BILL ANALYSIS                                                                                                                                                                                                    Ó



                                                                            



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                                    THIRD READING


          Bill No:  AB 1019
          Author:   Ammiano (D), et al.
          Amended:  8/26/13 in Senate
          Vote:     21

           
           SENATE PUBLIC SAFETY COMMITTEE  :  7-0, 6/11/13
          AYES:  Hancock, Anderson, Block, De León, Knight, Liu, Steinberg

           SENATE APPROPRIATIONS COMMITTEE  :  Senate Rule 28.8
           
           ASSEMBLY FLOOR  :  75-0, 5/9/13 (Consent) - See last page for vote


           SUBJECT  :    State prisons:  correctional education and  
          vocational training

           SOURCE  :     SEIU Local 1000


           DIGEST  :    This bill requires goals for career technical  
          education (CTE) to be set by the Superintendent of Correctional  
          Education, and establishes factors that are required to be  
          considered when establishing a CTE program, as specified. 

           Senate Floor Amendments  of 8/26/13 add coauthors and make minor  
          clarifying changes.

           ANALYSIS  :    

          Existing law:

          1.Requires the Secretary of California Department of Corrections  
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            and Rehabilitation (CDCR) to appoint a Superintendent of  
            Correctional Education, who shall oversee and administer all  
            prison education programs.

          2.Requires the Superintendent of Correctional Education to set  
            both short- and long-term goals for inmate literacy and  
            testing and vocational education programs and to establish  
            priorities for prison academic and vocational education  
            programs.  

          This bill:

          1.Amends existing law to add CTE programs to those programs for  
            which the Superintendent of Correctional Education at CDCR is  
            required to set both short- and long-term goals for inmate  
            literacy and testing, and CTE programs, and requires the  
            Superintendent to establish priorities for academic and CTE  
            programs.

          2.Requires that, consistent with the goals and priorities of  
            CDCR, a CTE program will consider all of the following  
            factors:

             A.   Whether the program aligns with the workforce needs of  
               high-demand sectors of the state and regional economies.

             B.   Whether there is an active job market for the skills  
               being developed where the inmate will likely be released.

             C.   Whether the program increases the number of inmates who  
               obtain a marketable and industry or apprenticeship  
               board-recognized certification, credential, or degree.

             D.   Whether there are formal or informal networks in the  
               field that support finding employment upon release from  
               prison.

             E.   Whether the program will lead to employment in  
               occupations with a livable wage.

          1.Includes the following uncodified intent language, "Given  
            that, as of June 2012, 60.8% of state prison inmates have a  
            medium to high need for academic or career technical programs,  
            and it has been shown that CTE programs are both effective at  

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            reducing recidivism and cost effective to the state, it is the  
            intent of the Legislature in enacting this act that the  
            Department of Corrections and Rehabilitation shall, within its  
            existing resources, set both short- and long-term goals for  
            CTE programs."

           Background
           
          A 2008 report of the Legislative Analyst's Office stated:

               Our analysis indicates that the current set of CDCR  
               education programs reach only a small segment of the inmate  
               population who could benefit from them.  The CDCR now  
               enrolls about 54,000 inmates in education programs for a  
               system with 173,000 inmates, and barely one-half of those -  
               27,000 inmates - are in the core traditional academic and  
               vocational training programs (including those operated by  
               [Prison Industry Authority] PIA) most likely to improve the  
               educational attainment of inmates and thus their  
               employability upon their release on parole to the  
               community.  (Legislative Analyst's Office, From Cellblocks  
               to Classrooms:  Reforming Education to Improve Public  
               Safety [February 2008] p. 11.)

           Prior Legislation
           
          SB 1121 (Hancock, Chapter 761, Statutes of 2012), provides that  
          a credentialed teacher, vice principal, or principal shall  
          provide input relating to the academic or vocational education  
          program placement of an inmate, as specified.

           FISCAL EFFECT  :    Appropriation:  No   Fiscal Com.:  Yes    
          Local:  No

           SUPPORT  :   (Verified  8/27/13)

          SEIU Local 1000 (source) 
          American Civil Liberties Union
          California Attorneys for Criminal Justice
          California Correctional Peace Officers Association
          California Public Defenders Association
          Drug Policy Alliance
          Legal Services for Prisoners with Children


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           OPPOSITION  :    (Verified  8/27/13)

          Taxpayers for Improving Public Safety

           ARGUMENTS IN SUPPORT  :    According to the author, existing law  
          tasks the Superintendent of Correctional Education to only set  
          goals and priorities for literacy and testing programs.  Goals  
          and priorities are not required in law to be set for CTE  
          programs, yet they are integral to the new emphasis on  
          rehabilitation.  This bill requires that as the superintendent  
          sets goals for academic programs, to set goals for CTE programs.

          The purpose of this legislation is to recognize that CDCR  
          emphasize vocational as well as academic education.  Career  
          technical or vocational education has been shown to reduce  
          recidivism.  A study published by the Washington State Institute  
          for Public Policy on a variety of programs found that one of the  
          most successful in reducing recidivism was CTE, reducing  
          recidivism by 9% and resulted in a net savings per participant  
          of $13,700 annually.  Creating goals and priorities for CTE will  
          allow CDRC and the Legislature to have some basis for evaluating  
          the success or failure of these CTE programs.

           ARGUMENTS IN OPPOSITION  :    The Taxpayers for Improving Public  
          Safety writes, "?this legislation is both unnecessary and  
          duplicative of requirements set forth in the 2007 AB900  
          legislation which required (1) the department to determine and  
          implement a system of incentives to increase inmate  
          participation in, and completion of, academic and vocational  
          education, consistent with the inmate's educational needs, and  
          (2) the department to develop and implement a plan to obtain  
          additional rehabilitation and treatment services for prison  
          inmates and parolees.  Since 2007, CDCR has repeatedly set goals  
          and then, because of legislative budget reductions, repeatedly  
          lowered those goals. Today, the majority of inmates on parole  
          cannot meet the 1986 legislative standard of a ninth grade  
          reading ability because of (1) lack of funding; (2) increased  
          violence with a concomitant cancellation of academic and  
          rehabilitation programs; and (3) the inability of an inmate to  
          remain housed in the facility long enough to complete a program  
          due to the high rate of transfer of inmates.  Until legislation  
          is introduced which includes an appropriation to provide inmates  
          (1) with sufficient security to attend and complete a  
          educational and rehabilitation program and (2) vocational,  

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          academic and rehabilitation programs to allow a reduction of  
          recidivism, one more report confirming that more money is needed  
          to meet goals will do little to solve the problem of inmate  
          illiteracy upon parole."  
           

           ASSEMBLY FLOOR  :  75-0, 5/9/13
          AYES:  Achadjian, Alejo, Allen, Ammiano, Atkins, Bigelow, Bloom,  
            Blumenfield, Bocanegra, Bonilla, Bonta, Bradford, Brown,  
            Buchanan, Ian Calderon, Campos, Chau, Chávez, Chesbro, Conway,  
            Cooley, Dahle, Daly, Dickinson, Eggman, Fong, Fox, Frazier,  
            Beth Gaines, Garcia, Gatto, Gomez, Gordon, Gorell, Gray,  
            Grove, Hagman, Hall, Harkey, Roger Hernández, Jones,  
            Jones-Sawyer, Levine, Linder, Lowenthal, Maienschein, Mansoor,  
            Medina, Melendez, Mitchell, Morrell, Mullin, Muratsuchi,  
            Nazarian, Nestande, Olsen, Pan, Patterson, Perea, V. Manuel  
            Pérez, Quirk, Quirk-Silva, Rendon, Salas, Skinner, Stone,  
            Ting, Torres, Wagner, Weber, Wieckowski, Wilk, Williams,  
            Yamada, John A. Pérez
          NO VOTE RECORDED:  Donnelly, Holden, Logue, Waldron, Vacancy


          JG:nl  8/27/13   Senate Floor Analyses 

                           SUPPORT/OPPOSITION:  SEE ABOVE

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