Children complete a grammar worksheet in Spanish at a dual-language immersion program in a Glendale elementary school.
Credit: Lillian Mongeau/EdSource
California published a guide for how districts should serve English learners seven years ago. It’s called the English Learner Roadmap Policy, and it’s largely seen as groundbreaking.
But many districts still haven’t used that road map to change their practices, advocates say.
“It’s not systemic across the state,” said Shelly Spiegel-Coleman, strategic adviser to Californians Together, a coalition of organizations that advocates for English learners. “You can go to school districts and ask teachers, ‘Have you ever heard of the road map?’ And they look at you like you’re from Mars. They’ve never heard of it.”
Lawmakers are now pushing to fully implement the road map, by passing Assembly Bill 2074, introduced by Assemblymembers Al Muratsuchi, D-Torrance, and David Alvarez, D-Chula Vista. If signed by Gov. Gavin Newsom, the bill will require the California Department of Education to create a state implementation plan for the English Learner Roadmap with goals and a system to monitor whether those goals are met.
The department will have to first convene an advisory committee, made up of district and county offices of education, teachers, parents of English learners and nonprofit organizations with experience implementing the English Learner Roadmap Policy. The department will have to submit the final implementation plan to the Legislature by Nov. 1, 2026, and begin reporting on which districts, county offices of education and charter schools are implementing the plan by Jan. 1, 2027.
A lack of funding changed the scope of the bill. An earlier version would have also created three positions in the state Department of Education to develop, plan and then support districts to implement the English Learner Roadmap Policy. However, those positions were cut from the bill by the Senate Appropriations Committee due to costs. A separate bill that would have created a grant program to implement the road map, Assembly Bill 2071, failed to pass the Senate Appropriations Committee, because there was no money allocated in the budget.
You can go to school districts and ask teachers, ‘Have you ever heard of the road map?’ And they look at you like you’re from Mars. They’ve never heard of it.
Shelly Spiegel-Coleman, strategic adviser, Californians Together
The California English Learner Roadmap Policy was first approved by the California State Board of Education in 2017 as a guide for school districts, county offices of education and charter schools to better support English learners.
For many, the road map represented a pivotal change in the state’s approach to teaching English learners. It was adopted just months after voters passed Proposition 58 in 2016, which eliminated restrictions on bilingual education put in place by Proposition 227 in 1998. In stark contrast to the English-only policies in place under Proposition 227, the road map emphasizes the importance of bilingual education and bilingualism and of recognizing the assets of students who speak other languages, in addition to emphasizing teaching that “fosters high levels of English proficiency.”
Anya Hurwitz, executive director of SEAL, a nonprofit organization that trains teachers and district leaders and promotes bilingual education, called the English Learner Roadmap a “comprehensive, visionary, research-based policy.”
“It’s aspirational. It’s very much written for a future state, when California can center the student population that is so much at the core of who we are as a state and yet has this history of being treated as an afterthought or a box at the end of a curriculum,” said Hurwitz. “And nonetheless the state needs an implementation plan. Things don’t get done unless we have methodical plans.”
The Legislature has twice created grant programs for districts to get help implementing the English Learner Roadmap Policy. In 2020, the California Department of Education (CDE) awarded $10 million to two grantees, Californians Together and the California Association for Bilingual Education, each of which worked with other organizations, county offices of education and school districts. In 2023, the department awarded another $10 million to four county offices of education, in Sacramento, Los Angeles, San Bernardino and Orange counties.
These programs, however, were optional, and not all districts participated in the training or assistance.
“We feel it’s really necessary for CDE to be very vocal and in the center of stating how important the English Learner Roadmap is, and how important it is to implement,” said Martha Hernandez, executive director of Californians Together. “When CDE says the road map is a priority, it begins to filter down to the districts. But we’re not really hearing that it’s that important from CDE.”
Graciela García-Torres, director of multilingual education for the Sacramento County Office of Education, said the English Learner Roadmap brings her hope, as a former English learner herself and as a parent.
“As a parent, I also see that it supports me in my endeavor to have children that grow up bilingually, knowing their culture and language is just as beautiful and important as English,” García-Torres said.
García-Torres said the Sacramento County Office of Education has worked hard to help districts implement the road map, but a state implementation plan and more funding are needed.
“I’m afraid that without another grant or an implementation plan, it may go back to being pretty words on the page,” García-Torres said.
Debra Duardo, Los Angeles County superintendent of schools, said the English Learner Roadmap has made a big difference in some districts.
“Some of the things I’ve seen changing is the philosophy around English language learners and really moving from this deficit mentality, of ‘these are children who can’t speak English,’ to really celebrating the fact that they’re speaking multiple languages,” said Duardo.
She said having clear goals and requiring districts to report how they’re implementing the plan will be crucial, so that the state can see where districts are struggling and how CDE can help them.
“There are always going to people who feel like this is one more thing that you’re placing on us and it doesn’t come with funding attached to it,” said Duardo. “Districts are struggling. They don’t have their extra pandemic dollars, they didn’t have a very big COLA, and just finding the resources to implement anything can be a challenge.”
Megan Hopkins, professor and chair of UC San Diego’s department of education studies, said many states struggle with implementation of guidance around English learners. She said a statewide plan for implementing the road map is needed, in part because many teachers and administrators don’t think English learner education applies to them.
“English learners are often sort of viewed as separate from, or an add-on, to core instructional programs. I think what happens is people are like, ‘Oh, that’s nice, but it’s not related to what I do over here in math education,’ when in fact it is,” said Hopkins.
Aleyda Barrera-Cruz, executive director for multilingual learner services at the San Mateo-Foster City School District, south of San Francisco, said she has attended professional development sessions on the English Learner Roadmap Policy with EL RISE!, the coalition led by Californians Together, and read through every guidance document they’ve written about the road map.
“Where it gets tricky is sometimes things are written in a way that are not very implementation friendly. They’re written in a very theoretical way like, ‘These are the recommendations,’ so we as districts have to decide what that would look like in our district. There’s a lot of room for interpretation,” Barrera-Cruz said.
She said principals and teachers sometimes interpret the guidelines in different ways at different schools. She would like to see CDE make it very clear how to do things like teaching English language development (teaching English to children who do not know the language), including examples of lesson plans and videos of best practices in the classroom.
“I’m working with a very diverse group of educators. Some have learned this in their teaching credential program; some have not,” Barrera-Cruz said.
Elodia Ortega-Lampkin, superintendent of Woodland Joint Unified School District, near Sacramento, said superintendents and school board members need training to understand why the English Learner Roadmap is needed.
“People watch what you value and the message you send,” Ortega-Lampkin said. “It’s very hard for a principal to do this on their own without the district support. It’s got to come down from the top, including the board.”
She said Woodland Joint Unified required all administrators and teachers to attend training about the English Learner Roadmap. They also have to use the road map when writing their mandatory annual school plans for student achievement.
“It was not an option. It was an expectation. If we have English learners in Woodland and we’re serious about helping them succeed, we need to use a framework that is research-based and provides support for districts. Instead of piecemealing, it’s all in one to help guide those conversations in our schools,” Ortega-Lampkin said.
Before training with the English Learner Roadmap, Ortega-Lampkin said not everyone understood how to teach English language development, often referred to as ELD.
“It was hard to get everyone to buy in and teach ELD. We don’t have that anymore. It’s not a discussion. People just know that ELD needs to happen. I think it’s helped change the mindset and build a better understanding,” Ortega-Lampkin said.
