Existing law creates the Adult Education Block Grant Program under the administration of the Chancellor of the California Community Colleges and the Superintendent of Public Instruction. Under this program, the chancellor and Superintendent, with the advice of the executive director of the State Board of Education, are required to divide the state into adult education regions and approve one adult education consortium in each adult education region. Existing law also requires, as a condition of receipt of an apportionment of funds from this program for a fiscal year, that members of a consortium approve an adult education plan, as specified. Existing law requires the chancellor and the Superintendent to submit to the Director of Finance, the State Board of Education, and the Legislature, by September 30 following any year for which funds are appropriated for the program, a report about the use of specified funds and outcomes for adults statewide and in each adult education region.

This bill would require that report to also include a summary summary, based upon a review of the annual adult education plan for each consortium, of the extent to which funds from the program provided to each consortium consortium, in combination with other funds available to the consortium and other entities that provide education and workforce services for adults in the region, were insufficient to address the adult education demands within the service area of the consortium.

Existing law creates the Adult Education Block Grant Program under the administration of the Chancellor of the California Community Colleges and the Superintendent of Public Instruction, which provides funds for certain adult education consortia. Instruction. Under this program, the chancellor and Superintendent, with the advice of the executive director of the State Board of Education, are required to divide the state into adult education regions and approve one adult education consortium in each adult education region. Existing law requires the chancellor and the Superintendent to submit to the Director of Finance, the State Board of Education, and the Legislature, by September 30 following any year for which funds are appropriated for the program, a report about the use of specified funds and outcomes for adults statewide and in each adult education region.

Existing law requires creates the Adult Education Block Grant Program under the administration of the Chancellor of the California Community Colleges and the State Department of Education, pursuant to funding made available in the annual Budget Act, to jointly provide 2-year planning and implementation grants to regional consortia of community college districts and school districts for developing regional plans to better serve the educational needs of adults. Existing law requires the grant funds provided under this program to be used by each regional consortium to create and implement a plan to better provide adults in its region with certain skills, classes, courses, and programs, including, among other things, programs for apprentices. Superintendent of Public Instruction, which provides funds for certain adult education consortia.

This bill would appropriate $250,000,000 every fiscal year from the General Fund to the Chancellor of the California Community Colleges and the State Department of Education Superintendent of Public Instruction for ongoing support of the adult education consortium program Adult Education Block Grant Program.

This bill would also declare the intent of the Legislature to add this appropriation to the $500,000,000 appropriated annually in recent state budgets for the adult education block grant program Adult Education Block Grant Program for a total of $750,000,000 annually, and would make certain findings and declarations relating to adult education funding.

The funds appropriated by this bill would be applied toward the minimum funding requirements for school districts and community college districts imposed by Section 8 of Article XVI of the California Constitution.

Existing law requires the Chancellor of the California Community Colleges and the State Department of Education, pursuant to funding made available in the annual Budget Act, to jointly provide 2-year planning and implementation grants to regional consortia of community college districts and school districts for developing regional plans to better serve the educational needs of adults. Existing law requires the grant funds provided under this program to be used by each regional consortium to create and implement a plan to better provide adults in its region with certain skills, classes, courses, and programs, including, among other things, programs for apprentices.

This bill would appropriate $250,000,000 every fiscal year from the General Fund to the California Community Colleges and the State Department of Education for ongoing support of the adult education consortium program.

The funds appropriated by this bill would be applied toward the minimum funding requirements for school districts and community college districts imposed by Section 8 of Article XVI of the California Constitution.

Existing law requires the Chancellor of the California Community Colleges and the State Department of Education, pursuant to funding made available in the annual Budget Act, to jointly provide 2-year planning and implementation grants to regional consortia of community college districts and school districts for developing regional plans to better serve the educational needs of adults. Existing law requires the grant funds provided under this program to be used by each regional consortium to create and implement a plan to better provide adults in its region with certain skills, classes, courses, and programs, including, among other things, programs for apprentices.

This bill would appropriate $250,000,000 every fiscal year from the General Fund to the California Community Colleges and the State Department of Education for ongoing support of the adult education consortium program.

The funds appropriated by this bill would be applied toward the minimum funding requirements for school districts and community college districts imposed by Section 8 of Article XVI of the California Constitution.

SENATE COMMITTEE ON

Senator Ricardo Lara, Chair

2015 - 2016 Regular Session

AB 1846 (Lopez) - Adult Education Block Grant Program: report

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

Bill Summary:

This bill expands existing reporting requirements for the Chancellor of the Community Colleges (Chancellor) and the Superintendent of Public Instruction (Superintendent) regarding the use and outcomes of the Adult Education Block Grant funds (block grant). The report must additionally include information on the extent to which these and other funds available to adult education consortia were insufficient to address the demand for adult education.

Fiscal Impact:

• Significant state cost pressure in the millions to the extent the report indicates that funding was insufficient to address the demands for adult education. If the gap in meeting the demands of the adult education program resulted in a need to increase the block grant by just one percent, this would result in a cost pressure of $5 million. (Proposition 98)
• Report expansion: Local cost pressure in the mid tens of thousands for each of the 71 consortia to assess and analyze potential local needs versus funding received. Minor state costs for the Chancellor’s Office and the California Department of Education to assemble this information into the report.

Background:

Chapter 13, Statutes of 2015 (AB 104, Committee on Budget) established the block grant under the administration of the Chancellor and the Superintendent to address the education needs of adults in all regions of the state. The Chancellor and the Superintendent were required to divide the state into adult education regions, coordinated by regional consortia, to improve coordination and better serve the needs of adult learners within each region.

The Budget Act of 2016 provides $500 million ongoing Proposition 98 funding. As a condition of funding, regional consortia must receive approval of a three-year adult education plan from the Chancellor or Superintendent to coordinate and deliver adult education in their regions. Among the information required in the plan is an evaluation of adult education needs in the region, a list of entities that provide these services, an evaluation of current levels and types of service, and an evaluation of all funds available to consortium members and other entities.

Block grant funds may be used for programs in the following adult education instructional areas: basic skills in reading, writing, and mathematics; English as a second language; workforce preparation for adults; short-term career technical education with employment potential; preapprenticeship training activities coordinated with approved apprenticeship programs; programs for adults with disabilities; and programs designed to develop knowledge and skills that enable adults to help children succeed in school.

In addition to the block grant, CCC receives adult education instruction through apportionments from which the Legislative Analyst’s Office estimates $2.1 billion is spent on adult education. Federal funds are received by the state through the Workforce Investment Opportunity Act ($90 million in 2015-16 to CDE) and the federal career technical education program ($121 million in 2015-16 from which a portion went to adult education). Finally, adult schools and community colleges may charge fees which range from no fee to covering the full cost of instruction at adult schools.

Proposed Law:

This bill expands existing reporting requirements on the use of the Adult Education Block Grant funds and outcomes for adults to include a summary, based upon a review of the annual adult education plan for each consortium of the extent to which funds provided, in combination with other funds available to the consortium and other entities that provide education and workforce services for adults in the region, were insufficient to address the demands for adult education within the service area of the consortium.

This bill removes the preliminary and final reporting requirements on the use of block grant funds and outcomes for adults statewide and in each adult education region. It instead requires the Chancellor and the Superintendent to submit one report containing the above information by September 30 following any fiscal year for which funds are appropriated for the program to the Director of Finance, the State Board of Education, and the Legislature.

Staff Comments: According to the author, the 2015 Adult Education Regional Planning Report (required under the provisions of AB 86) estimated that 15.3 million adults are in need of adult education programs. The report made several recommendations including increasing service levels to meet the demand for adult education.

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Carol Liu, Chair

2015 - 2016 Regular

Bill No: AB 1846

Subject: Adult Education Block Grant Program: report

SUMMARY

This bill expands existing reporting requirements on the use of Adult Education Block Grant funds, and outcomes for adults, to include information on the extent to which funds provided to Adult Education Consortia were insufficient to address demand for Adult Education.

BACKGROUND

Existing law establishes the Adult Education Block Grant Program (AEBGP) under the administration of the Chancellor of the Community Colleges and the Superintendent of Public Instruction (SPI) to support the effective provision of services that address the education needs of adults in all regions of the state. The Chancellor and SPI were required to divide the state into adult education regions (regional consortia) for this purpose. Existing law also provides for the use and apportionment of funds based upon plans developed by the regional consortia. Existing law also requires, as a condition of funding, approval of an adult education plan that includes specified information for that fiscal year. This information includes an evaluation of adult education needs in the region, a list of entities that provide these services, an evaluation of current levels and types of service, and an evaluation of all funds available to consortium members and other entities, among other things. (Education Code § 84900- 84913)

Existing law requires the Chancellor and the SPI to submit specified information on the use of Adult Education Block Grant funds, and outcomes for adults statewide and in each region, in order to inform actions taken by the Governor and the Legislature related to adult education. (EC § 84917)

ANALYSIS

This bill expands existing reporting requirements on the use of Adult Education Block Grant funds and outcomes for adults. It:

1. Requires the Chancellor and the SPI to include a summary of the extent to which Adult Education Block Grant funds provided to consortia were insufficient to address demands for adult education within each consortium’s service area.
2. Requires the summary to be based upon an assessment by each consortium.

STAFF COMMENTS

1. Need for the bill. The author notes, California’s long standing commitment to adult education, and notes the significant cuts to these programs associated with the recent recession, including the permanent closure of 65 schools between the years 2008-2013. The author also cites the 2015 Adult Education Regional Planning Report (required under the provisions of AB 86) which estimated that 15.3 million adults are in need of these programs. The report made several recommendations including increasing service levels to meet the demand for adult education.
2. History. In a December 2012 report, Restructuring California's Adult Education System, the Legislative Analyst’s Office identified several weaknesses with the existing adult education system, a bifurcated system in which both K-12 and community colleges offered courses subject to distinctly different policies. In 2013 the Governor proposed, and the Legislature approved, AB 86 (Budget Committee, Chapter 48, Statutes of 2013) which charged the SPI and the California Community Colleges Chancellor’s Office with jointly implementing an adult education planning process. AB 86 also appropriated $25 million to distribute to regional consortia, composed of at least one K-12 Adult and one community college district, to develop joint plans for serving adult education students in their region. Across the state, 70 consortia were formed, representing all 72 community colleges and 320 K-12 school districts. In September 2014, the Legislature also passed SB 173 (Liu, Chapter, Statutes of 2014) which required the California Department of Education and Chancellor’s Office to develop joint recommendations for assessment and placement practices, accountability, and fees.

Among other things, consortia were asked to develop plans to address the five program areas specified in AB 86 (elementary and basic skills, English as a second language, citizenship and workforce preparation for immigrants, programs for adults with disabilities, short-term Career Technical Education (CTE) programs with high employment potential, and programs for apprentices). Each consortium was also required to identify current adult education services and service gaps and to develop a joint plan to address them.

1. Adult Education needs. According to the 2015 Adult Education Regional Planning Report required by AB 86 and SB 173, there is a significant and growing demand for adult education in California. The report notes that about 15.3 million adults are in the population groups targeted by the five AB 86 adult education program areas. These include:
   1. 5.2 million adults without a high school diploma or GED.
   2. 8 6.2 million adults with limited English proficiency.
   3. 1.1 million adults eligible for citizenship courses.
   4. 1.9 million adults with disabilities.
   5. About 500,000 unemployed adults lacking a high school diploma,

and over 500,000 young adults (age 20-24) who are unemployed.

The report notes that other factors driving demand for adult education include layoffs related to the 2008 recession and immigration reform at the national level. Immigration reform is projected to add 5.2 million to those seeking adult education nationally, with 1.5 million of these individuals in California.

1. Shouldn’t we consider all funds? The reforms of adult education in California were implemented in an effort to ensure a more coordinated and efficient use of various fund sources for this purpose at the regional level. This bill, in an effort to highlight the extensive unmet need for adult education programs, focuses on the Adult Education Block Grant exclusively. Current law requires, as a condition of funding, that consortia plans annually include an evaluation of funds available to the consortium and other entities that provide education and workforce services for adults in the region, including funds other than Adult Education Block Grant funds. Shouldn’t a review of the sufficiency of funding include examination of all entities that receive funding for these education and workforce services?

Staff recommends the bill be amended on page 3 to replace (a)(6) with the following “A summary, based upon a review of the annual adult education plan required pursuant to section 84906, of the extent to which funds provided pursuant to this article, in combination with funds available to the consortium and other entities that provide education and workforce services for adults in the region, were insufficient to address the demands for adult education within the service area of the consortium.”

SUPPORT

None received.

OPPOSITION

None received.

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:

Author:(Lopez)

As Amended Ver:

Majority vote

SUMMARY: Requires the California Community Colleges (CCC) Chancellor and the State Superintendent of Public Instruction's (SPI), adult education block grant (AEBG) use of funds report to the Director of Finance, State Board of Education, and the Legislature, to include a summary, based on an assessment by each consortium, regarding the extent to which funds provided to the consortium, as specified, were insufficient to address the demands for adult education within the service area of the consortium.

EXISTING LAW:

1. Authorizes both the CCC and K-12 systems to offer and receive state funding for adult education courses (Education Code (EC) Sections 41976 and 84757).
2. Authorizes the following classes and courses to be offered by the school districts and county superintendent of schools for apportionment purposes from the adult education fund and prohibits state apportionment to be made for any course or class not specified in law:
   1. Adult programs in parenting, including parent cooperative preschools, and classes in child growth and development, parent-child relationships, and parenting;
   2. Adult programs in elementary and secondary basic skills and other courses and classes required for the high school diploma;
   3. Adult education programs in English as a second language;
   4. Adult education programs for immigrant eligible for educational services in citizenship, English as a second language, and workforce preparation classes in the basic skills of speaking, listening, reading, writing, mathematics, decisionmaking and problem solving skills, and other classes required for preparation to participate in job specific technical training;
   5. Adult education programs for adults with disabilities;
   6. Adult short-term career technical education programs with high employment potential;
   7. Adult programs for older adults;
   8. Programs offering pre-apprenticeship training activities conducted in coordination with one or more apprenticeship programs approved by the Division of Apprenticeship Standards for the occupation and geographic area;
   9. Adult programs in home economics; and,
   10. Adult programs in health and safety education (EC Section 41976).
3. Authorizes a school district governing board to require a fee of an adult enrolled in a class for adults and prohibits the total of the fees required and revenues derived from average daily attendance from exceeding the estimated cost of maintaining such classes. Current law also prohibits the imposition of a charge of any kind for a class in English and citizenship or a class in an elementary subject, nor for any class which is designated as granting high school credit when the class is taken by a person who does not hold a high school diploma. To note: for a class in English and citizenship, a fee may be charged only until July 1, 2015 (EC Section 52612).
4. Prohibits the local governing board of a community college district (CCD) maintaining a noncredit course from requiring an adult enrolled in such a course to pay nonresident tuition or any fee or charge of any kind for a class in English and citizenship for foreigners, a class in an elementary subject, a class designated as granting high school credit to an individual without a high school diploma or other adult basic education programs and courses, as specified (EC Section 76380).
5. Charges the CCC Chancellor's Office (CCCCO) and the CDE to jointly implement an adult education planning process; authorizes the CCCCO and the CDE to distribute $25 million to regional consortia to develop plans with the shared goal of better serving the educational needs of California's adult learners; and, specifies that the following five areas are to be addressed in the plans:
   1. Elementary and secondary basic skills, including classes required for a high school diploma;
   2. Classes and courses for immigrants in English as a second language, citizenship, and workforce preparations;
   3. Education programs for adults with disabilities;
   4. Short-term career technical education programs with high employment potential; and,
   5. Programs for pre-apprenticeship training activities (EC Section 84830).
6. Requires the CCC Chancellor and the SPI, by September 30, following any fiscal year for which funds are appropriated for the AEBG program, to report about the use of the funds to the Director of Finance, the State Board of Education, and the Legislature. Specifies that the report shall include, among others, a summary of the adult education plan operative for each consortium, the distribution schedule for each consortium, and the effectiveness of each consortium in meeting the educational needs of adults in its respective region (EC Section 84917).

FISCAL EFFECT: According to the Assembly Appropriations Committee, minor and absorbable costs to the CCC for the additional reporting requirement.

COMMENTS: Background. Adult education in California is part of a large, complex, and diverse multi-provider system. It is a vital and integral part of the larger educational system that provides adults with the skills and education that enable them to earn a high school diploma or a general educational development (GED) certificate, become American citizens, acquire specific job skills, learn English, and/or become independent and productive parents and members of their community.

During 2007 – 2008, adult education was funded at $750 million; however, due to the 2008 recession, adult education funding was reduced to less than half of its prior levels.

Purpose of the measure. According to the author, "Today, for many immigrant families, adult education is a critical resource to pursue the American dream for the student and their family. As a state who is home to over 10 million immigrants it is important that we build upon the investment our state has already made to immigrant communities to provide them the resources to integrate into our society."

State apportionment. The majority of funding for adult education and community college noncredit comes from state apportionment. The state provides approximately 90% of the total funding for adult education and community college noncredit programs. State apportionment funds are distributed to adult schools through average daily attendance. Funding for community college noncredit is based upon a formula per Full Time Equivalent Student (FTES). The remaining financing, approximately 10%, is provided by federal funds.

AB 86 Regional Consortia. The Governor, in January 2013, proposed in his 2013-2014 budget, shifting the coordination and administration of all adult education programs to the CCC. The K-12 adult education program would be eliminated, but CCC could contract with school districts to provide instruction. Due to concerns about the timing and structure of the proposal, the Governor's May 2013 revision of the budget withdrew the proposal and instead maintained the current system for two years while allocating $30 million for planning grants awarded to regional consortia comprised of CCC and K-12 districts for the purpose of creating plans to integrate existing programs and determine how best to serve adult students within regions throughout the state. The budget adopted by the Legislature reduced the planning grants to $25 million and adopted trailer bill language in AB 86 (Budget Committee), Chapter 48, Statutes of 2013).

AB 86 specified that the plans developed by the regional consortia shall only include the provision of the following programs:

1. Elementary and secondary basic skills (GED);
2. Classes and courses for immigrants (citizenship, English as a second language);
3. Education programs for adults with disabilities;
4. Short-term career technical education programs; and,
5. Programs for apprentices.

AB 104 (Budget Committee), Chapter 13, Statutes of 2015, AEBG. The 2015-2016 budget allocated $500 million and created the AEBG program to provide adult education services through regional consortia. The Superintendent of Public Instruction and CCC Chancellor jointly approve consortia, including governance structures and funding allocations, with the advice of the Executive Director of the State Board of Education.

The 71 AEBG consortia are distributing funds to enhance consortium-wide outcomes. To note, an update on the progress of the AEBG is due to the Governor and Legislature in September 2016.

Analysis Prepared by: Jeanice Warden / HIGHER ED. / (916) 319-3960 FN: 0003257

Date of Hearing: May 11, 2016

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Lorena Gonzalez, Chair

ABPCA Bill Id:AB 1846

Author:(Lopez) – As Amended Ver:April 26, 2016

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

SUMMARY:

This bill appropriates $250 million every fiscal year to the Chancellor of the California Community Colleges (CCC) and the Superintendent of Public Instruction (SPI) to support the Adult Education Block Grant Program—thus increasing total annual funding for the program to $750 million.

FISCAL EFFECT:

1. Annual $250 million appropriation. (GF-Prop 98)
2. The Chancellor's Office would need one or two more staff positions, at an annual General Fund cost of $100,000 to $200,000, to help administer a program expansion of 50%.

COMMENTS:

1. Background. The 2013-14 Budget Act provided $25 million for the development of regional consortia comprised of CCCs and K-12 school districts for the purpose of creating plans to integrate existing adult education programs and determine how best to serve adult students within regions throughout the state (AB 86 (Budget Committee), Chapter 48, Statutes of 2013). Seventy regions were formed comprised of at least one CCC district and one or more K-12 school districts.

The 2015-16 Budget Act provided $500 million for the Adult Education Block Grant Program, enacted through the education budget trailer bill, AB 104 (Budget Committee), Chapter 13, Statutes of 2015. The program is built upon regional consortia established by AB 86. Beginning 2016-17, funds are to be distributed to each consortium by the SPI and the CCC Chancellor, with the advice of the Executive Director of the State Board of Education, based on 1) the amount of funds apportioned in the previous year; 2) a consortium's share of the statewide need for adult education; and 3) the consortium's effectiveness in meeting the educational needs of adults in the region based on available data. Funds are allocated according to a plan developed by each consortium.

1. Purpose. The author notes the significant reductions to adult education programs during the Great Recession, including the closing of an estimated 65 adult schools statewide. The author seeks to at least restore adult education funding to its prerecession level.
2. Comment. Without prejudice to the merits of this proposal or the adult education program, a funding commitment of this magnitude should be considered through the budget process, and within the context of other CCC funding needs and priorities.

Analysis Prepared by: Chuck Nicol / APPR. / (916) 319-2081

Date of Hearing: April 20, 2016

ASSEMBLY COMMITTEE ON EDUCATION

Patrick O'Donnell, Chair

ABPCA Bill Id:AB 1846 (

Author:Lopez) – As Amended Ver:March 28, 2016

[Note: This bill was doubled referred to the Assembly Higher Education Committee and was heard as it relates to issues under its jurisdiction.]

SUBJECT: Adult education consortium program

SUMMARY: Appropriates $250 million from the General Fund to the Chancellor of the California Community Colleges and the California Department of Education (CDE) for ongoing support of the adult education consortium program. Finds and declares that according to the Regional Planning Report by the Chancellor of the California Community Colleges and the Superintendent of Public Instruction (SPI), an estimated 65 adult schools were closed between 2008 and 2013. Further finds that increasing the adult education consortium program to $750 million would restore adult education funding to its 2008 level. Expresses the intent of the Legislature to add $250 million annually to the $500 million appropriated annually to the adult education block grant program for a total of $750 million.

EXISTING LAW:

1. Authorizes the establishment of adult school programs and specifies eligibility criteria, programmatic requirements, and the manner in which school districts' adult education revenue limit per unit of average daily attendance (ADA) shall be determined.
2. Prohibits state apportionment to be made for any course or class not specified in law.
3. Defines "adult" as a person 18 years of age or older for a person who is not concurrently enrolled in a regular high school program.
4. Charges the California Community Colleges Chancellor's Office (CCCCO) and the CDE to jointly implement an adult education planning process; authorizes the CCCCO and the CDE to distribute $25 million to regional consortia to develop plans with the shared goal of better serving the educational needs of California's adult learners.
5. Establishes the Adult Education Block Grant Program and specifies the process for funding

based on plans developed by regional consortia. Requires the SPI and the chancellor, with the advice of the executive director of the state board of education to, no later than July 31, 2015, certify, for each school district and COE, the amount of state funds required to be expended for adult education pursuant to the maintenance of effort (MOE) required under the Local Control Funding Formula (LCFF). Specifies that Adult Education Block Grant funds shall only be used for the following programs:

• 1. Programs in elementary and secondary basic skills, including programs leading to a high school diploma or high school equivalency certificate.
  2. Programs for immigrants eligible for educational services in citizenship, English as a second language, and workforce preparation.
  3. Programs for adults, including, but not limited to, older adults, that are primarily related to entry or reentry into the workforce.
  4. Programs for adults, including, but not limited to, older adults, that are primarily designed to develop knowledge and skills to assist elementary and secondary school children to succeed academically in school.
  5. Programs for adults with disabilities.
  6. Programs in career technical education that are short term in nature and have high employment potential.
  7. Programs offering preapprenticeship training activities conducted in coordination with one or more apprenticeship programs approved by the Division of Apprenticeship Standards for the occupation and geographic area.

FISCAL EFFECT: Unknown

COMMENTS: Background. Adult education in California is part of a large, complex, and diverse multi-provider system. It is a vital and integral part of the larger educational system that provides adults with the skills and education that enable them to earn a high school diploma or a general educational development certificate, become United States citizens, acquire specific job skills, learn English, and/or become independent and productive parents and members of their community. Enabling adults to acquire English skills also help parents to be more involved in their children's education.

Adult education is provided by a number of delivery systems, but the two main providers are school districts and the California Community Colleges (CCCs). K-12 adult schools were funded by an adult education categorical program that, prior to budget reductions, received over $700 million annually.

In 2013, the Governor proposed and the Legislature passed a new K-12 funding system that replaced revenue limits with a new base grant. LCFF incorporated most categorical program funds into the base grant and eliminated the categorical programs. School districts choosing to continue their adult education programs would do so using their base funds. However, school districts and county offices of education were required to maintain the amount of funds expended for the adult education categorical program in fiscal year (FY) 2012-13 for two years, in FY 2013-14 and FY 2014-15.

AB 86 Regional Consortia. Also in 2013, the budget provided $25 million for the development of regional consortia comprised of CCCs and K-12 school districts for the purpose of creating plans to integrate existing programs and determine how best to serve adult students within regions throughout the state (AB 86 (Budget Committee), Chapter 48, Statutes of 2013). Seventy regions were formed comprised of at least one CCC district and one or more K-12 school districts.

Adult Education Block Grant Program. The FY 2015-16 Budget provided $500 million for the Adult Education Block Grant Program, enacted through the education budget trailer bill, AB 104 (Budget Committee), Chapter 13, Statutes of 2015. The program is built upon regional consortia established by AB 86. Beginning 2016-17, funds are distributed to each consortium by the SPI and the chancellor, with the advice of the Executive Director of the State Board of Education, based on 1) the amount of funds apportioned in the previous year; 2) a consortium's share of the statewide need for adult education; and 3) the consortium's effectiveness in meeting the educational needs of adults in the region based on available data. Funds are allocated according to a plan developed by each consortium. For the 2015-16 fiscal year, the trailer bill specified that up to $375 million shall be allocated to school districts and COEs based on a certification of the MOE required over the last two years. The remainder is allocated to regional consortia by the SPI and the chancellor, with concurrence from the Executive Director of the State Board of Education. The final amount awarded based on K-12 MOE totaled $337 million. Of the remaining amount, K-12 school districts received $63 million while CCC districts received $100 million. Although K-12 adult schools received the bulk of the $500 million, CCCs are not disadvantaged as CCC noncredit programs continue to receive Full Time Equivalent Student (FTES) funding. The Governor proposes to continue the $500 million allocation for FY 2016-17.

This bill intends to appropriate $250 million annually to the Adult Education Block Grant program. The author states that this appropriation will restore adult education funding back to the 2008 level, assuming that the Budget Act continues appropriation of $500 million. Staff notes that while the total may be equal to the 2008 funding level for K-12 programs; the $750 million will not be directed solely to K-12 adult schools.

Committee amendment. This bill appropriates the funding to the AB 86 adult education consortium program, which was the planning process, instead of the Adult Education Block Grant Program. Staff recommends an amendment to correct the code section reference from Section 84830 to Section 84900.

The author states:

"For decades California has had the strongest commitment for adult education in the nation ensuring that adults have the ability to obtain the skills to enter the work force or pursue higher education. It was not until the recent recession in 2008 that adult education began to see significant cuts in funding, forcing thousands of students to discontinue their education. Several years later in 2013, after the first budget cuts, the legislature condensed the amount of programs offered which further disadvantaged communities who are truly in need of those services.

"According to the 2015 Adult Education Regional Planning report adult education in California is in high demand with an estimate that 15.3 million adults in need of adult educational programs that are currently offered. The demand for these programs has increasingly grown over the years particularly due to the sixty five schools that permanently shut their doors between the years of 2008 and 2013. The report goes further to highlight that with many of the recent changes to adult education funding; schools have been forced to shorten their hours of operation placing a major obstacle for working class students."

REGISTERED SUPPORT / OPPOSITION:

Support

None on file

Opposition

None on file

Analysis Prepared by: Sophia Kwong Kim / ED. / (916) 319-2087

Date of Hearing: April 20, 2016

ASSEMBLY COMMITTEE ON EDUCATION

Patrick O'Donnell, Chair

ABPCA Bill Id:AB 1846 (

Author:Lopez) – As Amended Ver:March 28, 2016

[Note: This bill was doubled referred to the Assembly Higher Education Committee and was heard as it relates to issues under its jurisdiction.]

SUBJECT: Adult education consortium program

SUMMARY: Appropriates $250 million from the General Fund to the Chancellor of the California Community Colleges and the California Department of Education (CDE) for ongoing support of the adult education consortium program. Finds and declares that according to the Regional Planning Report by the Chancellor of the California Community Colleges and the Superintendent of Public Instruction (SPI), an estimated 65 adult schools were closed between 2008 and 2013. Further finds that increasing the adult education consortium program to $750 million would restore adult education funding to its 2008 level. Expresses the intent of the Legislature to add $250 million annually to the $500 million appropriated annually to the adult education block grant program for a total of $750 million.

EXISTING LAW:

1. Authorizes the establishment of adult school programs and specifies eligibility criteria, programmatic requirements, and the manner in which school districts' adult education revenue limit per unit of average daily attendance (ADA) shall be determined.
2. Prohibits state apportionment to be made for any course or class not specified in law.
3. Defines "adult" as a person 18 years of age or older for a person who is not concurrently enrolled in a regular high school program.
4. Charges the California Community Colleges Chancellor's Office (CCCCO) and the CDE to jointly implement an adult education planning process; authorizes the CCCCO and the CDE to distribute $25 million to regional consortia to develop plans with the shared goal of better serving the educational needs of California's adult learners.
5. Establishes the Adult Education Block Grant Program and specifies the process for funding

based on plans developed by regional consortia. Requires the SPI and the chancellor, with the advice of the executive director of the state board of education to, no later than July 31, 2015, certify, for each school district and COE, the amount of state funds required to be expended for adult education pursuant to the maintenance of effort (MOE) required under the Local Control Funding Formula (LCFF). Specifies that Adult Education Block Grant funds shall only be used for the following programs:

• 1. Programs in elementary and secondary basic skills, including programs leading to a high school diploma or high school equivalency certificate.
  2. Programs for immigrants eligible for educational services in citizenship, English as a second language, and workforce preparation.
  3. Programs for adults, including, but not limited to, older adults, that are primarily related to entry or reentry into the workforce.
  4. Programs for adults, including, but not limited to, older adults, that are primarily designed to develop knowledge and skills to assist elementary and secondary school children to succeed academically in school.
  5. Programs for adults with disabilities.
  6. Programs in career technical education that are short term in nature and have high employment potential.
  7. Programs offering preapprenticeship training activities conducted in coordination with one or more apprenticeship programs approved by the Division of Apprenticeship Standards for the occupation and geographic area.

FISCAL EFFECT: Unknown

COMMENTS: Background. Adult education in California is part of a large, complex, and diverse multi-provider system. It is a vital and integral part of the larger educational system that provides adults with the skills and education that enable them to earn a high school diploma or a general educational development certificate, become United States citizens, acquire specific job skills, learn English, and/or become independent and productive parents and members of their community. Enabling adults to acquire English skills also help parents to be more involved in their children's education.

Adult education is provided by a number of delivery systems, but the two main providers are school districts and the California Community Colleges (CCCs). K-12 adult schools were funded by an adult education categorical program that, prior to budget reductions, received over $700 million annually.

In 2013, the Governor proposed and the Legislature passed a new K-12 funding system that replaced revenue limits with a new base grant. LCFF incorporated most categorical program funds into the base grant and eliminated the categorical programs. School districts choosing to continue their adult education programs would do so using their base funds. However, school districts and county offices of education were required to maintain the amount of funds expended for the adult education categorical program in fiscal year (FY) 2012-13 for two years, in FY 2013-14 and FY 2014-15.

AB 86 Regional Consortia. Also in 2013, the budget provided $25 million for the development of regional consortia comprised of CCCs and K-12 school districts for the purpose of creating plans to integrate existing programs and determine how best to serve adult students within regions throughout the state (AB 86 (Budget Committee), Chapter 48, Statutes of 2013). Seventy regions were formed comprised of at least one CCC district and one or more K-12 school districts.

Adult Education Block Grant Program. The FY 2015-16 Budget provided $500 million for the Adult Education Block Grant Program, enacted through the education budget trailer bill, AB 104 (Budget Committee), Chapter 13, Statutes of 2015. The program is built upon regional consortia established by AB 86. Beginning 2016-17, funds are distributed to each consortium by the SPI and the chancellor, with the advice of the Executive Director of the State Board of Education, based on 1) the amount of funds apportioned in the previous year; 2) a consortium's share of the statewide need for adult education; and 3) the consortium's effectiveness in meeting the educational needs of adults in the region based on available data. Funds are allocated according to a plan developed by each consortium. For the 2015-16 fiscal year, the trailer bill specified that up to $375 million shall be allocated to school districts and COEs based on a certification of the MOE required over the last two years. The remainder is allocated to regional consortia by the SPI and the chancellor, with concurrence from the Executive Director of the State Board of Education. The final amount awarded based on K-12 MOE totaled $337 million. Of the remaining amount, K-12 school districts received $63 million while CCC districts received $100 million. Although K-12 adult schools received the bulk of the $500 million, CCCs are not disadvantaged as CCC noncredit programs continue to receive Full Time Equivalent Student (FTES) funding. The Governor proposes to continue the $500 million allocation for FY 2016-17.

This bill intends to appropriate $250 million annually to the Adult Education Block Grant program. The author states that this appropriation will restore adult education funding back to the 2008 level, assuming that the Budget Act continues appropriation of $500 million. Staff notes that while the total may be equal to the 2008 funding level for K-12 programs; the $750 million will not be directed solely to K-12 adult schools.

Committee amendment. This bill appropriates the funding to the AB 86 adult education consortium program, which was the planning process, instead of the Adult Education Block Grant Program. Staff recommends an amendment to correct the code section reference from Section 84830 to Section 84900.

The author states:

"For decades California has had the strongest commitment for adult education in the nation ensuring that adults have the ability to obtain the skills to enter the work force or pursue higher education. It was not until the recent recession in 2008 that adult education began to see significant cuts in funding, forcing thousands of students to discontinue their education. Several years later in 2013, after the first budget cuts, the legislature condensed the amount of programs offered which further disadvantaged communities who are truly in need of those services.

"According to the 2015 Adult Education Regional Planning report adult education in California is in high demand with an estimate that 15.3 million adults in need of adult educational programs that are currently offered. The demand for these programs has increasingly grown over the years particularly due to the sixty five schools that permanently shut their doors between the years of 2008 and 2013. The report goes further to highlight that with many of the recent changes to adult education funding; schools have been forced to shorten their hours of operation placing a major obstacle for working class students."

REGISTERED SUPPORT / OPPOSITION:

Support

None on file

Opposition

None on file

Analysis Prepared by: Sophia Kwong Kim / ED. / (916) 319-2087

Date of Hearing: April 12, 2016

ASSEMBLY COMMITTEE ON HIGHER EDUCATION

Jose Medina, Chair

ABPCA Bill Id:AB 1846 (

Author:Lopez) – As Amended Ver:March 28, 2016

[Note: This bill is doubled referred to the Assembly Education Committee and will be heard as it relates to issues under its jurisdiction.]

SUBJECT: Adult education consortium program.

SUMMARY: Appropriates $250 million every fiscal year from the General Fund (GF) to the California Community Colleges (CCC) Chancellor and the California Department of Education (CDE) for adult education. Specifically, this bill:

1. Finds and declares the following intent of the Legislature:
   1. According to the Regional Planning Report of 2015 authored by the CCC Chancellor and the State Superintendent of Public Instruction, between the years of 2008 and 2013 an estimated 65 adult schools across California were closed;
   2. Increasing funding for the adult education consortium program to seven hundred fifty million dollars ($750,000,000) would restore adult education funding to its 2008 level; and,
   3. To add $250 million annually to the $500 million appropriated annually in recent state budgets for the adult education block grant program, as specified, for a total provided for these purposes each year of $750 million.
2. Appropriates $250 million every fiscal year from the GF to the CCC Chancellor and the CDE for ongoing support of the adult education consortium program implemented pursuant to Education Code (EC) Section 84830.

EXISTING LAW:

1. Authorizes both the CCC and K-12 systems to offer and receive state funding for adult education courses (EC Sections 41976 and 84757).
2. Authorizes the following classes and courses to be offered by the school districts and county superintendent of schools for apportionment purposes from the adult education fund and prohibits state apportionment to be made for any course or class not specified in law:
   1. Adult programs in parenting, including parent cooperative preschools, and classes in child growth and development, parent-child relationships, and parenting;
   2. Adult programs in elementary and secondary basic skills and other courses and classes required for the high school diploma;
   3. Adult education programs in English as a second language;
   4. Adult education programs for immigrant eligible for educational services in citizenship, English as a second language, and workforce preparation classes in the basic skills of speaking, listening, reading, writing, mathematics, decisionmaking and problem solving skills, and other classes required for preparation to participate in job specific technical training;
   5. Adult education programs for adults with disabilities;
   6. Adult short-term career technical education programs with high employment potential;
   7. Adult programs for older adults;
   8. Programs offering pre-apprenticeship training activities conducted in coordination with one or more apprenticeship programs approved by the Division of Apprenticeship Standards for the occupation and geographic area;
   9. Adult programs in home economics; and,
   10. Adult programs in health and safety education (EC Section 41976).
3. Authorizes a school district governing board to require a fee of an adult enrolled in a class for adults and prohibits the total of the fees required and revenues derived from average daily attendance from exceeding the estimated cost of maintaining such classes. Current law also prohibits the imposition of a charge of any kind for a class in English and citizenship or a class in an elementary subject, nor for any class which is designated as granting high school credit when the class is taken by a person who does not hold a high school diploma. To note: for a class in English and citizenship, a fee may be charged only until July 1, 2015 (EC Section 52612).
4. Prohibits the local governing board of a community college district (CCD) maintaining a noncredit course from requiring an adult enrolled in such a course to pay nonresident tuition or any fee or charge of any kind for a class in English and citizenship for foreigners, a class in an elementary subject, a class designated as granting high school credit to an individual without a high school diploma or other adult basic education programs and courses, as specified (EC Section 76380).
5. Charges the CCC Chancellor's Office (CCCCO) and the CDE to jointly implement an adult education planning process; authorizes the CCCCO and the CDE to distribute $25 million to regional consortia to develop plans with the shared goal of better serving the educational needs of California's adult learners; and, specifies that the following five areas are to be addressed in the plans:
   1. Elementary and secondary basic skills, including classes required for a high school diploma;
   2. Classes and courses for immigrants in English as a second language, citizenship, and workforce preparations;
   3. Education programs for adults with disabilities;
   4. Short-term career technical education programs with high employment potential; and,
   5. Programs for pre-apprenticeship training activities (EC Section 84830).

FISCAL EFFECT: $25 million every fiscal year from the GF.

COMMENTS: Background. Adult education in California is part of a large, complex, and diverse multi-provider system. It is a vital and integral part of the larger educational system that provides adults with the skills and education that enable them to earn a high school diploma or a general educational development (GED) certificate, become American citizens, acquire specific job skills, learn English, and/or become independent and productive parents and members of their community.

During 2007 – 2008, adult education was funded at $750 million; however, due to the 2008 recession, adult education funding was reduced to less than half of its prior levels.

Purpose of the measure. According to the author, "Today, for many immigrant families, adult education is a critical resource to pursue the American dream for the student and their family. As a state who is home to over 10 million immigrants it is important that we build upon the investment our state has already made to immigrant communities to provide them the resources to integrate into our society."

This measure will appropriate an additional $250 million dollars to adult education in order to reach and serve more adults in need of education.

State apportionment. The majority of funding for adult education and community college noncredit comes from state apportionment. The state provides approximately 90 percent of the total funding for adult education and community college noncredit programs. State apportionment funds are distributed to adult schools through average daily attendance. Funding for community college noncredit is based upon a formula per Full Time Equivalent Student (FTES). The remaining financing, approximately 10 percent, is provided by federal funds.

AB 86 Regional Consortia. The Governor, in January 2013, proposed in his 2013-2014 budget, shifting the coordination and administration of all adult education programs to the CCC. The K-12 adult education program would be eliminated, but CCC could contract with school districts to provide instruction. Due to concerns about the timing and structure of the proposal, the Governor's May 2013 revision of the budget withdrew the proposal and instead maintained the current system for two years while allocating $30 million for planning grants awarded to regional consortia comprised of CCC and K-12 districts for the purpose of creating plans to integrate existing programs and determine how best to serve adult students within regions throughout the state. The budget adopted by the Legislature reduced the planning grants to $25 million and adopted trailer bill language in AB 86 (Chapter 48, Statutes of 2013).

AB 86 specified that the plans developed by the regional consortia shall only include the provision of the following programs:

1. Elementary and secondary basic skills (GED);
2. Classes and courses for immigrants (citizenship, English as a second language);
3. Education programs for adults with disabilities;
4. Short-term career technical education programs; and,
5. Programs for apprentices.

AB 104 (Chapter 13, Statutes of 2015) Adult Education Block Grant (AEBG). The 2015-2016 budget allocated $500 million and created the AEBG program to provide adult education services through regional consortia. The Superintendent of Public Instruction and CCC Chancellor jointly approve consortia, including governance structures and funding allocations, with the advice of the Executive Director of the State Board of Education.

The 71 AEBG consortia are distributing funds to enhance consortium-wide outcomes. To note, an update on the progress of the AEBG is due to the Governor and Legislature in September 2016.

Committee consideration. While it is not uncommon for Legislators to seek to appropriate funds for a specific purpose through the policy process, the Committee and author may wish to consider what is the best method to appropriate funds for various programs.

REGISTERED SUPPORT / OPPOSITION:

Support

California Adult Education Administrators Association

California Council for Adult Education

California Federation of Teachers

Coalition for Humane Immigrant Rights of Los Angeles

North Orange County Community College District

Opposition

None on file.

Analysis Prepared by: Jeanice Warden / HIGHER ED. / (916) 319-3960