BILL ANALYSIS Ó
SENATE COMMITTEE ON EDUCATION
Senator Carol Liu, Chair
2015 - 2016 Regular
Bill No: SB 148
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|Author: |McGuire and Leyva |
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|Version: |January 29, 2015 Hearing |
| |Date: March 25, 2015 |
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|Urgency: |No |Fiscal: |Yes |
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|Consultant:|Olgalilia Ramirez |
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Subject: Career technical education: Career and Job Skills
Education Act
SUMMARY
This bill establishes the Career and Job Skills Education Act, a
grant program administered by the Superintendent of Public
Instruction (SPI), for the purpose of developing and enhancing
career technical education (CTE) courses within K-12 school
districts and appropriates $600 million for this purpose.
BACKGROUND
Existing law establishes the following CTE programs for public
schools:
1. Regional Occupational Centers and Programs. Existing
law establishes various CTE programs for public schools
including Regional Occupational Centers and Programs
(ROCPs) that allow students from multiple schools or
districts to participate in career technical training
programs regardless of the geographical location of their
residence in a county or region. Existing law authorizes
the following types of ROCPs operational models:
(Education Code § 52300 et. seq.)
A. County ROCP: Existing law authorizes county
SPIs, with the consent of the State Board of Education
(SBE) to establish and maintain a ROCP to provide
education and training in career technical courses.
SB 148 (McGuire) Page 2
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(Education Code § 52301(a))
B. Joint Powers Agency ROCP: Existing law
authorizes two or more school districts to form a
joint powers agency (JPA) for the purpose of
establishing and maintaining a ROCP for students who
are enrolled in those districts. (Education Code §
52301(a)(2))
C. Single District ROCP: Existing law authorizes
certain very large districts, who do not wish to be
part of a county ROCP, to apply to the SBE through
their county SPI for permission to establish and
maintain a ROCP for students enrolled in the district.
The county SPI may supervise the establishment of the
ROCP. (Education Code § 52301(b))
2. Partnership Academies. The Partnership Academy model is
a three-year program, for grades ten through twelve,
structured as a school-within-a-school and incorporates (1)
rigorous integrated academics with a career focus; (2)
business partnerships that provide support through
curriculum resources, classroom speakers, field trips,
mentors, and internships; and (3) teachers who work as a
team in preparing students for careers and postsecondary
education. (Education Code § 54690 et. seq.)
3. Specialized Secondary Programs. A specialized secondary
program is a four-year grant program that provides
opportunities for students to obtain advanced instruction,
in addition to core course work, and skills in technology
appropriate to the curriculum. Comprehensive high schools
may use the grant funds for programs that provide students
with advanced learning opportunities in a variety of
subjects, including but not limited to English-language
arts, mathematics, science, history and social science,
foreign language, and the visual performing arts. The
acquisition of technology skills and the use of technology
as a tool for instruction and learning are also emphasized
in these programs. Frequently, specialized secondary
programs are established as a smaller learning community or
a school-within-a-school. (Education Code § 58800 et.
seq.)
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4. Agricultural Career Technical Education Incentive
Program. The Agricultural Career Technical Education
Incentive program provides local educational agencies
(LEAs) with funds to improve the quality of their
agricultural vocational education programs. The goal is to
maintain a high-quality, comprehensive agricultural
vocational program in California's public school system to
ensure a constant source of employable, trained, and
skilled individuals.
(Education Code § 52460)
5. Career Technical Education Pathways Program. Provided
one-time funding for competitive grants to improve the
linkages between career technical education (CTE) programs
at schools, community colleges, and local businesses. This
program, which sunsets June 30, 2015, also provides support
for linked learning, which support small learning cohorts
that integrate a career theme with academic education.
(Education Code § 88530)
6. Career Pathways Trust. Provided one-time funding in
2014-15 for competitive grants similar to the CTE pathways
program. These funds are available for expenditure through
2015-16. Grants are available for K-14 career pathways
programs. (Education Code § 53010)
ANALYSIS
This bill:
1. Establishes the Career and Job Skills Education Act, a
grant program to be administered by the Superintendent of
Public Instruction (SPI), for the purposes of developing
and enhancing CTE courses within K-12 school districts.
2. Authorizes, that the governing board of a school district
that operates any state approved CTE sequence of courses to
apply to the SPI for a grant.
3. Outlines the following program requirements:
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A. Adoption of Career Technical Education
(CTE) programs in consultation with the governing
board of a participating school district and the
county office of education, area workforce development
offices, or community colleges, as specified.
B. Requires the provision of:
(1) CTE courses aligned with Career Model
Curriculum Standards.
(2) A coherent sequence
of courses that enable work-life balance and
leads to entry level employment, as specified.
(3) A series for CTE
courses aligned with local agreements between the
school districts and the county office of
education, area workforce development offices, or
community colleges serving the geographic area of
the school for articulation of services, as
specified.
C. Inclusion of plans by the governing
board of the participating school district for
articulation of CTE courses with community colleges or
apprenticeships programs to continue the sequence
through grades 13 and 14.
D. Inclusion of local business and
industry needs assessments to ensure pupil competency
needed for employment.
E. Provision of student support services
to assist with meeting high school graduation
requirements and career preparation. High quality
curriculum and instruction aligned with state
standards.
F. Conduct an annual performance review of
the participating school district by specified
entities, including the California Department of
Education (CDE).
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G. Inclusion of industry partnerships
including student internships and externships for
teachers.
H. Development of a system of annual data
collection and reporting of student outcomes that
includes enrollment, employment, postsecondary
advancement, course offerings and certification,
licensing and pathway assessment outcomes.
4. Appropriates $600 million from the General Fund for the
purposes outlined in the bill and;
A. Requires school districts to provide a
dollar for dollar match and identify CTE expenses for
that application year, as specified.
B. Requires the governing board of a
participating school district to adopt policy and
producers to:
(4) Systematically
review Career Technical Education (CTE) courses
offered by a participating school district in
order to determine whether a course may serve as
an alternative for completing the prescribed
course of study to graduate from high school, as
specified.
(5) Compare the local
curriculum, course contents and course sequence
of CTE programs with the California Career
Technical Education Model Curriculum Standards
adopted by the state board.
C. Requires an annual performance review
of CTE programs within a participating school district
conducted by the California Department of Education
(CDE) or local industry advisory committees and or an
entity identified by the Superintendent of Public
Instruction (SPI).
D. Allocates 2% for administrative costs
to CDE for technical assistance, professional
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development, accountability and local monitoring.
E. Allocates awards based on the school
district's prior academic year proportional share of
CTE participants (30%), CTE concentrators-a pupil who
completes one CTE course and enrolls in a second
course within a particular sequence (30%) and the
number of students who complete CTE courses and earn
measures of technical skill attainment (38%).
F. Sets aside 2% for rural districts and
regions with high rates of high school dropouts, as
specified.
G. Declares legislative intent to
appropriate additional funding as necessary, for these
purposes in the 2017-18 and 2018-19 fiscal years.
H. Restricts the use of funds for staff
salaries, benefits, or both, except as specified.
I. Authorizes the use of these funds for
matching pupils with work-based learning
opportunities, technical assistance, industry
partnerships, student support services, evaluating
outcomes, planning, development, accountability,
curriculum development, instructional equipment,
materials, teacher externships, or pupils of special
populations, as specified.
5. Directs the SPI to:
A. Adopt rules and regulations governing
the distribution of funds and establish criteria for
assessing whether grant requirements are met, as
specified.
B. Assemble a CTE council composed of
representatives from each of the 15 industry sectors,
consistent with the California Career Technical
Education Model Curriculum Standards, to advise on the
continued improvement of Career Technical Education
(CTE) in schools.
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C. Provide for a state-wide system to
ensure CTE pathways are aligned with the 15 industry
sectors, consistent with state standards.
D. Develop a system of accountability,
data collecting and monitoring, as specified, and
ensure program goals are satisfied and continued
funding based on that system.
E. Align accountability measures, as
specified, into a uniform accountability metric based
on any career ready standards adopted pursuant to the
federal Elementary and Secondary Education Act and 11
program quality indicators in the California State
Plan for Career Technical Education.
F. Provide technical and professional
assistance to grant award recipients.
G. Adopt a list of CTE pathway assessments
and a list of approved high quality industry
certifications and licenses recognized by California
Department of Education (CDE), as described, for use
by school districts and CDE.
6. Requires, as a condition of receiving funds, the governing
board of a participating school district to:
A. Develop a plan for establishing a
sequence of courses and certify to the Department that
the courses were developed and are aligned to state
standards, that CTE teachers are appropriately
credentialed, and that funds are not used for staff
salaries and benefits, except as otherwise specified.
B. Submit new or revised CTE programs or
pathways to the Department for approval by September 1
of the fiscal year in which those changes occur.
C. Collect and report data as required by
the Department and the school's local control and
accountability plan.
7. Requires the Superintendent of Public Instruction (SPI) and
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the state board to incorporate appropriate metrics into the
state adopted accountability measures, aligned with the
federal Carl D. Perkins Career and Technical Education
Improvement Act of 2006, California's Standards for Career
Ready Practice, and the quality indicators described in the
California State Plan for Career Technical Education, to
determine career readiness.
8. Makes a number of related declarations and findings.
STAFF COMMENTS
1. Need for the bill. According to the author, CTE
investment is at a historic low and changes to the State's
financing structure have resulted in less funds being
available for high-quality Career Technical Education (CTE)
programs. At the same time, the author opines that today's
students require career, technical and job skills to ensure
they have the tools necessary to thrive in the state's
rebounding economy. According to the author, this bill
resembles the CTE Incentive Grant program outlined in the
Governor's 2015-16 budget proposal, but mandates more
rigorous performance and accountability standards, aligns
reporting requirements with the federal Perkins grant, and
accelerates the development of new and expanded
high-quality CTE programs for the next three years.
2. Existing CTE standards and metrics. This bill attempts
to align standards and outcome reporting with similar
requirements of existing state and federal programs. In
addition to the programs outlined in the bill, the
Workforce Innovation and Opportunity Act (WIOA) calls for
the establishment of common performance measures and
reporting by various programs it authorizes. Below is a
brief explanation of these state and federal programs.
A. The California State Plan for Career Technical
Education adopted by the State Board of Education and
the Board of Governors of the California Community
Colleges establishes guiding principles and goals for
an ideal statewide CTE system.
B. The California Career Technical Education
Model Curriculum Standards are model curriculum
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standards, written for grades 7-12, mandated for CTE
courses that incorporate career technical and academic
education. The standards are organized in 15 industry
sectors of interrelated occupations and industries.
The standards were developed in consultation with
representatives from secondary and post-secondary
education and business.
C. The Carl D. Perkins Career and Technical
Education Improvement Act is a federal grant program
established to improve career-technical education
programs, integrate academic and career-technical
instruction, serve special populations, and meet
gender equity needs.
D. The Workforce Innovation and Opportunity Act
(WIOA) is a federal program that reauthorizes the
nation's employment, training, adult education, and
vocational rehabilitation programs created under
Workforce Investment Act of 1998. WIOA, among other
things, requires states to strategically align
workforce development programs and foster regional
collaboration.
3. Related Governor's proposal. The Governor's 2015-16
workforce budget proposal includes funding for the Career
Pathways Program, an Adult Education Block Grant, and the
Apprenticeship Program. In addition, the Governor proposes
creation of the Career Technical Education (CTE) Incentive
Grant program, to be administered by the SPI and includes
$250 million in one-time funding for the competitive
program for the next three fiscal years. The Superintendent
of Public Instruction (SPI), with the approval of the State
Board of Education, would determine allocation amounts and
the distribution of awards.
The CTE Incentive grant proposal requires a dollar for dollar
match, a plan for continued support of CTE programs after grant
funding expires, and would give priority to applicants that
demonstrate regional collaboration, display significant
investment in CTE infrastructure, build on existing structures
and show their ability to leverage additional contributions from
outside sources. Recipients would be eligible to renew their
grants, based upon outcome data.
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The Career Technical Education (CTE) Incentive grant
proposal requires that the applicant program meet minimum
standards. It specifically requires that the program:
A. Offer high quality curriculum and instruction
aligned with the California Career Technical Education
Model Curriculum Standards.
B. Provide students with quality career guidance,
support and leadership development.
C. Provide for system alignment and coherence
(including local or regional partnerships with
postsecondary institutions solidified through written
agreements).
D. Form ongoing and structural industry and labor
partnerships solidified through written agreements.
E. Provide opportunities for students to
participate in after-school, extended day,
internships, competitions and other work based
learning opportunities.
F. Reflect regional or local labor market demands
and focus on current or emerging high skill, high
wage, or high demand occupations.
G. Lead to an industry recognized credential or
certificate, or appropriate post-secondary training or
employment.
H. Be staffed by skilled teachers or faculty.
I. Provide professional development
opportunities.
J. Report data for purposes of program
evaluation.
1. How does SB 148 compare to the budget proposal? The
Local Control Funding Formula (LCFF) reflects a significant
reform to the state's system of financing K-12 public
SB 148 (McGuire) Page 11
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schools. Under the old system, revenue limits provided
local education agencies with discretionary (unrestricted)
funding for general education purposes, and categorical
program (restricted) funding was provided for specialized
purposes, with each program having unique allocation and
spending requirements. The LCFF replaced this system with
a new funding formula that provides base funding for the
core educational needs of all students and supplemental
funding for the additional educational needs of low-income
students, English learners, and foster youth.
According to the Administration, the Career Technical
Education (CTE) Incentive grant proposal is a transitional
categorical program intended to help school districts
maintain high-quality CTE programs until full funding
through the Local Control Funding Formula (LCFF) is
realized. It does not appear that the Administration
intends to provide an ongoing source of categorical program
funding for CTE when the LCFF is fully funded.
Unlike the Governor's proposal, it appears that SB 148 does
propose an ongoing categorical program, for at least the
next three fiscal years. While many of the required CTE
programs, accountability, and reporting features of SB 148
are similar to the Governor's proposal, SB 148 outlines
much more prescriptive and detailed requirements and duties
for applicant districts and the Superintendent of Public
Instruction (SPI).
2. Should CTE be an ongoing categorical program? This year
the Governor's budget includes an ongoing categorical, the
Adult Education Block Grant, as a means of funding an
interagency model for the delivery of basic skills and
workforce programs for adults. CTE, like Adult Education,
has multiple providers of programs including the California
Community Colleges, school districts, county offices of
education, correctional facilities, libraries and other
state agencies. Arguably, CTE could also benefit from a
better aligned interagency model for program development
and delivery. Should a similar categorical block grant that
incentivizes K-12 collaboration with postsecondary and
private providers exist for CTE?
3. Complex and duplicative provisions. SB 148 proposes
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more clearly articulated CTE program requirements,
consistent statewide outcome reporting requirements, and
clearer requirements for alignment with postsecondary
education institutions and the private sector, than the CTE
Incentive Grant Program proposed in the Governor's budget.
However, as currently drafted, the bill is unnecessarily
complex, duplicative, and prescriptive, making its
implementation overly burdensome. For these reasons, staff
notes that the bill would benefit from refinement of its
current language.
A. For the purposes of streamlining the current
contents, minimizing its prescriptive nature, and
simplifying the administration of the program, staff
recommends the following amendments:
(1) On page 5, strike out lines 34 to 40,
inclusive
(2) On page 6, in line
1, strike "applicant school" strike line 2, and
in line 3 strike "the school district shall" and
insert "applicants"
(3) On page 6, in line
6 before the period insert "and that satisfy the
requirements outlined in 52469.
(4) On page 6, strike
out lines 7 to 38, inclusive
(5) On page 7, in line
13 after "school." Strike out "that plan to" and
strike out lines 14 to 20 inclusive.
(6) On page 8, in line
6, strike out "to the governing board of the
school
district on", strike out lines 7 and 8,
(7) On page 8, line 6
after "annually," insert "and shall comply with
the requirements established by the
Superintendent in terms of all of the following:"
SB 148 (McGuire) Page 13
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(8) On page 8, strike
out lines 27 to 40, inclusive
(9) On page 9, strike
out lines 1 to 3, inclusive
(10) On page 9, strike
out lines 5 and 6, in line 7 strike out
"sequences," and insert "reporting"
(11) On page 9, strike
out lines 15 to 21, inclusive
(12) On page 9, strike
out lines 36 to 38, inclusive
(13) On page 10, between
lines 4 and 5 insert "b) The department shall
retain up to 2 percent of the total funds
apportioned pursuant to this article, to provide
all of the following to applicant and recipients:
1) Technical Assistance 2) Professional
Development 3) Accountability Services and local
monitoring."
(14) On page 10, strike
out lines 5 to 22, inclusive
(15) On page 11, strike
line 1 to 4, inclusive
B. For purposes of strengthening its linkages to
postsecondary education and existing state and
industry standards and metrics staff recommends the
following amendments:
1) On page 7, in line 2 strike out
"area workforce development offices, or" and
insert "local workforce investment boards and"
2) On page 7, in line 3 strike out "or
with any combination of the entities, offices, or
community college thereof,"
SB 148 (McGuire) Page 14
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3) On page 7, in line 11 strike out
"manage personal and work life and," and insert
"transition to postsecondary education on a
career pathway or"
4) On page 7, in line 26 after "14"
insert "and for the acquisition of high-quality
industry certifications, credentials, and
licenses."
5) On page 8, between lines 10 and 11
insert "(2) The number of pupils completing high
school"
6) On page 9, strike out line 9, in
line 10 strike out "subdivision (d) into a
uniform accountably metric based on" and insert
"Data metrics that are aligned with the core
metrics required by the federal Workforce
Innovation and Opportunities Act, common metrics
adopted by the California Community College
Chancellor's Office and"
7) On page 9, in line 22, after
"adopt" insert "and provide grant recipients
with"
8) On page 9, in line 23, strike out
"that the department will recognize for purpose
of," and strike lines 24 to 28, inclusive.
9) On page 9, in line 23 after
"licenses" insert "and approved third party
career technical education pathway assessments in
each career technical education pathway for use
in program development"
10) On page 9, strike out lines 29 to
35, inclusive
C. For purposes of technical clarifications,
staff recommends the following amendments:
SB 148 (McGuire) Page 15
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1) On page 2, in line 1, after
"declares" insert "all of"
2) On page 3, in line 20, after "2006"
insert "(20 U.S.C Sec. 2301 et seq.)"
3) On page 4, in line 11, after
"Census" insert "Bureau"
4) On page 7, in line 8, after "the"
insert "California"
5) On page 8, in line 19 strike out
"advance" and insert "advanced"
6) On page 8, in lines 20 and 21,
strike out "his or her" and insert "their"
7) On page 10, in lines 25 and 26,
strike out "State Board of Equalization," and
insert "state board,"
8) On page 10, in line 27, strike out
"Public" and insert "Pupil"
9) On page 12, in line 8, strike out
"limited to the first three years of the", strike
out line 9 and in line 10, strike out "programs
or pathways and"
10) On page 12, in line 14, strike out
"a"
11) On page 12, in line 24, strike out
"industry based" and insert "industry-based"
4. Limited eligibility. As currently drafted the bill
establishes eligibility for grant funds exclusively for
K-12 school districts. In light of the numerous local
educational entities involved in CTE, and in the interest
of preserving the many providers of quality K-12 CTE
programs staff recommends the bill be amended to extend
eligibility for the grant program to county offices of
SB 148 (McGuire) Page 16
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education, direct-funded charter schools, including those
established pursuant to subdivision (g) of section 47605.1,
and with the written consent from each participating local
educational agency, regional occupational centers or
programs operated by joint powers authorities.
SUPPORT
California Association of Sheet Metal and Air Conditioning
Contractors' National Association
California EDGE Coalition
California Farm Bureau Federation
California Hospital Association (CHA)
California Manufacturers & Technology Association (CMTA)
Kelseyville Unified School District
Southern California Regional Occupational Center (SCROC)
State Building and Construction Trades Council, AFL-CIO
The California School Employees Association (CSEA), AFL-CIO
OPPOSITION
None received.
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