To promote the engagement of young Americans in the democratic process through civic education in classrooms, in service learning programs, and in student leadership activities, of America's public schools.

July 25, 2001

Mr. WELLSTONE (for himself and Mr. DAYTON) introduced the following bill; which was read twice and referred to the Committee on Health, Education, Labor, and Pensions

To promote the engagement of young Americans in the democratic process through civic education in classrooms, in service learning programs, and in student leadership activities, of America's public schools.

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled,

SECTION 1. SHORT TITLE.

This Act may be cited as the `Hubert H. Humphrey Civic Education Enhancement Act'.

SEC. 2. FINDINGS AND PURPOSE.

(a) FINDINGS- Congress makes the following findings:

(1) Civic knowledge, civic intellectual skills, civic participation skills, and civic virtue on the part of the United States citizenry are all crucial for the vitality of a healthy representative democracy.

(2) In the years after leaving secondary school, young Americans are becoming less engaged in the democratic process. Whereas 50 percent of Americans between the ages of 18 and 25 voted in 1972, only 38 percent of that age group voted in 2000.

(3) The most recent nationwide survey of incoming college freshmen, conducted by the Higher Education Research Institute at the University of California at Los Angeles, reports that only 28.1 percent of the students entering college in the fall of 2000 reported an interest in `keeping up to date with political affairs'. This was the lowest level in the 35-year history of the survey. In 1966, 60.3 percent of students reported an interest in political affairs.

(4) According to a Harvard University survey published in 2000, 85 percent of young people said that volunteer work is better than political engagement as a way to solve important issues, suggesting a disconnection between the record high rates of volunteerism by young Americans and an interest in public affairs by these young citizens.

(5) The 1998 National Assessment of Educational Progress (NAEP) Civics Assessment revealed startling results in terms of United States students' competence in civics at grade levels 4, 8, and 12. At each grade level, the percentage of students shown to be below the basic level outnumbered the percentage at the proficient level and at the advanced level combined. 31 percent of fourth grade students, 30 percent of eighth grade students, and 35 percent of secondary school seniors scored below the basic level in their civics achievement.

(6) A 1999 study published by the Lyndon B. Johnson School of Public Affairs at the University of Texas at Austin showed that the introduction of mandated State assessments in other fields, but typically not in civics, has resulted in a reduction in the amount of class time spent on civics.

(7) From the 1950s until the 1970s, new and veteran teachers in the field of social studies had high-quality professional development opportunities made available to them through programs funded by the Federal Government as part of the National Defense Education Act of 1958 (Public Law 85-864; 72 Stat. 1580), the Education Professions Development Act (Public Law 89-329; 79 Stat. 1254), the National Science Foundation Act of 1950 (42 U.S.C. 1861 et seq.), and other programs designed by the Department of Education. Most of those federally funded opportunities--particularly helpful for new teachers--have disappeared.

(8) Service-learning programs, when such programs are high in quality and linked to other civics curricula, have been shown to increase student efficacy in public affairs and to enhance students' knowledge of how government works and how social change can be brought about. According to a 1997 study by Youniss, McLellan, and Yates and a 1999 study by Melchoir, over 80 percent of participants in high-quality service-learning programs felt they had made a positive contribution to their community. More importantly, according to another 1997 study, by Billig and Conrad, individuals who participated in service-learning programs as secondary school students were shown to be more engaged in community organizations and to vote, 15 years after the service-learning experiences, than were the individuals' nonparticipant counterparts.

(9) Our Nation's public middle schools and secondary schools often miss opportunities to develop and support student governments that are viable voices for students in the operations of those schools. A 1996 study by the National Association of Secondary School Principals showed that fewer than 50 percent of high school students believed that their student government `affects decisions about cocurricular activities' and barely 1/3 expressed confidence in those governments' ability to `affect decisions about school rules'. Moreover, schools rarely take full advantage in encouraging formal involvement by students in local or State government.

(10) While a variety of civic education enhancement programs have been implemented through Federal Government efforts and at the State and local levels, no comprehensive, national research exists on the short- and long-term efficacy of such programs in encouraging civic knowledge and other learning or in promoting civic engagement.

(11) As a political scientist, mayor, Senator, and Vice President, Hubert H. Humphrey exemplified consummately the application of civic knowledge, civic intellectual skills, civic participation skills,

and civic virtue in the representative democracy of the United States.

(b) PURPOSES- The purposes of this Act are--

(1) to promote interest and engagement in democratic processes by Americans, particularly by younger Americans, through a variety of civic education programs;

(2) to promote the vitality of elementary school and secondary school civics curricula and pedagogy through innovative professional development opportunities for teachers of social studies and related fields;

(3) to promote service-learning programs in public schools that are effective in promoting lasting civic involvement by students through developing and expanding professional development opportunities for teachers participating in the school-based programs under the Learn and Serve America program carried out under subtitle B of title I of the National Community Service Act of 1990 (42 U.S.C. 12521 et seq.);

(4) to permit local educational agencies to use funds made available under an innovative education program to support certain community service and service-learning programs;

(5) to provide funding for public schools desiring to revitalize the efficacy of student governments in the decisionmaking process within those schools;

(6) to provide funding for public schools to develop opportunities for secondary school students to participate formally in local or State government activities; and

(7) to carry out a national study to gain a fuller understanding of the efficacy of various civic education strategies in promoting civic knowledge and other learning and in promoting long-term involvement in civic affairs.

SEC. 3. DEFINITIONS.

In this Act:

(1) ELEMENTARY SCHOOL- The term `elementary school' has the meaning given the term in section 14101 of the Elementary and Secondary Education Act of 1965 (20 U.S.C. 8801).

(2) INSTITUTION OF HIGHER EDUCATION- The term `institution of higher education' has the meaning given the term in section 101(a) of the Higher Education Act of 1965 (20 U.S.C. 1001(a)).

(3) LOCAL EDUCATIONAL AGENCY- The term `local educational agency' has the meaning given the term in section 14101 of the Elementary and Secondary Education Act of 1965 (20 U.S.C. 8801).

(4) SECONDARY SCHOOL- The term `secondary school' has the meaning given the term in section 14101 of the Elementary and Secondary Education Act of 1965 (20 U.S.C. 8801).

(5) SECRETARY- The term `Secretary' means the Secretary of Education.

(6) STATE EDUCATIONAL AGENCY- The term `State educational agency' has the meaning given the term in section 14101 of the Elementary and Secondary Education Act of 1965 (20 U.S.C. 8801).

SEC. 4. CIVICS EDUCATOR PROFESSIONAL DEVELOPMENT.

(a) AUTHORIZATION- The Secretary is authorized to award grants to institutions of higher education, State educational agencies, and other nonprofit educational providers to enable such institutions, agencies, and providers to establish and operate teacher training and retraining institutes that focus on effective and innovative approaches and processes for the teaching of civics.

(b) APPLICATIONS- Each institution of higher education, State educational agency, and other nonprofit educational provider desiring a grant under this section shall submit an application to the Secretary at such time, in such manner, and accompanied by such information as the Secretary may reasonably require.

(c) CIVICS INSTITUTES- The teacher training and retraining institutes authorized in subsection (a)--

(1) shall--

(A) be conducted primarily during the summer months with the possibility of short follow-up sessions at other points in the year;

(B) be 2 to 6 weeks in duration, including follow-up sessions;

(C) be of a size small enough to allow a seminar format;

(D) train and retrain teachers who teach in elementary schools and secondary schools; and

(E) focus on improving grade-appropriate pedagogy or curricula in specific areas of civics education; and

(2) may incorporate participation by elementary school and secondary school students.

(d) STIPENDS-

(1) IN GENERAL- From grant funds received under subsection (a), an institution of higher education, State educational agency, or other nonprofit educational provider shall award stipends to individuals participating in a training and retraining institute carried out by the institution, agency, or provider under this section. The institution, agency, or provider may also offer course credit as an incentive to participants.

(2) AMOUNTS- Stipends awarded under this subsection shall include allowances for subsistence and such other expenses as the Secretary may determine to be appropriate, taking into account any additional incentive being provided in the form of course credit, and shall be awarded in a manner that is consistent with prevailing practices under federally supported programs comparable to the program carried out under this Act.

(e) DISTRIBUTION OF GRANTS- In awarding grants under this section, the Secretary shall seek to achieve an equitable geographical distribution of training and retraining opportunities throughout the Nation, taking into account the number of children in each State who are public school students.

(f) AUTHORIZATION OF APPROPRIATIONS- There are authorized to be appropriated to carry out this section $25,000,000 for fiscal year 2002, and such sums as may be necessary for each of the 5 succeeding fiscal years.

SEC. 5. EXPANSION OF PROFESSIONAL DEVELOPMENT OPPORTUNITIES FOR TEACHERS IN THE LEARN AND SERVE AMERICA PROGRAM.

(a) FUNDING AMENDMENT- Section 501(a)(1)(A) of the National and Community Service Act of 1990 (42 U.S.C. 12681) is amended by striking `, $45,000,000 for fiscal year 1994 and such sums as may be necessary for each of the fiscal years 1995 through 1996' and inserting `$65,000,000 for fiscal year 2002, and such sums as may be necessary for each of fiscal years 2003 through 2006'.

(b) SERVICE-LEARNING INSTITUTES- The National and Community Service Act of 1990 (42 U.S.C. 12501 et seq.) is amended--

(1) by redesignating section 116B as section 116C; and

(2) by inserting after section 116A the following:

`SEC. 116B. SERVICE-LEARNING INSTITUTES.

`(a) AUTHORIZATION- The Corporation is authorized to award grants to institutions of higher education, State educational agencies, and other nonprofit educational providers to enable such institutions, agencies, and providers to establish and operate teacher training and retraining institutes that focus on effective and innovative approaches and processes for school-based service-learning programs.

`(b) APPLICATIONS- Each institution of higher education, State educational agency, and other nonprofit educational provider desiring a grant under this section shall submit an application to the Corporation at such time, in such manner, and accompanied by such information as the Corporation may reasonably require.

`(c) SERVICE-LEARNING INSTITUTES- The teacher training and retraining institutes authorized in subsection (a)--

`(1) shall--

`(A) be conducted primarily during the summer months with the possibility of short follow-up sessions at other points in the year;

`(B) be 2 to 6 weeks in duration, including follow-up sessions;

`(C) be of a size small enough to allow a seminar format;

`(D) train and retrain teachers who teach in elementary schools and secondary schools; and

`(E) focus on improving grade-appropriate service-learning pedagogy or curricula; and

`(2) may incorporate participation by elementary school and secondary school students.

`(d) STIPENDS-

`(1) IN GENERAL- From grant funds received under subsection (a), an institution of higher education, State educational agency, or other nonprofit educational provider shall award stipends to individuals participating in a training and retraining institute carried out by the institution, agency, or provider under this section. The institution, agency, or provider may also offer course credit as an incentive to participants.

`(2) AMOUNTS- Stipends awarded under this subsection shall include allowances for subsistence and such other expenses as the Corporation may determine to be appropriate, taking into account any additional incentive being provided in the form of course credit, and shall be awarded in a manner that is consistent with prevailing practices under federally supported programs comparable to the program carried out under this Act.

`(e) DISTRIBUTION OF SERVICE-LEARNING INSTITUTES- In awarding grants under this section, the Corporation, in consultation with the Secretary of Education, shall seek to achieve an equitable geographical distribution of training and retraining opportunities throughout the Nation, taking into account the number of children in each State who are public school students.

`(f) RULE- Funds appropriated under this section shall be used to supplement and not supplant funds expended to provide other professional development activities under this subpart.

`(g) AUTHORIZATION OF APPROPRIATIONS- There are authorized to be appropriated to carry out this section $10,000,000 for fiscal year 2002, and such sums as may be necessary for each of the 5 succeeding fiscal years.'.

SEC. 6. LOCAL INNOVATIVE EDUCATION PROGRAMS.

Section 6301(b) of the Elementary and Secondary Education Act of 1965 (20 U.S.C. 7351(b)) is amended--

(1) in paragraph (8), by striking `; and' and inserting a semicolon;

(2) in paragraph (9), by striking the period at the end and inserting `; and'; and

(3) by adding at the end the following:

`(10) community service programs under which qualified school personnel train and mobilize young people to measurably strengthen their communities through nonviolence, responsibility, compassion, respect, and moral courage.'.

SEC. 7. GRANTS FOR INNOVATIVE ENDEAVORS IN ENCOURAGING ACTIVE STUDENT GOVERNMENT AND STUDENT INVOLVEMENT IN LOCAL AND STATE GOVERNMENT.

(a) GRANTS TO LOCAL EDUCATIONAL AGENCIES- The Secretary is authorized to award grants to local educational agencies to enable such agencies to carry out 1 or more of the following activities:

(1) Planning, developing, and implementing a program to invigorate and enhance the efficacy of student government and other student leadership programs in the decision-making processes of secondary schools throughout the school district served by the local educational agency.

(2) Planning, developing, and implementing a partnership program with the appropriate governmental entities to allow formal involvement by secondary school student representatives in local government activities, on the school board, in the local educational agency, or in State government.

(b) GRANTS TO STATE EDUCATIONAL AGENCIES- The Secretary is authorized to award grants to State educational agencies to enable such agencies to carry out 1 or more of the following activities:

(1) Providing professional training programs for student leaders that--

(A) inform such student leaders about local and State government and about the Federal Government; and

(B) are less than 1 week in duration.

(2) Providing training programs for student leaders that--

(A) use experienced student leaders to carry out training on the importance of civic engagement, methods of engagement, and other aspects of leadership development; and

(B) are less than 1 week in duration.

(3) Providing stipends for student leaders who participate in training programs carried out by the State educational agency under paragraphs (1) and (2).

(c) APPLICATIONS- Each local educational agency or State educational agency desiring a grant under this section shall submit an application to the Secretary at such time, in such manner, and accompanied by such information as the Secretary may reasonably require.

(d) AUTHORIZATION OF APPROPRIATIONS- There are authorized to be appropriated to carry out this section $25,000,000 for fiscal year 2002, and such sums as may be necessary for each of the 5 succeeding fiscal years.

SEC. 8. STUDY ON THE EFFICACY OF VARIOUS CIVIC EDUCATION STRATEGIES.

(a) IN GENERAL- The Office of Educational Research and Improvement shall conduct a study of a representative sample of State educational agencies and local educational agencies, to evaluate the effectiveness of the various approaches used in civic education in elementary schools and secondary schools.

(b) DURATION- The study shall not exceed 5 years in duration.

(c) PROCESS- The study shall be based on a research design determined by the Office of Educational Research and Improvement, in consultation with others, that involves the use of existing data, and the development of new data as feasible and advisable.

(d) SCOPE OF STUDY- The study shall examine, at a minimum--

(1) the frequency of the use of various civic education approaches in elementary schools and secondary schools and the approaches used for students at different levels, including--

(A) service-learning (as defined in section 101 of the National and Community Service Act of 1990 (42 U.S.C. 12511);

(B) the Close Up program and other experiential learning with State and local government;

(C) instruction based on the `We the People . . . The Citizen and the Constitution' curriculum;

(D) law-related education programs;

(E) participation in simulations of governmental activities;

(F) public work programs;

(G) participation in student government; and

(H) classroom instruction in civics; and

(2) the effectiveness of the various civic education approaches in elementary schools and secondary schools and the comparative effectiveness of the various approaches among students at different levels in promoting learning and civic engagement, including effectiveness in promoting--

(A) student knowledge as specified in the voluntary National Standards for Civics and Government and in the third National Education Goal;

(B) student knowledge of the content of challenging State student performance standards that incorporate civics, government, and the law;

(C) student interest in public affairs and political activity; and

(D) student belief that political engagement is a way to solve important societal problems.

(e) DISAGGREGATION OF RESULTS- The results of the study shall be disaggregated by--

(1) gender;

(2) major racial and ethnic groups; and

(3) economically disadvantaged students as compared to students who are not economically disadvantaged.

(f) DEFINITION- In this section, `public work program' means a program that involves work on common projects of civic benefit with a focus on bringing together individuals with ideological, cultural, racial, income, and other differences in carrying out the projects.

END