HOUSE OF REPRESENTATIVES STAFF ANALYSIS
BILL #: CS/HB 611 Civic Literacy Education
SPONSOR(S): Secondary Education & Career Development Subcommittee, Diamond
TIED BILLS: None IDEN./SIM. BILLS: SB 146
REFERENCE ACTION ANALYST STAFF DIRECTOR or
BUDGET/POLICY CHIEF
1) Secondary Education & Career Development 16 Y, 0 N, As CS Bauman Sanchez
Subcommittee
2) Education & Employment Committee 21 Y, 0 N Bauman Hassell
SUMMARY ANALYSIS
To help students evaluate the roles, rights, and responsibilities of United States citizens and identify methods
of active participation in society, government, and the political system, the bill requires the Commissioner of
Education to develop minimum criteria for a civic literacy practicum that may be incorporated into a school’s
curriculum for the high school United States Government course beginning within the 2022-2023 school year.
The bill establishes minimum requirements for a student to complete a civic literacy practicum, including the
activities for student civic engagement and completion of a research paper that reflects upon the student’s
experience and explains the significance and role of the governmental entity.
The hours a student spends outside of classroom instruction in the practicum’s civic engagement activity may
be counted toward the community service requirements of the Florida Bright Futures Scholarship Program.
The bill encourages school districts to integrate practicum activities and hours into requirements for academic
awards.
The bill creates the Citizen Scholar program within the University of South Florida (USF) and headquartered at
the USF St. Petersburg Center for Civic Engagement. Subject to appropriation, the bill requires USF St.
Petersburg to contract with the YMCA to provide students participating in the Youth and Government Program
the opportunity to be designated Citizen Scholars and earn undergraduate credit.
The bill establishes that the Citizen Scholar program must combine academic instruction with the
implementation of concepts learned in the classroom into the local community to improve civic literacy and
expand students’ educational experiences. The program must also provide students with opportunities to
deepen their knowledge of American democracy and improve civil discourse.
This bill may have a fiscal impact that can be absorbed within existing resources, for schools that choose to
incorporate a civic literacy practicum into a school’s curriculum for the high school United States Government
course.
This bill has an effective date of July 1, 2021.
This document does not reflect the intent or official position of the bill sponsor or House of Representatives .
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 FULL ANALYSIS
I. SUBSTANTIVE ANALYSIS
A. EFFECT OF PROPOSED CHANGES:
Civics Education in Florida
Present Situation
The mission of Florida’s K-20 education system is to “allow its students to increase their proficiency by
allowing them the opportunity to expand their knowledge and skills through rigorous and relevant
learning opportunities.”1 Civic literacy and preparing students to become civically engaged and
knowledgeable adults who positively contribute to their communities is a priority of the Florida
education system.2
Secondary Education
Florida law requires each district school board to provide instruction on the history, significance, and
principles of the Declaration of Independence and the Constitution of the United States, flag education,
and civil government.3 The law requires districts to provide a character-development program in
kindergarten through grade 12.4 Each school district must develop or adopt a curriculum for its K-12
character-development program and submit it to the Florida Department of Education (DOE) for
approval.5 The character development curriculum must “stress the qualities of patriotism; responsibility;
citizenship; kindness; respect for authority, life, liberty, and personal property; honesty; charity; self-
control; racial, ethnic, and religious tolerance; and cooperation.”6
A district school board may also adopt rules requiring patriotic programs in schools that encourage
respect for the government of the United States and its national anthem and flag.7 Teachers or
administrators in the schools may read or post historic material such as the Constitution of the United
States, the Bill of Rights, and other foundational materials.8
Currently, Florida’s Next Generation Sunshine State Standards for social studies include civics content
in kindergarten through grade 12.9 For middle grades, a student must successfully complete three
middle school or higher courses in social studies in order to be promoted to high school.10 One of the
three courses must be a civics education course that includes the roles and responsibilities of federal,
state, and local governments; the structures and functions of the legislative, executive, and judicial
branches; and the meaning and significance of documents such as the Articles of Confederation, the
Declaration of Independence, and the Constitution of the United States.11
At the high school level, 24 credits are required for a standard high school diploma.12 Three credits
must be in social studies, including one credit each in United States History and World History; one-half
credit in economics; and one-half credit in United States Government.13 Students in the middle grades
1
Section 1000.03(4), F.S.
2
Section 1000.03(5)(c), F.S.
3
Section 1003.42(2)(a)-(e), F.S.
4
Section 1003.42(2)(s), F.S.
5
Id.
6
Id.
7
Section 1003.44(1), F.S.
8
Section 1003.44(2), F.S.
9
See CPALMS, Browse and Search Standards, http://www.cpalms.org/Public/search/Standard (last visited Feb. 24, 2021) (providing
the Next Generation Sunshine State Standards for each subject area, by grade level).
10
Section 1003.4156(1)(c), F.S.
11
Id.
12
Section 1003.4282(1)(a), F.S.
13
Section 1003.4282(3)(d), F.S.
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 civics course and the high school United States History course must take an end-of-course
assessment14 that constitutes 30 percent of the student’s final course grade.15
Review of Civics Education
To further address civics education in Florida, Governor DeSantis issued Executive Order 19-32 in
January 2019, directing the Commissioner of Education (commissioner) to review Florida’s K-12
academic standards and identify opportunities to prepare high school graduates to be knowledgeable
citizens, particularly in the principles of the United States Constitution.16
Additionally, in 2019, the Legislature established a requirement for the commissioner, in consultation
with specified organizations and stakeholders, to review the state-approved middle grades civics
education course instructional materials and the test specifications for the statewide, standardized
civics end-of-course assessment.17 Recommendations for improvements to the materials and test
specifications were provided to the Governor and Legislature on December 31, 2019.18
The DOE began a review of the statewide civics education course standards on January 1, 2020.19 The
State Board of Education (SBE) is expected to adopt revisions to standards by summer 2021 and the
approval of new course descriptions, with revised standards, is expected by fall 2021.20
Service Learning
To encourage civic engagement, career exploration, and applying classroom curriculum in a student’s
community, the DOE encourages school districts to initiate, adopt, expand, and institutionalize service-
learning programs, activities, and policies in kindergarten through grade 12.21 Service learning refers to
a student-centered, research-based teaching and learning strategy that engages students in
meaningful service activities in their school or communities.22 The service activities are directly tied to
academic curriculum, standards, and course, district, or state assessments.23 The hours a high school
student devotes to course-based service-learning activities may be counted toward meeting the service
work requirements of the Florida Bright Futures Scholarship Program.24
Florida Bright Futures Scholarship Program
The Florida Bright Futures Scholarship Program is a merit-based program that rewards Florida high
school students for their high academic achievement and encourages them to continue their
postsecondary education at eligible Florida institutions.25 The scholarship program consists of the
following awards:
 Florida Academic Scholars;
 Florida Medallion Scholars;
 Florida Gold Seal CAPE Scholars; and
 Florida Gold Seal Vocational Scholars.26
14
Section 1008.22(3)(b), F.S.
15
Section 1003.4156(1)(c), F.S. and s. 1003.4282(3)(d), F.S.
16
Fla. Exec. Order No. 19-32 (Jan. 31, 2019).
17
Section 1003.4156(1)(c), F.S. See also Florida Department of Education, Civics Review, http://www.fldoe.org/civicsreview/ (last
visited Feb. 24, 2021).
18
Memorandum re Committee Substitute for (CS/HB) 807- Civics Education Report (Dec. 31, 2019).
19
Id. See also Florida Department of Education, Civics Review, http://www.fldoe.org/civicsreview/ (last visited Feb. 24, 2021).
20
Florida Department of Education, Civics Review, http://www.fldoe.org/civicsreview/ (last visited Feb. 24, 2021).
21
Section 1003.497(1), F.S.
22
Id.
23
Id.
24
Section 1003.497(3)(b), F.S.
25
Section 1009.53, F.S.
26
Ss. 1009.53(2) and 1009.536, F.S.
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 High school students seeking to qualify for a scholarship, must among other things, meet specified
academic requirements and complete service work during high school.27 Service work requirements for
the scholarship awards include:
 Florida Academic Scholars - 100 service hours;
 Florida Medallion Scholars - 75 service hours;
 Florida Gold Seal CAPE Scholars - 30 service hours; and
 Florida Gold Seal Vocational Scholars - 30 service hours.28
A student must identify a social or civic issue or professional area, develop a plan for personal
involvement in addressing the issue or learning about the area, and through papers or other
presentations, evaluate and reflect upon the experience.29 Service work may include a business or
governmental internship, work for a nonprofit community service organization, or activities on behalf of
a candidate for public office.30
Each district school board and the administrators of a nonpublic school must establish the approved
activities and the process for the documentation of service hours for students.31 The hours must be
documented in writing and signed by the student, the student’s parent or guardian, and a representative
of the organization where the student volunteered.32 If a high school student participates in the Florida
Debate Initiative, the YMCA Youth and Government program, the American Legion Boys or Girls State
programs, or other similar programs approved by the commissioner, the hours count toward the
student’s service work hour requirements.33
YMCA Youth and Government Program
The YMCA34 Youth and Government Program is a national program that engages students in state-
organized, model-government programs.35 Students discuss and debate issues that affect citizens in
their state and propose legislation.36 The Florida YMCA operates the national Youth and Government
Program as the Youth in Government (YIG) Program, which is a yearlong model government and
leadership development process.37 “Senior” 38 student participants, students in grades 9-12, engage in
activities relating to the three branches of government that are designed to prepare students for active
citizenship built on the values of civil debate, statesmanship, and research-based policy solutions.39
The senior student participants’ yearlong program culminates in a trip to the State Capitol where the
students engage in a model government process with students from across the state.40 The YIG
27
Florida Department of Education, Office of Student Financial Assistance, 2020-21 Bright Futures Student Handbook, Chapter 1:
Initial Eligibility Requirements (July 31, 2020), available at
https://www.floridastudentfinancialaidsg.org/PDF/BFHandbookChapter1.pdf.
28
See s. 1009.534(1), F.S.; s. 1009.535(1), F.S.; ss. 1009.536(1)(e) and (2)(b), F.S.
29
Id.
30
Florida Department of Education, Office of Student Financial Assistance, 2020-21 Bright Futures Student Handbook, Chapter 1:
Initial Eligibility Requirements (July 31, 2020), at 4, available at
https://www.floridastudentfinancialaidsg.org/PDF/BFHandbookChapter1.pdf.
31
Id.
32
Id.
33
Section 1003.44(5), F.S.
34
The YMCA is a nonprofit organization that seeks to strengthen communities by empowering young people, improving health and
well-being, and inspiring action in and across communities. YMCA, About Us, https://www.ymca.net/about-us (last visited March 10,
2021).
35
YMCA, Youth and Government, https://www.ymca.net/youthandgovernment (last visited March 10, 2021).
36
Id.
37
Florida YMCA, Youth in Government, https://ymcacf.org/programs/school/yig/ (last visited March 10, 2021).
38
Florida’s YIG program also offers “junior” participants, students in grades 6-8, an opportunity to participate in a version of the
program that focuses solely on the legislative branch of government. Id.
39
Id.
40
Id.
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 program is currently available at the South Orlando YMCA, Dr. Phillips High School, Maitland Middle
School, and Windermere High School.41
In 2018, the Florida legislature funded a pilot program, “The Civics Fellows Program,” administered by
the University of South Florida St. Petersburg (USF St. Petersburg) and the Florida YMCA’s YIG
program.42 The pilot program provided scholarships for Florida high school students to participate in a
yearlong civics education program, which included participating in civic projects, attending city council
and school board meetings, engaging in the YIG State Assembly, and taking part in a Summer Civics
Institute hosted by USF St. Petersburg43 (conducted in person in 2019 and conducted virtually in 2020
due to Covid-19).44 Students who successfully completed the Civics Fellows Program earned up to 6
college credits in leadership and political science at USF St. Petersburg.45
Effect of Proposed Changes
The bill requires the Commissioner of Education to develop minimum criteria for a civic literacy
practicum that may be incorporated into a school’s curriculum for the high school United States
Government course beginning within the 2022-2023 school year. The bill provides that the practicum’s
purpose is to inspire meaningful civic engagement and help students learn how governmental entities,
operating at local, state, and national levels, interact with the public.
The bill requires the practicum to provide students with an opportunity to be civically engaged through
any of the following activities:
 Participation in an unpaid internship at a governmental entity.
 A series of simulations or observations of one or more governmental entities performing their
core functions in relation to the public.
 Learning about the United States citizenship naturalization process and attending a United
States citizenship naturalization oath ceremony.
As part of the practicum, a student must complete a research paper including all of the following:
 Reflection on the student’s experience.
 Explanation of the significance of the governmental entity’s role in the community, state, or
nation.
 Explanation of how the governmental entity is responsive to the public.
The bill provides that the hours a student devotes to an unpaid civic engagement activity in the
practicum, outside of classroom instruction, may count toward meeting the service work requirements
for participation in the Florida Bright Futures Scholarship Program. The bill also encourages school
districts to include and accept civic literacy practicum activities and hours toward requirements for
41
Id.
42
University of South Florida St. Petersburg, Representatives of Florida Legislature Announce New Partnership Between USF St.
Petersburg and the YMCA to Improve Civics Literacy in Florida (July 19, 2018),
https://spcampus.usf.edu/home/2018/07/12/representatives-of-florida-legislature-to-announce-new-partnership-between-usf-st-
petersburg-and-the-ymca-to-improve-civics-literacy-in-florida/.
43