03/13/2024 03:30 PM Senate EDUCATION
| Audio | Topic |
|---|---|
| Start | |
| SB158 | |
| SB221 | |
| Adjourn |
+ teleconferenced
= bill was previously heard/scheduled
| *+ | SB 158 | TELECONFERENCED | |
| *+ | SB 221 | TELECONFERENCED | |
| + | TELECONFERENCED | ||
ALASKA STATE LEGISLATURE
SENATE EDUCATION STANDING COMMITTEE
March 13, 2024
3:30 p.m.
MEMBERS PRESENT
Senator Löki Tobin, Chair
Senator Jesse Bjorkman
Senator Jesse Kiehl
Senator Elvi Gray-Jackson
MEMBERS ABSENT
Senator Gary Stevens, Vice Chair
COMMITTEE CALENDAR
SENATE BILL NO. 158
"An Act relating to funding for school construction and major
maintenance; relating to school bond debt reimbursement; and
providing for an effective date."
- HEARD & HELD
SENATE BILL NO. 221
"An Act relating to cardiopulmonary resuscitation education in
public schools; relating to the duties of the Department of
Education and Early Development; and providing for an effective
date."
- HEARD & HELD
PREVIOUS COMMITTEE ACTION
BILL: SB 158
SHORT TITLE: SCHOOL GRANTS AND BOND DEBT REIMBURSEMENT
SPONSOR(s): SENATOR(s) MYERS
01/16/24 (S) PREFILE RELEASED 1/8/24
01/16/24 (S) READ THE FIRST TIME - REFERRALS
01/16/24 (S) EDC, FIN
02/28/24 (S) EDC AT 3:30 PM BELTZ 105 (TSBldg)
02/28/24 (S) -- MEETING CANCELED --
03/13/24 (S) EDC AT 3:30 PM BELTZ 105 (TSBldg)
BILL: SB 221
SHORT TITLE: CPR CURRICULUM
SPONSOR(s): SENATOR(s) GRAY-JACKSON
02/08/24 (S) READ THE FIRST TIME - REFERRALS
02/08/24 (S) EDC, FIN
03/13/24 (S) EDC AT 3:30 PM BELTZ 105 (TSBldg)
WITNESS REGISTER
SENATOR ROBERT MYERS, District Q
Alaska State Legislature
Juneau, Alaska
POSITION STATEMENT: Sponsor of SB 158.
DAWSON MANN, Staff
Senator Robert Myers
Alaska State Legislature
Juneau, Alaska
POSITION STATEMENT: Offered the sectional analysis for SB 158.
LORI WEED, Manager
School Finance and Facilities
Department of Education and Early Development (DEED)
Juneau, Alaska
POSITION STATEMENT: Answered questions on SB 158.
KAREN MORRISON, Director
School Finance and Facilities
Department of Education and Early Development (DEED)
Juneau, Alaska
POSITION STATEMENT: Provided an overview of fiscal notes for SB
158.
LUMA DIAZ, Staff
Senator Elvi Gray-Jackson
Alaska State Legislature
Juneau, Alaska
POSITION STATEMENT: Offered a presentation and the sectional
analysis for SB 221.
DOUGLAS SCHRAGE, Chief
Anchorage Fire Department
Anchorage, Alaska
POSITION STATEMENT: Invited testimony for SB 221.
JAMIE MORGAN, Senior Region Lead
State Government Relations
American Heart Association
Dallas, Texas
POSITION STATEMENT: Invited testimony for SB 221.
KELLY MANNING, Deputy Director
Innovation and Education Excellence
Department of Education and Early Development (DEED)
Juneau, Alaska
POSITION STATEMENT: Provided an overview of the fiscal note for
SB 221.
JAMES WHITE, representing self
Juneau, Alaska
POSITION STATEMENT: Testified in support of SB 221.
SCOTT WELLMAN, M.D., representing self
Anchorage, Alaska
POSITION STATEMENT: Testified in support of SB 221.
LINDA IRELAND, D.O., representing self
Anchorage, Alaska
POSITION STATEMENT: Testified in support of SB 221.
BRIAN WEBB, representing self
Anchorage, Alaska
POSITION STATEMENT: Testified in support of SB 221.
TYLER BELK, representing self
Anchorage, Alaska
POSITION STATEMENT: Testified in support of SB 221.
FORREST KUIPER, representing self
Fairbanks, Alaska
POSITION STATEMENT: Testified in support of SB 221.
GERALD VOSS, representing self
Juneau, Alaska
POSITION STATEMENT: Testified in support of SB 221.
ACTION NARRATIVE
3:30:06 PM
CHAIR LÖKI TOBIN called the Senate Education Standing Committee
meeting to order at 3:30 p.m. Present at the call to order were
Senators Gray-Jackson, Kiehl, and Chair Tobin. Senator Bjorkman
arrived shortly thereafter.
SB 158-SCHOOL GRANTS AND BOND DEBT REIMBURSEMENT
3:32:10 PM
CHAIR TOBIN announced the consideration of SENATE BILL NO. 158
"An Act relating to funding for school construction and major
maintenance; relating to school bond debt reimbursement; and
providing for an effective date."
3:32:29 PM
SENATOR ROBERT MYERS, District Q, Alaska State Legislature,
Juneau, Alaska, sponsor of SB 158 paraphrased the following
statement:
[Original punctuation provided.]
SB 158 - Sponsor Statement
SCHOOL GRANTS AND BOND DEBT REIMBURSEMENT
" An Act relating to funding for school construction
and major maintenance; relating to school bond debt
reimbursement; and providing for an effective date."
For years, communities across Alaska have faced
significant challenges in maintaining and upgrading
educational facilities to meet the evolving needs of
our students and educators. The health and safety of
our children, as well as the quality of their
educational environment, are foundational to their
success and, by extension, to the future prosperity of
our state. One avenue the state has established to
help with the aforementioned maintenance challenges is
the allowance of school bond debt reimbursement.
Unfortunately, due to serious revenue shortfalls the
legislature placed a moratorium on the issuance of new
school bond debt in 2015 and extended the moratorium
again in 2020.
School bonds are an important tool for districts to
help build new schools and keep older facilities
running. Bonds pay for a variety of construction and
maintenance projects, such as new boilers, roof
replacements, security improvements, and more. School
districts spend a substantial amount on regular
maintenance out of their operating budgets to keep
their buildings in good repair and their students and
staff in safe and healthy schools. In the past there
have also been cases where bonding was used for
purposes that could be described as luxuries and not
critical infrastructure. The goal of this legislation
is to establish trust that the program is only being
used for vetted and critically needed programs and not
new playground equipment or school concession stands
as has been used in the past.
SB 158 amends existing statutes to enhance the
eligibility criteria for grants and bond debt
reimbursement. This includes a more structured
approach to planning ensuring that projects are not
only necessary but are also executed with foresight
and fiscal responsibility. Furthermore, the
modifications proposed in SB 158 to the criteria for
bond debt reimbursement are designed to prioritize the
most critical projects while encouraging
municipalities to engage in thorough planning and
maintenance practices. This ensures that the support
provided by the state is both effective and equitable,
maximizing the impact of public funds on our
educational environment.
SENATOR MYERS added that SB 158 limits school bond debt
eligibility to a district's number one priority on Department of
Education and Early Development's (DEED) school construction
list and or the top two projects on DEED's major maintenance
list for each district. If a district has a major maintenance
project that is among the top twenty major maintenance projects
statewide, it is also eligible for school bond debt
reimbursement. The hope is that these changes will maximize
returns on investments and makes the reimbursement program more
sustainable over the long-term.
3:35:11 PM
DAWSON MANN, Staff, Senator Robert Myers, Alaska State
Legislature, Juneau, Alaska, offered the sectional analysis for
SB 158:
[Original punctuation provided.]
SB 158 v. B Sectional Analysis
SCHOOL GRANTS AND BOND DEBT REIMBURSEMENT
" An Act relating to funding for school construction
and major maintenance; relating to school bond debt
reimbursement; and providing for an effective date."
Section 1: Page 1, Lines 4-14, Page 2, Lines 1-21
This section moves the deadline for districts to
submit their six-year capital improvement plan from
September 1 to July 1 to align with the start of the
fiscal year and allow the department more time to
review applications.
Section 2: Page 2, Lines 22-31, Page 3, Lines 1-7
This section directs the bond reimbursement and grant
review committee to only review and approve one
project on DEED's school construction list and/or the
top two projects on DEED's major maintenance list for
each district. If a district has a major maintenance
project that is among the top 20 major maintenance
projects statewide it is also eligible for school bond
debt reimbursement.
Section 3: Page 3, Lines 7-21
This section outlines that the commissioner may not
approve a school bond debt reimbursement project
unless they meet the same standards outlined in
section 2.
Section 4: Page 3, Lines 22-31, Page 4, Lines 1-6
This section outlines that the commissioner may not
allocate funds to a municipality for a school bond
debt reimbursement project unless they meet the same
standards outlined in section 2.
Section 5: Page 4, Line 7
Repeals the school bond debt reimbursement moratorium
in alignment with implementation of this bill.
Section 6: Page 4, Lines 8-15
Amends the uncodified law outlining the applicability
of the amended sections of this act after the
conclusion of the school bond debt reimbursement
moratorium.
Section 7: Page 4, Line 16
Establishes an effective date of July 1, 2025.
3:37:08 PM
SENATOR KIEHL stated that the moratorium had shifted the state's
responsibility to maintain public schools significantly onto
local taxpayers. He said one of the communities he represents
spends over a million dollars annually, or more, in local taxes
on large-scale major maintenance projects with no bond debt
reimbursement. He mentioned another community in a similar
situation with no bond debt reimbursement. He requested
clarification on how the proposed structure would impact
districts unable to issue bonds compared to those where
municipalities could bond.
3:38:25 PM
SENATOR MYERS replied that SB 158 would not affect districts
outside municipalities, Regional Educational Attendance Areas
(REAAs), as those districts are not able to bond. He stated that
SB 158 aims to help districts that can bond by encouraging them
to prioritize projects. He noted that if the state offered
unlimited school bond debt reimbursement, it could lead to
districts delaying maintenance in favor of waiting for
reimbursement. SB 158 would especially support smaller districts
outside major metropolitan areas by assisting them with projects
they cannot afford immediately.
SENATOR MYERS explained that the goal is for the state to
prioritize items at the top of the major maintenance and
construction lists, while bonding would still be available for
less critical projects. SB 158 also incentivizes districts to
maintain facilities using their budgets. SB 158 aims to balance
proactive planning and support for unexpected costs,
particularly for projects in the top twenty, which are often
from smaller districts needing additional state support. SB 158
is designed to shift the state's focus toward assisting these
high-priority projects.
3:41:28 PM
SENATOR KIEHL said that although the sponsor views SB 158 as an
incentive to address rural projects at the top of the list, an
opposing argument is that every dollar allocated to bond debt
reimbursement from state funds directs only 23 cents to the
rural major maintenance fund. This could mean that bond debt
reimbursement might limit the funds available for rural
projects. He asked for the sponsor's thoughts on this
perspective.
3:42:21 PM
SENATOR MYERS deferred to the Department of Education and Early
Development (DEED) to explain the specific fund and its
mechanics. However, he argued that the situation could also be
viewed differently: every dollar used for bond debt is a dollar
that cannot be used for grants, which also come from the same
project lists. He noted that if bonding is not directed towards
the best projects, particularly in larger areas that can afford
it, funds could be better allocated. He cited Fairbanks, which
held bond elections in 2009, 2011, and 2013, resulting in
multiple projects each year rather than the limited number
suggested in SB 158. He added that this was money the state
could have potentially saved and redirected as grants through
major maintenance or school construction lists.
3:43:33 PM
SENATOR GRAY-JACKSON questioned how SB 158, Section 2 would
function, as Anchorage typically seeks bond debt reimbursement
for all projects in a bond package, not just for the top one or
two projects.
3:44:19 PM
SENATOR MYERS outlined the process in a timeline format. He
explained that currently, the deadline to submit plans to the
Department of Education and Early Development (DEED) to get on
the major maintenance or construction list is September 1. Under
SB 158, they propose moving this deadline back to July 1. For
example, if a project is submitted by July 1, 2024, DEED would
create preliminary lists, which should be ready by approximately
November 1 and finalized by February 2025.
SENATOR MYERS acknowledged that the timing might be more
challenging for Anchorage, given that elections are in April,
while in Fairbanks they are in October. He explained that, based
on those finalized lists, the district would choose projects
such as project number 26 or 37and include them in a bond
package. For Fairbanks, this bond package would be finalized by
July 2025 and then placed on the October 2025 ballot. He noted
that for Anchorage, the timeline would be more compressed
because of the April election date, but the same general process
would apply.
SENATOR GRAY-JACKSON said she would like a more in-depth
conversation later.
3:46:09 PM
SENATOR MYERS added that if a district or municipality wants to
bond for more than just the top projects, they are still allowed
to do so, such as including six projects in a bond. However,
only the top couple of projects would be eligible for bond
reimbursement. He explained that on the ballot or in the voter
pamphlet, the cost breakdown would indicate that while there is
a total cost, only part of it would be reduced by bond
reimbursement, and that reduction would apply only to the top
projects, not the entire list.
SENATOR GRAY-JACKSON replied the additional explanation answered
her question.
3:46:51 PM
CHAIR TOBIN questioned whether limiting bonding to only one or
two projects per school district would reduce the resources
going to rural schools, noting that for every dollar put into
school bond debt relief, additional resources are allocated to a
fund for Regional Educational Attendance Area (REAA) schools.
SENATOR MYERS said he would defer the question about the
mechanics of additional funds to the department. He noted that
there are still the major maintenance fund and the school
construction fund, which are where these project lists
originate. He explained that the funds could either go directly
to the REAA fund or be distributed as grants. He added that if
major municipalities are removing their projects from the top
portion of the list through bonding, then more REAA projects
would move up on the list, making it more likely for them to
receive funding through the major maintenance funding process
conducted each year. Regarding the specific REAA grant list, he
deferred that to the department for further clarification.
3:48:23 PM
SENATOR KIEHL clarified that he did not intend to suggest that
anything would eliminate the need for the legislature to
appropriate funds for the major maintenance list for rural
Alaska; the legislature still needs to determine the amount. He
raised an equity issue, noting that he represents a single-site
school district, which will always have a top project whenever a
need arises, meaning SB 158 would not be much of a barrier for
such districts. He pointed out that colleagues represent
districts with multiple facilities and asked if the sponsor was
open to a proportional approach, rather than allocating one
project for a single-site district and one for a multi-site
district.
3:49:12 PM
CHAIR TOBIN commented that Anchorage is 40 percent of public-
school children in Alaska.
SENATOR KIEHL clarified that he was referring to the number of
school buildings.
CHAIR TOBIN quipped that Anchorage would probably still
represent 40 percent.
3:49:22 PM
SENATOR MYERS acknowledged the point that a single-site school
district would always succeed in getting a top project approved.
However, he suggested that these districts also typically have
much smaller capacity to manage their needs independently,
meaning that equity considerations could apply both ways. He
questioned whether it was right for the state to favor smaller
districts simply because they automatically qualify and
suggested that it might indeed be justified because these
districts have a harder time managing larger projects on their
own.
SENATOR MYERS addressed the concern that some districts might
take advantage of this by proposing less urgent projects, like
replacing a cafeteria oven annually. He emphasized that it is
important for districts to be able to address legitimate needs,
such as replacing a leaking roof. He stated his belief that
DEED's process of evaluating and ranking projects would ensure
that the most deserving projects rise to the top, while less
critical ones might not even make it onto the list.
3:51:02 PM
CHAIR TOBIN said this might be a two-part question. She noted
that due to the years of the school bond debt moratorium and
shifts in staffing capacity, the major maintenance and school
construction lists have become quite lean. She explained that
districts are having difficulty inputting all necessary
information and are prioritizing their time differently. She
requested clarification on the applicability language in SB 158,
asking if it would require every school district to reapply and
how it would affect school districts that have not been
applying.
3:51:37 PM
SENATOR MYERS deferred to the department but mentioned that he
was informed there was a possibility smaller districts might
receive additional support. He noted that currently, districts
do not receive assistance with creating bond packages, but they
do get some help from the department for preparing school
construction and major maintenance packages. Therefore, his
understanding was that SB 158 might benefit smaller districts
more. Regarding the question of reapplying, he asked if Chair
Tobin could elaborate further on her question.
3:52:17 PM
CHAIR TOBIN clarified her question, asking if the existing list
would be used under SB 158 or if districts would need to apply
under a new process as part of the regulation writing.
SENATOR MYERS responded that DEED creates a new list every year
and that process is not changing.
3:52:39 PM
CHAIR TOBIN noted that the average age of school buildings in
Alaska is 60 years and said that nearly every school building
roof likely needs replacement at this point. She pointed out
that, as districts address their major maintenance needs, SB 158
is intended to incentivize them, but the current situation is
challenging, with numerous projects needing funding. She
mentioned that Anchorage alone has a bond list of about 20
schools, most of which involve roof replacements. She asked if
there were any concerns with creating and implementing a new
system within the next year and could SB 158 really impact the
ability for districts to potentially get a bunch of
reimbursements and additional dollars they have already put into
the system without relief.
3:53:36 PM
SENATOR MYERS said that this was the goal of SB 158. He
explained that while SB 158 may limit the number of projects a
district can undertake, it aims to ensure that the projects
funded are those most urgently needed. He emphasized that
essential projects, like roof replacements, would naturally rise
to the top of the list, whereas less critical itemssuch as new
playground equipment in his districtshould be lower in
priority. He acknowledged that while playgrounds are important,
roof repairs are more critical. The process established by SB
158 is intended to ensure that the most necessary projects
receive funding first.
3:54:24 PM
SENATOR BJORKMAN paraphrased his understanding, asking for
confirmation. He said that currently there is no availability
for districts to receive school bond debt reimbursement, and the
goal of SB 158 is to introduce some level of reimbursement. He
gave an example of having about 400 projects across the state
with none receiving reimbursement. The intention, he stated, is
to reduce that number so that each district has an opportunity
to receive some school bond debt reimbursement.
3:55:12 PM
SENATOR MYERS stated his belief that was a fair assessment. He
explained that the goal of SB 158 is to ensure that everyone has
an opportunity for bond debt reimbursement and to prevent future
moratoriums from impacting reimbursement. He noted that there
have been at least two moratoriums, including one in the late
1990s, with the current one ending next year. He added that it
was a significant burden on taxpayers in his district when the
state stopped bond debt reimbursement for approximately six
years, and SB 158 is an effort to prevent similar situations in
the future.
3:55:59 PM
SENATOR BJORKMAN asked if a total cap mechanism had been
considered for the annual statewide projects eligible for school
bond debt reimbursement.
3:56:14 PM
SENATOR MYERS stated that he had not considered a total cap
mechanism but was open to discussing it. He expressed concern
that funding needs vary greatly year to year, making a fixed cap
potentially problematic. He explained that a strict limit, like
$100 million, could result in denying necessary projects from
smaller districts while less critical projects might receive
leftover funds. He acknowledged the value of the concept but
questioned whether a hard cap was the best solution.
3:57:30 PM
CHAIR TOBIN invited the department to speak to fiscal notes.
3:58:10 PM
LORI WEED, Manager, School Finance and Facilities, Department of
Education and Early Development (DEED), Juneau, Alaska,
introduced herself.
3:58:17 PM
KAREN MORRISON, Director, School Finance and Facilities,
Department of Education and Early Development (DEED), Juneau,
Alaska, Provided the following overviews of SB 158 fiscal note
OMB components 153 and 2737:
Fiscal Note OMB 153
Affected Department: Debt Service
Appropriation: School Debt Reimbursement
Allocation: School Debt Reimbursement
This bill changes the date a school district applies
for a major maintenance or school construction grant
from September 1 to July 1.
The effective date for this legislation is July 1,
2025 (FY2026).
The fiscal impact of this legislation cannot be
determined because of the uncertainty of how many debt
reimbursement applications will be received after July
1, 2025, and the total requested project principal and
bond costs. State repayment of school bond debt
reimbursement projects that are voter-approved after
July 1, 2025, will be requested starting in FY2026.
Fiscal Note OMB 2737
Affected Department: Department of Education and Early
Development
Appropriation: Education Support and Admin Services
Allocation: School Finance and Facilities
This fiscal note includes a one-time cost of $6.0 for
legal fees associated with implementation of the
necessary regulation changes.
The effective date for this legislation is July 1,
2025 (FY2026).
4:00:17 PM
CHAIR TOBIN asked about DEED assisting districts with
applications for the potential grant program. She noted that the
bill sponsor mentioned this support, but she did not see a
related component in the fiscal analysis, unless it is provided
for under "existing capacity."
4:00:37 PM
MS. WEED replied that the School Finance Division and Facilities
section of DEED does assists districts with questions regarding
the grant application and debt programs when there is an active
allocation. She clarified that this support falls under existing
capacities. She added that DEED does not help write grant or
debt applications but provides guidance.
4:01:12 PM
CHAIR TOBIN asked why the department's major maintenance and
construction lists have seen attrition recent years.
4:01:24 PM
MS. WEED responded that it is difficult to determine the exact
reasons for the attrition. She noted that some projects have
come off the list in recent years, and districts might be
redirecting their limited resources elsewhere due to low funding
levels. She suggested that districts may be waiting for an
improvement in the state's fiscal climate but stated that the
department could not provide further insight into the lack of
participation.
4:01:56 PM
SENATOR KIEHL stated that he was considering the issue of
districts with different numbers of schools receiving one or
possibly two projects. He asked if there could be opportunities
to game the system. He observed that the major maintenance list
often includes specific projects like "school X stripped to the
studs and rebuilt" or "school Y roof replacement," while
sometimes projects are bundled, such as improvements at multiple
schools or replacing several roofs. He inquired about the rules
for bundling projects and whether any district can combine
multiple projects.
MS. WEED replied that there is a long history of bundling or
grouping district-wide projects into a single project. She
explained that the department requires districts to demonstrate
cost-effectiveness when grouping projects and sets limitations,
such as ensuring procurement is managed within one contract. If
there are multiple contracts, it would indicate a need for
multiple applications for distinct projects.
4:03:55 PM
SENATOR KIEHL said that a district-wide electrical code
compliance project seems straightforward, with one contract
being efficient to handle all tasks, at least theoretically. He
asked if there is any reason why the same contractor couldn't
handle replacing three roofs and a playground as part of one
project.
4:04:16 PM
MS. WEED replied that the department's review would question
such a request and might split the project or, in the case of a
debt project, engage in dialogue with the district to submit two
separate applications, as was done under the old program. She
added that without a current application process for debt
projects, it is difficult to determine exactly how the
department would handle bundling, especially since limiting the
bundling of unrelated projects is a relatively new stipulation
in the application process.
4:05:08 PM
CHAIR TOBIN stated that she was considering a multi-site school
project, such as in the Bering Strait School District. Instead
of electrical upgrades, she suggested energy retrofits like
updating boiler systems or replacing windows and doors. She
questioned whether a single contract for multiple sites within
one district would be permitted under the current application
process.
MS. WEED replied that it is difficult to address such a
hypothetical situation, as it would depend on the specifics of
the project. She stated that the department would review the
proposal and evaluate the justification for cost-effectiveness.
She noted that in some school districts, the justification is
less clear compared to others.
4:06:19 PM
CHAIR TOBIN opened public testimony on SB 158; finding none, she
closed public testimony.
4:06:40 PM
CHAIR TOBIN held SB 158 in committee.
4:07:02 PM
SENATOR BJORKMAN expressed support for the concept of a "fleet
reduction" approach to school bond debt reimbursement, calling
it a good idea. However, he raised concerns about the lack of
guidelines regarding the total cost of bond debt reimbursement
from year to year, given its variability and the constraints on
revenue. He noted the difficulty in committing to fund new
projects when current obligations are already a struggle. He
suggested considering a cap, setting aside a specific budget
amount for school bond debt reimbursement tied to a percentage
of the Base Student Allocation (BSA) for each district. This, he
explained, would provide consistency for both the state and
districts to plan around available funds, while the restrictions
in the bill could still apply within this model.
4:09:16 PM
SENATOR MYERS stated that he was open to considering ideas like
Senator Bjorkman's suggestion, finding it interesting. He
mentioned trying to visualize how such a plan would function
over the 20-year life of a bond and how it would adapt from year
to year. He acknowledged the challenge that state revenue and
needs fluctuate independently and often do not align. He
expressed interest in hearing more about how this concept could
be developed further and how it might work in conjunction with
the current framework under SB 158.
4:10:21 PM
At ease
SB 221-CPR CURRICULUM
4:11:00 PM
CHAIR TOBIN reconvened the meeting and announced the
consideration of SENATE BILL NO. 221 "An Act relating to
cardiopulmonary resuscitation education in public schools;
relating to the duties of the Department of Education and Early
Development; and providing for an effective date."
4:11:33 PM
SENATOR ELVI GRAY-JACKSON, District G, Alaska State Legislature,
Juneau, Alaska, speaking as sponsor of SB 221 provided the
following sponsor statement:
[Original punctuation provided.]
Sponsor Statement
Senate Bill 221
CPR CURRICULUM
Sudden Cardiac Arrest is a leading cause of death in
the USbut bystander CPR can double or triple the
survival rate.
Senate Bill 221 seeks to enhance the quality of health
education within our state's public school system.
This focuses on equipping our students with the
knowledge and skills necessary to increase the number
of CPR-trained bystanders.
By enacting this legislation, we prioritize the health
and well-being of our youth, empowering them with the
knowledge and skills to make informed decisions and
respond effectively in emergency situations,
potentially saving lives within their communities.
By integrating CPR education into the school
curriculum, we are promoting a culture of preparedness
and responsiveness to emergencies.
Requiring schools to teach CPR ensures that all
students, regardless of socioeconomic status or
geographic location, have access to this vital life-
saving skill.
4:13:19 PM
LUMA DIAZ, Staff, Senator Elvi Gray-Jackson, Alaska State
Legislature, Juneau, Alaska, gave a presentation on SB 221 to
discuss what the bill does. She moved to slide 2 and discussed
the following:
What is CPR? Importance of Early CPR
• Cardiopulmonary Resuscitation is a first aid
technique to help people who suffer a cardiac
arrest (their heart stops beating).
• It involves doing chest compressions.
• Aids in the circulation of oxygenated blood
around the body to maintain the brain and vital
organs until advance medical help arrives.
• If performed immediately, CPR can double or
triple a victim's chances of survival.
4:14:08 PM
MS. DIAZ moved to slide 3 and provided background on other
states that have passed bills similar to SB 221:
[Original punctuation provided.]
A little background
• Currently 40 states have a bill that requires
students to have CPR training before graduating high
school.
• Alabama passed a similar bill in 1984.
• Florida was the last state to adopt a similar bill
in 2021.
4:14:28 PM
MS. DIAZ moved to slide 4:
[Original punctuation provided.]
TRAINED STUDENTS SAVE LIVES
• Sudden Cardiac Arrest is a leading cause of death in the
USbut bystander CPR can double or triple the survival
rate.
• Training students in CPR requires minimal investment in
time and cost. According to the latest science, trainees
can achieve acceptable levels of CPR skills proficiency in
30 minutes or less.
• Pierson High School in Sag Harbor, NY began its CPR program
in 1994. Amazingly, at least 16 lives have been saved so
far because these students used their CPR skills in the
real world!
4:15:09 PM
MS. DIAZ moved to slide 5:
[Original punctuation provided.]
What does SB 221 do?
• It will require schools to develop and implement
curricula to instruct public school students on
hands-only cardiopulmonary resuscitation (CPR).
• The curricula must :
• Be based on current national, evidence-based
emergency cardiovascular care guidelines for
cardiopulmonary resuscitation.
• Incorporate hands-on practice in addition to
cognitive learning.
• Include instruction in the appropriate use of an AED
(automated external defibrillator), which may be
taught using video or other means if in-person
instruction is not available.
4:16:00 PM
MS. DIAZ provided the following sectional analysis for SB 221:
[Original punctuation provided.]
Sectional Analysis for SB 221
CPR Curriculum
Section 1: Amends AS 14.30.360(a) by deleting
Cardiopulmonary Resuscitation (CPR) from the program
curricula in this section.
Section 2: Amends AS 14.30 by adding a new section,
Sec. 14.30.363 Cardiopulmonary Resuscitation Education
to establish the curricula details and
responsibilities of the Department of Education and
Early Development.
Section 3: Sets an effective date of August 25, 2025.
4:16:51 PM
CHAIR TOBIN asked how many districts already offer CPR training
and whether they follow the proposed legislation. She also
inquired if there is any data on how many districts currently
provide this training in their schools.
4:17:16 PM
SENATOR GRAY-JACKSON stated that while current statute
encourages CPR training, SB 221 would make it a requirement. She
added that she would provide the committee with information on
how many districts teach CPR training to students.
4:17:29 PM
MS. DIAZ stated that many schools already encourage CPR and
similar trainings. She mentioned meeting a teacher in Juneau who
included CPR in a life skills program. However, she emphasized
the importance of having this requirement in statute to ensure
that every school can provide CPR training to all students.
4:18:05 PM
SENATOR KIEHL asked about the structure of the CPR requirement
in SB 221. He noted that while the numbered list [on slide 5]
requires the curriculum to follow current national evidence-
based guidelines, the paragraph specifies hands-only CPR. He
questioned why hands-only CPR is specified, given that the
guidelines changed only 10 to 15 years ago. He suggested it
might be better to align strictly with the best evidence-based
practices, allowing flexibility as guidelines evolve.
4:18:52 PM
SENATOR GRAY-JACKSON deferred the question, asking that Chief
Schrage answer it.
4:19:10 PM
CHAIR TOBIN referred to SB 221, page 2, line 5, which mentions a
person holding a current pulmonary resuscitation instructor
certificate. She asked if this section of the bill allows for
individuals with outside expertise to volunteer their time in
schools.
SENATOR GRAY-JACKSON deferred the question.
4:19:49 PM
MS. DIAZ clarified that the SB 221 allows anyone with a
certified qualification to train students in CPR, which could
include teachers, administrative staff, or certified volunteers.
She mentioned being in contact with fire department personnel,
paramedics, and Emergency Medical Services (EMS), who have
previously volunteered their time to teach hands-only CPR in
schools. She emphasized that the intent of SB 221 is to ensure
that anyone trained in CPR can provide this training to
students.
4:20:55 PM
CHAIR TOBIN announced invited testimony for SB 221.
4:21:15 PM
DOUGLAS SCHRAGE, Chief, Anchorage Fire Department, Anchorage,
Alaska, stated that he was present to provide information and
express strong support for SB 221, emphasizing the goal of
improving the survivability of sudden cardiac arrest. He
highlighted that sudden cardiac arrest is often a survivable
condition and noted that approximately 1,100 Alaskans die each
year from heart disease, with many deaths preventable through
early Cardiopulmonary Resuscitation (CPR). He explained that
hands-only CPR maintains oxygen flow to vital organs until
Emergency Medical Services (EMS) arrives and is most effective
when initiated immediately by a bystander.
4:22:11 PM
MR. SCHRAGE addressed questions about hands-only CPR, stating
that it is supported by scientific evidence, particularly in
situations where EMS response is within 15 minutes. He noted
that hands-only CPR is often more effective because people are
more willing to perform it and it better circulates oxygen
without the interruptions caused by mouth-to-mouth. He
acknowledged that for longer periods, additional oxygen would
eventually be needed but emphasized the effectiveness of hands-
only CPR in the critical early minutes.
MR. SCHRAGE stressed that improving survival from cardiac arrest
is a community-wide effort, not just the responsibility of
emergency services. He pointed out that the best emergency
systems still require time to arrive, while permanent brain
damage can occur within four minutes of a cardiac event. He
called for more community members to be trained in CPR and for
more automated external defibrillators (AEDs) to be available in
public spaces.
4:24:15 PM
MR. SCHRAGE argued that SB 221 could significantly improve
survival rates in Alaskan communities by equipping youth with
life-saving skills. He noted that current public education
efforts are insufficient, while hands-only CPR training is
straightforward, cost-effective, and can be implemented with
minimal resources. He provided an example of successfully
teaching CPR to a group of 40 people in 20 minutes. He added
that while certification through the American Heart Association
or American Red Cross is desirable, it is not required under SB
221. He concluded by urging support for SB 221, citing its
profound potential impact relative to its modest investment.
4:25:44 PM
CHAIR TOBIN noted that many young students might babysit or care
for younger siblings. She asked whether the 20-minute CPR
training given to Rotary members included infant CPR and whether
this type of training might also be available to students in
schools.
4:26:06 PM
MR. SCHRAGE responded that he did not include infant
Cardiopulmonary Resuscitation (CPR) in the training. He
explained that infant CPR requires a different, more specialized
skill set, which is very valuable for people in environments
with infants and children, and he recommended certification for
those scenarios. However, he emphasized that the main focus is
on addressing sudden cardiac arrest in adults, where the
greatest number of lives can be saved. He noted that while
cardiac arrest in infants does occur, it is relatively rare, and
the strategy is to train as many people as possible to perform
CPR on adults.
4:27:43 PM
JAMIE MORGAN, Senior Region Lead, State Government Relations,
American Heart Association, Dallas, Texas, stated that each year
more than 350,000 people experience cardiac arrest outside of a
hospital, with only one in ten surviving due to receiving timely
Cardiopulmonary Resuscitation (CPR). She noted that in 2008, the
American Heart Association released a scientific advisory
promoting hands-only CPR as the standard response for adult
sudden cardiac arrest. She explained that cardiac arrest is
caused by an electrical malfunction in the heart, unlike a heart
attack, and nearly 90 percent of those who experience it outside
of a hospital do not survive.
MS. MORGAN emphasized the importance of training students in
hands-only CPR to improve survival rates, noting that 70 percent
of out-of-hospital cardiac arrests happen at home. Early
training could foster a culture of action and improve survival
rates. She explained that hands-only CPR instruction can be
delivered within a single class period, using resources such as
sample curricula, first aid e-books, streaming videos, and
mannequins for practice.
4:29:56 PM
MS. MORGAN shared a story highlighting the importance of
bystander CPR, involving J.R. Lewis of KTVF in Fairbanks, whose
15-year-old son suffered a cardiac arrest but survived because
bystanders knew CPR. This experience led Lewis to raise
awareness about CPR, which he promotes in his newscasts. She
also noted that since 2018, more than 40 states have passed laws
requiring CPR training before high school graduation, while
Alaska remains among the few without such a requirement.
MS. MORGAN urged support for SB 221, stating that teaching
students hands-only CPR could save thousands of lives by
equipping communities with lifesavers who can provide immediate
assistance until first responders arrive. She emphasized that
now is the time to act, with the American Heart Association
encouraging support for SB 221.
4:31:16 PM
KELLY MANNING, Deputy Director, Innovation and Education
Excellence, Department of Education and Early Development
(DEED), Juneau, Alaska, paraphrased DEED's fiscal note for SB
221, OMB component 2796, dated February 29, 2024:
[Original punctuation provided.]
This bill removes cardiopulmonary resuscitation (CPR)
from AS 14.30.360(a) as recommended content for
physical health and personal safety instruction and
adds a new section AS 14.30.363 that requires CPR be
provided in public schools using curricula developed
by the Department of Education and Early Development
(DEED) at grade levels determined by DEED. This fiscal
note assumes that DEED will create the CPR curriculum
and identify which grade levels are appropriate for
instruction.
This fiscal note contains the following one-time
expenses: 1) $400.0 for a facilitator to convene 20
qualified medical providers with educational expertise
for their participation in the development of a K-12
CPR curriculum, including stipends, travel, and
facilitation fees; 2) $100.0 First Year certification
training for certified trainers (includes cost for a
facilitator and travel for certified trainers); and 3)
$6.0 for legal fees to implement the necessary
regulation changes.
This fiscal note contains the following annual
expenses: 1) $30.0 for printed materials; 2) $10.0 for
supplies (cleaning supplies, gloves, etc. as
identified by the curriculum); 3) $35.0 CPR/AED kits
($55.50 (whole dollars) per kit - which supports 15
students, approximately 635 kits are needed); 4)
$375.0 Annual Curriculum training (2-3 staff per
district, depending on district size, up to 165 per
year this includes stipends, travel, materials and
supplies); 5) $75.0 annual certified trainer
certification training (facilitator, travel for
trainers, materials, and supplies.).
4:34:50 PM
MS. MANNING continued her overview of fiscal note OMB component
2796:
It should be noted, after consultation with the
Division of Risk Management, there is concern
regarding the high liability exposure for DEED
developing the CPR curriculum for Alaskan School
districts. CPR curriculum should be developed and
taught by CPR certified instructors. If CPR is taught
to school students by non-certified parties and
something goes terribly wrong during the course of one
of those students' providing CPR, the school district,
or DEED, may be held liable for negligent and improper
instruction.
This fiscal note contains the following bi-annual
expenses: 1) $150.00 for a facilitator to convene 15
qualified medical providers with educational expertise
for their participation in a review of curriculum
against CDC guidelines every two years, including
stipends and facilitation fees.
(Can be conducted virtually)
4:35:59 PM
SENATOR KIEHL stated that he understood Ms. Manning was not part
of Risk Management but asked if she could clarify their
perspective on the potential liability. He noted that this
situation seems to align with the definition of discretionary
function immunity for a sovereign and inquired what possible
liabilities might be involved.
4:36:17 PM
MS. MANNING explained that Risk Management highlighted concerns
related to the department developing medical instruction. As
noted in the fiscal note, the potential liability stems not from
the inherent nature of CPR instruction itself, but from the
department developing a unique curriculum. The concern is that
if any issues arose with the department-developed curriculum,
liability could be a factor. She noted that existing curricula,
which have already undergone extensive vetting processes, might
mitigate such concerns better than a newly developed one. She
added that this was not her area of expertise.
4:37:03 PM
SENATOR KIEHL expressed skepticism about the liability concern,
noting that the State of Alaska regularly develops curricula and
standards across various domains. He pointed out that the
department also establishes standards for building safety,
despite the existence of codes, and could provide numerous
similar examples. He argued that this situation falls under
discretionary function immunity as defined by the Federal Tort
Claims Act and Alaska Supreme Court [Tort Claims Act]
4:37:37 PM
SENATOR GRAY-JACKSON thanked Senator Kiehl for his knowledge and
stated her staff would share who will develop the curriculum.
4:38:11 PM
MS. DIAZ stated Senator Gray-Jackson's office was in contact
with DEED regarding the fiscal note. She said there are many
fire departments, EMS, and paramedics, ready to volunteer and
eager to collaborate in developing the curriculum. This means
that the responsibility for creating the curriculum would not
fall entirely on the department. She emphasized that there are
already numerous resources available for building the
curriculum, which should be straightforward since SB 221 focuses
only on hands-only CPR. She mentioned a meeting with DEED and
expressed hope in finding ways to adjust the fiscal note to
reflect potential cost savings.
4:39:09 PM
SENATOR BJORKMAN inquired how educators or school personnel
would put SB 221 into practice and what it would look like in a
school environment.
4:39:41 PM
MS. MANNING replied that SB 221, as structured, leaves the
implementation largely at the discretion of each district. The
department is tasked with identifying the grades where CPR
training will occur and setting standards. If the curriculum
development changes, the department would adjust accordingly,
but districts would retain autonomy in deciding how to implement
it. She noted that districts have various options for employing
CPR training, and some already do so. The department would
provide support and technical assistance to help districts
explore different approaches, recognizing that there are
multiple ways to incorporate CPR training effectively.
4:41:02 PM
SENATOR BJORKMAN expressed appreciation for the potential range
and variety in implementation approaches. He referenced Chief
Schrage's comment that it took only 30 minutes to teach CPR to
the Rotary Club. However, he noted that the fiscal note, which
involves convening large groups, implies that the Department of
Education and Early Development (DEED) has a more expansive
vision for this program. He asked specifically what DEED
envisions teachers will be instructing students regarding CPR.
4:41:44 PM
MS. MANNING explained that the fiscal note is based on the
language in SB 221, Section 2, which states that the department
shall develop the curriculum. If the language changes, as
Senator Gray-Jackson suggested, the department would reconsider
its approach to the curriculum. The fiscal note reflects the
requirement for DEED to develop the curriculum, which accounts
for much of the projected cost. If DEED is not responsible for
developing it, a different approach could be adopted.
She stated that if DEED develops the curriculum, it will need to
be created effectively according to national standards for CPR
instruction, which drives the majority of the expenses.
Additionally, DEED would need to train individuals on how to use
the new curriculum, which is what the fiscal note is focused on.
Once districts are trained, DEED would prepare a certified
facilitator who could then meet district needs according to the
curriculum developed by the group of experts.
4:42:54 PM
SENATOR GRAY-JACKSON commented that she would have SB 221
amended once it is determined who will be responsible for
developing the curriculum if it is not the department.
4:43:23 PM
SENATOR TOBIN opened public testimony on SB 221.
4:43:39 PM
JAMES WHITE, representing self, Juneau, Alaska, testified in
support of SB 221. He shared his experiences teaching
Cardiopulmonary Resuscitation (CPR) to students and emphasized
the importance of having an educated population ready to respond
to cardiac emergencies. He spoke about losing his father-in-law
to an asthma-induced cardiac arrest in 2018, which taught him
that every second is crucial in such situations. He noted that
70 percent of Americans are still hesitant to perform CPR due to
lack of training and pointed out that for every minute without
chest compressions, a person can lose up to 10 percent of brain
function. Immediate CPR more than doubles survival odds and
greatly reduces the risk of brain damage or lasting harm.
MR. WHITE incorporated the American Heart Association's hands-
only CPR curriculum into the life skills course he was teaching,
and for the past five years, he has used this curriculum to
teach students how to respond to cardiac arrest by performing
CPR and using an Automated External Defibrillator (AED) when
available. He described his experiences as both engaging and
rewarding.
4:45:06 PM
MR. WHITE shared specific success stories, including one in
December 2021 where a student saved his father's life by
performing hands-only CPR after a cardiac arrest. The student
credited his quick and effective response to the training he
received in class just weeks prior. Another similar incident
occurred in February 2023, when a student saved her mother's
life after a cardiac arrest at their Juneau home, again
attributing her successful response to the CPR lessons learned
in class.
4:45:55 PM
MR. WHITE highlighted the value of empowering students with
practical, life-saving skills like CPR, which benefit both the
students and the broader community. He expressed regret that in
December 2023, the life skills course was cut due to lack of
funding, eliminating CPR training opportunities for students in
his district. He urged support for increased Base Student
Allocation (BSA) funding to ensure teachers can continue
providing CPR education in schools, emphasizing that the
decision to empower students to save lives is now in the hands
of the policymakers.
4:46:42 PM
SCOTT WELLMAN, M.D., representing self, Anchorage, Alaska,
testified in support of SB 221 and is the medical director at
Providence Alaska Children's Hospital. He shared a story about a
patient he met last August, a generally healthy and active 15-
year-old from western Alaska. While playing basketball, the
teenager suddenly felt strange and collapsed. A bystander
provided Cardiopulmonary Resuscitation (CPR) until medics
arrived five minutes later and found an unstable heart rhythm. A
defibrillator was used to restore the normal rhythm. The
teenager took some time to recover but ultimately had an
excellent outcome, thanks to the bystander who knew CPR. He
noted that the patient's mother wanted this story shared, and he
emphasized its importance. Although remarkable, he said the
story was not unique, as he has seen other patients with similar
experiences.
4:47:57 PM
DR. WELLMAN noted that while students can potentially save
peers, CPR is more often used to save adults in their homes or
communities, where 70 to 75 percent of cardiac arrests occur. He
highlighted that having someone at home capable of responding to
an emergency can make all the difference. He also mentioned that
CPR has financial benefits, as survivors who receive CPR early
tend to recover faster, leave the hospital sooner, and return to
the workforce. He acknowledged that he did not have the exact
figures but believed this factor was crucial for consideration.
DR. WELLMAN emphasized that CPR is an essential life skill,
expressing happiness at hearing that it was taught in middle
schools earlier. He noted that the benefits extend beyond saving
lives, including building self-confidence among students. Given
that over 40 other states have already implemented CPR training
in schools, he urged that Alaska make CPR training a part of
school curricula across the state.
4:49:23 PM
LINDA IRELAND, D.O., representing self, Anchorage, Alaska,
testified in support of SB 221. She said she is a practicing
cardiologist and president of the Alaska Heart and Vascular
Institute in Anchorage, as well as the current governor of the
Alaska Chapter of the American College of Cardiology, She
emphasized that requiring the Department of Education to
implement CPR education statewide is crucial for student and
community safety. She noted that cardiac arrest can happen
anywhere, with 70 percent of cases occurring at home, and
stressed that knowing CPR can mean the difference between life
and death. Drawing from her 20 years of cardiology experience in
Alaska, she shared that she has seen many instances where
delayed CPR led to severe incapacity or death, cases that could
have been prevented if CPR had been administered immediately.
She argued that educating students is a powerful way to save
lives, as empowering youth with CPR skills will have long-
lasting benefits for individuals and communities. She added that
the resources and training for hands-only CPR are widely
available and cost-effective.
4:50:38 PM
DR. IRELAND also shared her recent partnership with the Boys and
Girls Club, where she has begun teaching hands-only CPR, with
plans to continue these efforts in remote areas of Alaska this
summer, funded by a grant from the American College of
Cardiology. She urged that with the support of SB 221, every
student could graduate with the ability to respond effectively
in an emergency. In conclusion, she encouraged the committee to
pass SB 221, highlighting that over 40 states have already
integrated CPR training into school curricula. She stressed that
advancing this legislation will allow Alaska to join those
states in equipping students to act decisively in emergencies,
thereby saving lives and strengthening communities.
4:51:40 PM
BRIAN WEBB, representing self, Anchorage, Alaska, testified in
support of SB 221. He said he has been an Alaskan EMS professional
since 1978 and educator since 1984. He stressed that delayed EMS
response times and lack of bystander CPR are major challenges,
with each minute of cardiac arrest reducing survival chances by
10 percent. He noted Alaska remains among the few states without
mandatory school CPR training, despite past attempts since 2005.
4:52:25 PM
MR. WEBB emphasized that CPR certification isn't required
gaining skills is key, and effective training can be done in 30
minutes or less using low-cost programs and available
mannequins. He highlighted community support efforts from
Ketchikan, Kodiak, and Prince of Wales Island, and shared a
success story from Juneau where a student saved his father's
life using school CPR training and noted over 15 instances in
the lower forty-eight states where students saved lives. He
urged support for SB 221 to save lives across Alaska.
4:53:51 PM
TYLER BELK, representing self, Anchorage, Alaska, testified in
support of SB 221. He said he is a firefighter paramedic with
the Anchorage Fire Department and Executive Board member of the
International Association of Firefighters Local 1264. He stated
that CPR is a life-saving skill anyone can learn and has
witnessed its impact firsthand through community members
performing CPR before paramedics arrive. He emphasized that SB
221 provides a valuable opportunity to educate young people in
the community in this critical skill. He shared personal
stories, including finding a seven-year-old performing CPR on
their father, underscoring the importance of this training. He
expressed his full support for SB 221 and opined that his union
members also support SB 221.
4:55:41 PM
FORREST KUIPER, representing self, Fairbanks, Alaska, testified
in support of SB 221 and is the President of the Alaska Fire
Chiefs Association. He said he is the president of the Alaska
Fire Chiefs Association and emphasized the importance of
incorporating CPR training into high school curricula statewide.
He noted that Alaska's vast landscape creates unique emergency
response challenges, where seconds can determine life or death,
particularly in remote areas. He highlighted that CPR empowers
individuals to provide life-saving interventions until
professional help arrives. He cited three incidents in the last
60 days in the University Fire Service area where bystander CPR,
combined with early advanced interventions, led to successful
resuscitations. He credited these outcomes to quick bystander
actions. He urged support for SB 221, stressing that integrating
CPR training in schools would empower youth, improve emergency
response across Alaska, and ensure a safer future.
4:58:11 PM
GERALD VOSS, representing self, Juneau, Alaska, testified in
support of SB 221. He expressed strong support for teaching CPR
at a young age, noting that he has used CPR to save lives while
working in the airlines. He questioned why the resources and
expertise of fire departments couldn't be leveraged to train
both teachers and students, potentially reducing costs. He also
asked if defibrillators are available in high schools and
whether teachers would be trained to use them if needed. He
reiterated his support for teaching CPR to children.
4:59:08 PM
CHAIR TOBIN closed public testimony on SB 221.
4:59:18 PM
CHAIR TOBIN held SB 221 in committee.
4:59:49 PM
There being no further business to come before the committee,
Chair Tobin adjourned the Senate Education Standing Committee
meeting at 4:59 p.m.