BILL ANALYSIS                                                                                                                                                                                                    Ó






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          |SENATE RULES COMMITTEE            |                       AB 2288|
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                                   THIRD READING 


          Bill No:  AB 2288
          Author:   Burke (D) 
          Introduced:2/18/16  
          Vote:     21 

           SENATE LABOR & IND. REL. COMMITTEE:  3-1, 6/8/16
           AYES:  Mendoza, Leno, Mitchell
           NOES:  Stone
           NO VOTE RECORDED:  Jackson

           SENATE APPROPRIATIONS COMMITTEE:  6-0, 8/1/16
           AYES:  Lara, Beall, Hill, McGuire, Mendoza, Nielsen
           NO VOTE RECORDED:  Bates

           ASSEMBLY FLOOR:  63-12, 5/19/16 - See last page for vote

           SUBJECT:   Apprenticeship programs:  building and construction  
                     trades


          SOURCE:    State Building and Construction Trades Council,  
          AFL-CIO

          DIGEST:   This bill requires the California Workforce  
          Development Board and each local board to ensure that  
          preapprenticeship training in the building and construction  
          trades follows the Multi-Craft Core Curriculum developed by the  
          California Department of Education and that programs and  
          services funded by the federal Workforce Innovation and  
          Opportunity Act of 2014, and directed to apprenticeable  
          occupations in the building and construction trades, include  
          plans to increase the percentage of women in those trades. 









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          ANALYSIS:  


          Existing law:


          1)Establishes the California Workforce Development Board (State  
            Board) with the responsibility of assisting the Governor in  
            the development, oversight, and continuous improvement of  
            California's workforce investment system. (Unemployment  
            Insurance Code §14000 et al)


          2)Requires that the State Board and each local workforce  
            development board ensure that programs and services funded by  
            the federal Workforce Innovation and Opportunity Act of 2014  
            (WIOA) and directed to apprenticeable occupations are  
            conducted in coordination with apprenticeship programs  
            approved by the Division of Apprenticeship Standards, as  
            specified. (Unemployment Insurance Code §14230)


          3)Requires the State Board and each local workforce development  
            board to develop a policy of fostering collaboration between  
            community colleges and approved apprenticeship programs in the  
            geographic area.


          This bill:


          1)Requires the State Board and each local board to ensure, to  
            the maximum extent feasible, that programs and services funded  
            by WIOA and directed to apprenticeable occupations in the  
            building and construction trades, including pre-apprenticeship  
            training, include outreach and retention plans to increase the  
            percentage of women in the building and construction trades.


          2)Requires the State Board and each local board to also ensure,  
            to the maximum extent feasible, that pre-apprenticeship  
            training in the building and construction trades follows the  
            Multi-Craft Core Curriculum developed by the California  







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            Department of Education for its pilot project with California  
            Partnership Academies. 


          Background


          The Division of Apprenticeship Standards (DAS), within the  
          Department of Industrial Relations, administers the state's  
          apprenticeship laws and enforces apprenticeship standards for  
          wages, hours, working conditions and the specific skills  
          required for state certification as a journey person in an  
          apprenticeable occupation. In general, apprenticeship programs  
          provide instruction that combines a formal course of in-class  
          instruction with practical "on-the-job" training. 


          Pre-apprenticeship services and programs are designed to prepare  
          individuals to enter and succeed in registered apprenticeship  
          programs. These programs have a documented partnership with at  
          least one registered apprenticeship program sponsor and  
          together, they expand the participant's career pathway  
          opportunities with industry-based training coupled with  
          classroom instruction.


          Women in the Trades


          Historically, a construction career has not been a traditional  
          choice for women when deciding what type of career to pursue  
          after high school, and exposure to different career options like  
          those in the building and construction trades can be critical in  
          opening the door to new choices and solid, living wage jobs.  
          According to the sponsor of this bill, the State Building and  
          Construction Trades Council, recruiting women into  
          non-traditional careers like the construction trades has been a  
          full time effort. They note that the state and its unions invest  
          a great amount of time and resources working on ways to  
          encourage women to consider a career in construction. The  
          sponsor founded and have held the "Women in the Building Trades  
          Conference" for over 14 years attracting over 1,000 women each  
          year from all over the nation and other countries. 








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          According to the DAS 2014 annual report, California continues to  
          lead the nation with 53,366 apprentices registered in over 540  
          programs recognized by DAS. Minorities numbered 30,365, or 56.9%  
          of all apprentices. Active women apprentices numbered 2,852, or  
          5.3% of all active apprentices. The author and sponsor believe  
          this bill is necessary to help promote women in the trades by  
          requiring that programs and services funded by WIOA and directed  
          to apprenticeable occupations in the building and construction  
          trades include plans to increase the percentage of women in  
          those trades.


          Multi-Craft Core Curriculum


          According to information provided by the sponsor, the  
          Multi-Craft Core Curriculum (MC3) was developed in 2007 by the  
          leaders of National Building Trades to identify common elements  
          in all building and construction trades' apprenticeship programs  
          and combine them into one curriculum encompassing 120 hours of  
          training. Among other things, the curriculum includes general  
          orientation to apprenticeships, cardiopulmonary resuscitation  
          and first aid, an Occupational Safety and Health Administration  
          10-hour certification course, mathematics, and the history of  
          the construction industry and the heritage of the American  
          worker. It also exposes students to the tools of the various  
          trades, the safe handling of those tools, the structure of the  
          construction industry, the construction process, and an  
          orientation to apprenticeship itself.


          Currently, as part of State Superintendent of Public Instruction  
          Tom Torlakson's Career Readiness Campaign, nine California  
          Partnership Academy high schools from across the state have  
          implemented this curriculum to ensure students are engaged in  
          their educational experience and to prepare them for a  
          successful career outside of the classroom.  


           NOTE:  See Senate Labor and Industrial Relations Committee  
                 analysis for further information. 









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






          According to the Senate Appropriations Committee:

           The California Workforce Investment Board (CWIB) indicates  
            that its costs to implement this bill would be up to $117,000  
            annually, depending upon the extent to which it would be  
            required to review plans for compliance. It is likely that the  
            State Board and local workforce investment boards (WIBs) would  
            both condition funding and stipulate the requirements that  
            would need to be met when applicants seek resources directed  
            to apprenticeable occupations. 

           This bill would create a reimbursable local mandate, resulting  
            from its imposing a new duty on local WIBs. The magnitude of  
            the mandate is unknown, but likely minor.  


          SUPPORT:   (Verified8/3/16)


          State Building and Construction Trades Council, AFL-CIO (source)
          9 to 5 California
          Alliance of Californians for Community Empowerment
          American Association of University Women
          California Asset Building Coalition
          California Child Care Resource and Referral Network
          California Domestic Workers Coalition
          California Employment Lawyers Association
          California Latinas for Reproductive Justice
          California Partnership
          California State Association of Electrical Workers
          California State Pipe Trades Council
          California Women's Law Center
          California Work and Family Coalition
          Child Care Law Center







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          Courage Campaign
          Equal Rights Advocates
          International Union of Elevator Constructors
          Legal Aid Society Employment Law Center
          Mujeres Unidas y Activas
          National Council of Jewish Women
          Parent Voices
          Raising California Together
          The Center for Popular Democracy
          The Opportunity Institute
          The Women's Foundation of California
          Tradeswomen, Inc.
          Voices for Progress
          Western Center on Law and Poverty
          Western States Council of Sheet Metal Workers


          OPPOSITION:   (Verified8/3/16)


          Air Conditioning Trade Association  
          American Fire Sprinkler Association 
          Associated Builders and Contractors - San Diego Chapter  
          Associated Builders and Contractors of California 
          Plumbing-Heating-Cooling Contractors Association of California
          Western Electrical Contractors Association  


          ARGUMENTS IN SUPPORT:     Proponents argue that this bill will  
          expand on current efforts to support women in the trades by  
          requiring that pre-apprenticeship programs funded by WIOA  
          dollars create a plan for outreach, recruitment and retention of  
          women seeking a career in the building trades. In addition,  
          because pre-apprenticeship is a useful tool to prepare  
          prospective workers for an apprenticeship program, this bill  
          creates uniform rules for success in pre-apprenticeship  
          training. They argue that the two parts of this bill each in  
          different ways help ensure that the building and construction  
          trades are as representative of society as possible.


          ARGUMENTS IN OPPOSITION:     Opposition to this bill stems from  
          the inclusion of the provision requiring the use of the MC3  
          which, they argue, essentially mandates that all apprenticeship  







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          programs use a very outdated union created curriculum for  
          pre-apprenticeship purposes, and one that can only be delivered  
          by a local Building Trades Council. They argue that there are  
          other pre-apprentice training programs and other nationally  
          recognized standards that need to be given equal treatment as  
          basis for program curricula. 

          According to the opponents, the federal Department of Labor has  
          approved curricula currently used by the national pre  
          apprenticeship program, YouthBuild, which includes the AFLCIO  
          Building Construction Trades Multi-Craft Core Curriculum, the  
          Home Builders Institute's PACT curriculum, and the National  
          Center for Construction Education and Research curriculum. They  
          argue that all programs are able to choose from one of these  
          curriculums and they believe that California should mirror this  
          approach and not exclude opportunities for youth looking for a  
          good career in construction trades by using only one  
          union-centric based curriculum.

          ASSEMBLY FLOOR:  63-12, 5/19/16
          AYES:  Achadjian, Alejo, Arambula, Atkins, Baker, Bloom,  
            Bonilla, Bonta, Brough, Brown, Burke, Calderon, Campos, Chau,  
            Chávez, Chiu, Chu, Cooley, Cooper, Dababneh, Daly, Dodd,  
            Eggman, Frazier, Gallagher, Cristina Garcia, Eduardo Garcia,  
            Gatto, Gipson, Gomez, Gonzalez, Gordon, Gray, Hadley, Roger  
            Hernández, Holden, Irwin, Jones-Sawyer, Levine, Linder, Lopez,  
            Low, Maienschein, Mayes, Medina, Mullin, Nazarian, O'Donnell,  
            Olsen, Quirk, Ridley-Thomas, Rodriguez, Salas, Santiago,  
            Steinorth, Mark Stone, Thurmond, Ting, Waldron, Weber, Wilk,  
            Wood, Rendon
          NOES:  Travis Allen, Bigelow, Dahle, Beth Gaines, Grove, Harper,  
            Jones, Lackey, Melendez, Obernolte, Patterson, Wagner
          NO VOTE RECORDED:  Chang, Kim, Mathis, McCarty, Williams

          Prepared by:Alma Perez-Schwab / L. & I.R. / (916) 651-1556
          8/4/16 14:25:23


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