasing more state investment in youth sports. The bill requires the commission to, on or before January 1, 2027, submit the study to the Legislature and the Governor. The bill’s requirements are contingent upon funding either from an appropriation or the CHHS may use federal, non-profit, or private sources of funding to carry out the requirements.

FISCAL EFFECT:

Annual costs of approximately $580,000 for fiscal years 2026-27 through 2028-29 to the California Department of Public Health (CDPH) to hire a full-time position and acquire two contracts to complete the feasibility analysis and assist with commission meetings. Costs are to CDPH as the Secretary of CHHS would likely need to delegate its responsibilities.

COMMENTS:

1. Purpose. According to the author:

The current youth sports landscape is highly fragmented and unfair. Existing practices, pay-to-play models, a lack of facilities, the absence of statewide coaching and safety standards, hyper-competitive leagues, and inaccessible community-based programs deny every child the opportunity to reap the lifelong benefits of youth sports participation which include positive socioemotional development, community cohesion, mental and physical health, academic success, and overall healthier and stronger communities. AB 749 is a crucial first step towards engaging with experts on the establishment of a centralized entity charged with improving access, involvement, and the sustainability of youth sports across California’ leading to healthier and more resilient youth, young adults, and communities.

1. Background. Research finds that 12% of children in California have a diagnosis of anxiety, behavioral or conduct problems, depression, or other mental health conditions. Adverse Childhood Experiences (ACEs) affect nearly two million children in California across socioeconomic lines, putting them at risk for health, behavioral, and learning problems. Mental health disorders contribute an enormous burden on the health and well-being of individuals, families, and society, and have an estimated annual cost of $247 billion. Additionally, 17% (approximately 6.8 million) of California youth ages six to 17 are obese. Finally, the average time spent each day on screens for non-educational reasons is now 5.5 hours for tweens and 8.5 hours for teens. More screen time correlates with more severe symptoms of depression, anxiety, inattention and aggression.

The lack of physical activity and access to structured sports disproportionately impacts low-income youth of color. In addition, according to the Play Equity Fund, important gaps in access to sport and play are most acute for Latinas, Black/African American females, youth with disabilities, and those with annual family incomes of less than $50,000. Importantly, parents strongly support greater investment in ensuring all youth have opportunities to engage in sports, play and physical activity. There are various positive efforts to promote access to physical activity for California’s youth; however, the state does not have a centralized entity or framework responsible for ensuring fair access to quality sports and physical activity for all children.

This bill tasks the CHHS Secretary to convene a commission to determine how to address these issues and make recommendations for the creation of a centralized entity responsible for supporting and regulating youth sports.

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

Date of Hearing: April 22, 2025

ASSEMBLY COMMITTEE ON ARTS, ENTERTAINMENT, SPORTS, AND TOURISM

Christopher M. Ward, Chair

ABPCA Bill Id:AB 749 (

Author:McKinnor) – As Amended Ver:March 28, 2025

SUBJECT: Youth Sports for All Act

SUMMARY: This bill would require the Secretary of Health and Human Services (HHS) to establish and convene a Blue Ribbon Commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity to conduct a comprehensive study on the need for and feasibility of creating a centralized entity charged with supporting and regulating youth sports.

Specifically, this bill:

1. Requires the Secretary of HSS, and other relevant agencies or departments as determined by the secretary, to establish and convene a commission on the Development of a California Department of Youth Sports or an Equivalent Centralized Entity, on or before March 1, 2026.
2. Establishes the composition of the commission, which includes a minimum of 16 individuals, with at least eight appointed by HHS, one appointed by the Governor, one appointed by the Governor’s Advisory Council on Physical Fitness and Mental Well-Being, and the remaining six appointees from various statewide organizations that operate youth sports
3. Requires the commission to conduct a study of youth sports, which must be provided to the Legislature and the Governor by January 1, 2027, including the following:
4. An assessment of the need and potential for a centralized entity to improve access to, and involvement in, sports for all youth, regardless of race, income, or geographic location.
5. An evaluation of and recommendations for the duties, powers, and responsibilities of a centralized entity.
6. A review of, and recommendations for, the costs of creating and sustaining a centralized entity, as well as potential funding including state, federal, private, and philanthropic sources.

EXISTING LAW:

1. Defines “youth sports organization” as an organization, business, nonprofit entity, or a local governmental agency that sponsors or conducts amateur sports competitions, training, camps, or clubs in which persons 17 years of age or younger participate. (Health and Safety Code (HSC) section 124235)
2. Requires a youth sports organization to comply with certain requirements related to athletes suspected of sustaining a concussion or head injury, or who has passed out or fainted, including removal from the athletic activity and a prohibition on returning until he or she is evaluated by a licensed health care provider. Requires youth sports organizations to give both a concussion and head injury information sheet, and a sudden cardiac arrest information sheet, to each athlete on an annual basis. (HSC 124235)
3. Requires each coach, administrator, and referee, umpire, or other game official of the youth sports organization to successfully complete concussion and head injury and sudden cardiac arrest prevention education at least once, either online or in person, before supervising an athlete in an activity of the youth sports organization. (HSC 124235(a)(5))
4. Requires “sudden cardiac arrest prevention education and educational materials” and a “sudden cardiac arrest information sheet” to include, at a minimum, information relating to cardiac conditions and their potential consequences, the signs and symptoms of sudden cardiac arrest, best practices for removal of an athlete from an athletic activity after fainting or a suspected cardiac condition is observed, steps for returning an athlete to activity, and what to do in the event of a cardiac emergency, which includes calling 911, performing hands-only CPR, and using an AED if it is available. (HSC 124235(b)(3))
5. Establishes the California Youth Football Act, which establishes additional requirements on youth sports organizations that conduct a tackle football program, including requiring a minimum of one certified emergency medical technician, state-licensed paramedic, or higher-level medical professional to be present during all games, and requiring coaches to annually receive first aid, CPR, and AED certification. (HSC 124240-124241(h) and (i))
6. Requires, as part of the California Youth Football Act, that at least one independent nonrostered individual, appointed by the youth sports organization, to be present at all practice locations, and requires the individual to hold current certifications in first aid, CPR, AED, and concussion protocols. (HSC 124241(j))
7. Requires a school district or charter school that offers any interscholastic athletic program to acquire at least one AED for each school that participates in the program, and encourages the school district or charter school to ensure that the AED is available for the purpose of rendering emergency care or treatment within a recommended three to five minutes of sudden cardiac arrest to pupils, spectators, and any other individuals in attendance at the program’s on-campus activities or events, and to ensure that the AED is available to athletic trainers and coaches and authorized persons at these activities or events. (Education Code (EDC) section 35179.6)
8. Requires a person or entity that acquires an AED to comply with all regulations governing the placement of an AED, notify an agent of the local emergency medical services agency of the existence, location, and type of AED acquired, ensure that the AED is maintained and tested according to the operation and maintenance guidelines of the manufacturer, ensure that the AED is tested at least biannually and after each use, ensure that an inspection is made of all AEDs on the premises at least every 90 days for potential issues related to the operability of the device, and ensure that records of the maintenance and testing are maintained. (HSC 1797.196)
9. Exempts a person or entity that acquires an AED for emergency use from liability for any civil damages resulting from the use of the AED if the person or entity has complied with the requirements in 8) above. (Civil Code (CIV) section 1714.21(d))
10. Exempts any person who, in good faith and not for compensation, renders emergency care or treatment by use of an AED at the scene of an emergency from being liable for any civil damages resulting from any acts or omissions in rendering the emergency care. (CIV 1714.21(b))

FISCAL EFFECT: Unknown. This measure has been keyed fiscal by the Legislative Counsel.

COMMENTS:

1. Author’s statement. According to the author, “The current youth sports landscape is highly fragmented and unfair. Existing practices, pay-to-play models, a lack of facilities, the absence of statewide coaching and safety standards, hyper-competitive leagues, and inaccessible community-based programs deny every child the opportunity to reap the lifelong benefits of youth sports participation which include positive socioemotional development, community cohesion, mental and physical health, academic success, and overall healthier and stronger communities. AB 749 is a crucial first step towards engaging with experts on the establishment of a centralized entity charged with improving access, involvement, and the sustainability of youth sports across California’ leading to healthier and more resilient youth, young adults, and communities.”
2. Background. California is set to host numerous major sporting events in the coming years, including the NBA All-Star Game (2026), Super Bowl LX (2026), Super Bowl LXI (2027), the FIFA World Cup (2026), and the 2028 Olympic and Paralympic Games. As California prepares to become the center of the sports and tourism world, the state must examine the status of youth sports throughout the state to ensure that all youth are accessing the powerful benefits of sports, play, and physical activity.

In California, children are experiencing unprecedented health and mental health challenges with limited resources to cope and build resilience. Twelve percent of children in California have a current diagnosis of anxiety, behavioral or conduct problems, depression or other mental health conditions. Adverse Childhood Experiences (ACEs) affect nearly two million children in California across socioeconomic lines, putting them at risk for health, behavioral, and learning problems. Mental health disorders contribute an enormous burden on the health and well-being of individuals, families, and society, and have an estimated annual cost of $247 billion. Additionally, 17% (estimated 6.8 million) of California youth ages 6 to 17 are obese. Finally, the average time spent each day on screens for non-educational reasons is now 5 1/2 hours for tweens and 8 1/2 hours for teens. More screen time can be associated with more severe symptoms of depression, anxiety, inattention and aggression.

Structured sports and physical activities are essential in combating these issues, promoting physical health, enhancing mental well-being, building connections, and fostering life skills such as social-emotional learning. A recent study out of the University of Chicago has also found that school sports participation was significantly associated with academic achievement, positive body-image perceptions, and self-esteem. Despite the demonstrated power of sports participation to change youth trajectories, quality programming and well-trained coaches with a basic understanding of youth development competencies are lacking in youth sports. The current landscape of youth sports denies every child the opportunity to achieve wellness, academic success, and positive socioemotional development. The decline of structured school-based sports programs, and a pay-to-play community youth sports system is leaving millions of young people on the sidelines or out of the game completely.

The lack of physical activity and access to structured sports disproportionately impacts low-income, youth of color. In addition, important gaps in access to sport and play are most acute for Latinas, Black/African American females, youth with disabilities, and those with annual family incomes of less than $50,000. Importantly, parents strongly support greater investment in ensuring all youth have opportunities to engage in sports, play and physical activity. There are various positive efforts to promote access to physical activity for California’s youth; however, the state lacks a centralized entity and a sustainable framework to ensure fair access to quality sports and physical activity for all children.

Establishing a California Youth Sports Commission or Department would address critical issues affecting youth health and development. Furthermore, AB749 will begin the path forward to ensuring California is a model for the country and broader international community. While the United States does not have a youth sports department or governing entity, a vast majority of countries around the world do. This presents an opportunity for California to lead the nation by demonstrating a commitment to fairness, equality, and positive youth development through the unifying experience of sports.

1. Arguments in support. According to the sponsor of the bill, the Play Equity Fund, in support, “Despite our organization’s unwavering commitment to ensuring every child has access to quality youth sports and play experiences, the current landscape remains highly fragmented and unfair. The pay-to-play models, lack of facilities, the absence of coaching standards, and inaccessible community sports programs deny every child the opportunity to achieve wellness, academic success, and positive socioemotional development.

“AB 749 requires the California Health and Human Services Agency to establish a Blue-Ribbon Commission to examine the current landscape of youth sports and make recommendations for establishing a centralized entity to ensure fair access to quality sports for all youth in California. Addressing the current youth sports landscape is crucial as research has consistently shown that sports participation and physical activity lead to improved physical health, mental health, and more resilient adolescents and young adults.”

1. Amendments and policy considerations. Over the years, this Committee has been referred a number of bills that aim to improve the safety of athletes at various levels of competition. This has included legislation requiring coaches and instructors to receive training on CPR, first aid, recognizing the symptoms of heat stroke, and operated an automated external defibrillator (AED), as well as requiring the rehearsal of emergency action plans and how to handle sudden cardiac arrest of a participant.

California law mandates strict protocols to protect youth athletes from head injuries. Any youth sports organization operating on school grounds or in connection with schools must adopt concussion and head injury policies. Athletes suspected of sustaining a concussion must be removed from play and cannot return without medical clearance from a licensed healthcare provider. Further, AB 1 from 2019 established specific safety requirements for youth tackle football programs, including limiting full-contact practices to 30 minutes per day and no more than twice a week, as well as requiring annual physical evaluations for all participants to detect potential health risks.

During the committee’s information hearing focused on the safety of youth tackle football in 2023, it was pointed out by panelists that in many instances there is not an oversight entity where parents and participants could report issues to about coaches or leagues failing to follow guidelines established in California law. A centralized entity could improve the coordination of resources, improve accessibility, and standardize best practices to ensure all youth can benefit from the physical, mental, and academic advantages of sports participation and regular physical activity.

1. Prior and related legislation:
2. AB 310 (Alanis), of 2025, requires youth sports organizations to ensure that its coaches are certified to perform CPR and operate an AED, and that there is a written and well-practiced cardiac emergency response plan. This bill is in the Senate awaiting referral to a policy committee.
3. AB 1467 (Alanis), Chapter 24, Statutes of 2023 Requires a youth sports organization that elects to offer an athletic program to ensure that by January 1, 2027, its athletes have access to an automated external defibrillator (AED) during any official practice or match.
4. AB 1 (Cooper), Chapter 158, Statutes of 2019, enacts the California Youth Football Act, which establishes certain requirements on youth football. This includes limiting full-contact practices to 30 minutes per day, and no more than two days per week, and requires an EMT or higher-level medical professional to be present during all games. Additionally, one independent non-rostered individual must be present at all practice locations with the authority to evaluate and remove any youth tackle football participant from practice who exhibits an injury.
5. AB 379 (Mainschein), Chapter 174, Statutes of 2019, adds “an athlete who has passed out or fainted” to existing law that prohibits an athlete from returning to athletic activity until being evaluated and cleared by a health care provider. Requires the athlete, if the health care provider suspects that the athlete has a cardiac condition that puts the athlete at risk for sudden cardiac arrest or other heart-related issues, to remain under the care of the healthcare provider to pursue follow-up testing until the athlete is cleared to play.
6. AB 2007 (McCarty), Chapter 516, Statutes of 2016, requires amateur youth sports organizations to adopt concussion treatment and recognition protocols similar to those in existing law for student athletes in 27 designated sports, as specified. Would also require youth sports organizations to develop return-to-play protocols, and provide yearly concussion and head injury information sheets and education, as provided.

REGISTERED SUPPORT / OPPOSITION:

Support

Play Equity Fund (Sponsor)

Accelerated Results Coaching

Access Youth Academy

Angel City FC

Antelope Valley Partners for Health

Beat the Streets Los Angeles

BOSS Inc. (Business of Student Success)

Boyle Heights Wolfpack Football & Cheer

Boys & Girls Club of Carson

Boys & Girls Clubs of West San Gabriel Valley & Eastside

California Association for Health, Physical Education, Recreation & Dance

Center for Healing & Justice Through Sport

Change the Tune

City of San Diego Councilmember Henry L Foster III

Coaching Kapwa Sports Consultants

ELLA Sports Foundation (Empowering Leadership in Latina Athletes)

Eric Paredes Save a Life Foundation

Girls INC. Of Alameda County

Harlem Lacrosse, Los Angeles

Hollenbeck Police Activities League

Home Field Advantage

KEEN LA (Kids Enjoy Exercise Now)

Kinflow

Los Angeles Rams

Los Angeles Sparks

My Yute Soccer

Natasha Watley Foundation

Nike INC.

Oakland Genesis

Oakland Roots and Soul Sports Club

P1440 Foundation

Playworks

Pools of Hope

Positive Coaching Alliance

Professor Hannah Thompson (UC Berkeley School of Public Health)

Proyecto Pastoral

Rainbow Labs

Rose Bowl Aquatics Center

Sports & Social Change

Street Soccer USA

USC Schwarzenegger Institute

USTA Southern California/ Southern California Tennis Association

Woodcraft Rangers

YMCA of Metropolitan Los Angeles

Opposition

No opposition on file.

Analysis Prepared by: Brian V. Anderson, Jr. / A.,E.,S., & T. / (916) 319-3450