BILL ANALYSIS Ó
SB 412
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Date of Hearing: June 21, 2016
ASSEMBLY COMMITTEE ON HIGHER EDUCATION
Jose Medina, Chair
SB
412 (Glazer) - As Amended June 8, 2016
SENATE VOTE: 36-0
SUBJECT: The California Promise
SUMMARY: Establishes the California Promise to support students
who enroll in the campuses of the California State University
(CSU) and the California Community Colleges (CCC) in obtaining
associate degrees within two academic years, and baccalaureate
degrees within four academic years, as applicable, of the
academic year of the student's freshman admission.
Specifically, this bill:
1)Finds and declares all of the following:
a) This part is needed to facilitate the availability and
completion of coursework for degree programs offered by
campuses of the CSU and the CCC and to ensure that students
enrolled in these campuses are able to complete associate
degree programs within two academic years, and
baccalaureate degree programs within four academic years,
as applicable, of the academic year of the student's
freshman admission.
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b) A more concerted, statewide effort to create pathways to
four-year graduation is needed at the CSU. For the 2010
cohort of full-time, first-time students at the CSU, 19
percent graduated within four academic years. According to
the Legislative Analyst's Office, the most recent
nationally comparable data shows that the CSU overall
four-year graduation rate was 16 percent in 2011, below the
national rate of 26 percent among similar public
institutions.
c) Impediments to graduating within four academic years
include the failure of students to complete sufficient
units per academic year and the lack of available
high-demand courses.
d) New approaches are critical for the future of higher
education in California. Efforts have been ongoing, though
sporadic, to improve postsecondary educational institution
enrollment and graduation. These efforts will need to be
intensified and made more broadly systemic.
e) Students who graduate within four academic years save
tens of thousands of dollars. In addition to the direct
costs of extended college and university enrollment,
students miss out on earnings in the workforce while they
remain in school.
f) When California experiences a decline in college and
university graduates, the state's economy shrinks and
employers seek qualified candidates outside the state.
Furthermore, a larger share of the state's workforce is
downgraded to lower-paying jobs and consumer behavior and
home ownership declines, which leads to plummeting revenues
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for local and state government and to more people relying
on increasingly decimated government services.
g) According to the Public Policy Institute of California,
if bold measures are not taken, California will fall short
of the state's economic demand by 1.1 million college and
university graduates by 2030. An increased demand for
highly educated workers will outweigh the number of
qualified applicants for available jobs, which will be
exacerbated when scores of highly educated baby boomers
retire. The share of workers with a baccalaureate degree
will be 33 percent in 2030, below the 38 percent that will
be needed.
h) The impact of graduation rates from CSU campuses is felt
not only throughout the state, but also the nation. One out
of every 10 California employees is a CSU graduate, while
one out of every 20 United States citizens with a college
or university degree graduates from a campus of the CSU.
These statistics emphasize the national importance of
graduation rates at CSU campuses.
i) It is the intent of the Legislature that the California
Promise will enable the CSU system to meet and exceed the
national average of similar public postsecondary
educational institutions as quickly as possible.
j) The California Promise programs established at the CSU
and the CCC in accordance with this part should aim to
reflect the demographics of their respective campuses and
target a diverse set of students.
2)Defines the following terms:
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a) "Academic year of the student's freshman admission"
means the first full academic year in which a person is a
student at a campus of the CSU or the CCC
b) "Board of governors" means the Board of Governors of
the CCC.
c) "Trustees" mean the Trustees of the CSU.
3)Requires the trustees and the board of governors to develop
and implement a California Promise program, as specified, at
10 or more of their respective campuses.
4)Requires, commencing with the 2017-18 fiscal year, the
trustees and the board of governors to authorize each campus
with a California Promise program to enter into a pledge with
a qualifying student of the campus, including a CCC transfer
student, to support the student in obtaining an associate
degree within two academic years, or a baccalaureate degree
within four academic years, as applicable, of the academic
year of the student's freshman admission.
5)Requires qualifying students to comply with the following:
a) Be a California resident for purposes of in-state
tuition eligibility.
b) Complete at least 30 semester units or the quarter
equivalent per academic year. Units completed by the
student during a summer term may count towards the previous
or following academic year as determined by the trustees.
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c) CCC students must be enrolled in an associate degree for
transfer program at a CCC, and participate in the Student
Success and Support Program.
6)Requires each program established by the trustees at a CSU
campus to be reviewed by each campus' graduation initiative
advisory committee or a committee designated with similar
functions. The committee:
a) Must ensure the goals of the program and implementation
steps lead to increasing the campus' four-year graduation
rates for students who enrolled as first-time freshman and
two-year graduation rates for community college transfer
students; and
b) May develop additional eligibility requirements to
prioritize specific student populations that have lower
four-year graduation rates at the campus for those who
enroll as first-time freshman and lower two-year graduation
rates for those who enroll as CCC transfer students,
including, but not limited to, all of the following student
populations:
i) Students who receive financial aid under the federal
Pell Grant Program or the Cal Grant Program;
ii) Underrepresented students; and,
iii) First generation college students.
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7)Establishes Legislative intent that each California Promise
program gradually scale up in order to accommodate as many
students into the program as feasible.
8)Requires the support provided by a CSU campus to a student who
participates in the campus' California Promise program to
include, at least:
a) Priority registration in coursework; and,
b) Academic advisement that includes monitoring the
student's academic progress.
9)Requires the support provided by a CCC campus to a student who
participates in the campus' California Promise program to
include the services outlined in the Student Success and
Support Program, including orientation, assessment,
counseling, advising, and other assistance.
10)Requires the trustees and the board of governors to develop
application criteria, administrative guidelines, and
additional requirements, including how campuses will measure
student success, for purposes of implementing and
administering the California Promise program; and authorizes
the requirements to include a minimum grade point average for
participating students.
11)Requires the trustees and the board of governors to take into
consideration the report on graduation rates required pursuant
to the Budget Act of 2016.
12)Requires the trustees to submit a report to Legislative
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policy and fiscal committees by January 1, 2021 that includes:
a) The total number of students participating in the
program disaggregated by individual campus and all of the
following:
i) CCC transfer students and students who enroll as
first-time freshman.
ii) First generation college students.
iii) Recipients of financial aid under the federal Pell
Grant Program or the Cal Grant Program established in
Chapter 1.7 of Part 42.
iv) Student ethnicity.
b) The total number of students who graduated in four
academic years for students who enrolled as first-time
freshman and two academic years for CCC transfer students,
disaggregated by individual campus and the aforementioned
characteristics.
13)Requires the trustees shall submit a report to Legislative
policy and fiscal committees by January 1, 2019, that includes
the total number of the first cohort of CCC transfer students
participating in the program, disaggregated by individual
campus and the aforementioned characteristics.
14)Requires the aforementioned reports to include a summary
description of significant differences regarding
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implementation of the California Promise program by campus,
including, but not limited to, the prioritization of student
populations, the role of academic advising, and the
implementation of priority registration.
15)Requires the trustees and the board of governors to submit
recommendations to the appropriate policy and fiscal
committees of the Legislature by March 15, 2017, regarding
potential financial incentives that can benefit students who
participate in the California Promise program, including, but
not limited to, incentives for qualifying students who are
unable to graduate within four or two academic years due to a
lack of course offerings.
16)Requires a student who participates in the California Promise
program at a CCC and who successfully completes his or her
associate degree for transfer within two academic years to be
guaranteed participation in the California Promise program at
the CSU transfer campus, if established.
17)Requires the trustees and the board of governors to make
every effort to close the achievement gap and encourage broad
participation in a California Promise program that reflects a
participating campus' demographics.
EXISTING LAW:
1)Establishes the Student Transfer Achievement Reform Act and
requires CCC districts to develop and grant a transfer
associate degree that deems the student eligible for transfer
into the CSU, when the student meets specified course
requirements (EC Section 66746). The CSU is required to
guarantee admission with junior status to any community
college student who meets specified requirements, but provides
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that the student is not guaranteed admission for specific
majors or campuses. (EC Section 66747).
2)Establishes the Student Success Act and requires CCC to
provide student services and support, including orientation,
assessment, counseling and education planning, referral to
specialized support services, and evaluation of each student's
progress and referral to appropriate interventions. Students
have the responsibility to identify an academic and career
goal, declare a specific course of study, be diligent in class
attendance and completion of assigned coursework, and complete
courses and maintain academic progress toward an educational
goal. (EC Sections 78210-78219; Title 5 of the California
Code of Regulations Sections 55500-55534)
3)Requires CSU and CCC districts, and requests the University of
California (UC) to give priority for registration for
enrollment to the following:
a) Any member or former member of the Armed Forces, as
defined, who is a resident of California and who has
received an honorable discharge, a general discharge, or an
other than honorable discharge for any academic term
attended at one of these institutions within four years of
leaving state or federal active duty, if the institution
already administers a priority enrollment system. Current
law further requires that the veteran use this benefit
within 15 years of leaving state or federal active duty and
requires that these students comply with student
responsibilities established by the Student Success Act of
2012. (EC Section 66025.8)
b) If the institution already administers a priority
enrollment system for registration, to any current or
former foster youth. (EC Section 66025.9)
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c) CCC districts that administer a priority enrollment
system for registration to grant priority registration for
enrollment to students in the Extended Opportunity Program
and Services and to disabled students. (EC Section
66025.91)
4)Establishes EOPS to extend opportunities for CCC education to
all who may profit regardless of economic, social and
educational status, and to encourage local community colleges
to identify students affected by economic, language, and
social disadvantages and encourage their enrollment and
achievement of their educational objectives and goals; and
authorizes local CCC governing boards to provide services that
may include loans or grants for living costs, student fees,
and transportation costs and also scholarships,
work-experience and job placement programs. (EC Section 69640
- 69656)
FISCAL EFFECT: Unknown. This bill was amended in the Assembly
and the prior contents, which were unrelated to higher
education, were removed. This bill has not been heard in its
current form by a fiscal committee.
COMMENTS: Purpose of this bill. According to the author,
"despite the proven track record as a leader in higher
education, the CSU's four-year graduation rate continues to lag
behind the rest of the nation. According to the CSU, the most
recent nationally-comparable data shows their overall four-year
graduation rate was 16.2 percent for the Fall 2008 cohort of
first-time, full-time freshmen, well below the national rate of
24.9 percent among similar public institutions. The most recent
American Freshman Survey from the Higher Education Research
Institute at UCLA, which found that 84 percent of freshmen
entering public colleges expect to graduate in four years,
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demonstrates the clear gap between expectation and reality.
Finishing in four years saves students and their families tens
of thousands of dollars."
The author believes the California Promise programs established
by bill "will increase the CSU's four-year graduation rate,
lower cost and debt obligations of students and their families,
and ensure the number of CSU degrees is expanded to meet the
needs of California employers."
CSU promise programs. Information provided by the CSU, at the
request of Committee staff, shows that four campuses currently
have pledge programs (Cal Poly Pomona, Fresno, Fullerton, and
San Bernardino). Generally, these programs, some of which date
back to 2007, operate consistently with the requirements of this
bill. The overall results of programs are mixed. While
four-year graduation rates for program participants are much
higher than the undergraduate student populations that do not
participate in the programs, attrition rates are also high
(sometimes 50% or more). In addition, some campuses have
discontinued programs due to low student participation.
CSU Graduation Initiative. In October 2014, the CSU initiated
"Graduation Initiative 2025" was approved by the CSU, and set a
number of completion goals, including increasing graduation
rates and closing achievement gaps. The CSU Chancellor's Office
initiated a number of activities to accomplish these goals,
including reducing the number of units required to earn a BA/BS
degree, expanding the Associate Degree for Transfer program,
expanding cohort-based learning communities, expanding Summer
Bridge and other transitional programs, hiring more tenure track
faculty and academic advisors, and building relationships with
community and business partners, community colleges and K-12
school districts to ensure students are prepared for college,
among other activities.
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Committee consideration. The 2016 Budget Act provided CSU $35
million in one-time funds, contingent on the system setting
four-year graduation rate and two-year transfer graduation rates
targets. The CSU is required to develop an action plan for the
system and for each campus by September 30, 2016. The budget
provides CSU with the flexibility to develop tailored plans for
each campus. Rather than require CSU to establish 10 Promise
Programs, the Committee may wish to consider whether it would be
more appropriate to allow CSU some flexibility to determine
whether Promise Programs or other evidence-based policies and
practices are a better solution, on a campus-by-campus basis, to
improve on-time graduations.
CCC student success initiative. In January 2012, the Student
Success Task Force (SSTF) report was approved by the CCC Board
of Governors and made 22 specific recommendations aimed at
increasing college and career readiness, strengthening support
for entering students, incentivizing successful student
behaviors, aligning course offerings to meet student needs,
improving education of basic skills students, revitalizing and
re-envisioning professional development, enabling efficient
statewide leadership and increase coordination among colleges,
and aligning resources with student success recommendations.
These recommendations are currently being implemented through
the Student Success Initiative by the CCC Chancellor's Office,
and, since 2012, funded by the State through the Student
Services Support Program categorical fund. As currently
drafted, this bill proposes a new Promise Program
CCC-CSU Transfer Pathway. SB 1440 (Padilla), Chapter 428,
Statues of 2010, created the Student Transfer Achievement Reform
Act, and required CCC to create two-year 60 unit Associate
Degrees for Transfer that are fully transferable to CSU. Though
these students are not guaranteed admission to a particular CSU
campus or into a particular degree program, SB 1440 gives them
priority admission to a CSU program that is "similar" to the
student's CCC major or area of emphasis, as determined by the
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CSU campus to which the student is admitted. Once admitted, SB
1440 students need only complete two additional years (an
additional 60 units) of coursework to earn a bachelor's degree.
Committee consideration. As drafted, this bill would layer a
new program on top of the existing efforts at CCC to improve
student completion. The author has proposed amendments removing
CCC from the scope of this bill and instead requiring CSU to
guarantee entry into a promise program for any CCC student who
transfers with an ADT.
REGISTERED SUPPORT / OPPOSITION:
Support
None on File
Opposition
None on File
Analysis Prepared by:Laura Metune / HIGHER ED. / (916)
319-3960
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