BILL ANALYSIS Ó ----------------------------------------------------------------- |SENATE RULES COMMITTEE | SB 644| |Office of Senate Floor Analyses | | |(916) 651-1520 Fax: (916) | | |327-4478 | | ----------------------------------------------------------------- THIRD READING Bill No: SB 644 Author: Hancock (D) Amended: 6/1/15 Vote: 21 SENATE PUBLIC EMP. & RET. COMMITTEE: 5-0, 4/13/15 AYES: Pan, Morrell, Beall, Fuller, Hall SENATE APPROPRIATIONS COMMITTEE: 7-0, 5/28/15 AYES: Lara, Bates, Beall, Hill, Leyva, Mendoza, Nielsen SUBJECT: Limited Examination and Appointment Program: persons with developmental disabilities SOURCE: East Bay Innovations Futures Explored DIGEST: This bill amends provisions of the state's Limited Examination and Appointment Program (LEAP) to allow developmentally disabled individuals to compete for state jobs by performing internships in the desired positions. ANALYSIS: Existing law: 1) Establishes LEAP in the state civil service, which provides an alternative to the traditional civil service exam and appointment process in order to allow a disabled individual to compete for a position in state service by proving eligibility and meeting other specified criteria. SB 644 Page 2 2) Defines "disability" for the purpose of the LEAP program to be consistent with the definition of "disability" found in state laws governing fair employment and housing and the federal Americans with Disabilities Act. 3) Establishes the Department of Human Resources (CalHR) as the state department with responsibility over administration of the LEAP program and gives CalHR discretion in creating eligibility criteria for participation in LEAP, examination techniques, and appointment and appeal procedures. 4) Requires, in the state civil service, that applicants meet minimum qualifications and undergo a competitive process before being appointed to a position and, in general, creates ranked hiring lists based on the competitive application process from which state employers may choose eligible candidates. 5) Requires, under LEAP, that candidates are first certified as disabled and meet certain minimum qualifications, which may be ascertained through written examination, before being placed on a referral list. CalHR then refers the names of eligible candidates to agencies that are seeking employees for LEAP-eligible positions. 6) Requires that LEAP employees are appointed on a temporary and provisional basis to allow them to demonstrate their abilities to perform the duties of their positions during a period of time known as the job examination period. During this time, LEAP employees do not acquire permanent civil service status but receive the same salaries and benefits provided to other temporary state employees. 7) Allows, upon successful completion of the job examination period, the employing department to appoint the LEAP employee to an appropriate civil service position. 8) Creates a process for LEAP candidates and employees to appeal in situations in which CalHR refuses to certify the employee's eligibility to participate in LEAP or the individual is rejected during the application, selection, or job examination period, or is denied reasonable accommodation. SB 644 Page 3 9) Establishes the Lanterman Developmental Disabilities Services Act, which states that California is responsible for providing an array of services and supports sufficiently complete to meet the needs and choices of each person with developmental disabilities, regardless of age or degree of disability, and at each stage of life to support their integration into the mainstream life of the community. 10) Establishes a system of nonprofit "regional centers" to provide fixed points of contact in the community for all persons with developmental disabilities and their families to coordinate services and supports best suited to them throughout their lifetimes. 11)Requires that the state make available the expertise of state employees and programs to support the employment-related needs of individuals with disabilities, as specified, including ensuring that state government is a model employer of individuals with disabilities. 12)Creates a statewide Employment First Policy, prioritizing opportunities for integrated competitive employment for working-age individuals with developmental disabilities, regardless of the severity of their disabilities. This bill: 1) Makes findings and declarations with regard to persons with developmental disabilities and their difficulty in obtaining employment. 2) Finds that the state hiring process for LEAP is not well suited to correctly assess the qualifications and abilities of developmentally disabled persons due to initial assessments based on written testing rather than performance-based testing. 3) Declares the intent of the Legislature to target model employer practices toward persons with developmental disabilities who are between 18 and 30 years of age and deemed eligible by the Department of Rehabilitation (DOR) to receive supportive employment services. 4) Expands the definition of "disability" to include a person SB 644 Page 4 with a developmental disability that the Department of Developmental Services (DDS) deems eligible for services pursuant to the Lanterman Developmental Disabilities Services Act and who is a consumer of a regional center pursuant to the Lanterman Act. 5) Specifies that CalHR, consistent with State Personnel Board rules, shall be responsible for the creation of the LEAP internship program for developmentally disabled persons in coordination with DDS and DOR. 6) Specifies that LEAP is a voluntary, additional method of applying for state employment and is not a mandate on any state agency employer or job applicant, except as specifically directed by the State Personnel Board. 7) Prohibits CalHR from requiring a person with a developmental disability to take or pass a written examination or readiness evaluation in order to qualify for service in a LEAP position. 8) Requires, instead of a written application, that the LEAP examination for an individual with a developmental disability consist of an internship with a state agency of not less than 512 hours in duration and certification from the employing agency that the individual has completed the internship and demonstrated the knowledge, skills, and abilities necessary to successfully perform the duties of the position. 9) Specifies that a person with a developmental disability who successfully completes the internship, as required, shall be determined to meet the minimum qualifications for the position in which the internship was performed. 10)Specifies that successful completion of the LEAP internship, upon certification of the appointing power, shall be considered as meeting the referral requirements necessary for an examination appointment without being required to pass a written examination or readiness evaluation. 11)Allows the LEAP internship program to be accessed as an unpaid or paid internship if the state agency providing the internship has available funding authority within its personnel budget. SB 644 Page 5 12)Requires CalHR to refer the names of persons with developmental disabilities to appointing powers for LEAP internship appointments. 13)Allows CalHR to refer the name of a developmentally disabled person who has successfully completed an internship examination to appointing powers for consideration for appointment in the same job classification as the position in which the internship was successfully completed. 14)Gives CalHR discretion as to the method for referring names, including working with agencies to identify positions that could successfully be filled by persons with developmental disabilities. 15)Allows a state agency that provides a LEAP internship to a person with a developmental disability to finance the internship with personnel or other funds assigned to a vacant or unfilled position and specifies that doing so does not eliminate the vacant or unfilled position, and that the funds may later be reassigned to the unfilled position. 16)Requires that a state agency that provides a LEAP internship to a person with a developmental disability shall allow the person to receive on-the-job supportive services, as specified, as a reasonable accommodation. 17)Clarifies that on-the-job supportive services may consist of time spent with a job coach who assists the developmentally disabled person, as specified, and states that services of the job coach are not the responsibility of the state agency providing the internship unless the state agency is a direct payor of those services. 18)Specifies that in order for the internship to meet the minimum qualifications of the desired position, it must be successfully completed in that same position. 19)Specifies that if a job examination period is required prior to permanently hiring a qualified developmentally disabled individual, the hiring agency may apply some or all of the internship hours performed to meet some or all of the job examination period requirement. SB 644 Page 6 20)Specifies that on-the-job supportive services are allowable to the extent authorized by other state programs and are not the financial or programmatic responsibility of any state agency engaged in establishing the LEAP internship process. Background LEAP. The current process for LEAP eligibility is as follows: an individual is certified as disabled by DOR. The individual must then meet minimum qualifications (MQs) for the LEAP position (only certain state classifications are LEAP qualified). The MQs are met by successful completion of a written (often online) exam or readiness evaluation. Once the MQs are met, the LEAP applicant's name is placed on an unranked hiring list that is available to any state agency that has LEAP positions available and is seeking LEAP candidates. The hiring authority may then contact individuals on the list for interviews and job placements. The LEAP candidate then serves a job examination period that is typically nine months in length but can be longer. Upon successful completion of the job examination period, the LEAP employee may then be appointed to a permanent state position. Then the employee must also serve the traditional six-month probationary period before becoming a permanent state civil service employee. Regional Centers. California's 21 nonprofit regional centers are part of a system of care for individuals with developmental disabilities overseen by DDS. Each regional center provides local services and support to individuals through contracts with DDS, including diagnosis and assessment of eligibility as well as planning, providing access to, and coordinating the services and supports that are needed. Regional center participants are referred as "consumers." Services for consumers are determined through individual program plans. Prior/Related Legislation AB 1041 (Chesbro, Chapter 667, Statutes of 2014) created a statewide Employment First Policy and sets forth requirements related to the inclusion of employment opportunities and services in a regional center participant's individual program SB 644 Page 7 plan. AB 287 (Beall, Chapter 231, Statutes of 2009) established the Employment First Committee as a standing committee of the State Council on Developmental Disabilities to identify strategies and best practices for significantly increasing the numbers of people with developmental disabilities in competitive integrated employment and the number who earn wages at or above minimum wage. AB 925 (Aroner, Chapter 1088, Statutes of 2002) required, in addition to other measures intended to bring adults with disabilities into gainful employment, that the state government become a model employer of individuals with disabilities. FISCAL EFFECT: Appropriation: No Fiscal Com.:YesLocal: No According to the Senate Appropriations Committee: Unknown administrative costs to CalHR (General Fund) Unknown, potentially $150,000 annually for internship program (various Special/General Funds) Administrative costs to CalHR are unknown at this time; however, there is currently one Staff Services Manager 1 position that is responsible for administering LEAP. SB 644 establishes a new internship program and may require additional personnel years to CalHR. Exact costs for the internship program will depend on the number of internships provided through the LEAP method of qualifying applicants for civil service positions. If 25 internships are offered annually to applicants who would have otherwise not SB 644 Page 8 passed the current written exam or readiness evaluation, costs would be approximately $155,000 with monthly salaries of $2,074 (the entry level pay for Office Assistant) for three months. Departments that provide internships to LEAP applicants will use existing vacancies on a temporary basis. SUPPORT: (Verified5/28/15) East Bay Innovations (co-source) Futures Explored, Inc. (co-source) Ala Costa Centers Alameda County Developmental Disabilities Planning and Advisory Council Arc of California Association of Regional Center Agencies California Disabilities Services Association Cerebral Palsy Center for the Bay Area East Bay Development Disabilities Legislative Coalition United Cerebral Palsy California Collaboration OPPOSITION: (Verified5/28/15) None received ARGUMENTS IN SUPPORT: According to the author: Currently, 92% of Californians with intellectual disabilities of working age are jobless. Unemployment for adults with ID/DD [i.e., intellectual/ developmental disabilities] is chronic and severe nationwide. Less than 5 % of young adults with ID/DD leave K12 and go directly into employment and less than 30 % go into post-secondary or career technical education. If young people with ID/DD exiting K12 education are not connected to employment they tend to rely on public benefits and services their entire lives. LEAP is often not an effective alternative to the standard SB 644 Page 9 civil service examination for individuals with ID/DD because it relies on a written test to initially evaluate candidates. Many people with ID/DD can successfully be employed in jobs involving complex tasks but need time and customized training to learn the job. Written tests are not a valid measure of their abilities. Several states have adopted "model employer" practices to ensure that people with ID have access to state employment opportunities. Being a model employer will enable the State to demonstrate to other public sector and to private sector employers how to unlock the potential of this untapped workforce. Alameda and Santa Clara Counties use a similar method of allowing successful job performance after adequate time on the job to become the "test" for civil service purposes for workers with ID/DD to become public employees. According to the sponsors, the current LEAP structure, because it relies on written tests to initially evaluate candidates, "often precludes individuals with intellectual and developmental disabilities from accessing the program." "SB 644 would allow an individual with an intellectual or developmental disability to successfully complete an internship at a state agency with a minimum of 1024 hours, in lieu of a readiness evaluation as currently required by LEAP. The internship would be used to evaluate whether that individual is eligible for state civil service employment." Futures Explored notes that they support over 300 individuals engaged in the workforce to some degree. "We have found that internship/apprenticeship type programs have allowed our folks to get jobs that would have historically been viewed as beyond their capabilities if only a test or interview were used." Prepared by:Pamela Schneider / P.E. & R. / (916) 651-1519 6/1/15 14:03:08 **** END **** SB 644 Page 10