BILL ANALYSIS �
-----------------------------------------------------------------
|SENATE RULES COMMITTEE | SB 173|
|Office of Senate Floor Analyses | |
|1020 N Street, Suite 524 | |
|(916) 651-1520 Fax: (916) | |
|327-4478 | |
-----------------------------------------------------------------
UNFINISHED BUSINESS
Bill No: SB 173
Author: Liu (D)
Amended: 8/19/14
Vote: 21
SENATE EDUCATION COMMITTEE : 9-0, 4/17/13
AYES: Liu, Wyland, Block, Correa, Hancock, Hueso, Huff,
Jackson, Monning
SENATE APPROPRIATIONS COMMITTEE : 7-0, 5/23/13
AYES: De Le�n, Walters, Gaines, Hill, Lara, Padilla, Steinberg
SENATE FLOOR : 36-1, 5/29/13
AYES: Anderson, Beall, Block, Calderon, Cannella, Corbett,
Correa, De Le�n, DeSaulnier, Emmerson, Evans, Fuller, Gaines,
Galgiani, Hancock, Hernandez, Hill, Hueso, Huff, Jackson,
Knight, Lara, Leno, Lieu, Liu, Monning, Nielsen, Padilla,
Pavley, Price, Roth, Steinberg, Torres, Wolk, Wright, Wyland
NOES: Yee
NO VOTE RECORDED: Berryhill, Walters, Vacancy
ASSEMBLY FLOOR : 75-2, 8/27/14 - See last page for vote
SUBJECT : Adult education: funding
SOURCE : Author
DIGEST : This bill requires the Department of Education (CDE)
and the California Community Colleges Chancellor's Office
(CCCCO), as part of the report and recommendations required of
CONTINUED
SB 173
Page
2
the regional consortia, as specified, to jointly develop and
issue guidelines and policy recommendations to the Legislature
regarding adult education in the areas of assessment,
performance accountability, and fee policies; and, requires that
the CCCCO and CDE annually report on the number and types of
adult education courses being taught, including noncredit
courses, and the number of students being served.
Assembly Amendments delete the provisions to reduce the
categories of adult education course offerings, delete
legislative intent language regarding the allocation of funding,
modify and clarify reporting requirements and dates in order to
reduce costs.
ANALYSIS :
Existing law:
1.Authorizes both the CCCs and K-12 systems to offer and receive
state funding for adult education courses.
2.Prohibits the local governing board of a community college
district (CCD) maintaining a noncredit course from requiring
an adult enrolled in such a course to pay nonresident tuition
or any fee or charge of any kind for a class in English and
citizenship for foreigners, a class in an elementary subject,
a class designated as granting high school credit to an
individual without a high school diploma or other adult basic
education programs and courses, as specified.
3.Authorizes a school district governing board to require a fee
of an adult enrolled in a class for adults and prohibits the
total of the fees required and revenues derived from average
daily attendance from exceeding the estimated cost of
maintaining such classes. Also prohibits the imposition of a
charge of any kind for a class in English and citizenship or a
class in an elementary subject, nor for any class which is
designated as granting high school credit when the class is
taken by a person who does not hold a high school diploma.
However, current law temporarily grants the authority to
districts to charge a fee for a class in English and
citizenship until July 1, 2015.
4.Prohibits the CCCs from requiring an adult enrolled in a
CONTINUED
SB 173
Page
3
noncredit course to pay nonresident tuition or any fee or
charge of any kind for a class in English and citizenship for
foreigners, a class in an elementary subject, a class
designated by the governing board as a class for which high
school credit is granted when the class is taken by a person
who does not hold a high school diploma, or any class offered
by a CCD, as specified.
This bill:
1.Requires the CCCCO, in conjunction with CDE, to jointly
develop and issue policy guidelines regarding assessments to
be used by CCDs and school districts for purposes of placement
in adult education courses offered, as specified.
2.Requires the CCCCO and CDE, as part of the report and
recommendations required of the regional consortia, to jointly
develop and issue policy recommendations to the Legislature
that do the following:
A. Jointly establish and implement a comprehensive
accountability system for adult education courses; and
B. Develop recommendations for all adult education funded
providers for assessment, evaluation, and data collection
to document participant outcomes and placement and other
measures they deem appropriate. Specifies that
accountability measures may include receipt of a secondary
school diploma or its recognized equivalent, placement in a
postsecondary educational institution, training, and
employment. Requires all funded programs to annually
submit demographic and other student-level outcome
information.
1.Requires the CCCCO and CDE, as part of the report and
recommendations required of the regional consortia, to
coordinate and issue both of the following:
A. Recommendations, including recommendations as to whether
or not fees should be assessed, and fee policy guidelines
to be used by school districts and CCDs regarding the
authority to charge fees for courses offered, as specified;
declares that with respect to these recommendations and
guidelines, it is the intent of the Legislature that:
CONTINUED
SB 173
Page
4
(1) Registration and course fees be equivalent across
all programs;
(2) Fees not generate income beyond the cost of
providing the courses; and
(3) Fees not create a barrier to student access to
adult education programs.
A. Recommendations and policy guidelines regarding the use
of a single student identifier to be used by school
districts and CCDs for purposes of developing a
comprehensive accountability system, as specified.
1.Requires the CCCCO, in conjunction with CDE, to annually
report on the number and types of courses being taught and the
number of students being served with funding provided to the
regional consortia; and, specifies that the CCCCO shall
annually report on the number and types of noncredit courses
being taught and the number of students being served with
funding provided to the community colleges (CCCs) for the
courses offered as specified.
2.Specifies that the CCCCO shall identify any deficits in course
offerings based upon levels, types, and needs for adult
education programs identified in the consortia plans submitted
as required under existing law.
3.Requires, by July 1, 2016, the Commission on Teacher
Credentialing (CTC) and the Academic Senate for the CCC to
meet to review their current requirements for noncredit adult
education and adult education instructors, and develop and
submit recommendations to the appropriate policy and fiscal
committees of the Legislature for modifying or establishing
reciprocity standards for instructors of adult education
courses.
4.Expresses the intent of the Legislature to evaluate the
guidelines for the accountability system established under
existing law.
5.Defines "chancellor's office" as the CCCCO and "department" to
mean CDE.
CONTINUED
SB 173
Page
5
Comments
According to Senate Education Committee, the LAO, in its
December 2012 report, Restructuring California's Adult Education
System, identified several weaknesses with the current adult
education system, a bifurcated system in which both K-12 and
CCCs offer courses subject to distinctly different policies.
Similar findings were identified in a series of reports prepared
by the California Budget Project (At a Crossroads series
publications, April 2010 - May 2011).
LAO recommendations to address these weaknesses included the
creation of:
1.A state-subsidized system focused on adult education's core
mission.
2.Common, statewide definitions that clearly differentiate
between adult education and college education.
3.A common set of policies relating to faculty qualifications,
fees, and student assessment.
4.A dedicated stream of funding that fosters cooperation between
adult schools and CCCs.
5.An integrated data system that tracks student outcomes and
helps the public hold providers accountable for results.
This bill begins the implementation of programmatic changes
necessary to better align the bifurcated system of delivering
adult education and non-credit adult education courses, and to
begin a shift towards a more rational and coordinated funding
approach for K-12 adult education and CCC noncredit adult
education programs in California.
Related budget activity . The Governor's 2013-14 Budget proposes
a number of changes to adult education in California beginning
in 2013-14. These changes include elements that:
1.Eliminate the K-12 adult education categorical program and
consolidate all associated annual funding into a new K-12
"local control funding formula."
CONTINUED
SB 173
Page
6
2.Appropriate $300 million in new Proposition 98 General Fund to
reconstitute the adult education program within the CCC system
beginning in 2013-14 (the Governor's proposal currently
restricts CCC apportionments to "credit" instruction).
3.Shift $15.7 million from a K-12 apprenticeship program to a
new CCC program.
FISCAL EFFECT : Appropriation: No Fiscal Com.: Yes
Local: No
According to the Assembly Appropriations Committee:
One-time administrative costs to the CTC in the range of
$150,000 to $200,000 (special funds) to review, develop, and
recommend reciprocity standards for adult education
instruction by July 1, 2016.
General Fund administrative costs to CCCCO in the range of
$80,000 to $100,000 to identify deficits in course offerings,
as specified.
General Fund administrative costs to CDE of approximately
$75,000 to implement the reporting requirements of this bill.
SUPPORT : (Verified 8/27/14)
California Adult Education Administrators Association
California Council for Adult Education
OPPOSITION : (Verified 8/27/14)
AARP
California Coalition to Save Older Adult Education
California Teachers Association
ASSEMBLY FLOOR : 75-2, 8/27/14
AYES: Achadjian, Alejo, Allen, Bigelow, Bloom, Bocanegra,
Bonilla, Bonta, Bradford, Brown, Buchanan, Ian Calderon,
Campos, Chau, Ch�vez, Chesbro, Conway, Cooley, Dababneh,
Dahle, Daly, Dickinson, Donnelly, Eggman, Fong, Fox, Frazier,
Beth Gaines, Garcia, Gatto, Gomez, Gonzalez, Gordon, Gorell,
CONTINUED
SB 173
Page
7
Gray, Grove, Hagman, Roger Hern�ndez, Holden, Jones,
Jones-Sawyer, Levine, Linder, Logue, Lowenthal, Maienschein,
Mansoor, Medina, Melendez, Mullin, Muratsuchi, Nazarian,
Nestande, Olsen, Pan, Patterson, Perea, John A. P�rez, V.
Manuel P�rez, Quirk, Quirk-Silva, Rendon, Ridley-Thomas,
Rodriguez, Salas, Skinner, Stone, Ting, Wagner, Waldron,
Weber, Wieckowski, Wilk, Williams, Atkins
NOES: Ammiano, Hall
NO VOTE RECORDED: Harkey, Yamada, Vacancy
PQ:e 8/27/14 Senate Floor Analyses
SUPPORT/OPPOSITION: SEE ABOVE
**** END ****
CONTINUED