BILL ANALYSIS
AB 2211
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Date of Hearing: April 7, 2010
ASSEMBLY COMMITTEE ON EDUCATION
Julia Brownley, Chair
AB 2211 (Fuentes) - As Introduced: February 18, 2010
SUBJECT : Work-based learning
SUMMARY : Allows school districts to provide work-based learning
opportunities for pupils through existing programs such as
partnership academies, regional occupational programs (ROPs) and
other career technical education (CTE) programs. Specifically,
this bill, an urgency measure :
1)Makes various findings and declarations related to work-based
learning.
2)Defines "work-based learning" as an educational approach or
instructional methodology that uses the workplace or real work
to provide pupils the knowledge and skills that help them
connect school experiences to real-life work activities and
future career opportunities.
3)Provides that work-based learning opportunities for pupils may
be delivered by partnership academies, ROPs, and other
educational programs, and may include but are not limited to,
work experience education, community classrooms, cooperative
career technical education (CTE) programs, and job shadowing.
4)Authorizes school districts that maintain high schools to
establish work-based learning programs, and requires districts
that choose to offer work-based learning opportunities to
ensure that pupils are afforded the same statutory and
regulatory safeguards as pupils in work experience programs.
5)Authorizes districts to purchase liability insurance for
pupils enrolled in programs of study involving work-based
learning off school grounds and to arrange, approve coordinate
and award credit for work-based learning.
6)States that high quality work-based learning experiences may
include, but are not limited to, specified components and
characteristics.
7)Requires the State Board of Education (SBE) to develop model
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content standards, pursuant to recommendations made by the
Superintendent of Public Instruction (SPI), for work-based
learning and requires these standards to be aligned with the
most current academic and CTE standards adopted by the SBE.
8)Authorizes the SBE and the SPI for purposes of completing
these standards to use existing federal and state funds or to
apply for and accept grants and receive donations, or other
financial support from public or private sources for purposes
of this subdivision.
9)Encourages school districts offering work-based learning to
provide information to local transportation agencies about the
location of pupil work-based learning worksites and to submit
to the California Department of Education (CDE) work-based
learning best practices and specific examples of work-based
learning offered by the district.
10)Encourages school districts to work with local workforce
investment board youth councils to facilitate work-based
learning regional planning.
EXISTING LAW:
1)Authorizes school districts that maintain high schools to
establish work experience programs for the purpose of
providing pupils with instruction in skills, attitudes, and
understandings necessary for success in employment.
2)Provides for school districts that establish work experience
programs to receive apportionments based on the average daily
attendance in those programs, and provides procedures for the
calculation of the amount of those apportionments.
3)Establishes various CTE programs for public schools including
but not limited to regional occupational centers and programs
(ROC/Ps), partnership academies, adult education programs, and
career technical education programs in high schools and
community colleges.
4)Requires the SPI to coordinate the development, on a cyclical
basis, of model curriculum standards for a CTE course of
study, and requires the standards be adopted no later than
June 1, 2005.
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5)Requires the SPI, upon adoption of the model curriculum
standards for CTE, to work in consultation with a specified
advisory group to develop a curriculum framework for CTE no
later than November 1, 2006.
6)Requires the SPI to adopt rules and regulations for
cooperative CTE programs and community classrooms and requires
the rules and regulations to include but not be limited to
specified elements.
FISCAL EFFECT : Unknown
COMMENTS : This bill authorizes programs such as partnership
academies and regional occupational centers and programs to
deliver work-based learning opportunities for pupils.
Work-based learning is defined in this bill as an educational
approach or instructional methodology that uses the workplace or
real work to provide pupils the knowledge and skills that help
them connect school experiences to real-life work activities and
career opportunities. The objective is for work-based learning
to systematically reinforce both academic and technical content,
and the approach requires active involvement of industry
partners and teachers to coordinate the curriculum. Work-based
learning can take the form of internships, apprenticeships,
workplace simulations, and other opportunities in the business
or nonprofit arena.
Similar previous bills relative to work-based learning have been
vetoed by Governor Schwarzenegger. The last veto message notes
the lack of "sufficient protections to ensure that students are
not solely enrolled in job opportunities that are not combined
with sufficient academic coursework." This bill is different
from the prior bills as it includes a requirement for the SBE to
develop model content standards for work-based learning pursuant
to recommendations made by the SPI and requires these standards
to be aligned with the existing CTE standards.
The CTE standards were adopted by the SBE in 2005 and the CTE
Framework for California Schools for grades 7-12 in 2007. The
standards are divided into 15 industry sectors, and each sector
includes foundation standards and career pathway standards. For
example the Information Technology industry sector has
foundation standards but it also includes standards specializing
in the following career pathways: information support and
services, media support and services, network communications,
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and programming and systems development. The foundation
standards cover the following 11 areas: academics,
communications, career planning and management, technology,
problem solving and critical thinking, health and safety,
responsibility and flexibility, ethics and legal
responsibilities, leadership and teamwork, technical knowledge
and skills, and demonstration and application for each industry
sector.
Furthermore, the CTE Framework, which is the blueprint for
implementing the CTE standards, contains a chapter that
discusses step-by-step how to create standards-based CTE
programs, beginning with sequencing courses and mapping the
curriculum and culminating with the delivery of CTE through
experiential activities and work-based learning. On the subject
of work-based learning, the CTE framework suggests:
Collaborative planning, strategic design, and ongoing
support are all required for successful work-based
learning. Schools, employers, students and any
intermediaries should agree formally on the goals of
work-based learning and the means to achieve them.
The agreement should be documented in an
individualized, written, standards-based learning
plan. The agreement should, as much as possible
include exposure to several aspects of the industry
because students reap greater benefits and develop
broader more transferable skills by performing a range
of job duties rather than preparing for a single job.
Finally, all work-based learning should relate to a
student's course work, and the two should be mutually
reinforcing.
The CTE framework provides a level of guidance on the
implementation of work-based learning programs. Thus, it is not
clear as to how different work-based learning standards would be
from the existing CTE standards and framework. An argument
could be made that additional content standards are not
necessary considering that there are existing CTE standards in
place that transfer knowledge across disciplines and jobs. The
CTE standards were written in a broad format rather than in a
more detail-oriented and performance-level manner. The
framework notes, "Broad standards written at the knowledge and
skills levels encompass most lower-level specific activities and
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tasks while reducing the total number standards, as spelling out
all lower-level skills in all pathways would be impractical."
According to the author's staff, the intent of the bill is not
to create new content standards but rather to create principles
and guidelines for the delivery of work-based learning programs.
Several programs in current law provide work-based learning
experiences similar to what this bill establishes, for example
work experience education, cooperative CTE programs, and
community classrooms. Through existing law and regulations,
these programs provide guidance to districts for the delivery of
such programs. This bill could direct the SPI to build upon the
mechanisms that are currently in place to develop principles and
guidelines to help districts structure work-based learning
programs. Staff recommends the bill be amended to delete the
requirement to develop work-based learning content standards and
instead require the SPI in conjunction with business and
industry representatives and educators to develop principles and
guidelines for the delivery of work-based learning programs.
Additionally, the amendment shall require the SPI to consider
existing guidelines and regulations that have been developed for
similar programs in the development of principles and guidelines
for work-based learning. The SPI shall disseminate this
information to school districts that operate high schools and
make it available to school districts through the CDE Internet
Web site.
Multiple pathways : Work-based learning is a component of the
multiple pathways approach, which is a promising strategy that
delivers a rigorous and relevant curriculum that includes core
academics, applied learning and CTE within the high school
curriculum. This approach involves making core academic
subjects more relevant and applied while also making CTE more
rigorous. The integration of career based themes and content
across all subject areas is a promising approach that could give
students the opportunity to access both core content and CTE
without having to choose one over the other.
A prior measure, AB 2648 (Bass), Chapter 681, Statutes of 2008
required the SPI to develop, in conjunction with specified
individuals, a report that explores the feasibility of expanding
and establishing career multiple pathway programs. AB 2648
requires the report to include specified components, including,
but not limited to, methods for developing and sharing models of
integrated curriculum and instruction, strategies for increasing
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the course options and instructional time for pupils in high
school, and recommendations for supporting regional coalitions
in planning and developing the programs. The report was due to
the Legislature by December 1, 2009, but it has not been
finalized and thus not submitted to the Legislature. The draft
report notes the following challenges in implementing work-based
learning:
1. The unclear or limited definition of work-based learning
which may constrain implementation of work-based learning
in multiple pathways programs.
2. The time to place and monitor students in the workplace,
and the lack of flexibility regarding the school schedule.
Short class periods make work-based learning difficult, and
travel time adds further constraints.
3. Few models of quality work-based learning in
comprehensive high schools exist.
4. Transportation is a significant logistical concern.
5. Teacher capacity to develop offsite work-based learning
opportunities and lack of teacher experience in the
workplace are additional challenges.
6. Lack of meaningful relationships between school
districts and local employers and communities. Time and
knowledge are needed to build and nurture employer
relationships, including advisory committees.
To address some of the challenges noted in the draft multiple
pathways report, this bill encourages school districts offering
work-based learning to provide information to local
transportation agencies about the location of pupil work-based
learning worksites. The bill does not specify, however the
purpose for encouraging the sharing of this information.
According to the author's staff and the sponsors of the bill,
the Los Angeles Area Chamber of Commerce, the intent is to
maximize existing and proposed public transportation routes to
ensure high school students have greater access to work-based
learning sites. Staff recommends the bill be amended to further
define that the intent is to have this information shared with
local transportation agencies for purposes of increasing access
to work-based learning sites.
This bill encourages school districts to work with workforce
investment board (WIB) youth councils to facilitate work-based
learning regional planning. The Workforce Investment Act (WIA)
is a federal source of job-training funding that is implemented
through local WIBs and it includes youth programs targeted to
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disadvantaged youths 14 years of age and older. The programs
provide work preparation, education, and work-based learning
experiences. Schools can work with local one-stop centers to
implement work-based learning opportunities for economically
disadvantaged students. Each WIB has a youth council that works
with local elected officials, business leaders, unions,
community-based organizations, foundations and educational
entities to promote youth workforce preparation. The bill
currently lacks specifics on the regional planning is envisioned
to take place between school districts and WIB youth councils.
According to the author's staff and the sponsors of the bill,
the Los Angeles Area Chamber of Commerce, the intent is to
maximize WIA resources to coordinate work-based learning
opportunities. Staff recommends the bill be amended to reflect
that the purpose is to encourage coordination to maximize
available resources to expand work-based learning opportunities.
Lastly the bill encourages school districts that offer
work-based learning to submit to the CDE work-based learning
best practices and examples of work-based learning offered by
the district, and encourages CDE to post this information on its
Internet Web site.
The author states, "AB 2211 would expand 'work experience type
programs'- such as work-experience; ROC/P; job shadowing; paid
and unpaid internships; and pre-apprenticeship programs- to
broaden the availability of 'work-based learning' programs.
Additionally, the bill will facilitate relationships between the
local education agency and employers by providing each with
clear guidelines, goals, and expectations."
According to the sponsor of this bill, the Los Angeles Area
Chamber of Commerce, "Students at all achievement levels deserve
access to rigorous and engaging learning environments. We must
educate a more highly trained, flexible workforce with skill
sets that allows them to transition to different careers
throughout their working lives. They must also be able to apply
their knowledge in ways that allows them to collaborate with
other people and utilize new technology. Work-based learning is
a critical factor in this movement, providing students with
real-world professional experiences that reinforces and is
relevant to the classroom curriculum."
Prior legislation : AB 332 (Fuentes) of 2009 allows school
districts to provide work-based learning opportunities for
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pupils through existing programs such as partnership academies
and ROPs. AB 332 was vetoed by Governor Schwarzenegger with the
following veto message:
While I am very supportive of the intent of this bill
of providing students with opportunities to receive
rigorous and relevant career technical education
linked to real world experiences, I am concerned that
this bill lacks sufficient protections to ensure that
students are not solely enrolled in job opportunities
that are not combined with sufficient academic
coursework.
However I am directing my Administration to work with
the author so that I can consider a measure that is
more tightly crafted and would accomplish the goal of
promoting a balanced approach towards work-based
learning.
An identical measure, AB 2078 (Fuentes) of 2008 provides that
work-based learning opportunities for pupils may be delivered
through existing programs such as partnership academies and
regional occupational programs (ROPs). AB 2078 was vetoed by
Governor Schwarzenegger.
The veto message read: "The historic delay in passing the
2008-2009 State Budget has forced me to prioritize the bills
sent to my desk at the end of the year's legislative session.
Given the delay, I am only signing bills that are the highest
priority for California. This bill does not meet that standard
and I cannot sign it at this time."
REGISTERED SUPPORT / OPPOSITION :
Support
Los Angeles Area Chamber of Commerce (Sponsor)
Association of California School Administrators
California School Boards Association
California Teachers Association
Los Angeles Unified School District
State Public Affairs Committee of the Junior Leagues of
California
Opposition
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None on file.
Analysis Prepared by : Marisol Avi?a / ED. / (916) 319-2087