BILL ANALYSIS
AB 2721
Page 1
Date of Hearing: April 21, 2010
ASSEMBLY COMMITTEE ON EDUCATION
Julia Brownley, Chair
AB 2721 (Blakeslee) - As Amended: April 8, 2010
SUBJECT : High School Apprentice Program
SUMMARY : Requires any business, trade or professional
association, union, or state or local governmental agency
establishing a career preparatory program, as specified, to
develop a course of instruction that satisfies the high school
graduation requirements applicable to grades 9-12, inclusive,
rather than to grades 11 and 12.
EXISTING LAW :
1)Authorizes any business, trade or professional association,
union, or state or local governmental agency operating within
this state to establish and operate, under the auspices of the
local school district, a career preparatory program that meets
specified requirements.
2)Requires an entity establishing and operating a career
preparatory program to develop and implement a course of
instruction for all pupils enrolled in the program that
satisfies the graduation requirements set forth in existing
law that are applicable to grades 11 and 12.
3)Authorizes an entity establishing and operating a career
preparatory program to propose and implement a program that is
designed to provide on-the-job training and instruction in
specific career technical skills to prepare pupils for future
employment and to present to pupils who successfully complete
all aspects of the program a certificate of completion that
supplements a high school diploma.
4)Authorizes a pupil who has successfully completed his or her
education through grade 10, with the written consent of his or
her parent or guardian, to choose to follow either a
traditional college preparatory curriculum or a career
preparatory program.
5)Requires the California Department of Education (CDE) to adopt
rules and regulations by January 1, 1996, relative to the
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administration of career preparatory programs.
6)Provides that a private entity establishing a career
preparatory program shall not be eligible for any moneys from
the state or any school district but may contract for
assistance in the development or administration of that
program with one or more of the specified entities.
FISCAL EFFECT : Unknown
COMMENTS : The career preparatory program was established by SB
1486 (Peace), Chapter 1180, Statutes of 1994 to allow any
business, trade or professional association, union, or state or
local governmental agency operating within the state to
establish and operate, under the auspices of a school district,
a career preparatory program for pupils in grades 11 and 12 who
have successfully completed their education through grade 10 and
who choose follow a career preparatory program instead of a
college preparatory program. This bill would essentially expand
the career preparatory program and make this a program for
grades 9-12, inclusive.
According the CDE, this program has not been operative and no
regulations have been developed for implementation of this
program, thus there is no knowledge of any such programs
operating in the state.
The premise of the program that this bill seeks to amend was
based on the philosophy that students should be able to choose
either a college preparatory curriculum or a career preparatory
curriculum. At the time when the original legislation that
established the college preparatory program was passed concerns
about tracking were expressed. As the Senate Education Analysis
of SB 1486 (Peace) notes, "This bill appears to promote the
'tracking' of students by offering them an 'either-or' choice in
11th grade. Tracking has historically led to the stigmatization
of the curriculum and students within the track when the goal is
preparation for occupations not ordinarily requiring a
bachelor's degree. Current reform efforts as described in the
'Background' attempt to redefine the vocational education track
or do away with dual tracking altogether."
In recent years, an ongoing debate over whether to encourage
more college preparatory courses or more career technical
education (CTE) has dominated the policy discourse over high
school graduation requirements, high school CTE course offerings
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and postsecondary education opportunities for pupils. Recent
research has highlighted the importance and benefits of
providing pupils sequenced and integrated coursework that
combines core academics with technical courses related to a
specific field. While proponents of CTE argue that not all
students will go to college upon high school graduation, the
issue of providing equal access to higher education
opportunities is still an issue of concern. There is still
evidence of the disproportionate representation of minority
students in institutions of higher education and it is partly
due to inappropriate access to college preparatory coursework at
the schools where they attend.
A 2006 report titled, Removing the Roadblocks: Fair College
Opportunities for All California Students documents that,
"African American, Latino, and American Indian students are
dramatically underrepresented at every point along the road to
meeting University of California admission requirements." The
report points out that one of the roadblocks is the shortage of
A-G college preparatory classes and advanced A-G classes which
are more likely to occur in schools where African American and
Latino students are the majority. California high schools have
the responsibility to prepare pupils for both college and career
and not one or the other. Preparing students for the workforce
and for college will ensure that students have multiple options
upon graduating from high school.
Recent research suggests that the integration of CTE and college
prep courses can engage high school students and reduce the
likelihood that students will drop out of high school.
University of California, Los Angeles Institute for Democracy,
Education & Access (UCLA/IDEA) and the University of California
All Campus Consortium on Research for Diversity (UC/ACCORD)
released a series of research papers that examine the promise of
providing high school students "multiple pathways." Multiple
pathway programs combine core academics with technical courses
related to a specific field. The research suggests that the
concept of "multiple pathways" would end "the tired debate about
whether high school students need more rigorous academics or a
more relevant career-focused curriculum.
Arguably, this bill also appears to promote the 'tracking' of
students just earlier in their high school trajectory as this
bill expands the program so it starts in grade 9 rather than
grade 11. This Committee may wish to consider whether to
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approve a bill that essentially would expand a program that
promotes the tracking of high school students. While these
programs are currently not operating, the approval of a bill
that expands a program specifying that after completing grade
10, a pupil may choose to follow either a career or a college
curriculum, is contrary to recent efforts to provide pupils
access to both options not one or the other.
The author states, "This bill seeks to curb the state's
staggering drop out rates by engaging students earlier in their
academic career in career technical education programs. Students
who cannot access career technical/apprenticeship programs until
the 11th grade may be on the path to dropping out before having
the opportunity to participate in programs that create real
world incentives to stay in school."
Data from the California Department of Education shows that in
2006-07 there were 24,580 CTE courses available to high school
students and a total of 610,856 grades 9-12 students enrolled in
CTE courses. It is important to note that nothing in existing
law would prohibit pupils to enroll in available CTE courses in
the 9th or 10th grade. School districts locally determine their
own course offerings and pupils choose whether to take those
courses or not. In addition to district CTE offerings which may
include regional occupational center or program (ROC/P) courses,
county offices of education operate ROC/P programs as well.
Only pupils in 11th and 12th grade may enroll in ROC/P programs
and other programs such as the California Partnership Academies
serve pupils in grades 10-12, inclusive.
Multiple pathway programs are multiyear comprehensive high
school programs that attempt to make core academic subjects more
relevant and engaging for pupils and they seek to integrate
academic and technical study around a broad theme or industry
sector. The idea behind multiple pathways is to integrate
career based themes and content across all academic subject
areas in order to give students the opportunity to access both
core content and CTE without having to choose one over the
other. The four core components of multiple pathways include,
an integrated core curriculum delivered through problem and
project based learning; an integrated technical core curriculum
including a sequence of at least four related courses; a series
of work-based learning opportunities; and student support
services.
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Pursuant to AB 2648 (Bass, Carter & Furutani), Chapter 681,
Statutes of 2008, the SPI is required 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 be submitted to
the Legislature by December 1, 2009, but at the time of this
writing, the final report has not been submitted to the
Legislature. Pending legislation authored by two of the three
joint authors of AB 2648 seeks to implement the recommendations
from the report that is forthcoming.
Several multiple pathway programs are found in districts across
the state and they are found in various forms. For example,
Laguna Creek High School in Elk Grove has a very successful
Manufacturing Production Technology Academy; Health Professions
High School in Sacramento uses the theme of healthcare to
deliver instruction across subject areas; and the Stanley E.
Foster Construction Tech Academy at Kearny High Educational
Complex in San Diego provides students opportunities for
exploring careers in construction, architecture and engineering.
All these programs use an industry pathway to provide pupils a
college preparatory curriculum that also allows them to explore
careers and make real world connections. The multiple pathway
approach seeks to make education more relevant for students to
keep them engaged and improve student outcomes and graduation
rates.
According to information provided by the author's staff, the
intent of this bill is to create a CTE program for high school
students similar to a program established in Spokane,
Washington. The program suggested by the author's staff does
not appear to be much different than existing programs or CTE
opportunities available to pupils in California schools as the
program includes enrollment in CTE courses and a job shadowing
component. The program appears to have some of the components
of the multiple pathway model, as it is a multiyear program that
integrates academics and CTE and emphasizes work-based learning.
Staff recommends the following amendments:
1) To repeal, from the Education Code, the existing
provisions relative to the career preparatory program; and,
2) To encourage districts to offer multiple pathway
programs in fulfilling requirements to offer pupils courses
AB 2721
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of study that fulfill the requirements for admission to
postsecondary institutions and to attain entry-level
employment skills as provided in current law.
Related legislation : AB 2172 (Carter) requires the
Superintendent of Public Instruction (SPI) to convene an
advisory board that includes specified parties to review the
recommendations of a report on multiple pathways required
pursuant to existing law, and advise the SPI on the
implementation of those recommendations. AB 2172 is pending in
this Committee.
AB 2445 (Furutani) requires the Superintendent of Public
Instruction (SPI) to report to the Legislature on the status of
the advisory board that is established by AB 2172 (Carter) of
the 2009-10 Regular Session, and makes several findings and
declarations relative to multiple pathway programs and the
enactment of AB 2648 (Bass, Carter, Furutani), Chapter 681,
Statutes of 2008. AB 2445 is pending in this Committee and is
scheduled to be heard today.
AB 2211 (Fuentes) allows school districts to provide work-based
learning opportunities for pupils through existing programs such
as partnership academies, ROPs and other CTE programs. AB 2211
passed out of the Assembly Education Committee on an 8-0 vote on
April 7, 2010.
AB 2446 (Furutani) adds career technical education (CTE), as
defined, as an option for pupils to fulfill the existing high
school graduation requirement to complete a course in visual or
performing arts or foreign language and sunsets these provisions
on January 1, 2017.
Previous legislation : AB 2648 (Bass, Carter & Furutani),
Chapter 681, Statutes of 2008, requires the SPI to develop, in
conjunction with specified individuals, a report that explores
the feasibility of expanding and establishing career multiple
pathway programs.
SB 725 (Hancock) of 2009 authorizes regional occupational
centers or programs, upon certification from the Superintendent
of Public Instruction, to offer a California Apprenticeship
Preparation Program and establishes criteria for the
establishment of those programs.
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AB 2515 (Hancock) of 2008 authorizes a regional occupational
center or program (ROC/P), upon approval and certification by
the Superintendent of Public Instruction (SPI), to offer a
Preparation for Apprenticeship Program (PA program).
AB 2855 (Hancock) Chapter 685, Statutes of 2008, establishes,
commencing with the 2009-10 school year, the green technology
partnership academies and the goods movement partnership
academies as two new categories of California partnership
academies (CPAs) and requires the SPI, commencing in the 2009-10
school year, to prioritize partnership academy grants for
programs that focus on green technology and goods movement.
REGISTERED SUPPORT / OPPOSITION :
Support
None on file.
Opposition
None on file.
Analysis Prepared by : Marisol Avi?a / ED. / (916) 319-2087