Legislature(2001 - 2002)
04/18/2001 08:12 AM House EDU
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* first hearing in first committee of referral
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+ teleconferenced
= bill was previously heard/scheduled
HB 171-ALASKA HISTORY CURRICULUM [Contains testimony relating to SB 44, the companion bill.] CHAIR BUNDE announced that the first order of business would be HOUSE BILL NO. 171, "An Act relating to a curriculum for Alaska history; and providing for an effective date." Number 0124 REPRESENTATIVE MARY KAPSNER, Alaska State Legislature, Sponsor, came forth and stated that HB 171 requires students who graduate from high school in Alaska to have taken the equivalent of one semester of Alaska history. She explained that as far back as 1981, the State Board of Education considered requiring high school students to complete a year of Alaska history and government. In 1988, Senator Willie Hensley introduced a resolution asking the State Board of Education to adopt regulations on this matter. She stated that there have been a number of organizations that have expressed a strong sentiment that this be required, including Commonwealth North. Alaska Federation of Natives (AFN) has also offered a resolution. REPRESENTATIVE KAPSNER stated that the first intent of the bill is to ensure that every future Alaska high school graduate receive instruction in Alaska history through a locally adopted curriculum that meets the state's social studies standards. The second [intent] is that Alaska school districts should receive instructional support needed to put an Alaska history curriculum in place and to prepare teachers to maximize the effect of the curriculum. The third intent is that outside money be possible. She stated that there is a fiscal note, but one of the things that has come up, particularly working with the Alaska Municipal League, is the want for private contributors, grantors, and the federal government to be able to contribute to the development of curricula as well. She explained that Section 2 of the bill adds charter schools to this requirement, and Section 3 asks the Department [of Education and Early Development] to develop curriculum for grades 9 through 12. Currently, she said, many school districts in the state require Alaska history; however, the requirements are varied. Many require that it be taught in the primary grades, and the intent of this bill is to have a strong civics component in Alaska history so when voters reach voting time they are well aware of how government works, especially Alaskan government. Number 0352 REPRESENTATIVE KAPSNER stated that she thinks one of the strongest elements of the bill is that it allows for flexibility at the district level. Alaska history can be taught in a one- semester stand-alone course or woven into other courses already taught. She remarked that this would affect students who begin the ninth grade on or after July 1, 2002. She said she worked with many different groups on this bill, including the Alaska Municipal League, the Association of School Boards, the Association of School Administrators, NEA (National Education Association), and Commonwealth North. CHAIR BUNDE stated that his concern is that schools have been asked to do a lot [with the High School Competency Exam], and that [teachers might] say they need another year to meet the challenges of the competency test because they now have another requirement put on them. He inquired how schools will be asked to do this without taking them off their central task of making children functionally literate. REPRESENTATIVE KAPSNER responded that this was one of her primary concerns as well, when introducing the bill, which is why she left it open for people to use Alaska history as a vehicle for teaching other subjects. She stated that right now a teacher in Dillingham is including Alaska history in [his history class] and says it is making his students more interested in learning. She added that she was pleased to see a fiscal note and that the department is taking a close look at how it's going to train people from various districts on how to teach Alaska history. She said it is an impressive fiscal note - $223,000 for the first year of this bill and $30,000 thereafter. Number 0631 BRUCE JOHNSON, Deputy Commissioner of Education, Office of the Commissioner, Department of Education and Early Development (EED), came forth and stated that [the EED] worked with Representative Kapsner and her staff to outline a fiscal note that would be reasonable. It is front-end-loaded and involves only $30,000 a year, which is primarily to keep the web-based or distance delivery courses up-to-date. On the front end [the EED] will develop a comprehensive curriculum and offer some oversight and involvement from a department person working on a half-time basis. Working with a minimal support staff, that person would develop a curriculum, take it out on a pilot basis, refine it, and then, during the following summer, offer training at the state's expense for at least one person from each school district. He added that obviously $223,000 is a lot of money, but the return, if this is done well, could be very substantive. REPRESENTATIVE PORTER asked if the curriculum that is developed under this format could be a semester course. MR. JOHNSON responded that it could take many forms, but there would be a self-contained secondary course for a one-semester course, for districts that want to do it that way. He stated that [the EED] has conceptualized this so that it could be done in modules and be offered as a broad array of course offerings or integrated curricula. REPRESENTATIVE PORTER stated that one of the requirements for graduation is that each student complete the curriculum with a passing grade. He asked if this is an unusual requirement for one history course. MR. JOHNSON answered that the concept of a state history class around the nation is a relevant one and occurs in many states. At some point at the elementary level [students] study the history of their state. They do the same thing in the middle school, and then it is finalized in the high school years with a required class. REPRESENTATIVE PORTER remarked that being required to study is one thing and being required to pass or [the student] doesn't graduate is another thing. MR. JOHNSON responded that he thinks Representative Porter's reading [of the bill] is correct; the student would have to be successful with the course. He said many states have this as a graduation requirement. REPRESENTATIVE PORTER asked, if the Anchorage School District chooses to integrate this into a series of courses, whether that then means a student would have to pass each course. MR. JOHNSON answered that he thinks that would be something [the EED] would have to work out in regulations. Number 0970 REPRESENTATIVE GREEN stated that in the Midwest, where he went to school, both civics and state history were provided. The state history was required to pass, and there was a separate test for U.S. history. He asked how many states require this sort of thing. REPRESENTATIVE KAPSNER responded that from the information she has from the NCSL (National Conference of State Legislatures), 22 states require state history for graduation. REPRESENTATIVE GREEN asked, if the competency exam is developed by 2004, whether this bill's 2006 date is in conflict with that. MR. JOHNSON stated that there is obviously a lot on school districts' plates right now; however, this [particular requirement] may not be on their plate at this juncture. He said people [the EED] has talked to, particularly in rural Alaska, have said if a good quality curriculum can be provided that is self-contained and if a teacher can receive modest training, it will be used and delivered. If this can be packaged in a way that it is easy to use, creative, and engaging for young people, it will probably relieve the teacher of some of those other responsibilities of trying to create the curriculum and the instructional package for an elective program. REPRESENTATIVE KAPSNER remarked that one of the things being worked on with the [EED] is to make sure that there is something on the Internet from which rural teachers can obtain lesson plans. Number 1147 REPRESENTATIVE GREEN stated that he champions what Representative Kapsner mentioned about the integration of civics. He remarked that he thinks that is one of the problems with apathy among young voters; they don't realize how important voting is. He asked if [combining two courses] could be an impediment. MR. JOHNSON responded that he thinks Representative Green touches on the same issue that Representative Porter brought up, which has to do with how the curriculum will be created. He stated that if it is done in the form of modules and a civics course is required, then that module could be integrated in that way. REPRESENTATIVE GREEN asked if that would be statewide. MR. JOHNSON answered no. He stated that [civics] is not a required course, but if [schools] don't offer civics now, they will at least get the civics portion that would come about through this curriculum. CHAIR BUNDE stated that with the way the bill is written, it is really an expansion of the High School Competency Exam, because it is another state requirement for graduation. He asked Mr. Johnson what the department's view is on this and what he has heard from rural schools. Number 1224 MR. JOHNSON answered that [the EED] has not heard a lot from school personnel at this point in time. He said he thinks people generally see the benefit of a course of this nature. He said [the EED] does not hear the "cry of unfunded mandate" and he thinks that if [the EED] develops the course and provides the initial training, it can be self-sustaining through distance delivery courses and other opportunities. He added that this is not to set aside how full the "plates" are in local school districts and add another mandate from the state level. He said he would leave that up to people's testimony on whether or not [the school districts] can cope with an additional mandate. REPRESENTATIVE KAPSNER noted that out of the 55 school districts in the state, 46 already require Alaska history at some point, but not for graduation. For example, Anchorage School District requires it at second, third, and seventh grade, while Fairbanks, Juneau, Sitka, and Delta/Greely are districts that don't require any Alaska history. REPRESENTATIVE GUESS asked if with modules the full stand-alone course could be offered or else every module that is in the stand-alone course could be offered somewhere else. MR. JOHNSON answered, that's correct. Number 1334 REPRESENTATIVE GUESS stated that the trainer model is great; however, she is concerned, when only one person from every school district [is trained], how bigger districts are going to integrate the curriculum. MR. JOHNSON answered that [the EED's] notion is that the state would pay for one [person] but the local district could elect additional people to attend. REPRESENTATIVE GUESS asked if there is going to be a problem with kids who come into the system late, especially if there are modules and [the students] can't take all of the courses. REPRESENTATIVE KAPSNER answered that she had called Mr. Ford [the bill drafter from Legislative Legal and Research Services], and he is working on language to insert into the bill. Number 1432 IRA PERMAN, President, Alaska Humanities Forum, testified via teleconference. He stated that the headline in the Anchorage Daily News spoke of the Knowles Administration's efforts to deal with racism and the incident that happened a few weeks ago [in Anchorage]. He shared that the article states: "We're here to announce action to combat a dangerous corrosion of Alaska's social fabric." He said the article didn't mention that the governor, as a solution, was supporting HB 171, and said he hopes it was just an omission. He remarked that he thinks there is nothing better people could do to stitch Alaska's social fabric together than to have an opportunity to learn about their common history and heritage. He stated that about 45 or 46 of Alaska's school districts currently require an Alaska history and Alaska studies course. Unfortunately, the ones that don't happen to be Alaska's largest school districts. MR. PERMAN stated that his purpose in talking today is to give an update of what is happening in Anchorage. Last week, he said, a large group of people representing the Chamber of Commerce, Commonwealth North, Alaska Heritage Center, and the Alaska Humanities Forum met with Superintendent Carol Comeau to ask [the Anchorage School District] to begin a process similar to what this bill is proposing. He stated that Superintendent Comeau has invited [the Alaska Humanities Forum] to speak with the school board in this regard and is working to put together a process to work this through their social studies curriculum committee. He pointed out that his observation in Anchorage is that there is a strong feeling that it's about time this is done. He stated that what is making this go through the school systems so far is that, unlike previous attempts, it is not trying to displace anything that is required right now or add another credit requirement. There are eight required social studies credits; six of them are lined up, and two are electives. This would take one of those two electives and make it a requirement, just like the other six. The only real change would be the need for teacher training. CHAIR BUNDE stated that the bill as it is written would basically expand the graduation requirements and expand the High School Competency Exam, because [the students] would have to pass this [course] to get a diploma. He asked Mr. Perman if he is also in support of expansion of the competency test, or the bill as it is written. MR. PERMAN responded that he is in favor of giving this some teeth and thinks that it is important that kids learn [Alaska history]. Number 1860 STEVE HAYCOX, Chair, Board of Directors, Alaska Humanities Forum, testified via teleconference in support of HB 171. He stated: I am a professor of history at the University of Alaska Anchorage, where I have taught Alaska History, History of the American West, and American Cultural History for 31 years. University of Washington Press will publish my new History of Alaska later this year. I'm a present board member and past president of the Alaska Historical Society, [and] present board member and past president of Cook Inlet Historical Society. For six years I have been a member of the board of directors of the Alaska Humanities Forum and for four years chair of the board. I very much appreciate the work of Representative Kapsner and cosponsors of the bill and I very much appreciate the opportunity to speak for history and for an Alaska history requirement. ... I heartily support passage of HB 171 and its Senate companion, S[B] 144, requiring a semester of Alaska History. I hope you've all had an opportunity to read Commonwealth North's report on this issue or will take advantage of that opportunity. Commonwealth North and AFN ... both recommend the requirement. Knowledge of our past, of course, helps us to understand who we are and how we got to be the way we are; and that helps us make better judgments. It also creates due honor to those who make [significant] contributions to creating the world we live in, and understanding those who were victimized by the way it came to be, and why. ... I think this knowledge is critical for Alaskan young people. ... I can't begin to count the number of not just high school kids I've talked to ... but even college kids who come in and can't tell me who Ernest Gruening was or who Robert Service was or who Bob Bartlett was, let alone the more obscure people. ... I believe that the most fundamental reason for a state history requirement is that it will help bring Alaskans together. It will make better Alaskans, and a better Alaska society. History examines and can make connections between human beings. Recognizing that we all have the same background gives us something in common. And though each of us brings our own set of unique circumstances to Alaska and to our own particular communities and neighborhoods, we bring those individualities to the same place, a place that has the same history for all of us. ... That gives us a commonality, a way of connecting. I think we need ways to connect, a sense of community in Alaska. Our transiency rate is still high, as many people are not here primarily to build an Alaska community; they intend to retire somewhere else. That's a perspective that prevents people from focusing on others that might be different from themselves, who might live in ways that are different and have different cultures. History provides a way of understanding what it is to be human [and] what we share in common with others who are in the same place where we are - the place we call "our place." History, in other words, will humanize Alaska - give it context, and texture, and human meaning. I can think of hardly anything more valuable to our schools and more valuable that we as Alaska leaders could do for Alaska and for our students. Number 1896 JON KUMIN, Commonwealth North, testified via teleconference in support of HB 171. He stated that the purpose of Commonwealth North is educating its members and all Alaskans on public policy. In 1999 [Commonwealth North] undertook the Urban Rural [Unity] Study, which covered a variety of topics. The effort was co-chaired by Janie Leask and Rick Mystrom, and a report was issued in September of 2000 that summarized what was learned. One of the common themes was a universal regret that Alaskans, typically, are not well informed about [Alaska] history. Because of that, the final report included six action items, one of which was to seek a mandated Alaska history course so that as Alaska's students graduate from high school they will have a basic understanding of the history. An ongoing study group was formed to look in to this research. Initially, he said, the group sought input from a variety of people, including those that were involved in the earlier effort. Back in the late '80s this was tried, but it didn't pass. MR. KUMIN stated that this group didn't just seek out those who would be in obvious support such as the Alaska Historic Society, The Geographic Alliance, The Cook Inlet Historical Society, or the Historical Commission, but tried to find those who might not be. He said the group talked to Rich Kronberg from NEA, teachers, Carl Rose from the Alaska Association of School Boards, and Darroll Hargraves from the Alaska Council of School Administrators, trying to identify what possible issues these various stakeholders might have that would cause them to not be in full favor of this. From talking to these people and hearing their concerns, the study group was able to work with Representative Kapsner and help incorporate language in the bill to address those concerns. The upshot, he said, was that a strong consensus was developed from groups who were sufficiently concerned about this. The NEA, for example, has passed a resolution in favor of this. MR. KUMIN concluded by stating that like Ira Perman, he doesn't think it is appropriate for [Commonwealth North] to get into the details of how to put the curriculum together. [Commonwealth North] believes that it is the job of the legislature to set expectations, and it is a reasonable expectation of the legislature for Alaskan students, when they graduate from high school to know something about their history. Number 2130 MICHAEL JONES testified via teleconference on behalf of himself on HB 171. He stated that he came this morning opposed to HB 171 because of some technical issues with the bill, but Representative Kapsner's introduction corrected his misconceptions. He said he is a teacher employed by Nome public schools and is endorsed in the area of history. As a history teacher and student, he remarked that he does support the promotion of history; however, he asked [the legislature] to keep in mind that this is one more requirement on the schools and to always consider any potential requirements seriously. He stated that he commends [the committee] for addressing three key issues with the bill: the effective date, so that it doesn't affect current high school students; the flexibility that the bill now gives schools and school districts to implement Alaska studies or Alaska history; and the fiscal note that shows that the legislature does appreciate that there are costs for schools and school districts when new mandates are in place. Number 2179 ROGER PEARSON, Coordinator, Alaska Geographic Alliance, Institute of the North, Alaska Pacific University, testified via teleconference. He stated: I have been involved in education in Alaska since 1976, both at the University of Alaska Fairbanks and now at the Institute of the North. As a professional educator, I have been and remain excited to teach others about the history and geography of Alaska. Based on my 25 years of working with students and teachers in Alaska, I have found them to be fascinated with this state and eager to learn more about it. House Bill 171 directly addresses the need for Alaska studies for students. For teachers, the matter was addressed years ago, as committee members know. To be certified as an Alaskan teacher, one must first complete a course in Alaska studies. That requirement applies to all Alaska teachers. I would like to address the role of the Alaska Geographic Alliance [AGA] in what it has done and can do to promote Alaska studies as emphasized in HB 171. The AGA works to prepare Alaska's students to function effectively in a global society through the development of geographic literacy. To that end, the AGA has since 1988 provided professional development institutes for over 300 Alaska teachers and developed the Alaska: A Land in Motion, an elementary textbook; Alaska in Maps, a printed atlas; and also a CD-ROM. The AGA also involves our statewide network of teachers in the annual Alaska Geographic Bee ... and, with support from the Alaska Science and Technology Foundation, this year's AGA "Harriman Expedition Retraced" project. This project focuses on the last 100 years of Alaska history and will receive nationwide attention with a PBS documentary film. The AGA will develop Harriman-related, standards-based classroom materials to be used in Alaska classrooms for years to come. The AGA is in a unique position to help carry out the aims of HB 171. The National Geographic Society has offered a challenge grant of up to $500,000 to permanently endow the organization. Several other state legislatures have met this challenge, and we hope that our legislature will do the same. As background, between 1988 and 1996 the Alaska State Legislature funded the AGA nearly $700,000 with a one- time $300,000 textbook grant, plus $50,000 per year. This state support has strengthened geography education and Alaska studies. The Alaska Geographic Alliance stands ready to further develop a standards-based Alaska geography curriculum that would meet the aims of this legislation, whether the mandates come from this body or from individual school districts. And although AGA membership is split on the subject of mandates, we firmly believe Alaska history and Alaska geography should be taught in the schools, and have made that our mission from the beginning. I might add ... that a few years ago I had a chance to speak with Gil Grosvenor, the chairman of the National Geographic Society. He told me that there had been more articles written in National Geographic [magazine]" on Alaska than on any other region. So obviously there is a national and international interest in Alaska. TAPE 01-26, SIDE B Number 0027 DARROLL HARGRAVES, Executive Director, Alaska Council of School Administrators (ACSA), came forth and stated that the superintendents met recently in support of HB 171. He said this is a point that is not spoken of too much in modern times, but there was a time when public education was recognized as making good citizens out of the students. He remarked that he was pleased when business people in Anchorage were taking up the "drumbeat" for the need for this type of a bill. This is not the first time the state has made an effort to do this. In the '70s a lot of effort was made to develop materials; however, that effort didn't "catch fire." He added that ACSA offers a course called Alaskan History for Teachers. CHAIR BUNDE remarked that he would be interested in getting feedback from [the ACSA] about this expansion of a graduation requirement or the expansion of the competency exam. REPRESENTATIVE GUESS stated that she would like to offer a conceptual amendment that the department may waive this provision for a student who transfers in and cannot satisfy the requirement of this section. REPRESENTATIVE KAPSNER stated that she is in favor of the amendment and will write it up in a new CS (committee substitute). Number 0400 LARRY GOLDIN testified via teleconference on behalf of himself. He stated that he is a filmmaker and has made two films on Alaska history. One was "Alaska at War" and the second was "The Land is Ours." He said when he shows them in Alaska he gets very positive responses from people in the audience. He remarked that he has come away from this with the sense that Alaskans are hungry for their own history. People love history; the common wisdom that people aren't interested in history, he said, is wrong. He stated that some students in high school might think that this is dull, but as they get into it, students may have their interest piqued. He said he has seen that happen time and time again. MR. GOLDIN concluded by stating that everybody has been concerned about the stability of society in Alaska due to recent events, and he believes that the more people understand Alaskan history, the more they will understand that this is a diverse state and that all of the various people who live here have made very important contributions. JODY SMOTHERS MARCELLO testified via teleconference on behalf of herself. She stated that she has worked for the Sitka School District in curriculum assessment and staff development, and is a social studies educator. Presently, she is on the steering committee of the Alaska Geographic Alliance and co-chairs the Geography Content Standards Committee. Those standards, she said, were adopted in 1994. She noted that Sitka does require Alaska studies. Addressing the title of the course and the standards-based portion of that, she suggested that the bill be amended to require a standards-based Alaska curriculum in grades 9 through 12, not just in Alaska history alone. MS. SMOTHERS MARCELLO remarked that the State of Alaska and [Sitka] have adopted content standards in geography, government, citizenship, and history. Putting a label of "history" alone on the curriculum may narrow the focus in many people's minds and the bill itself attests to a broad spectrum of needs of [Alaskans] arising from demographics, economics, and social needs. She stated that demographics, for example, are included in the geography standards in that a student should understand and be able to interpret the geographic characteristics of human systems including migration movement, the interaction of cultures, economic activity, settlement patterns, and political units in the state, nation, and world. Economics, she said, is also addressed under the government citizenship standards. She stated that social needs, as mentioned in the bill, rest in all three sets of standards as well as in the cultural standards. She said she hopes the standards-based component of this course will fall in all four standards and not just in the history standards. MS. SMOTHERS MARCELLO stated that second, she would like to speak for the [Sitka School] District in supporting the bill in terms of a curriculum consisting of modules taught in the respective social studies classes required at the high school level. For example, in Sitka the American studies teachers have a unit on Native American Alaska in a freshman-required course. In 11th grade government, Ninilchik Native tribal government from the political systems of Alaska is studied along with American government, and she, as a guest instructor, just taught global issues in a required senior course debating whether or not to open ANWR (Arctic National Wildlife Refuge) to drilling and looking at its global aspects. MS. SMOTHERS MARCELLO remarked that [people in Sitka] do recognize the need for the Alaska curriculum for high school students, but need to be able to organize learning opportunities based on the students' needs as they progress from grades 9 through 12, and from the levels of thinking that high school students go through. By having the requirement in the various courses, students are engaged to think about Alaskan issues at the various stages of their development. [HB 171 was held over.]
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