Existing law, until January 1, 2021, establishes the Supervised Population Workforce Training Grant Program to be administered, as provided, by the California Workforce Development Board. Existing law establishes grant program eligibility criteria for counties and provides that eligible uses for grant funds include, but are not limited to, vocational training, stipends for trainees, and apprenticeship opportunities for the supervised population, which include individuals on probation, mandatory supervision, and postrelease community supervision. Existing law requires the board to develop criteria for the selection of grant recipients and requires the board to ensure that grants are awarded on a competitive basis. Existing law requires the board, by January 1, 2018, to submit a report to the Legislature containing specified information, including an evaluation of the effectiveness of the grant program.

This bill would expand the scope of the supervised population served by the program to include persons who are on parole and persons who are supervised by, or under the jurisdiction of, the Department of Corrections and Rehabilitation. The bill would also require the board to design the grant program application process to ensure ensure, among other things, that grants are allocated equitably among the grant partners based on services and activities provided in support of the success of participants and that nonprofit community-based organizations are competitive in applying for funds as the lead applicant. The bill would also require that an application provide for a partnership with a lead community-based organization with a track record of success in effectively serving the supervised population, as specified. The bill would make other changes to the application process and criteria for the award of grants, including identifying additional applicants who are to be awarded preference.

Existing law, until January 1, 2021, establishes the Supervised Population Workforce Training Grant Program to be administered, as provided, by the California Workforce Development Board. Existing law establishes grant program eligibility criteria for counties and provides that eligible uses for grant funds include, but are not limited to, vocational training, stipends for trainees, and apprenticeship opportunities for the supervised population, which include individuals on probation, mandatory supervision, and postrelease community supervision. Existing law requires the board to develop criteria for the selection of grant recipients and requires the board to ensure that grants are awarded on a competitive basis. Existing law requires the board, by January 1, 2018, to submit a report to the Legislature containing specified information, including an evaluation of the effectiveness of the grant program.

This bill would also require the board to design the grant program application process to ensure that grants are allocated equitably among the grant partners based on services and activities provided in support of the success of participants. The bill would also require that an application provide for a partnership with a lead community-based organization with a track record of success in effectively serving the supervised population, as specified.

Date of Hearing: April 26, 2017

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Lorena Gonzalez Fletcher, Chair

ABPCA Bill Id:AB 1114

Author:(Eduardo Garcia) – As Amended Ver:March 30, 2017

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

SUMMARY:

This bill expands the Supervised Population Workforce Training Program (SPWTP) in the California Workforce Development Board (CWDB) to include those who are on parole and under the jurisdiction of the California Department of Corrections (CDCR), and provides additional guidelines for administering grants.

FISCAL EFFECT:

1. Based on prior appropriations, CWDB would require approximately $430,000 for three staff to provide programmatic leadership, technical assistance, evaluation, performance tracking, and oversight of a $10 million grant program.
2. It should be noted that the Employment Development Department (EDD) typically serves as the fiscal and administrative agent for the CWDB and historically charges up to 10% of the total project funding to cover its costs, thus EDD will require $1 million if $10 million is provided to CWDB.

COMMENTS:

1. Background. On November 4, 2014, voters approved the Safe Neighborhoods and Schools Act, Proposition 47. Proposition 47 made significant changes to the state’s criminal justice system by reducing penalties for certain non-violent, non-serious drug and property crimes, and requiring the resulting savings to be spent, among other things, on programs to aid realignment and keep offenders out of prison and jail. In addition, Californians recently approved Proposition 57, which allows for parole consideration of certain non-violent felons.
2. Supervised Population Workforce Training Grant Program. The Supervised Population Workforce Training Grant Program, under the CWDB, is a competitive grant program to support recidivism reduction workforce training and development programs targeting the supervised population. The supervised population includes all persons who are on probation, mandatory supervision, or postrelease community supervision and are supervised by, or are under the jurisdiction of, a county.

The CWDB and the Employment Development Department (EDD) fund proposals that expand existing, mature collaborative relationships between county based Community Corrections Partnerships (parole, probation, courts, mental health services, community colleges, etc.) and Local Workforce Investment Boards (LWIB) in support of innovative strategies that accelerate educational attainment and reemployment for the supervised population.

1. Purpose. AB 1114 redefines “supervised population” to include those who are on parole and under the jurisdiction of the CDCR and will establish grant preferences for programs that incorporate input from community based organizations. Due to resentencing and increased parole consideration under recent propositions, California is expected to see a significant increase in the state prison parole and ex-offender populations. The author believes it will “be important to ensure that people on parole are also able to access similar opportunities to those supported by the Supervised Population Workforce Training Grant.” The CWDB has determined that workforce training programs are a key element of reducing recidivism during re-entry and re-entry workforce training programs are most effective with community input.
2. Support. According to American Friends Service Committee, “By investing in the people of California and ensuring everyone has the opportunity to contribute and thrive, we can secure a more prosperous future.”
3. Related Legislation. AB 1111 (E. Garcia), establishes the Removing Barriers to Employment Act, which includes a provision for funding projects modeled after the Supervised Workforce Training Program. This bill was heard on April 25, 2017, in the Assembly Jobs, Economic Development, and the Economy Committee.
   
4. Prior Legislation.

AB 2061 (Waldron), Chapter 100, Statutes of 2016, required CWDB to give preference to a grant application that proposes participation by one or more employers who have demonstrated interest in employing individuals in the supervised population and required the board to include in its report to the Legislature whether the program provided training opportunities in areas related to work skills learned while incarcerated.

AB 1093 (E. Garcia), Chapter 220, Statutes of 2015, revised the criteria for the grant program to address the needs of populations with differing levels of education, authorized the State CWDB to delegate the responsibility for determining the sufficiency of a prior assessment to one or more local workforce investment boards, and required additional information to be included in a report to the Legislature, regarding the effectiveness of programs for the individuals served.

AB 2060 (V.M. Perez), Chapter 383, Statutes of 2014, established the Supervised Population Workforce Training Grant Program.

Analysis Prepared by: Pedro Reyes / APPR. / (916) 319-2081

Date of Hearing: April 4, 2017

Consultant: Adam Smith

ASSEMBLY COMMITTEE ON

Reginald Byron Jones-Sawyer, Sr., Chair

ABPCA Bill Id:

Author:() – As Ver:March 30, 2017

SUMMARY:

Expands the Supervised Population Workforce Training Program to serve parolees and provides additional guidelines for administering grants. Specifically, this bill:

1. Redefines “supervised population” to include those who are on parole and under the jurisdiction of the CDCR.
   
2. Authorizes multi-year grant awards in the grant program application process.
   
3. Ensures that non-profit community-based organizations are competitive in applying for funds through the grant program.
   
4. Ensures that workforce and training needs are addressed for individuals who require “earn and learn” experience in order to obtain entry level jobs.
   
5. Requires that each application for funding include a partnership agreement between one or more community based organizations that works directly with the supervised population.
   
6. Requires that funding for project proposals be allocated so that they reflect the role each party plays in a proposed project.
   
7. Creates preferences for grant applications that include the following:
   
   1. Participation by one or more employers, including mission-driven social enterprises and non-profit organizations with a track record of employing a workforce comprised of formerly incarcerated individuals, who have demonstrated interest in employing individuals in the supervised population;
      
   2. A non-profit organization that works directly with the supervised population as the lead or co-lead of the project;
      
   3. The use of grant funds primarily to support the direct provision of workforce and training services to the supervised population; and
      
   4. Proposed projects which align with the California Workforce Development Board’s strategic plan.
      
8. Requires applications to set specific purposes for grant funds that align with the services to be provided and the role of each partner as well as define the subset or subsets of the supervised population to be served, with priority given to those with the highest risk of returning to incarceration.
   

EXISTING LAW:

1. Establishes the California Workforce Investment Board (now known as the CWDB). (Unemp. Ins. Code, § 14010 et seq.)
   
2. Establishes the Supervised Population Workforce Training Grant Program to be administered, as specified, by the CWDB. (Pen. Code, § 1234.1.)
   
3. Requires the CWDB to administer the grant program as follows:
   
   1. Develop criteria for the selection of grant recipients through a public application process, including, but not limited to, the rating and ranking of applications that meet the threshold criteria and;
      
   2. Design the grant program application process to ensure all of the following occurs:
      
      1. Outreach and technical assistance is made available to eligible applicants, especially to small population and rural counties;
         
      2. Grants are awarded on a competitive basis;
         
      3. Small and rural counties are competitive in applying for funds;
         
      4. Applicants are encouraged to develop evidence-based, best practices for serving the workforce training and education needs of the supervised population;
         
      5. It addresses the education and training needs of both individuals with some postsecondary education who can benefit from services that result in certifications, and placement on a middle skill career ladder, and individuals who require basic education and training to obtain entry level jobs. (Pen. Code, § 1234.2.)
         
4. Requires the grant program to be competitively awarded through at least two rounds of funding, as specified, and provides that each county is eligible to apply but that a single application may include multiple counties applying jointly. Requires each application to include a partnership agreement between the county, or counties, and one or more local workforce investment boards that outline the actions each party agrees to undertake as part of the project proposed in the application. (Pen. Code, § 1234.3.)
   
5. Requires, at a minimum, each project proposed in the application to include a provision for an education and training assessment for each individual of the supervised population who participates in the project. (Pen. Code, § 1234.3, subd. (c).)
   
6. Provides that eligible uses of grant funds include, but are not limited to, vocational training, stipends for trainees, and earn and learn opportunities for the supervised population. States that supportive services and job readiness activities are to serve as bridge activities that lead to enrollment in long-term training programs. (Pen. Code, § 1234.3, subd. (d).)
   
7. Provides application requirements and specifies preferences for applications that meet certain criteria. (Pen. Code, § 1234.3 subd. (e), (f).)
   
8. Requires the CWDB to report to the Legislature the outcomes from the grant program, as specified. (Pen. Code, § 1234.4.)
   
9. Repeals the grant program on January 1, 2021, unless a later enacted statute deletes or extends that date. (Pen. Code, § 1234.5.)
   

FISCAL EFFECT:

Unknown

COMMENTS:

1. Author's Statement: According to the author, "As California’s justice system continues to shift it will be important to ensure that people on parole are also able to access similar opportunities to those supported by the Supervised Population Workforce Training Grant.

“Additionally, community based organizations that have a track record of success in serving the reentry community understand the unique needs facing this population, and play an important role in facilitating the success of participants and strengthening reentry workforce programs.”

1. Supervised Population Workforce Training Grant Program: In the Solicitation for Proposals, the CWDB describes the Supervised Population Workforce Training Grant Program as follows:
   
   "The California Workforce Investment Board (State Board) and the Employment Development Department (EDD) are pleased to announce the availability of up to $825,000 in Recidivism Reduction Funds to implement and support recidivism reduction workforce training and development programs targeting the supervised population. The supervised population includes all persons who are on probation, mandatory supervision, or postrelease community supervision as defined in AB 2060 (Chapter 383, Statutes of 2014) and codified in Penal Code Section 1234(c) and are supervised by, or are under the jurisdiction of, a county. The State Board and EDD will fund proposals that will expand existing, mature collaborative relationships between county based Community Corrections Partnerships (parole, probation, courts, mental health services, community colleges, etc.) and Local Workforce Investment Boards (LWIB) in support of innovative strategies that accelerate educational attainment and reemployment for the supervised population by:
   

• Increasing labor market and skills outcomes through the development of strategies that fill gaps, accelerate processes, or customize services to ensure greater access to workforce services and employment opportunities.
• Implementing promising new modes and practices in workforce system delivery infrastructure and funding alignment that can be replicated across the State and tailored to regional needs.
• Leveraging State investment with commitments from industry, labor, public, and community partners.

"In addition, the State Board will fund proposals that further advance the goals of California’s Strategic Workforce Development Plan 2013‐2017 ‐ 'Shared Strategy for a Shared Prosperity' (Strategic Plan) prioritizes regional coordination among key partners, sector-based employment strategies, skill attainment through earn and learn and other effective training models (including, but not limited to apprenticeship), and development of career pathways."

(http://www.cwib.ca.gov/res/docs/AB2060/AB%202060%20SFP%2070001%20FINAL-TR.pdf .)

1. Realignment and Workforce Training: On November 4, 2014, voters approved the Safe Neighborhoods and Schools Act, which was a citizen’s initiative placed on the ballot as Proposition 47. Proposition 47 made significant changes to the state’s criminal justice system by reducing penalties for certain non-violent, nonserious drug and property crimes, and requiring that the resulting savings be spent, among other things, on programs to aid realignment and keep offenders out of prison and jail. In addition, Californians recently approved Proposition 57, which allows for parole consideration of certain non-violent felons. Due to resentencing and increased parole consideration under these propositions, California is expected to see a significant increase in the state prison parole and ex-offender populations, which makes the implementation and expansion of re-entry programs a priority if recidivism is to be avoided among the newly released population. The CWDB has determined that workforce training programs are a key element of reducing recidivism during re-entry and re-entry workforce training programs are most effective with community input. (https://www.doleta.gov/Performance/Results/AnnualReports/PY2013/CA-PY13_WIA_AnnualReport.pdf)
   

AB 1114 helps to address the anticipated increase in parole and supervised release populations from realignment by expanding the Supervised Population Workforce Program to include parolees under the jurisdiction of the CDCR. Furthermore, AB 1114 will establish grant preferences for programs that are most effective at reducing recidivism, namely programs that incorporate input from community based organizations, and this will further the goals of California’s current realignment strategy.

1. Argument in Support: According to American Friends Service Committee, “Access to high quality workforce training that addresses the unique needs of the reentry community is key to advancing successful reentry and lowering recidivism rates. Training opportunities for men and women re-entering our communities ensures that they gain job training, education, job readiness skills, and job placement and retention assistance required for securing necessary employment after being released.
   

“The Supervised Population Workforce Training Program has begun this work by investing in innovative workforce projects specifically targeted towards this population. By expanding these projects to parole and better integrating community based organizations, AB 1114 will be able to extend and deepen the impact of this work. We also support AB 1114’s emphasis on allowing multi-year grants and prioritizing earn and learn activities. This will enable projects to develop over time and rollout services proven to be effective with supervised populations.

“The bottom line is public safety. Creating innovative models that provide all people under criminal justice supervision with access to comprehensive workforce services is essential to realizing the promise of California’s recent efforts to permanently reduce the number of residents incarcerated or under parole or probation supervision. By investing in the people of California and ensuring everyone has the opportunity to contribute and thrive, we can secure a more prosperous future.”

1. Related Legislation: AB 1111 (E. Garcia), would establish the Removing Barriers to Employment Act, which includes a provision for funding projects modeled after the Supervised Workforce Training Program.
   
2. Prior Legislation:
   1. AB 2061 (Waldron), Chapter 100, Statutes of 2016, required CWDB to give preference to a grant application that proposes participation by one or more employers who have demonstrated interest in employing individuals in the supervised population and required the board to include in its report to the Legislature whether the program provided training opportunities in areas related to work skills learned while incarcerated.
      
   2. AB 1093 (E. Garcia), Chapter 220, Statutes of 2015, revised the criteria for the grant program to address the needs of populations with differing levels of education, authorized the State CWDB to delegate the responsibility for determining the sufficiency of a prior assessment to one or more local workforce investment boards, and required additional information to be included in a report to the Legislature, regarding the effectiveness of programs for the individuals served.
      
   3. AB 2060 (V.M. Perez), Chapter 383, Statutes of 2014, established the Supervised Population Workforce Training Grant Program.

REGISTERED SUPPORT / OPPOSITION:

Support

Communities United for Restorative Youth Justice (Co-sponsor)

PolicyLink (Co-sponsor)

A New Way of Life Re-Entry Program

Alliance for Boys and Men of Color

American Friends Service Committee

Anti-Recidivism Coalition

Brightline Defense

California Coalition for Women Prisoners

California Immigrant Policy Center

Center for Employment Opportunities

Fathers and Families of San Joaquin

Fresno Barrios Unidos

Roberts Enterprise Development Fund (REDF)

Root and Rebound Reentry Advocates

Silicon Valley De-Bug

Social Justice Learning Institute

Urban Strategies Council

W. Haywood Burns Institute

Western Center on Law and Poverty

Youth Justice Coalition

Opposition

None

Analysis Prepared by: