BILL ANALYSIS Ó
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|SENATE RULES COMMITTEE | SB 343|
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THIRD READING
Bill No: SB 343
Author: Hancock (D)
Amended: 6/1/15
Vote: 21
SENATE PUBLIC SAFETY COMMITTEE: 6-1, 4/21/15
AYES: Hancock, Anderson, Leno, Liu, McGuire, Monning
NOES: Stone
SENATE APPROPRIATIONS COMMITTEE: 5-2, 5/28/15
AYES: Lara, Beall, Hill, Leyva, Mendoza
NOES: Bates, Nielsen
SUBJECT: Corrections: inmates
SOURCE: Service Employees International Union Local 1000
DIGEST: This bill requires the California Department of
Corrections and Rehabilitation (CDCR) to give strong
consideration to the use of libraries and librarians in
effective literacy programs in prison and to include completion
of a community college or four-year academic degree in the
existing requirement that CDCR incentivize inmate participation
in educational programming.
ANALYSIS:
Existing law:
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1) Provides that the Secretary of CDCR "shall implement in
every state prison literacy programs that are designed to
ensure that upon parole inmates are able to achieve the goals
contained in this section?." (Penal Code § 2053.1.)
2) Provides, in Penal Code section 2053.1, that CDCR must
prepare an implementation plan for this program, and shall
request the necessary funds to implement this program as
follows:
a) The CDCR must offer academic programming throughout an
inmate's incarceration that shall focus on increasing the
reading ability of an inmate to at least a 9th grade level.
b) For an inmate reading at a 9th grade level or higher,
the CDCR must focus on helping the inmate obtain a general
education development certificate, or its equivalent, or a
high school diploma.
c) The CDCR must offer college programs through voluntary
education programs or their equivalent.
d) While the CDCR must offer education to target
populations, priority shall be given to those with a
criminogenic need for education, those who have a need
based on their educational achievement level, or other
factors as determined by the CDCR.
3) Requires that "in complying with the requirements of this
section, the CDCR shall give strong consideration to
computer-assisted training and other innovations that have
proven to be effective in reducing illiteracy among
disadvantaged adults." (Penal Code § 2053.1.)
4) Provides a formula for each fiscal year to determine funds
to support academic programs for inmates and specifies
proportional increases and decreases in relation to median
salaries for full-time high school teachers as of 1956-57.
(Penal Code § 2054.1.)
5) Provides that CDCR "shall determine and implement a system
of incentives to increase inmate participation in, and
completion of, academic and vocational education consistent
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with the inmate's educational needs as identified in the
assessment performed (as specified), including, but not
limited to, a literacy level (as specified), a high school
diploma or equivalent, or a particular vocational job skill."
(Penal Code § 2054.2.)
This bill:
1) Revises this provision to also reference the use of
libraries and librarians.
2) Repeals provisions from this section concerning the fiscal
formula for supporting the academic education program for
inmates, as specified.
3) Includes the "completion of a community college or four year
academic degree" in this provision.
Background
According to the executive summary of "Degrees of Freedom:
Expanding College Opportunities for Incarcerated and Formerly
Incarcerated Californians":
It is estimated that over 50,000 individuals will be
released from California's prisons in the next two
years, and thousands more will be released from county
jails. Proposition 47, now being implemented
throughout the state, may result in the release of
thousands more. Without intervention, many of these
individuals are likely to return to custody in a
repeat cycle of incarceration. There is a way to stop
this revolving door: a recent RAND study shows that
participants in prison college programs have 51
percent lower odds of recidivating than those who do
not participate and, after release, the odds of
obtaining employment are higher for those who
participated in education. It is time to take
advantage of that knowledge by making high-quality
college opportunities available for the state's
currently and formerly incarcerated residents.
California is an innovative state, with the largest
public higher education system in the nation. The
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state has 112 community colleges, the vast majority of
which are located near a prison, jail or community
with high concentrations of formerly incarcerated
residents. These colleges enroll 74 percent of all
undergraduate students in California. They are
affordable gateways with existing support structures
and experience in helping educationally disadvantaged
students succeed.
Moreover, California has a history as a leader in
correctional education. In 1979, in-person college
courses were available in every prison in California.
Nine of 19 California State University campuses
provided on-ramp programs designed to support these
students as they transitioned into the college
environment, and 15 community colleges had programs
that supported students with criminal histories on
their campuses. Since then, the prison population in
California has grown by more than 700%, but access to
college inside prisons has not keep pace. In 1976, 8.6
percent of state prison inmates were enrolled in
college courses, and by 2013 the number of inmate
students enrolled in college had shrunk nearly in half
to 4.4 percent. Not only has enrollment dropped, but
quality has suffered as well. Statewide, in-prison
college programs were decimated in the early 1990s and
replaced with low-quality correspondence-based
distance education.
(Mukamal, Debbie, Rebecca Silbert, and Rebecca Taylor,
Degrees of Freedom: Expanding College Opportunities for
Incarcerated and Formerly Incarcerated Californians,
Stanford Law School; Berkeley Law, Feb. 2015.)
FISCAL EFFECT: Appropriation: No Fiscal
Com.:YesLocal: No
According to the Senate Appropriations Committee, the fiscal
impact includes potential future cost pressure (General Fund) to
the extent the consideration of the use of libraries and
libraries in CDCR literacy programs results in the future
funding for additional materials, training, and staff.
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SUPPORT: (Verified 5/28/15)
Service Employees International Union Local 1000 (source)
The California Public Defenders Association
Legal Services for Prisoners with Children
OPPOSITION: (Verified 5/28/15)
None received
ARGUMENTS IN SUPPORT:
According to the California Public Defenders Association:
This bill would amend several Penal Code sections to
require the California Department of Corrections and
Rehabilitation (CDCR) to give strong consideration to
the use of libraries and librarians in its literacy
programs and add community and four year college
programs to the list of vocational and educational
programs. . .
These are smart, money saving reforms that will
protect public and prison safety and promote human
dignity. Numerous studies have documented that
literacy is an invaluable tool toward reducing
re-offense and helping prisoners successfully
reintegrate into the community. Money spent on
educating prisoners in an investment in community
safety.
Prepared by:Linda Tenerowicz / PUB. S. /
6/1/15 19:28:13
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