Existing law prescribes the minimum requirements for a clear multiple or single subject teaching credential, including the completion of either a beginning teacher induction program approved by the Commission on Teacher Credentialing and the Superintendent of Public Instruction pursuant to the Marian Bergeson Beginning Teacher Support and Assessment System, an alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the State Board of Education, as provided, or an alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commissions standards of induction, except as provided. Existing law also requires credentials for teaching specialties, including, but not limited to, bilingual education, early childhood education, and special education, to be based upon a baccalaureate degree from an accredited institution, completion of a program of professional preparation, and any other standards which the commission may establish.

This bill would, commencing with hiring for the 201617 school year, and each school year thereafter, prohibit a school district, county office of education, or charter school from charging a fee to a beginning teacher to participate in a beginning teacher induction program that is approved by the commission and the Superintendent, and would define a beginning teacher for purposes of that provision to include a teacher with a preliminary multiple or single subject teaching credential, or a preliminary education specialist credential. The bill also would prohibit a local educational agency from charging a fee to a beginning teacher to participate in an alternative program of beginning teacher induction program that it provides, and would prohibit a school district from charging a fee to a beginning teacher to participate in an alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts.

Existing law prescribes the minimum requirements for a clear multiple or single subject teaching credential, including the completion of either a beginning teacher induction program approved by the Commission on Teacher Credentialing and the Superintendent of Public Instruction pursuant to the Marian Bergeson Beginning Teacher Support and Assessment System, an alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the State Board of Education, as provided, or an alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commissions standards of induction, except as provided. Existing law also requires credentials for teaching specialties, including, but not limited to, bilingual education, early childhood education, and special education, to be based upon a baccalaureate degree from an accredited institution, completion of a program of professional preparation, and any other standards which the commission may establish.

This bill would, commencing with hiring for the 201617 school year, and each school year thereafter, require prohibit a school district, county office of education, or charter school that hires a beginning teacher to provide that beginning teacher with from charging a fee to a beginning teacher to participate in a beginning teacher induction program that is approved by the commission and the Superintendent or one of the alternative beginning teacher induction programs described above, except as provided. The bill Superintendent, and would define a beginning teacher for purposes of that provision to include a teacher with a preliminary multiple or single subject teaching credential, or a preliminary education specialist credential. By requiring local educational agencies to provide an induction program to newly hired beginning teachers, the bill would impose a state-mandated local program. The bill also would prohibit a local educational agency from charging a fee to a beginning teacher to participate in an alternative program of beginning teacher induction program that it provides, and would prohibit a school district from charging a fee to a beginning teacher to participate in an alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts.

Existing law prescribes the minimum requirements for a clear multiple or single subject teaching credential, including the completion of either a beginning teacher induction program approved by the Commission on Teacher Credentialing and the Superintendent of Public Instruction pursuant to the Marian Bergeson Beginning Teacher Support and Assessment System, an alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the State Board of Education, as provided, or an alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commissions standards of induction, except as provided. Existing law also requires credentials for teaching specialties, including, but not limited to, bilingual education, early childhood education, and special education, to be based upon a baccalaureate degree from an accredited institution, completion of a program of professional preparation, and any other standards which the commission may establish.

This bill would, commencing with hiring for the 201617 school year, and each school year thereafter, as a condition for receiving certain federal funds, require a school district, county office of education, or a charter school that hires a beginning teacher to provide that beginning teacher with a beginning teacher induction program that is approved by the commission and the Superintendent or one of the alternative beginning teacher induction programs described above, except as provided. The bill would require the State Department of Education to enforce the condition in making subgrants of those federal funds to school districts, county offices of education, and charter schools. The bill also would prohibit a local educational agency from charging a fee to a beginning teacher to participate in an induction program. define a beginning teacher for purposes of that provision to include a teacher with a preliminary multiple or single subject teaching credential, or a preliminary education specialist credential. By requiring local educational agencies to provide an induction program to newly hired beginning teachers, the bill would impose a state-mandated local program.

Existing law prescribes the minimum requirements for a clear multiple or single subject teaching credential, including the completion of either a beginning teacher induction program approved by the commission Commission on Teacher Credentialing and the Superintendent of Public Instruction pursuant to the Marian Bergeson Beginning Teacher Support and Assessment System, an alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the State Board of Education, as provided, or an alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commissions standards of induction, except as provided.

This bill would, commencing with hiring for the 201617 school year, and each school year thereafter, as a condition for receiving certain federal funds, require a school district, county office of education, or a charter school that hires a beginning teacher to provide that beginning teacher with a beginning teacher induction program that is approved by the commission and the Superintendent or one of the alternative beginning teacher induction programs described above, except as provided. The bill would require the State Department of Education to enforce the condition in making subgrants of those federal funds to school districts, county offices of education, and charter schools. The bill also would prohibit a local educational agency from charging a fee to a beginning teacher to participate in an induction program. By requiring local educational agencies to provide an induction program to newly hired beginning teachers, the bill would impose a state-mandated local program.

Existing law separately authorizes prescribes the minimum requirements for a clear multiple or single subject teaching credential, including the completion of either a beginning teacher induction program approved by the commission and the Superintendent pursuant to the Marian Bergeson Beginning Teacher Support and Assessment System, an alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the State Board of Education, as provided. Existing law authorizes an alternative program of beginning teacher induction that has met state standards to apply for state funding, as specified.

Existing law also separately authorizes provided, or an alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commissions standards of induction. induction, except as provided.

This bill would, commencing with hiring for the 201617 school year, and each school year thereafter, require a school district or district, county office of education education, or a charter school that hires a beginning teacher to provide that beginning teacher with one of these a beginning teacher induction programs, program that is approved by the commission and the Superintendent or one of the alternative beginning teacher induction programs described above, except as provided. The bill also would also prohibit a local educational agency from charging a fee to a beginning teacher to participate in an induction program. By requiring school districts and county offices of education local educational agencies to provide an induction program to newly hired beginning teachers, the bill would impose a state-mandated local program.

The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.

This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to these statutory provisions.

Existing law establishes the Marian Bergeson Beginning Teacher Support and Assessment System to, among other things, provide an effective transition into the teaching career for first year and 2nd year teachers in this state. Existing law requires the Superintendent of Public Instruction and the Commission on Teacher Credentialing to jointly administer this program, to contract for specified services, and to establish requirements for local teacher induction programs. Existing law makes participation in the system voluntary for teachers, school districts, and county offices of education. Existing law authorizes a school district or a consortium of school districts to apply for funding to establish a local teacher induction program, and sets forth the requirements that a school district or consortium of school districts must meet to be eligible for funding.

Existing law separately authorizes an alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the State Board of Education, as provided. Existing law authorizes an alternative program of beginning teacher induction that has met state standards to apply for state funding, as specified.

Existing law also separately authorizes an alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commissions standards of induction.

This bill would, commencing with hiring for the 201617 school year, and each school year thereafter, require a school district or county office of education that hires a beginning teacher to provide that teacher with one of these induction programs, except as provided. The bill would also prohibit a local educational agency from charging a fee to a beginning teacher to participate in an induction program. By requiring school districts and county offices of education to provide an induction program to newly hired beginning teachers, the bill would impose a state-mandated local program.

The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.

This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to these statutory provisions.

GOVERNOR'S VETO

GV Bill Id:AB 141

Author:(Bonilla)

As Enrolled Ver:September 14, 2015

2/3 vote

Original Committee Reference: ED.

SUMMARY: Prohibits, commencing with hiring for the 2016-17 school year, a school district, county office of education (COE), or charter school from charging a beginning teacher a fee to participate in a beginning teacher induction program.

The Senate amendments:

1. Delete the requirement for a school district, COE or charter school to provide beginning teachers with a program of beginning teacher induction.

2. Specify that a beginning teacher includes a teacher with a preliminary multiple or single subject teaching credential, or a preliminary education specialist credential.

3. Add Legislative findings and declarations about the burden that teacher induction fees have on beginning teachers and how those burdens will affect the state's teacher shortage.

EXISTING LAW:

1. Requires a teacher to complete one of the following beginning teacher induction programs in order to obtain a clear multiple or single subject teaching credential:

   1. A program of beginning teacher support and assessment approved by the commission and the Superintendent, a provision of the Marian Bergeson Beginning Teacher Support and Assessment System.

   2. An alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the state board.

   3. An alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commission's standards of induction.

2. Specifies that if a candidate satisfies the requirements, including completion of an accredited internship program of professional preparation, and if that internship program fulfills induction standards and is approved, the commission shall determine that the candidate has fulfilled the induction requirements.

3. Specifies that if an approved induction program is verified as unavailable to a beginning teacher, or if the beginning teacher is required under the federal No Child Left Behind Act to complete subject matter coursework to be qualified for a teaching assignment, the commission shall accept completion of an approved clear credential program after completion of a baccalaureate degree at a regionally accredited institution as fulfilling the induction requirements.

FISCAL EFFECT: According to the Senate Appropriations Committee, this bill's costs will ultimately depend upon the number of beginning teachers and the cost of the program. These figures range and fluctuate from year to year. Assuming a program cost of roughly $5,000 and total teacher preparation program enrollment for 2012-13 of 19,933, this bill could drive reimbursable state mandate costs of about $100 million annually for local educational agencies (LEAs) to provide new teachers induction programs. The Commission on State Mandates may identify some offsetting costs at least in the 2015-16 fiscal year. The California Department of Education (CDE) indicates that ensuring new teachers are provided induction programs and that they are not being charged a fee to participate could be included as a monitoring protocol in the Title II Federal Program Monitoring process. This is not anticipated to result in significant costs to the CDE.

COMMENTS: Commencing with hiring for the 2016–17 school year, this bill requires a school district, COE or charter school hiring a beginning teacher to provide that teacher with an induction program. If a district does not operate an induction program for its teachers, it is unclear how teachers at that district will be served. It is potentially possible that teachers at districts that do not operate an induction program may have trouble finding an induction program locally, since neighboring districts may not allow them in their program due to the fact that the district is prohibited from charging a fee. These teachers would be forced to pay for a Clear Credential program at an institution of higher education.

Beginning Teacher Support and Assessment (BTSA) Background: According to the Commission on Teacher Credentialing (CTC), induction for new teachers in California has evolved in significant ways over its 25-year history. The BTSA program was established as a result of a pilot study conducted during 1988-1992 by the CTC and the CDE. This pilot study, known as the California New Teacher Project demonstrated that the state could increase beginning teacher retention, success and effectiveness, by providing all new teachers with structured mentoring and support. After considerable legislative discussion of the pilot project report, the Governor and the Legislature established the BTSA Program in the 1992-93 State Budget. At that time, the program was a grant program designed to support new teachers and was not a credential requirement for teachers.

The successes of the California New Teacher Project grant programs influenced the CTC appointed Advisory Panel which conducted a review of the requirements for earning and renewing teaching credentials. Their recommendations were embodied in the passage of SB 2042 (Alpert), Chapter 548, Statutes of 1998, which created a two-tiered teaching credential system, significantly changed the BTSA program by establishing induction as the second tier in California's teacher preparation and credentialing system and instituting the completion of a standards based induction program as a path toward the Clear Credential for Multiple and Single Subject credentials.

In 2004, the Legislature mandated a CTC-approved Induction program, if available, as the required route for Multiple and Single Subject teachers to obtain a clear teaching credential. Legislation clarified that, if an induction program is verified as unavailable by a beginning teacher's employer or the teacher needed to complete content area coursework for No Child Left Behind (NCLB), then the teacher may complete a Commission-approved Clear Credential program sponsored by a college or university.

From 1995 until 2009 BTSA Induction programs operated with dedicated annual funding based on a per-participating teacher allocation (with a required LEA in-kind match). In February 2009 the State Budget provided LEAs with spending flexibility. LEAs were able to use funds from about 40 categorical programs, including the Teacher Credentialing Block Grant of which the BTSA Induction program was a part, for any educational purpose for a five year period. This statute created greater program funding flexibility and removed the in-kind requirement but continued the funding to local education agencies that sponsor CTC approved BTSA Induction programs.

Since the 2009 onset of flexible funding provisions, a number of Commission-approved programs have become inactive or withdrawn since the per-participant funding ended. Of specific interest in terms of statewide program equity, access and parity is the issue of induction programs charging beginning teachers to participate. The induction programs sponsored by colleges or universities have always charged tuition. A few LEA-based induction programs were approved by the Commission after 2009 and never received any per participant state funding. These programs, sponsored by charter schools, have always charged candidates. An additional reality that appears to be surfacing is the fact that some programs are "capping" the number of new teachers they will serve, resulting in inequities within a district as some new teachers receive induction services and others are faced with having to search and pay for induction services outside of their district or teach, largely unsupported, in a classroom for a year or more until they reach the top of the program’s waiting list.

According to the author, some districts and COEs are requiring teachers to pay for their participation in induction programs, placing heavy financial burdens on teachers just starting their careers. According to data collected by the CTC, induction providers are charging new teachers up to $2,500 a year for the two-year program. The fee is significant for teachers whose profession is underpaid. Furthermore, some school districts are covering the full cost of induction, not putting any additional financial burdens on their new teachers, creating an unequal playing field for teachers who have identical experiences, education, and credentials. According to data collected by the CTC, induction fee policies vary greatly around the state. Some LEAs continue to offer induction for free to their beginning teachers, while others are charging up to $2,500 a year for the two year program.

Induction Options to Obtain a Clear Teaching Credential: Completion of an approved Induction Program is the primary route to attaining a clear teaching credential. If an employed teacher (employer is defined as a California public school, any school that is sponsored by a private California K‐12 school, non‐public, nonsectarian school or agency, charter school, or a school operated under the direction of a California state agency) does not have an Induction Program available to them then the teacher may enroll in a Clear Credential Program. Currently there are 22 Commission-approved Clear Credential programs operating in California (three California State Universities, three Universities of California, and 16 private and independent institutions).

Induction Fees: The CTC conducted a survey of CTC-approved induction programs and received 126 responses out of 165 programs. Of the survey respondents, 11.5% of LEA sponsored induction programs reported that they charged fees to induction participants in 2014-15. This equates to 2,063 participants who paid fees out of 17,907 total participants at respondent LEAs. Respondents reported the per year fees range from $390 to $3,350.

GOVERNOR'S VETO MESSAGE:

This bill prohibits a local educational agency from charging a teacher to complete a beginning teacher induction program. This prohibition will create a reimbursable mandate estimated to cost over $100 million annually.

The vast majority of local educational agencies provide induction and support to beginning teachers free of charge. I commend these entities for recognizing the importance of supporting and retaining new teachers.

In addition to funding allocated through the Local Control Funding Formula, the state has provided $490 million in this year's budget to promote educator quality over the next three years. Part of this funding should be used to support new teachers. Creating a new mandate, however, is not the answer.

Analysis Prepared by: Chelsea Kelley / ED. / (916) 319-2087 FN: 0002483

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 141

Author:(Bonilla)

As Amended Ver:September 4, 2015

Majority vote

Original Committee Reference: ED.

SUMMARY: Prohibits, commencing with hiring for the 2016-17 school year, a school district, county office of education (COE), or charter school from charging a beginning teacher a fee to participate in a beginning teacher induction program.

The Senate amendments:

1. Delete the requirement for a school district, COE or charter school to provide beginning teachers with a program of beginning teacher induction.

2. Specify that a beginning teacher includes a teacher with a preliminary multiple or single subject teaching credential, or a preliminary education specialist credential.

3. Add Legislative findings and declarations about the burden that teacher induction fees have on beginning teachers and how those burdens will affect the state's teacher shortage.

EXISTING LAW:

1. Requires a teacher to complete one of the following beginning teacher induction programs in order to obtain a clear multiple or single subject teaching credential:

   1. A program of beginning teacher support and assessment approved by the commission and the Superintendent, a provision of the Marian Bergeson Beginning Teacher Support and Assessment System.

   2. An alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the state board.

   3. An alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commission's standards of induction.

2. Specifies that if a candidate satisfies the requirements, including completion of an accredited internship program of professional preparation, and if that internship program fulfills induction standards and is approved, the commission shall determine that the candidate has fulfilled the induction requirements.

3. Specifies that if an approved induction program is verified as unavailable to a beginning teacher, or if the beginning teacher is required under the federal No Child Left Behind Act to complete subject matter coursework to be qualified for a teaching assignment, the commission shall accept completion of an approved clear credential program after completion of a baccalaureate degree at a regionally accredited institution as fulfilling the induction requirements.

FISCAL EFFECT: According to the Senate Appropriations Committee, this bill's costs will ultimately depend upon the number of beginning teachers and the cost of the program. These figures range and fluctuate from year to year. Assuming a program cost of roughly $5,000 and total teacher preparation program enrollment for 2012-13 of 19,933, this bill could drive reimbursable state mandate costs of about $100 million annually for LEAs to provide new teachers induction programs. The Commission on State Mandates may identify some offsetting costs at least in the 2015-16 fiscal year. The California Department of Education (CDE) indicates that ensuring new teachers are provided induction programs and that they are not being charged a fee to participate could be included as a monitoring protocol in the Title II Federal Program Monitoring process. This is not anticipated to result in significant costs to the CDE.

COMMENTS: Commencing with hiring for the 2016–17 school year, this bill requires a school district, COE or charter school hiring a beginning teacher to provide that teacher with an induction program. If a district does not operate an induction program for its teachers, it is unclear how teachers at that district will be served. It is potentially possible that teachers at districts that do not operate an induction program may have trouble finding an induction program locally, since neighboring districts may not allow them in their program due to the fact that the district is prohibited from charging a fee. These teachers would be forced to pay for a Clear Credential program at an institution of higher education.

Beginning Teacher Support and Assessment (BTSA) Background: According to the Commission on Teacher Credentialing (CTC), induction for new teachers in California has evolved in significant ways over its 25-year history. The BTSA program was established as a result of a pilot study conducted during 1988-1992 by the CTC and the CDE. This pilot study, known as the California New Teacher Project demonstrated that the state could increase beginning teacher retention, success and effectiveness, by providing all new teachers with structured mentoring and support. After considerable legislative discussion of the pilot project report, the Governor and the Legislature established the BTSA Program in the 1992-93 State Budget. At that time, the program was a grant program designed to support new teachers and was not a credential requirement for teachers.

The successes of the California New Teacher Project grant programs influenced the CTC appointed Advisory Panel which conducted a review of the requirements for earning and renewing teaching credentials. Their recommendations were embodied in the passage of SB 2042 (Alpert), Chapter 548, Statutes of 1998, which created a two-tiered teaching credential system, significantly changed the BTSA program by establishing induction as the second tier in California's teacher preparation and credentialing system and instituting the completion of a standards based induction program as a path toward the Clear Credential for Multiple and Single Subject credentials.

In 2004, the Legislature mandated a CTC-approved Induction program, if available, as the required route for Multiple and Single Subject teachers to obtain a clear teaching credential. Legislation clarified that, if an induction program is verified as unavailable by a beginning teacher's employer or the teacher needed to complete content area coursework for No Child Left Behind (NCLB), then the teacher may complete a Commission-approved Clear Credential program sponsored by a college or university.

From 1995 until 2009 BTSA Induction programs operated with dedicated annual funding based on a per-participating teacher allocation (with a required local educational agency (LEA) in-kind match). In February 2009 the State Budget provided LEAs with spending flexibility. LEAs were able to use funds from about 40 categorical programs, including the Teacher Credentialing Block Grant of which the BTSA Induction program was a part, for any educational purpose for a five year period. This statute created greater program funding flexibility and removed the in-kind requirement but continued the funding to local education agencies that sponsor CTC approved BTSA Induction programs.

Since the 2009 onset of flexible funding provisions, a number of Commission-approved programs have become inactive or withdrawn since the per-participant funding ended. Of specific interest in terms of statewide program equity, access and parity is the issue of induction programs charging beginning teachers to participate. The induction programs sponsored by colleges or universities have always charged tuition. A few LEA-based induction programs were approved by the Commission after 2009 and never received any per participant state funding. These programs, sponsored by charter schools, have always charged candidates. An additional reality that appears to be surfacing is the fact that some programs are "capping" the number of new teachers they will serve, resulting in inequities within a district as some new teachers receive induction services and others are faced with having to search and pay for induction services outside of their district or teach, largely unsupported, in a classroom for a year or more until they reach the top of the program’s waiting list.

According to the author, some districts and COEs are requiring teachers to pay for their participation in induction programs, placing heavy financial burdens on teachers just starting their careers. According to data collected by the CTC, induction providers are charging new teachers up to $2,500 a year for the two-year program. The fee is significant for teachers whose profession is underpaid. Furthermore, some school districts are covering the full cost of induction, not putting any additional financial burdens on their new teachers, creating an unequal playing field for teachers who have identical experiences, education, and credentials. According to data collected by the CTC, induction fee policies vary greatly around the state. Some LEAs continue to offer induction for free to their beginning teachers, while others are charging up to $2,500 a year for the two year program.

Induction Options to Obtain a Clear Teaching Credential: Completion of an approved Induction Program is the primary route to attaining a clear teaching credential. If an employed teacher (employer is defined as a California public school, any school that is sponsored by a private California K‐12 school, non‐public, nonsectarian school or agency, charter school, or a school operated under the direction of a California state agency) does not have an Induction Program available to them then the teacher may enroll in a Clear Credential Program. Currently there are 22 Commission-approved Clear Credential programs operating in California (3 California State Universities, 3 Universities of California, and 16 private and independent institutions).

Induction Fees: The CTC conducted a survey of CTC-approved induction programs and received 126 responses out of 165 programs. Of the survey respondents, 11.5% of LEA sponsored induction programs reported that they charged fees to induction participants in 2014-15. This equates to 2,063 participants who paid fees out of 17,907 total participants at respondent LEAs. Respondents reported the per year fees range from $390 to $3,350.

Analysis Prepared by: Chelsea Kelley / ED. / (916) 319-2087 FN: 0002346

 THIRD READING  

Bill No: AB 141

Author: Bonilla (D)

Amended: 9/4/15 in Senate

Vote: 21

SENATE EDUCATION COMMITTEE: 9-0, 7/15/15

AYES: Liu, Runner, Block, Hancock, Leyva, Mendoza, Monning, Pan, Vidak

SENATE APPROPRIATIONS COMMITTEE: 6-1, 8/27/15

AYES: Lara, Bates, Beall, Hill, Leyva, Mendoza

NOES: Nielsen

ASSEMBLY FLOOR: 53-26, 6/3/15 - See last page for vote

SUBJECT: Teacher credentialing: beginning teacher induction programs

SOURCE: Author

DIGEST: This bill prohibits a local educational agency (LEA), including charter schools, from charging the teachers a fee to participate in the induction program.

Senate Floor Amendments of 9/4/15 remove the provision requiring a school district, county office of education, or charter school to provide a program of beginning teacher induction for newly hired teachers.

ANALYSIS:

Existing law:

1. Requires a teacher to complete one of the following beginning teacher induction programs in order to obtain a clear multiple or single subject teaching credential:

1. A program of beginning teacher support and assessment approved by the Commission on Teacher Credentialing (CTC) and the Superintendent of Public Instruction (SPI), a provision of the Marian Bergeson Beginning Teacher Support and Assessment (BTSA) System.

2. An alternative program of beginning teacher induction that is provided by one or more LEAs and has been approved by the CTC and the SPI on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the CTC, the SPI, and the State Board of Education.

3. An alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the CTC’s standards of induction.

2. Specifies that if a candidate satisfies the requirements, including completion of an accredited internship program of professional preparation, and if that internship program fulfills induction standards and is approved, the CTC shall determine that the candidate has fulfilled the induction requirements.

3. Specifies that if an approved induction program is verified as unavailable to a beginning teacher, or if the beginning teacher is required under the federal No Child Left Behind Act to complete subject matter coursework to be qualified for a teaching assignment, the CTC shall accept completion of an approved clear credential program after completion of a baccalaureate degree at a regionally accredited institution as fulfilling the induction requirements.

This bill:

1. Makes various findings and declarations for the effectiveness of induction programs for beginning teachers and their access to these programs.

2. Specifies that a beginning teacher includes a teacher with a preliminary multiple or single subject teaching credential, or a preliminary education specialist credential.

3. Prohibits a school district, county office of education, or charter school from charging a fee to a beginning teacher to participate in the beginning teacher induction program or an alternative program of beginning teacher induction.

Comments

Need for the bill. According to the author’s office, “nearly 12 percent of providers are charging teachers for induction. Local education agencies are charging teachers as much as $2,500 per year for the two year program, placing heavy financial burdens on teachers just starting their careers. Further adding to the program, some districts are ending their induction programs, placing the burden of identifying, accessing, and completing a quality induction program solely on new teachers. A new teacher’s inability to access an induction program compromises that teacher’s professional growth and greatly reduces the chance that he or she will stay in the profession.”

Teacher induction. According to the CTC, induction for new teachers in California has evolved in significant ways over its 25 year history. The Beginning Teacher Support and Assessment (BTSA) program was established as a result of a pilot study conducted during 1988 to 1992 by the CTC and the California Department of Education (CDE). This pilot study, known as the California New Teacher Project, demonstrated that the state could increase beginning teacher retention, success and effectiveness, by providing all new teachers with structured mentoring and support. The Governor and the Legislature established the BTSA program as part of the 1992-93 Budget Act. At that time, the program was a grant program designed to support new teachers and was not a credential requirement for teachers.

From 1995 until 2009 BTSA Induction programs operated with dedicated Proposition 98 funding based on a per-participating teacher allocation (with a matching requirement by the LEA). However, in February 2009, the state Budget provided LEAs with categorical spending flexibility in exchange for program funding reductions. LEAs were able to use funds from about 40 categorical programs, including the Teacher Credentialing Block Grant for which the BTSA program was a part of, for any educational purpose. The program’s matching requirement was also removed but funding continued to be provided to LEAs that sponsored an approved induction program.

Since the onset of the categorical funding flexibility provisions, a number of approved induction programs have become inactive or withdrawn. In terms of statewide program equity, access and parity has been an issue regarding the charging of beginning teachers to participate in an induction program. The induction programs sponsored by colleges or universities have always charged tuition. A few LEA-based induction programs were approved by the CTC after 2009 and never received state funding. These programs, sponsored by charter schools, have always charged candidates. Another issue that appears to be surfacing is that some programs are "capping" the number of new teachers they will serve, resulting in inequities within a district as some new teachers receive induction services and others are faced with having to search and pay for induction services outside of their district or teach, largely unsupported, in a classroom for a year or more until they reach the top of the program’s waiting list.

Induction fees. The CTC conducted a survey of CTC-approved induction programs and received 126 responses out of 165 programs. Of the survey respondents, 11.5 percent of LEA sponsored induction programs reported that they charged fees to induction participants in 2014-15. This equates to 2,063 participants who paid fees out of 17,907 total participants at respondent LEAs. Respondents reported the per year fees range from $390 to $3,350.

Related Budget activity. The 2015-16 Budget Act includes $490 million in Proposition 98 General Fund for activities that promote educator quality and effectiveness. These funds may be used for a menu of options, including beginning teacher and administrator support and mentoring, and professional development for struggling teachers. The 2015-16 Budget Act also requires the CTC, by September 1, 2015, to evaluate any burdens of existing induction requirements. It also requires the CTC to provide funding recommendations, including state, school district, and teacher candidate responsibilities for induction, which could speak to the notion of prohibiting a district from charging fees.

Induction options to obtain a Clear Teaching Credential. Completion of an approved induction program is the primary route to attaining a clear teaching credential. If a teacher employed (employer is defined as a California public school, any school that is sponsored by a private California K‐12 school, non‐public, nonsectarian school or agency, charter school, or a school operated under the direction of a California state agency) does not have an induction program available to them, then the teacher may enroll in a Clear Credential Program. Currently, there are 22 CTC-approved Clear Credential programs operating in California (three from California State University system, three from the University of California, and 16 private independent institutions).

FISCAL EFFECT: Appropriation: No Fiscal Com.: No Local: No

According to the Senate Appropriations Committee, the CDE indicates that ensuring new teachers are provided induction programs and that they are not being charged a fee to participate could be included as a monitoring protocol in the Title II Federal Program Monitoring process. This is not anticipated to result in significant costs to the CDE.

SUPPORT: (Verified 9/4/15)

Superintendent of Public Instruction

California Catholic Conference

California Communities United Institute

California Federation of Teachers

California State PTA

California STEM Learning Network

California Teachers Association

Common Sense Kids Action

Public Advocates

Santa Clara County Office of Education

OPPOSITION: (Verified 9/4/15)

California School Boards Association

ASSEMBLY FLOOR: 53-26, 6/3/15

AYES: Alejo, Bloom, Bonilla, Bonta, Brown, Burke, Calderon, Campos, Chau, Chávez, Chiu, Chu, Cooley, Cooper, Dababneh, Daly, Dodd, Eggman, Frazier, Cristina Garcia, Eduardo Garcia, Gatto, Gipson, Gomez, Gonzalez, Gordon, Gray, Roger Hernández, Holden, Irwin, Jones-Sawyer, Levine, Linder, Lopez, Low, McCarty, Medina, Mullin, O'Donnell, Perea, Quirk, Rendon, Ridley-Thomas, Rodriguez, Salas, Santiago, Mark Stone, Thurmond, Ting, Weber, Williams, Wood, Atkins

NOES: Achadjian, Travis Allen, Baker, Bigelow, Brough, Chang, Dahle, Beth Gaines, Gallagher, Grove, Hadley, Harper, Jones, Kim, Lackey, Maienschein, Mathis, Mayes, Melendez, Obernolte, Olsen, Patterson, Steinorth, Wagner, Waldron, Wilk

NO VOTE RECORDED: Nazarian

Prepared by: Lenin Del Castillo / ED. / (916) 651-4105

9/8/15 15:27:18

**** END ****

ASSEMBLY THIRD READING

ATR Bill Id:AB 141

Author:(Bonilla)

As Amended Ver:June 1, 2015

Majority vote

SUMMARY: Requires, commencing with hiring for the 2016-17 school year, a school district, county office of education (COE), or charter school to provide a beginning teacher induction program as condition for receiving Part A of Title II federal funds and prohibits a school district, COE or charter school from charging a beginning teacher a fee to participate in the induction program.

EXISTING LAW:

1. Requires a teacher to complete one of the following beginning teacher induction programs in order to obtain a clear multiple or single subject teaching credential:

   1. A program of beginning teacher support and assessment approved by the commission and the Superintendent, a provision of the Marian Bergeson Beginning Teacher Support and Assessment System.

   2. An alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the state board.

   3. An alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commission's standards of induction.

2. Specifies that if a candidate satisfies the requirements, including completion of an accredited internship program of professional preparation, and if that internship program fulfills induction standards and is approved, the commission shall determine that the candidate has fulfilled the induction requirements.

3. Specifies that if an approved induction program is verified as unavailable to a beginning teacher, or if the beginning teacher is required under the federal No Child Left Behind Act to complete subject matter coursework to be qualified for a teaching assignment, the commission shall accept completion of an approved clear credential program after completion of a baccalaureate degree at a regionally accredited institution as fulfilling the induction requirements.

FISCAL EFFECT: According to the Assembly Appropriations Committee, potential loss of federal Title II funds to the extent an LEA cannot comply with the induction requirements in this bill. The 2014-15 Budget Act provided $240 million in federal Title II local assistance funds.

COMMENTS: Commencing with hiring for the 2016–17 school year, this bill requires a school district, COE or charter school hiring a beginning teacher to provide that teacher with an induction program. Additionally, this bill prohibits a local education agency (LEA) from charging a fee to a beginning teacher to participate in an induction program.

Beginning Teacher Support and Assessment (BTSA) Background: According to the Commission on Teacher Credentialing (CTC), induction for new teachers in California has evolved in significant ways over its 25 year history. The BTSA program was established as a result of a pilot study conducted during 1988-1992 by the CTC and the California Department of Education (CDE). This pilot study, known as the California New Teacher Project demonstrated that the state could increase beginning teacher retention, success and effectiveness, by providing all new teachers with structured mentoring and support. After considerable legislative discussion of the pilot project report, the Governor and the Legislature established the BTSA Program in the 1992-93 State Budget. At that time, the program was a grant program designed to support new teachers and was not a credential requirement for teachers.

The successes of the California New Teacher Project grant programs influenced the CTC appointed Advisory Panel which conducted a review of the requirements for earning and renewing teaching credentials. Their recommendations were embodied in the passage of SB 2042 (Alpert), Chapter 548, Statutes of 1998, which created a two-tiered teaching credential system, significantly changed the BTSA program by establishing induction as the second tier in California's teacher preparation and credentialing system and instituting the completion of a standards based induction program as a path toward the Clear Credential for Multiple and Single Subject credentials.

In 2004, the Legislature mandated a CTC-approved Induction program, if available, as the required route for Multiple and Single Subject teachers to obtain a clear teaching credential. Legislation clarified that, if an induction program is verified as unavailable by a beginning teacher’s employer or the teacher needed to complete content area coursework for

No Child Left Behind (NCLB), then the teacher may complete a Commission-approved Clear Credential program sponsored by a college or university.

From 1995 until 2009 BTSA Induction programs operated with dedicated annual funding based on a per-participating teacher allocation (with a required LEA in-kind match). In February 2009, the State Budget provided LEAs with spending flexibility. LEAs were able to use funds from about 40 categorical programs, including the Teacher Credentialing Block Grant of which the BTSA Induction program was a part, for any educational purpose for a five year period. This statute created greater program funding flexibility and removed the in-kind requirement but continued the funding to local education agencies that sponsor CTC approved BTSA Induction programs.

Since the 2009 onset of flexible funding provisions, a number of Commission-approved programs have become inactive or withdrawn since the per-participant funding ended. Of specific interest in terms of statewide program equity, access and parity is the issue of induction programs charging beginning teachers to participate. The induction programs sponsored by colleges or universities have always charged tuition. A few LEA-based induction programs were approved by the Commission after 2009 and never received any per participant state funding. These programs, sponsored by charter schools, have always charged candidates. An additional reality that appears to be surfacing is the fact that some programs are "capping" the number of new teachers they will serve, resulting in inequities within a district as some new teachers receive induction services and others are faced with having to search and pay for induction services outside of their district or teach, largely unsupported, in a classroom for a year or more until they reach the top of the program's waiting list.

According to the author, some districts and COEs are requiring teachers to pay for their participation in induction programs, placing heavy financial burdens on teachers just starting their careers. According to data collected by the CTC, induction providers are charging new teachers up to $2,500 a year for the two-year program. The fee is significant for teachers whose profession is underpaid. Furthermore, some school districts are covering the full cost of induction, not putting any additional financial burdens on their new teachers, creating an unequal playing field for teachers who have identical experiences, education, and credentials. According to data collected by the CTC, induction fee policies vary greatly around the state. Some LEAs continue to offer induction for free to their beginning teachers, while others are charging up to $2,500 a year for the two year program.

Induction Options to Obtain a Clear Teaching Credential: Completion of an approved Induction Program is the primary route to attaining a clear teaching credential. If an employed teacher (employer is defined as a California public school, any school that is sponsored by a private California K‐12 school, non‐public, nonsectarian school or agency, charter school, or a school operated under the direction of a California state agency) does not have an Induction Program available to them then the teacher may enroll in a Clear Credential Program. Currently there are 22 Commission-approved Clear Credential programs operating in California (3 California State Universities, 3 Universities of California, and 16 private and independent institutions).

Induction Fees: The CTC conducted a survey of CTC-approved induction programs and received 126 responses out of 165 programs. Of the survey respondents, 11.5% of LEA sponsored induction programs reported that they charged fees to induction participants in 2014-15. This equates to 2,063 participants who paid fees out of 17,907 total participants at respondent LEAs. Respondents reported the per year fees range from $390 to $3,350.

Analysis Prepared by: Chelsea Kelley / ED. / (916) 319-2087 FN: 0001866

 THIRD READING  

Bill No: AB 141

Author: Bonilla (D)

Amended: 7/9/15 in Senate

Vote: 21

SENATE EDUCATION COMMITTEE: 9-0, 7/15/15

AYES: Liu, Runner, Block, Hancock, Leyva, Mendoza, Monning, Pan, Vidak

SENATE APPROPRIATIONS COMMITTEE: 6-1, 8/27/15

AYES: Lara, Bates, Beall, Hill, Leyva, Mendoza

NOES: Nielsen

ASSEMBLY FLOOR: 53-26, 6/3/15 - See last page for vote

SUBJECT: Teacher credentialing: beginning teacher induction programs

SOURCE: Author

DIGEST: This bill requires a local educational agency (LEA), including charter schools, to provide an induction program for newly hired teachers and also prohibits them from charging the teachers a fee to participate in the induction program.

ANALYSIS:

Existing law:

1. Requires a teacher to complete one of the following beginning teacher induction programs in order to obtain a clear multiple or single subject teaching credential:

   1. A program of beginning teacher support and assessment approved by the Commission on Teacher Credentialing (CTC) and the Superintendent of Public Instruction (SPI), a provision of the Marian Bergeson Beginning Teacher Support and Assessment (BTSA) System.

   2. An alternative program of beginning teacher induction that is provided by one or more LEAs and has been approved by the CTC and the SPI on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the CTC, the SPI, and the State Board of Education.

   3. An alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the CTC’s standards of induction.

2. Specifies that if a candidate satisfies the requirements, including completion of an accredited internship program of professional preparation, and if that internship program fulfills induction standards and is approved, the CTC shall determine that the candidate has fulfilled the induction requirements.

3. Specifies that if an approved induction program is verified as unavailable to a beginning teacher, or if the beginning teacher is required under the federal No Child Left Behind Act to complete subject matter coursework to be qualified for a teaching assignment, the CTC shall accept completion of an approved clear credential program after completion of a baccalaureate degree at a regionally accredited institution as fulfilling the induction requirements.

This bill:

1. Makes various findings and declarations for the effectiveness of induction programs for beginning teachers and their access to these programs.

2. Provides that commencing with hiring for the 2016-17 school year, and each school year thereafter, a school district, county office of education, or charter school that hires a beginning teacher shall provide that beginning teacher with a program of beginning teacher induction, unless the beginning teacher meets specified requirements. Specifies that a beginning teacher includes a teacher with a preliminary multiple or single subject teaching credential, or a preliminary education specialist credential.

3. Prohibits an LEA or charter school from charging a fee to a beginning teacher to participate in the beginning teacher induction program or an alternative program of beginning teacher induction.

Comments

Need for the bill. According to the author’s office, “nearly 12 percent of providers are charging teachers for induction. Local education agencies are charging teachers as much as $2,500 per year for the two year program, placing heavy financial burdens on teachers just starting their careers. Further adding to the program, some districts are ending their induction programs, placing the burden of identifying, accessing, and completing a quality induction program solely on new teachers. A new teacher’s inability to access an induction program compromises that teacher’s professional growth and greatly reduces the chance that he or she will stay in the profession.”

Teacher induction. According to the CTC, induction for new teachers in California has evolved in significant ways over its 25 year history. The Beginning Teacher Support and Assessment (BTSA) program was established as a result of a pilot study conducted during 1988 to 1992 by the CTC and the California Department of Education (CDE). This pilot study, known as the California New Teacher Project, demonstrated that the state could increase beginning teacher retention, success and effectiveness, by providing all new teachers with structured mentoring and support. The Governor and the Legislature established the BTSA program as part of the 1992-93 Budget Act. At that time, the program was a grant program designed to support new teachers and was not a credential requirement for teachers.

From 1995 until 2009 BTSA Induction programs operated with dedicated Proposition 98 funding based on a per-participating teacher allocation (with a matching requirement by the LEA). However, in February 2009, the state Budget provided LEAs with categorical spending flexibility in exchange for program funding reductions. LEAs were able to use funds from about 40 categorical programs, including the Teacher Credentialing Block Grant for which the BTSA program was a part of, for any educational purpose. The program’s matching requirement was also removed but funding continued to be provided to LEAs that sponsored an approved induction program.

Since the onset of the categorical funding flexibility provisions, a number of approved induction programs have become inactive or withdrawn. In terms of statewide program equity, access and parity has been an issue regarding the charging of beginning teachers to participate in an induction program. The induction programs sponsored by colleges or universities have always charged tuition. A few LEA-based induction programs were approved by the CTC after 2009 and never received state funding. These programs, sponsored by charter schools, have always charged candidates. Another issue that appears to be surfacing is that some programs are "capping" the number of new teachers they will serve, resulting in inequities within a district as some new teachers receive induction services and others are faced with having to search and pay for induction services outside of their district or teach, largely unsupported, in a classroom for a year or more until they reach the top of the program’s waiting list.

Induction fees. The CTC conducted a survey of CTC-approved induction programs and received 126 responses out of 165 programs. Of the survey respondents, 11.5 percent of LEA sponsored induction programs reported that they charged fees to induction participants in 2014-15. This equates to 2,063 participants who paid fees out of 17,907 total participants at respondent LEAs. Respondents reported the per year fees range from $390 to $3,350.

Related budget activity. The 2015-16 Budget Act includes $490 million in Proposition 98 General Fund for activities that promote educator quality and effectiveness. These funds may be used for a menu of options, including beginning teacher and administrator support and mentoring, and professional development for struggling teachers. The 2015-16 Budget Act also requires the CTC, by September 1, 2015, to evaluate any burdens of existing induction requirements. It also requires the CTC to provide funding recommendations, including state, school district, and teacher candidate responsibilities for induction, which could speak to the notion of prohibiting a district from charging fees.

Induction options to obtain a Clear Teaching Credential. Completion of an approved induction program is the primary route to attaining a clear teaching credential. If a teacher employed (employer is defined as a California public school, any school that is sponsored by a private California K‐12 school, non‐public, nonsectarian school or agency, charter school, or a school operated under the direction of a California state agency) does not have an induction program available to them, then the teacher may enroll in a Clear Credential Program. Currently, there are 22 CTC-approved Clear Credential programs operating in California (three from California State University system, three from the University of California, and 16 private independent institutions).

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: Yes

According to the Senate Appropriations Committee:

• This bill’s costs will ultimately depend upon the number of beginning teachers and the cost of the program. These figures range and fluctuate from year to year. Assuming a program cost of roughly $5,000 and total teacher preparation program enrollment for 2012-13 of 19,933, this bill could drive reimbursable state mandate costs of about $100 million annually for LEAs to provide new teachers induction programs. The Commission on State Mandates may identify some offsetting costs at least in the 2015-16 fiscal year.
  
  

• The CDE indicates that ensuring new teachers are provided induction programs and that they are not being charged a fee to participate could be included as a monitoring protocol in the Title II Federal Program Monitoring process. This is not anticipated to result in significant costs to the CDE.

SUPPORT: (Verified 8/27/15)

Superintendent of Public Instruction

California Catholic Conference

California Communities United Institute

California Federation of Teachers

California State PTA

California STEM Learning Network

California Teachers Association

Common Sense Kids Action

Public Advocates

Santa Clara County Office of Education

OPPOSITION: (Verified 8/27/15)

California School Boards Association

ASSEMBLY FLOOR: 53-26, 6/3/15

AYES: Alejo, Bloom, Bonilla, Bonta, Brown, Burke, Calderon, Campos, Chau, Chávez, Chiu, Chu, Cooley, Cooper, Dababneh, Daly, Dodd, Eggman, Frazier, Cristina Garcia, Eduardo Garcia, Gatto, Gipson, Gomez, Gonzalez, Gordon, Gray, Roger Hernández, Holden, Irwin, Jones-Sawyer, Levine, Linder, Lopez, Low, McCarty, Medina, Mullin, O'Donnell, Perea, Quirk, Rendon, Ridley-Thomas, Rodriguez, Salas, Santiago, Mark Stone, Thurmond, Ting, Weber, Williams, Wood, Atkins

NOES: Achadjian, Travis Allen, Baker, Bigelow, Brough, Chang, Dahle, Beth Gaines, Gallagher, Grove, Hadley, Harper, Jones, Kim, Lackey, Maienschein, Mathis, Mayes, Melendez, Obernolte, Olsen, Patterson, Steinorth, Wagner, Waldron, Wilk

NO VOTE RECORDED: Nazarian

Prepared by: Lenin Del Castillo / ED. / (916) 651-4105

8/30/15 19:49:04

**** END ****

SENATE COMMITTEE ON APPROPRIATIONS

Senator Ricardo Lara, Chair

2015 - 2016 Regular Session

AB 141 (Bonilla) - Teacher credentialing: beginning teacher induction programs.

This bill meets the criteria for referral to the Suspense File.

Bill Summary:

This bill requires local educational agencies (LEAs) that hire a new teacher to provide them with a beginning teacher induction program and prohibits them from charging a fee to participate in the program as well as alternative beginning teacher induction programs.

Fiscal Impact:

• Mandate: This bill’s costs will ultimately depend upon the number of beginning teachers and the cost of the program. These figures range and fluctuate from year to year. Assuming a program cost of roughly $5,000 and total teacher preparation program enrollment for 2012-13 of 19,933, this bill could drive reimbursable state mandate costs of about $100 million annually for LEAs to provide new teachers induction programs. The Commission on State Mandates may identify some offsetting costs at least in the 2015-16 fiscal year. See staff comments. (Proposition 98)
  
  

• The California Department of Education (CDE) indicates that ensuring new teachers are provided induction programs and that they are not being charged a fee to participate could be included as a monitoring protocol in the Title II Federal Program Monitoring process. This is not anticipated to result in significant costs to the CDE.

Background:

Existing law:

1. Requires a teacher to complete one of the following beginning teacher induction programs in order to obtain a clear multiple or single subject teaching credential:

   1. A program of beginning teacher support and assessment approved by the California Commission on Teacher Credentialing (Commission) and the Superintendent, a provision of the Marian Bergeson Beginning Teacher Support and Assessment System.

   2. An alternative program of beginning teacher induction that is provided by one or more LEAs and has been approved by the Commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the State Board.

   3. An alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commission's standards of induction.

2. Specifies that if a candidate satisfies the requirements, including completion of an accredited internship program of professional preparation, and if that internship program fulfills induction standards and is approved, the Commission shall determine that the candidate has fulfilled the induction requirements.

3. Specifies that if an approved induction program is verified as unavailable to a beginning teacher, or if the beginning teacher is required under the federal No Child Left Behind Act to complete subject matter coursework to be qualified for a teaching assignment, the Commission shall accept completion of an approved clear credential program after completion of a baccalaureate degree at a regionally accredited institution as fulfilling the induction requirements.

Proposed Law:

This bill requires, beginning with hiring for the 2016-17 school year, LEAs that hire a new teacher to provide them with a beginning teacher induction program, as one of the requirements for obtaining a clear teaching credential unless the beginning teacher meets specified requirements. LEAs are prohibited from charging a fee to participate in the program. This bill also prohibits an LEA from charging a fee to a beginning teacher to participate in an alternative beginning teacher induction program that is provided by one or more LEAs or sponsored by a regionally accredited college or university.

Staff Comments:

Costs for this bill will vary due to several factors, including the growth and decline in enrollment induction programs. Completion of a Preliminary Credential in a teacher preparation program is required prior to participating in an induction program. To provide context for fluctuation in the enrollment of teachers in preparation programs, enrollment has decreased by 24 percent from the 2011-12 fiscal year (and even more since 2008-09). In prior years, the state dedicated funding for induction that ranged from $87 million to $128 million.

To the extent the Commission on State Mandates determines this bill to impose a mandate on LEAs, this would create pressure to increase the mandate block grant to reflect the inclusion of the new mandate. Since this bill also applies to charter schools, if the mandate block grant was increased, charter schools would also receive an increase in their per-student allocation. However, charter schools would not reimbursed under the traditional claiming process as they have not been considered to be an entity eligible for reimbursement by the Commission.

The 2015-16 Budget Act addresses induction in several ways. It includes $490 million in Proposition 98 General Fund for activities that promote educator quality and effectiveness. These funds may be used for several purposes, including beginning teacher and administrator support and mentoring, and professional development for struggling teachers. The 2015-16 Budget Act also requires the CTC, by September 1, 2015, to evaluate any burdens of existing induction requirements and identify options for streamlining and reforming beginning teacher induction. Finally it provides over $3 billion in one-time mandate funding to be used between California Community Colleges and school districts. The intent is that school districts will prioritize funds for professional development, induction for beginning teachers with a focus on relevant mentoring, instructional materials, technology infrastructure, and any other investments necessary to support implementation of the common core standards in English language arts and mathematics, the implementation of English language development standards, and the implementation of the Next Generation Science standards.

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Carol Liu, Chair

2015 - 2016 Regular

Bill No: AB 141

Subject: Teacher credentialing: beginning teacher induction programs

SUMMARY

This bill requires a local educational agency (LEA), including charter schools, to provide an induction program for newly hired teachers and also prohibits them from charging the teachers a fee to participate in the induction program.

BACKGROUND

Existing law:

1. Requires a teacher to complete one of the following beginning teacher induction programs in order to obtain a clear multiple or single subject teaching credential:

   1. A program of beginning teacher support and assessment approved by the commission and the Superintendent, a provision of the Marian Bergeson Beginning Teacher Support and Assessment System.

   2. An alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the State Board.

   3. An alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commission's standards of induction.

2. Specifies that if a candidate satisfies the requirements, including completion of an accredited internship program of professional preparation, and if that internship program fulfills induction standards and is approved, the commission shall determine that the candidate has fulfilled the induction requirements.

3. Specifies that if an approved induction program is verified as unavailable to a beginning teacher, or if the beginning teacher is required under the federal No Child Left Behind Act to complete subject matter coursework to be qualified for a teaching assignment, the commission shall accept completion of an approved clear credential program after completion of a baccalaureate degree at a regionally accredited institution as fulfilling the induction requirements.

ANALYSIS

This bill:

1. Makes various findings and declarations for the effectiveness of induction programs for beginning teachers and their access to these programs.

2. Provides that commencing with hiring for the 2016-17 school year, and each school year thereafter, a school district, county office of education, or charter school that hires a beginning teacher shall provide that beginning teacher with a program of beginning teacher induction, unless the beginning teacher meets specified requirements. Specifies that a beginning teacher includes a teacher with a preliminary multiple or single subject teaching credential, or a preliminary education specialist credential.

3. Prohibits a local educational agency (LEA) or charter school from charging a fee to a beginning teacher to participate in the beginning teacher induction program or an alternative program of beginning teacher induction.

STAFF COMMENTS

1. Need for the bill. According to the author’s office, “nearly 12 percent of providers are charging teachers for induction. Local education agencies are charging teachers as much as $2,500 per year for the two year program, placing heavy financial burdens on teachers just starting their careers. Further adding to the program, some districts are ending their induction programs, placing the burden of identifying, accessing, and completing a quality induction program solely on new teachers. A new teacher’s inability to access an induction program compromises that teacher’s professional growth and greatly reduces the chance that he or she will stay in the profession.”
   
   

2. Teacher induction. According to the Commission on Teacher Credentialing (CTC), induction for new teachers in California has evolved in significant ways over its 25 year history. The Beginning Teacher Support and Assessment (BTSA) program was established as a result of a pilot study conducted during 1988 to 1992 by the Commission on Teacher Credentialing and the California Department of Education. This pilot study, known as the California New Teacher Project demonstrated that the state could increase beginning teacher retention, success and effectiveness, by providing all new teachers with structured mentoring and support. The Governor and the Legislature established the BTSA Program as part of the 1992-93 Budget Act. At that time, the program was a grant program designed to support new teachers and was not a credential requirement for teachers.

From 1995 until 2009 BTSA Induction programs operated with dedicated Proposition 98 funding based on a per-participating teacher allocation (with a matching requirement by the LEA). However, in February 2009, the State Budget provided LEAs with categorical spending flexibility in exchange for program funding reductions. LEAs were able to use funds from about 40 categorical programs, including the Teacher Credentialing Block Grant for which the Beginning Teacher Support and Assessment (BTSA) program was a part of, for any educational purpose. The program’s matching requirement was also removed but funding continued to be provided to local educational agencies (LEAs) that sponsored an approved induction program.

Since the onset of the categorical funding flexibility provisions, a number of approved induction programs have become inactive or withdrawn. In terms of statewide program equity, access and parity has been an issue regarding the charging of beginning teachers to participate in an induction program. The induction programs sponsored by colleges or universities have always charged tuition. A few LEA-based induction programs were approved by the Commission on Teacher Credentialing (CTC) after 2009 and never received state funding. These programs, sponsored by charter schools, have always charged candidates. Another issue that appears to be surfacing is that some programs are "capping" the number of new teachers they will serve, resulting in inequities within a district as some new teachers receive induction services and others are faced with having to search and pay for induction services outside of their district or teach, largely unsupported, in a classroom for a year or more until they reach the top of the program’s waiting list.

3. Induction fees. The CTC conducted a survey of CTC-approved induction programs and received 126 responses out of 165 programs. Of the survey respondents, 11.5 percent of LEA sponsored induction programs reported that they charged fees to induction participants in 2014-15. This equates to 2,063 participants who paid fees out of 17,907 total participants at respondent LEAs. Respondents reported the per year fees range from $390 to $3,350.

4. Related budget activity. The 2015-16 Budget Act includes $490 million in Proposition 98 General Fund for activities that promote educator quality and effectiveness. These funds may be used for a menu of options, including beginning teacher and administrator support and mentoring, and professional development for struggling teachers. The 2015-16 Budget Act also requires the CTC, by September 1, 2015, to evaluate any burdens of existing induction requirements. It also requires the CTC to provide funding recommendations, including state, school district, and teacher candidate responsibilities for induction, which could speak to the notion of prohibiting a district from charging fees.

5. Induction options to obtain a Clear Teaching Credential. Completion of an approved induction program is the primary route to attaining a clear teaching credential. If a teacher employed (employer is defined as a California public school, any school that is sponsored by a private California K‐12 school, non‐public, nonsectarian school or agency, charter school, or a school operated under the direction of a California state agency) does not have an induction program available to them, then the teacher may enroll in a Clear Credential Program. Currently, there are 22 CTC-approved Clear Credential programs operating in California (3 from California State University system, 3 from the University of California, and 16 private independent institutions).

6. Fiscal impact. According to the Assembly Appropriations Committee, the bill would result in Proposition 98 General Fund state mandated costs, potentially in the tens of millions, for local educational agencies (LEAs) to provide induction to beginning teachers. Currently, there are 165 induction programs that serve approximately 18,000 teachers. A recent survey of 126 programs showed 11.5 percent of program participants were charged fees ranging from $390 to $3,350. On average, these fees total $5 million statewide. Actual costs will depend on the size and types of claims districts submit to the Commission on State Mandates. LEAs may file cost claims even if they are currently fully funding induction for beginning teachers.

The requirements of this bill also place pressure on the state to provide a new dedicated funding source for induction programs. In prior years, the state dedicated funding for induction that ranged from $87 million to $128 million.

SUPPORT

California Catholic Conference

California Communities United Institute

California Federation of Teachers

California State PTA

California STEM Learning Network

California Teachers Association

Common Sense Kids Action

Public Advocates

Santa Clara County Office of Education

Superintendent of Public Instruction

OPPOSITION

California School Boards Association

-- END --

Date of Hearing: April 15, 2015

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Jimmy Gomez, Chair

ABPCA Bill Id:AB 141

Author:(Bonilla) – As Amended Ver:April 7, 2015

Urgency: No State Mandated Local Program: Yes Reimbursable: Yes

SUMMARY:

This bill requires a school district, county office of education or charter school that hires a beginning teacher, commencing with hiring for the 2016-17 school year, to provide that teacher with a program of beginning teacher induction, unless the teacher meets existing requirements that exempt them from induction participation. Further prohibits the local education agency (LEA) from charging a fee to the teacher to participate in the induction program.

FISCAL EFFECT:

Proposition 98/GF state mandated costs, potentially in the tens of millions, for LEAs to provide induction to beginning teachers. Currently, there are 165 induction programs that serve approximately 18,000 teachers. A recent survey of 126 programs showed 11.5% of program participants were charged fees ranging from $390 to $3,350. On average, these fees total $5 million statewide. Actual costs will depend on the size and types of claims districts submit to the Commission on State Mandates. LEAs may file cost claims even if they are currently fully funding induction for beginning teachers.

The requirements of this bill also place pressure on the state to provide a new dedicated funding source for induction programs. In prior years, the state dedicated funding for induction that ranged from $87 million to $128 million.

COMMENTS:

Purpose. According to the author, some LEAs are requiring teachers to pay for their participation in induction programs, placing heavy financial burdens on teachers just starting their careers. Additionally, some school districts are covering the full cost of induction, creating an unequal playing field for teachers who have identical experiences, education, and credentials. This bill would require LEAs, commencing with hiring for the 2016–17 school year, to provide beginning teachers with an induction program. Additionally, this bill prohibits a local education agency (LEA) from charging a fee to a beginning teacher to participate in an induction program.

Background. The state established an induction program in 1992 known as the Beginning Teacher Support and Assessment (BTSA) program. In 2004, as part of the process to clear a multiple and single subject credential, the Legislature required teacher candidates to complete an induction program, if available. If an induction program is verified as unavailable by the employer, the teacher can clear their credential without participation in an induction program.

Funding history. The state provided annual funding for the BTSA program through 2009. At the height of funding (2007), the state provided $128.6 million for the program, which allowed for a per-participating teacher allocation of approximately $4,000. Local education agencies provided an additional $2,000 per-participating teacher, usually through an in-kind match.

In 2009, in response to the state budget crisis, the Legislature reduced funding for this program and approximately 40 other categorical programs. Along with the funding reduction, the state made program requirements flexible, allowing LEAs to spend funding for any educational purpose. This flexibility was continued under the Local Control Funding Formula (LCFF) enacted in 2013. Not every district received funding for BTSA prior to LCFF; however, for those that did receive BTSA funding, the funds were rolled into the base of their LCFF based upon 2012-13 funding allocations.

Opposition. The California School Boards Association oppose this bill. They note small and rural LEAs often share the cost of programs and may not be able to continue offering these local programs without charging a fee. This could result in teachers traveling longer distances to attend more expensive programs, such as those offered by the California State University system.

Analysis Prepared by:

Misty Feusahrens / APPR. / (916) 319-2081

Date of Hearing: March 25, 2015

ASSEMBLY COMMITTEE ON EDUCATION

Patrick O'Donnell, Chair

ABPCA Bill Id:AB 141

Author:(Bonilla) – As Introduced Ver:January 9, 2015

SUBJECT: Teacher credentialing: beginning teacher induction programs

SUMMARY: Requires a school district or county office of education (COE) to provide a beginning teacher induction program and prohibits a school district or COE from charging a beginning teacher a fee to participate in the induction program. Specifically, this bill:

1. Prohibits a local educational agency (LEA) or a school district from charging a fee to a beginning teacher to participate in an alternative program of beginning teacher induction.

2. Commencing with hiring for the 2016-17 school year, and each school year thereafter, a school district or COE that hires a beginning teacher shall provide that beginning teacher with a program of beginning teacher induction.

3. Prohibits a fee from being charged to a beginning teacher to participate in induction for LEAs receiving Beginning Teacher Support and Assessment (BTSA) program grant funding.

EXISTING LAW:

1. Requires a teacher to complete one of the following beginning teacher induction programs in order to obtain a clear multiple or single subject teaching credential:

   1. A program of beginning teacher support and assessment approved by the commission and the Superintendent, a provision of the Marian Bergeson Beginning Teacher Support and Assessment System.

   2. An alternative program of beginning teacher induction that is provided by one or more local educational agencies and has been approved by the commission and the Superintendent on the basis of initial review and periodic evaluations of the program in relation to appropriate standards of credential program quality and effectiveness that have been adopted by the commission, the Superintendent, and the state board.

   3. An alternative program of beginning teacher induction that is sponsored by a regionally accredited college or university, in cooperation with one or more local school districts, that addresses the individual professional needs of beginning teachers and meets the commission’s standards of induction.

2. Specifies that if a candidate satisfies the requirements, including completion of an accredited internship program of professional preparation, and if that internship program fulfills induction standards and is approved, the commission shall determine that the candidate has fulfilled the induction requirements.

3. Specifies that if an approved induction program is verified as unavailable to a beginning teacher, or if the beginning teacher is required under the federal No Child Left Behind Act to complete subject matter coursework to be qualified for a teaching assignment, the commission shall accept completion of an approved clear credential program after completion of a baccalaureate degree at a regionally accredited institution as fulfilling the induction requirements.

FISCAL EFFECT: Unknown

COMMENTS: Commencing with hiring for the 2016–17 school year, this bill requires a school district or COE hiring a beginning teacher to provide that teacher with an induction program. Additionally, this bill prohibits a LEA from charging a fee to a beginning teacher to participate in an induction program.

Beginning Teacher Support and Assessment (BTSA) Background: According to the Commission on Teacher Credentialing (CTC), induction for new teachers in California has evolved in significant ways over its 25 year history. The BTSA program was established as a result of a pilot study conducted during 1988-1992 by the CTC and the California Department of Education (CDE). This pilot study, known as the California New Teacher Project demonstrated that the state could increase beginning teacher retention, success and effectiveness, by providing all new teachers with structured mentoring and support. After considerable legislative discussion of the pilot project report, the Governor and the Legislature established the BTSA Program in the 1992-93 State Budget. At that time, the program was a grant program designed to support new teachers and was not a credential requirement for teachers.

The successes of the California New Teacher Project grant programs influenced the CTC

appointed Advisory Panel which conducted a review of the requirements for earning and renewing teaching credentials. Their recommendations were embodied in the passage of SB

2042 (Chap. 548, Stats. 1998), which created a two-tiered teaching credential system, significantly changed the BTSA program by establishing induction as the second tier in

California’s teacher preparation and credentialing system and instituting the completion of a standards based induction program as a path toward the Clear Credential for Multiple and Single

Subject credentials.

In 2004, the Legislature mandated a CTC-approved Induction program, if available, as the required route for Multiple and Single Subject teachers to obtain a clear teaching credential. Legislation clarified that, if an induction program is verified as unavailable by a beginning teacher’s employer or the teacher needed to complete content area coursework for

No Child Left Behind (NCLB), then the teacher may complete a Commission-approved Clear Credential program sponsored by a college or university.

From 1995 until 2009 BTSA Induction programs operated with dedicated annual funding based on a per-participating teacher allocation (with a required LEA in-kind match). In February 2009 the State Budget provided LEAs with spending flexibility. LEAs were able to use funds from about 40 categorical programs, including the Teacher Credentialing Block Grant of which the BTSA Induction program was a part, for any educational purpose for a five year period. This statute created greater program funding flexibility and removed the in-kind requirement but continued the funding to local education agencies that sponsor CTC approved BTSA Induction programs.

Since the 2009 onset of flexible funding provisions, a number of Commission-approved programs have become inactive or withdrawn since the per-participant funding ended. Of specific interest in terms of statewide program equity, access and parity is the issue of induction programs charging beginning teachers to participate. The induction programs sponsored by colleges or universities have always charged tuition. A few LEA-based induction programs were approved by the Commission after 2009 and never received any per participant state funding. These programs, sponsored by charter schools, have always charged candidates. An additional reality that appears to be surfacing is the fact that some programs are “capping” the number of new teachers they will serve, resulting in inequities within a district as some new teachers receive induction services and others are faced with having to search and pay for induction services outside of their district or teach, largely unsupported, in a classroom for a year or more until they reach the top of the program’s waiting list.

According to the author, some districts and COEs are requiring teachers to pay for their participation in induction programs, placing heavy financial burdens on teachers just starting their careers. According to data collected by the CTC, induction providers are charging new teachers up to $2,500 a year for the two-year program. The fee is significant for teachers whose profession is underpaid. Furthermore, some school districts are covering the full cost of induction, not putting any additional financial burdens on their new teachers, creating an unequal playing field for teachers who have identical experiences, education, and credentials. According to data collected by the CTC, induction fee policies vary greatly around the state. Some LEAs continue to offer induction for free to their beginning teachers, while others are charging up to $2,500 a year for the two year program.

Induction Options to Obtain a Clear Teaching Credential: Completion of an approved Induction Program is the primary route to attaining a clear teaching credential. If an employed teacher (employer is defined as a California public school, any school that is sponsored by a private California K‐12 school, non‐public, nonsectarian school or agency, charter school, or a school operated under the direction of a California state agency) does not have an Induction Program available to them then the teacher may enroll in a Clear Credential Program. Currently there are 22 Commission-approved Clear Credential programs operating in California (3 CSUs, 3 UCs, and 16 private and independent institutions).

Induction Fees: The CTC conducted a survey of CTC-approved induction programs and received 126 responses out of 165 programs. Of the survey respondents, 11.5% of LEA sponsored induction programs reported that they charged fees to induction participants in 2014-15. This equates to 2,063 participants who paid fees out of 17,907 total participants at respondent LEAs. Respondents reported the per year fees range from $390 to $3,350.

Statewide Mandate: This bill requires school districts and COEs to provide beginning teacher induction programs. This means districts and COEs will either have to administer an induction program themselves or partner with another district, COE, or university to administer an induction program for their beginning teachers. The district or COE will be required to cover the costs of the induction program. In the past, induction programs have been administered as a grant program, and thus no statewide mandate previously existed for school districts to provide induction. Is it possible that some school districts have historically never administered induction programs and therefore do not currently receive LCFF funding for this purpose? Is it fair to ask districts to pay for this cost without any state funding for this purpose, aside from the mandate claims process?

Charter Schools: It is not clear whether charter schools are included in the provisions of this bill. While charter schools are considered an employer by the CTC, and they sponsor induction programs, they are not explicitly mentioned in this bill. Staff recommends the bill be amended to specify that charter schools are also required to provide induction programs and are prohibited from charging beginning teachers for those programs.

Committee Amendments: Staff recommends the bill be amended to move the requirements for a school district or COE to provide a beginning teacher induction program, and the prohibition on charging fees to the beginning teacher to Education Code Section 44259 and remove Education Code Sections 44279.1 and 44279.2 from the bill, since those Code Sections pertain only to the grant funding for BTSA, which no longer exists. Staff recommends the bill further be amended to clarify that charter schools are included in the provisions of the bill.

REGISTERED SUPPORT / OPPOSITION:

Support

California Catholic Conference, Inc.

California Communities United Institute

California Teachers Association

Public Advocates

Opposition

None on file.

Analysis Prepared by: Chelsea Kelley / ED. / (916) 319-2087