Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law, the Seymour-Campbell Student Success Act of 2012, provides that the purpose of the act is to increase California community college student access and success by providing effective core matriculation services of orientation, assessment and placement, counseling, and other education planning services, and academic interventions. Existing law requires a community college district or college to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe. Existing law requires, for those students placed into credit English as a second language (ESL) coursework, community colleges to maximize the probability that the student will complete degree and transfer requirements in English within 3 years. Existing law also requires multiple measures to apply in the placement of all students, as provided.

Existing law also establishes the Student Equity and Achievement Program, pursuant to which funding may be provided to support the California Community Colleges in implementing activities and practices that, among other things, advance the systemwide goal of eliminating achievement gaps for students from traditionally underrepresented groups.

This bill would provide that, as a condition for receiving funding pursuant to the Student Equity and Achievement Program, a community college would be required to do all of the following: inform students of their rights to access transfer-level coursework and academic credit ESL coursework, and of the multiple measures placement policies developed by the community college, as provided; annually report to the Office of the Chancellor of the California Community Colleges the community colleges placement policies and placement results; publicly post its placement results; and implement these provisions by a specified date. The bill would state the intent of the Legislature that the chancellors office make the collected placement policies and placement data publicly available, except for personally identifiable information, by posting the data on its Internet Web site or making it publicly available upon request.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law, the Seymour-Campbell Student Success Act of 2012, provides that the purpose of the act is to increase California community college student access and success by providing effective core matriculation services of orientation, assessment and placement, counseling, and other education planning services, and academic interventions. Existing law requires a community college district or college to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe. Existing law requires, for those students placed into credit English as a second language (ESL) coursework, community colleges to maximize the probability that the student will complete degree and transfer requirements in English within 3 years. Existing law also requires multiple measures to apply in the placement of all students, as provided.

Existing law also establishes the Student Equity and Achievement Program, pursuant to which funding may be provided to support the California Community Colleges in implementing activities and practices that, among other things, advance the systemwide goal of eliminating achievement gaps for students from traditionally underrepresented groups.

This bill would provide that, as a condition for receiving funding pursuant to the Student Equity and Achievement Program, a community college would be required to do all of the following: inform students of their rights to access transfer-level coursework and academic credit ESL coursework, and of the multiple measures placement policies developed by the community college, as provided; annually report to the Office of the Chancellor of the California Community Colleges the community colleges placement policies and placement results; publicly post its placement results; and implement these provisions by a specified date. The bill would state the intent of the Legislature that the chancellors office make the collected placement policies and placement data publicly available, except for personally identifiable information, by posting the data on its Internet Web site or making it publicly available upon request.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law, the Seymour-Campbell Student Success Act of 2012, provides that the purpose of the act is to increase California community college student access and success by providing effective core matriculation services of orientation, assessment and placement, counseling, and other education planning services, and academic interventions. Existing law requires a community college district or college to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe. Existing law requires, for those students placed into credit English as a second language (ESL) coursework, community colleges to maximize the probability that the student will complete degree and transfer requirements in English within 3 years. Existing law also requires multiple measures to apply in the placement of all students, as provided.

This bill would require provide that, as a condition for receiving funding pursuant to the Student Equity and Achievement Program, a community college would be required to do all of the following: inform students of their rights to access transfer-level coursework and academic credit ESL coursework, and of the multiple measures placement policies developed by the community college, as provided. The bill would require a community college to provided; annually report to the Office of the Chancellor of the California Community Colleges the community colleges placement policies and placement results, and would require a community college to results; publicly post its placement results. The bill would require its provisions to be implemented results; and implement these provisions by a specified date. To the extent the bill would impose additional duties on community college districts, the bill would impose a state-mandated local program. The bill would state the intent of the Legislature that the chancellors office make the collected placement policies and placement data publicly available, except for personally identifiable information, by posting the data on its Internet Web site or making it publicly available upon request.

(1)Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law, the Seymour-Campbell Student Success Act of 2012, provides that the purpose of the act is to increase California community college student access and success by providing effective core matriculation services of orientation, assessment and placement, counseling, and other education planning services, and academic interventions. Existing law requires a community college district or college to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe, and timeframe. Existing law requires, for those students placed into credit English as a second language (ESL) coursework, community colleges to maximize the probability that the student will complete degree and transfer requirements in English within 3 years. Existing law also requires multiple measures to apply in the placement of all students, as provided.

This bill would require a community college to inform students of their rights to access transfer-level coursework and academic credit ESL coursework, and of the multiple measures placement policies developed by the community college, as provided. The bill would require a community college to annually report to the Office of the Chancellor of the California Community Colleges the community colleges placement policies and placement results, and would require a community college to publicly post its placement results. The bill would require its provisions to be implemented by a specified date. To the extent the bill would impose additional duties on community college districts, the bill would impose a state-mandated local program.

(2)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 the statutory provisions noted above.

(1)Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law, the Seymour-Campbell Student Success Act of 2012, provides that the purpose of the act is to increase California community college student access and success by providing effective core matriculation services of orientation, assessment and placement, counseling, and other education planning services, and academic interventions. Existing law requires a community college district or college to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe, and requires multiple measures to apply in the placement of all students, as provided.

This bill would require a community college to inform students of their rights to access transfer-level coursework and of the multiple measures placement policies developed by the community college, as provided. The bill would require a community college to annually report to the Office of the Chancellor of the California Community Colleges the community colleges placement policies and placement results, and would require a community college to publicly post its placement results. The bill would require its provisions to be implemented by a specified date. To the extent the bill would impose additional duties on community college districts, the bill would impose a state-mandated local program.

(2)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 the statutory provisions noted above.

(1)Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law, the Seymour-Campbell Student Success Act of 2012, provides that the purpose of the act is to increase California community college student access and success by providing effective core matriculation services of orientation, assessment and placement, counseling, and other education planning services, and academic interventions. Existing law requires a community college district or college to maximize the probability that the a student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe, and requires multiple measures to apply in the placement of all students, as provided.

(2)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 the statutory provisions noted above.

(1)Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law, the Seymour-Campbell Student Success Act of 2012, provides that the purpose of the act is to increase California community college student access and success by providing effective core matriculation services of orientation, assessment and placement, counseling, and other education planning services, and academic interventions. Existing law requires a community college district or college to maximize the probability that the student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe, and requires multiple measures to apply in the placement of all students, as provided.

This bill would require a community college district to provide public notice of its policies regarding the placement of students, and would require the notice to include the community college districts placement policies regarding threshold scores required on specified assessments, required grades in specific high school courses, a required high school grade point average, and recommendations by an instructor or counselor. To the extent this bill would impose additional duties on community college districts, the bill would impose a state-mandated local program.

(2)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 the statutory provisions noted above.

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 1805

Author:(Irwin)

As Amended Ver:August 17, 2018

Majority vote

Original Committee Reference: HIGHER ED.

SUMMARY: Requires a California Community College (CCC) to inform students of their rights to access transfer-level coursework, academic credit English as a second language (ESL) coursework, and of the multiple measures placement policies developed by the community college.

The Senate amendments:

1. Require, as a condition for receiving funding pursuant to the Student Equity and Achievement Program, a community college to do all of the following:
   1. Inform students of their rights to access transfer-level coursework and credit bearing coursework in ESL and of the multiple measures placement policies developed by the community college per existing law;
      1. Requires that the information described in (a) above be communicated in a language that is easily understandable, and be prominently featured in, the community college catalog, orientation materials, information relating to student assessment on the community college's Web site and any written communication by a college counselor to a student about the student's course placement options.
   2. Annually report to the CCC Chancellor's Office (CCCCO) its placement policies and placement results, as specified;
      1. Specifies for students placed in stand-alone English or mathematics pretransfer-level coursework a community college district or college shall provide, based on local placement research, an explanation of how effective practices align with regulations adopted pursuant to provisions under existing law relative to the use of multiple measures for placement purposes.
   3. Publicly post its placement results, including the number of students assessed and the number of students placed into transfer-level coursework, transfer-level coursework with concurrent support, or transfer-level or credit ESL coursework, disaggregated by race and ethnicity; and,
   4. Satisfy this bill's requirements by the implementation date established by regulation pursuant to provisions outlined in existing law relative to the use of multiple measures for placement purposes.
2. State that it is the Legislature's intent that the CCCCO make the collected placement policies and placement data publicly available, except for personally identifiable information, by positing the data on its Web site or making it publicly available upon request.

EXISTING LAW:

1. Establishes the CCC, a postsecondary education system consisting of community college districts and the Board of Governors (BOG) of the CCC (Education Code (EC) Section 70900).
2. Requires the CCC BOG to provide leadership and direction in the continuing development of the CCC as an integral and effective element in the structure of public higher education in the state. The work of the BOG shall at all times be directed to maintaining and continuing, to the maximum degree permissible, local authority and control in the administration of the CCC (EC Section 70901).
3. Prohibits a community college district or college from using any assessment instrument for specified purposes, without the authorization of the BOG. Requires the BOG to review all assessment instruments to ensure that they meet all of the following requirements: a) are sensitive to cultural and language differences between students, and are adapted as necessary to accommodate students with disabilities; b) used as an advisory tool to assist students in the selection of appropriate courses; and, c) not used to exclude students from admission to community colleges. Requires a community college district or college to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year time frame, and requires multiple measures be applied in the placement of all students, as specified. Defines "assessment" as the process of gathering information about a student regarding the student's study skills, English language proficiency, computational skills, aptitudes, goals, learning skills, career aspirations, academic performance, and need for special services. Specifies that assessment methods may include, but not necessarily be limited to, interviews, standardized tests, attitude surveys, vocational or career aptitude and interest inventories, high school or postsecondary transcripts, specialized certificates or licenses, educational histories, and other measures of performance (EC Section 78213).

FISCAL EFFECT: According to the Senate Appropriations Committee, in conjunction with the new requirements imposed by AB 705 (Irwin) Chapter 745, Statutes of 2017, regarding the use of multiple measures for placement policies, the bill's activities may be determined by the Commission on State Mandates to be reimbursable by the state. A precise estimate is unknown, but the bill's requirements could result in additional Proposition 98 General Fund costs in the tens of thousands to low hundreds of thousands of dollars each year.  

COMMENTS: Purpose of this measure. According to the author, "As thousands of students throughout the year start to apply to college and begin their path toward higher education, it is crucial that colleges provide clear information about how students will be placed into courses so they can make informed decisions about their educational and career paths". The author contends that, "By presenting placement rules in a clear and understandable way, students will be better informed about decisions that will affect their trajectory through higher education and their careers".

This measure requires community colleges to inform students of their placement rights under EC Section 78123 (as amended by AB 705) related to the multiple measures policies used by each community college campus to determine placement into math and English courses. This measure tasks colleges to communicate their policies in a way that is easily understandable and prominently featured in course catalogs, orientation materials, and on the colleges' Web sites.

Additionally, this measure requires colleges to include their placement policies in current reports to the CCCCO. Under this measure, colleges will have to publicly post their placement results, including the number of students assessed and the percentage of students placed into transfer-level or transfer-level with concurrent support courses, disaggregated by race and ethnicity.

To note, in order to provide colleges flexibility, this measure's implementation will coincide with the timeframe for implementing AB 705, as determined by the CCCCO's AB 705 Implementation Team.

Background. Two November 2016 reports by the Public Policy Institute of California (PPIC) entitled, "Determining College Readiness in California's Community Colleges – A Survey of Assessment and Placement Policies" and "Preparing Students for Success in California's Community Colleges" found, in part, that one in every five community college students in the country is in California.

The vast majority (80%) of students entering a California community college enroll in at least one basic skills/remediation course in math, English, or both during their college journey. Students placed into developmental math take an average of 2.5 terms to complete the sequence, while developmental English students take an average of 1.9 terms. To note, these courses cannot be applied toward a degree.

Additionally, PPIC found that underrepresented student groups are overrepresented in developmental courses; 87% of both Latino and Black students enroll in developmental education, compared to 70% of Asian American and 74% of White students. Also, 86% of low-income students enroll in developmental coursework.

The PPIC also found that community colleges vary in how they identify college-ready students. Colleges use different assessment tests, and in cases whereby colleges may use the same test, in many cases they apply different rules for the minimum scores that qualify as college-ready. According to the PPIC, over half of the colleges reported using the Accuplacer test to assess college readiness in math. Cut scores ranged from 25 to 96 out of a possible 120. A student with a score of 58 on the test would be deemed college-ready at only half of the participating colleges.

PPIC found that the wide variation may be particularly challenging for the 40% of students who eventually enroll in more than one community college campus. To note, students of color, were found to be more likely to attend colleges that set higher math cut scores, leaving them to have more restrictive access to transfer-level math courses.

Multiple measures. The PPIC suggested that colleges should be more consistent in the use of multiple measures, and use measures in addition to assessment tests to inform placement. Research shows that measures such as high school achievement data do a comparable or better job at predicting college success than just utilizing an assessment exam.

Some colleges used multiple measures in a systematic way, while others only used multiple measures if students requested it or challenged their placement.

The author of this measure sought to address some of the findings raised by the PPIC reports with AB 705, which was enacted. Assembly Bill 705, in part, requires community college districts to maximize the probability that a student will enter and complete coursework in math and English within a one-year timeframe by utilizing multiple measures to achieve this goal.

Previous legislation. AB 705 (Irwin) Chapter 745, Statutes of 2017, as referenced in the "Multiple measures" section of this analysis.

Analysis Prepared by: Jeanice Warden / HIGHER ED. / (916) 319-3960 FN: 0004554

 THIRD READING  

Bill No: AB 1805

Author:

Amended: 8/17/18 in Senate

Vote:

SENATE EDUCATION COMMITTEE: 6-0, 6/6/18

AYES: Allen, Wilk, Galgiani, Leyva, Pan, Vidak

SENATE APPROPRIATIONS COMMITTEE: 7-0, 8/16/18

AYES: Portantino, Bates, Beall, Bradford, Hill, Nielsen, Wiener

ASSEMBLY FLOOR: 74-0, 4/26/18 (Consent) - See last page for vote

SUBJECT: Community colleges: Student Equity and Achievement Program

SOURCE: Author

DIGEST:

This bill requires a California Community College (CCC) to inform students of their rights to access transfer-level coursework, academic credit English as a second language coursework and of the multiple measures placement policies developed by the community college.

ANALYSIS:

Existing law:

1. Establishes the mission and function of the CCC as the offering of academic and vocational instruction at the lower division level and the CCC are authorized to grant the associate in arts and the associate in science degree. The community colleges are also required to offer remedial instruction, English as a Second Language instruction, and adult noncredit instruction, and support services which help students succeed at the postsecondary level. (Education Code § 66010.4)
2. Requires the CCC Board of Governors (BOG) to provide leadership and direction in the continuing development of the CCC as an integral and effective element in the structure of public higher education in the state. The work of the BOG shall at all times be directed to maintaining and continuing, to the maximum degree permissible, local authority and control in the administration of the CCC. (EC § 70901)
3. Requires a community college district to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe, and use, in the placement of students into English and mathematics courses in order to achieve this goal one or more of the following measures:
   1. High school coursework.
   2. High school grades.
   3. High school grade point average.
4. Requires, additionally, a community college to use evidence-based multiple measures for placing students into English-as-a-second-language (ESL) coursework. For those students placed into credit ESL coursework, their placement should maximize the probability that they will complete degree and transfer requirements in English within three years. (EC § 78213).

This bill:

1. Requires, as a condition for receiving funding pursuant to the Student Equity and Achievement Program, a community college to do all of the following:
   1. Inform students of their rights to access transfer-level coursework and

credit bearing coursework in ESL and of the multiple measures placement policies developed by the community college as prescribed by provisions under current law relative to use of multiple measures for purposes.

• • 1. Requires that the information described in a) above be

communicated in a language that is easily understandable, and be prominently featured in, the community college catalog, orientation materials, information relating to student assessment on the community college’s Web site and any written communication by a college counselor to a student about the student’s course placement options.

• 1. Annually report to the CCC Chancellor’s Office its placement policies and placement results, as specified. For students If a student is placed in stand-alone English or mathematics pretransfer-level coursework, this bill requires an explanation be provided based on placement research, of how effective practices align with regulations adopted pursuant to provisions under current law relative to use of multiple measures for placement purposes.
  2. Publicly post its placement results, including the number of students

assessed and the number of students placed into transfer-level coursework, transfer-level coursework with concurrent support, or transfer-level or credit ESL coursework, disaggregated by race and ethnicity.

• 1. Satisfy this bill’s requirements by the implementation date established

by regulation pursuant to provisions outlined in current law relative to use of multiple measures for placement purposes.

1. States that it is the Legislature’s intent that the Chancellor’s office makes the collected placement policies and placement data publicly available, except for personally identifiable information, by positing the data on its Web site or making it publicly available upon request.

Comments

1. Reforming remedial education. In an effort to transform the delivery of basic skills instruction and help improve student outcomes, SB 81(Committee on Budget and Fiscal Review, Chapter 22, Statutes of 2015) established the Community College Basic Skills and Student Outcomes Transformation program. As a condition of receipt of funding, community college districts are required to adopt or expand the use of evidence-based models for basic skills assessment, placement, instruction, and student support that may include multiple measures of student performance, including grades in high school courses, especially overall grade point average, results from the common assessment system, and input from counselors. SB 81 also established the Basic Skills Partnership Pilot Program to promote collaboration in basic skills instruction between high schools, community colleges, and California State University campuses.

Most recently, AB 705 (Irwin, Chapter 745, Statutes of 2017) went one step further to codify and strengthen requirements that ensure the use of multiple measures by colleges as well as to improve the likelihood that students complete transfer-level coursework in English and math within a one-year period or for certain English Language Learners within a three-year period.

This bill seeks to clarify placement policies for community college students and provide accountably in the application of those policies by colleges.

1. Multiple measures. The application of multiple measures is based on the premise that the more information available to inform the placement process, the better. The information used to holistically assess the student should contribute to the quality of the placement, and not serve merely to satisfy the mandate for placing students using more than a single test score. Community colleges are to use multiple measures to inform placement.

Research by the Public Policy Institute of California in 2016 suggests that community colleges could be more consistent in the use of multiple measures. Some colleges use multiple measures in a systematic way, while others only use multiple measures if students request it or challenge their placement. With multiple measures not being implemented evenly across the 72 districts, inequities may continue to grow, if students with cultural and social capital are more likely to take advantage of multiple measures. This bill seeks to create an additional layer of accountable that promotes uniformity across the system

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

According to the Senate Appropriations Committee, in conjunction with the new requirements imposed by AB 705 (Irwin, Chapter 745, Statutes of 2017) regarding the use of multiple measures for placement policies, the bill’s activities may be determined by the Commission on State Mandates to be reimbursable by the state. A precise estimate is unknown, but the bill’s requirements could result in additional Proposition 98 General Fund costs in the tens of thousands to low hundreds of thousands of dollars each year.

SUPPORT: (Verified 8/13/18)

California Teachers Association

CATESOL

Education Trust-West

The Campaign for College Opportunity

OPPOSITION: (Verified 8/13/18)

None received

ASSEMBLY FLOOR: 74-0, 4/26/18

AYES: Acosta, Aguiar-Curry, Arambula, Baker, Berman, Bigelow, Bloom, Bonta, Brough, Burke, Caballero, Calderon, Carrillo, Cervantes, Chau, Chávez, Chen, Chiu, Choi, Chu, Cooley, Cooper, Cunningham, Dahle, Daly, Eggman, Flora, Frazier, Friedman, Gallagher, Eduardo Garcia, Gipson, Gloria, Gonzalez Fletcher, Gray, Grayson, Harper, Holden, Irwin, Jones-Sawyer, Kalra, Kamlager-Dove, Kiley, Lackey, Levine, Limón, Low, Maienschein, Mathis, Mayes, McCarty, Medina, Melendez, Mullin, Muratsuchi, Nazarian, Obernolte, O'Donnell, Patterson, Quirk, Quirk-Silva, Reyes, Rubio, Salas, Santiago, Steinorth, Mark Stone, Thurmond, Ting, Voepel, Waldron, Weber, Wood, Rendon

NO VOTE RECORDED: Travis Allen, Fong, Cristina Garcia, Rodriguez

Prepared by:

8/20/18 9:57:49

**** END ****

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anthony Portantino, Chair

2017 - 2018 Regular Session

AB 1805 (Irwin) - Seymour-Campbell Student Success Act of 2012: matriculation: assessment and placement

Bill Summary:

This bill requires community colleges to inform students of their rights to access transfer-level coursework, academic credit English as a second language coursework and the multiple measures placement policies developed by the community college.

*********** ANALYSIS ADDENDUM – SUSPENSE FILE ***********

The following information is revised to reflect amendments

adopted by the committee on August 16, 2018

Fiscal Impact:

In conjunction with the new requirements imposed by AB 705 (Irwin, Chapter 745, Statutes of 2017) regarding the use of multiple measures for placement policies, the bill’s activities may be determined by the Commission on State Mandates to be reimbursable by the state. A precise estimate is unknown, but the bill’s requirements could result in additional Proposition 98 General Fund costs in the tens of thousands to low hundreds of thousands of dollars each year.  

Author Amendments:

Specify that it is the intent of the Legislature that the Chancellor’s Office make data collected pursuant to this measure publicly available, except for personally identifiable information which shall be deemed confidential, by posting the data on the Internet website of the Chancellor’s Office or making it available upon request. The amendments also make other clarifying changes.

-- END --

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anthony Portantino, Chair

2017 - 2018 Regular Session

AB 1805 (Irwin) - Seymour-Campbell Student Success Act of 2012: matriculation: assessment and placement

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

Bill Summary:

This bill requires community colleges to inform students of their rights to access transfer-level coursework, academic credit English as a second language coursework and the multiple measures placement policies developed by the community college.

Fiscal Impact:

Some community colleges are already implementing a multiple measures assessment and placement policies which incorporate the bill’s outreach and notification requirements (e.g. Long Beach and College of the Canyons). However, in conjunction with the new requirements imposed by AB 705 (Irwin, Chapter 745, Statutes of 2017) regarding the use of multiple measures for placement policies, these activities may now be determined by the Commission on State Mandates to be reimbursable by the state. A precise estimate is unknown, but the bill’s requirements could result in additional Proposition 98 General Fund costs in the tens of thousands to low hundreds of thousands of dollars each year.  

Background:

Existing law establishes the California Community Colleges, a postsecondary education system consisting of community college districts and the Board of Governors. The mission and function of the community colleges are the offering of academic and vocational instruction at the lower division level and they are authorized to grant the associate in arts and the associate in science degree. The community colleges are also required to offer remedial instruction, English as a Second Language (ESL) instruction, and adult noncredit instruction, and support services which help students succeed at the postsecondary level.

Community colleges are prohibited from requiring students to take prerequisite courses unless they are highly unlikely to receive a satisfactory grade in the course (or at least one course within the program) for which the prerequisite is being established.

Existing law requires a community college district to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe, and use, in the placement of students into English and mathematics courses in order to achieve this goal one or more of the following measures: high school coursework, high school grades, and high school grade point average.

Additionally, existing law requires a community college to use evidence-based multiple measures for placing students into ESL coursework. For those students placed into credit ESL coursework, their placement should maximize the probability that they will complete degree and transfer requirements in English within three years.

Further, a community college district or college is prohibited from using any assessment instrument for specified purposes, without the authorization of the BOG. Existing law requires the BOG to review all assessment instruments to ensure that they meet all of the following requirements:

1. Are sensitive to cultural and language differences between students, and are adapted as necessary to accommodate students with disabilities.
2. Used as an advisory tool to assist students in the selection of appropriate courses.
3. Not used to exclude students from admission to community colleges.

Existing law defines "assessment" as the process of gathering information about a student regarding the student’s study skills, English language proficiency, computational skills, aptitudes, goals, learning skills, career aspirations, academic performance, and need for special services. It also specifies that assessment methods may include, but not necessarily be limited to, interviews, standardized tests, attitude surveys, vocational or career aptitude and interest inventories, high school or postsecondary transcripts, specialized certificates or licenses, educational histories, and other measures of performance.

Proposed Law:

This bill requires a community college to inform students of their rights to access transfer-level coursework and academic credit bearing coursework in ESL and of the multiple measures placement policies developed by the community college as prescribed by provisions under current law. The information shall be communicated in a language that is easily understandable, and be prominently featured in the community college catalog, orientation materials, information relating to student assessment on the community college’s website, and any written communication by a college counselor to a student about the student’s course placement options.

This bill also requires a community college to annually report both the following to the College Chancellor’s Office:

1. Its placement policies, including how it uses self-reported high school information or guided placement.
2. Its placement results, as specified. If a student is placed in a stand-alone English or mathematics course that is below transfer-level coursework, this bill requires justification be provided based on placement research, as described by provisions under current law relative to use of multiple measures for placement purposes.

This bill requires a community college to publicly post its placement results, including the number of students assessed and the transfer percentage of students placed into transfer-level coursework or transfer-level coursework with concurrent support, or transfer-level or academic credit ESL coursework, disaggregated by race and ethnicity.

This bill requires that a community college satisfy this bill’s requirements by the implementation date established by regulation pursuant to provisions outlined in current law relative to use of multiple measures for placement purposes.

Related Legislation:

AB 705 (Irwin, Chapter 745, Statutes of 2017) requires community colleges to use a “multiple measures” approach to placing students in college English and mathematics coursework.

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Benjamin Allen, Chair

2017 - 2018 Regular

Bill No: AB 1805 Hearing Date: June 6, 2018

Subject: Seymour-Campbell Student Success Act of 2012: matriculation: assessment and placement

SUMMARY

This bill requires a California Community College (CCC) to inform students of their rights to access transfer-level coursework, academic credit English as a second language coursework and of the multiple measures placement policies developed by the community college.

BACKGROUND

Existing law:

1. Establishes the mission and function of the CCC as the offering of academic and vocational instruction at the lower division level and the CCC are authorized to grant the associate in arts and the associate in science degree. The community colleges are also required to offer remedial instruction, English as a Second Language instruction, and adult noncredit instruction, and support services which help students succeed at the postsecondary level. (Education Code (EC) § 66010.4)
2. Requires the CCC Board of Governors (BOG) to provide leadership and direction in the continuing development of the CCC as an integral and effective element in the structure of public higher education in the state. The work of the BOG shall at all times be directed to maintaining and continuing, to the maximum degree permissible, local authority and control in the administration of the CCC. (EC § 70901)
3. Requires a community college district to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year timeframe, and use, in the placement of students into English and mathematics courses in order to achieve this goal one or more of the following measures:
   1. High school coursework.
   2. High school grades.
   3. High school grade point average.
4. Additionally, requires a community college to use evidence-based multiple measures for placing students into English-as-a-second-language (ESL) coursework. For those students placed into credit ESL coursework, their placement should maximize the probability that they will complete degree and transfer requirements in English within three years. (EC § 78213).

ANALYSIS

This bill:

1. Requires a community college to inform students of their rights to access transfer-level coursework and credit bearing coursework in ESL and of the multiple measures placement policies developed by the community college as prescribed by provisions under current law relative to use of multiple measures for purposes.
2. Requires that the information described in 1) above be communicated in a language that is easily understandable, and be prominently featured in:
   1. The community college catalog.
   2. Orientation materials.
   3. Information relating to student assessment on the community college’s

website.

• 1. Any written communication by a college counselor to a student about the

student’s course placement options.

1. Requires a community college to annually report both the following to the California Community College Chancellor’s Office:
   1. Its placement policies, including how it uses self-reported high school

information or guided placement.

• 1. Its placement results, as specified. If a student is placed in a stand-alone

English or mathematics course that is below transfer-level coursework, this bill requires justification be provided based on placement research, as described by provisions under current law relative to use of multiple measures for placement purposes.

1. Requires a community college to publicly post its placement results, including the number of students assessed and the transfer percentage of students placed into transfer-level coursework or transfer-level coursework with concurrent support, or transfer-level or academic credit ESL coursework, disaggregated by race and ethnicity.
2. Requires that a community college satisfy this bill’s requirements by the implementation date established by regulation pursuant to provisions outlined in current law relative to use of multiple measures for placement purposes.
3. Establishes if the Commission on State Mandates determines that this act contains costs mandated by the state, the state shall reimburse the applicable entities.

STAFF COMMENTS

1. Need for the bill. AB 705 (Irwin, Chapter 745, Statutes of 2017) required community colleges to use a “multiple measures” approach to placing students in college English and mathematics coursework.

According to the author, “placement polices at California community colleges can be inconsistent at best or confounding at worst. Some colleges make their policies public, but several do not. If they do, many times they include long lists of placement rules that are course dependent and confusing for entering students whom may not have a clear academic goal yet. For incoming students, many of whom are coming straight from high school, these rules can be as dense and indecipherable as credit card disclosures and prevent them from having the information needed to make informed decisions about their education. Indeed many campuses have different policies within the same community college district, only adding to the confusion. Colleges also do not post their placement results, including the number of students who were assessed and the percentage of students placed into transfer-level courses.”

This bill seeks to provide clarity to placement policies for community college students and accountably in the application of those policies by colleges.

1. Remedial education. Remedial education is intended to help students who are assessed as “unprepared” to succeed in college-level work. The term remedial education is typically used interchangeably with development education, foundational skills and known as basic skills in community colleges. Basic skills courses provide those foundational skills in reading, writing, mathematics, and English-as-a-second-language, as well as learning skills and study skills, which are necessary for students to succeed in college-level work. The traditional approach to remedial education is based on placement test scores. Colleges place a student who underperforms on placement tests into a sequence of developmental/college-prep courses prior to that student enrolling in college-level English and math courses. Concerns have been raised that this approach results in college-ready students being misplaced into remedial courses and extends time in school. According to the Campaign for College Opportunity, a growing body of research is finding that students are not nearly as “unprepared” for college-level work as believed and that the reliance solely on placement tests is a weak predictor of student success. A better way to assess college readiness is to use multiple measures, where student placement is determined by high school grades and other measures — not just a single test score.
2. Recent reforms. In an effort to transform the delivery of basic skills instruction and help improve student outcomes, SB 81(Committee on Budget and Fiscal Review, Chapter 22, Statutes of 2015) established the Community College Basic Skills and Student Outcomes Transformation program. As a condition of receipt of funding, community college districts are required to adopt or expand the use of evidence-based models for basic skills assessment, placement, instruction, and student support that may include multiple measures of student performance, including grades in high school courses, especially overall grade point average, results from the common assessment system, and input from counselors. SB 81 also established the Basic Skills Partnership Pilot Program to promote collaboration in basic skills instruction between high schools, community colleges, and California State University campuses.

Most recently, AB 705 (Irwin, Chapter 745, Statutes of 2017) went one step further to codify and strengthen requirements that ensure the use of multiple measures by colleges as well as to improve the likelihood that students complete transfer-level coursework in English and math within a one-year period or for certain English Language Learners within a three-year period.

1. Multiple measures. The application of multiple measures is based on the premise that the more information available to inform the placement process, the better. The information used to holistically assess the student should contribute to the quality of the placement, and not serve merely to satisfy the mandate for placing students using more than a single test score. Community colleges are to use multiple measures to inform placement.

Research by the Public Policy Institute of California in 2016 suggests that community colleges could be more consistent in the use of multiple measures. Some colleges use multiple measures in a systematic way, while others only use multiple measures if students request it or challenge their placement. With multiple measures not being implemented evenly across the 72 districts, inequities may continue to grow, if students with cultural and social capital are more likely to take advantage of multiple measures. This bill seeks to create an additional layer of accountable that promotes uniformity across the system.

1. Implementation date? This specifies that a community college satisfy this bill’s requirements by the implementation date established by regulation. Staff was unable to identify a date as referenced in the bill. It is understood that the author seeks to ensure that the implementation of this bill mirrors that of AB 705 (Irwin, Chapter 745, Statutes of 2017). Should the bill move forward, the author may wish to consider amending the bill to clarify that intent.

SUPPORT

California Teachers Association

CATESOL

Education Trust-West

The Campaign for College Opportunity

OPPOSITION

None received

-- END --

Date of Hearing: April 18, 2018

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Lorena Gonzalez Fletcher, Chair

ABPCA Bill Id:AB 1805

Author:(Irwin) – As Amended Ver:April 5, 2018

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

SUMMARY: This bill requires each community college to inform students of their rights to access transfer-level coursework and of the college’s course placement policies. It also requires colleges to publically post their placement results, disaggregated by race and ethnicity, and annually report to the California Community Colleges (CCC) Chancellor’s Office about student placement.

FISCAL EFFECT:

1. Minor and absorbable costs to community colleges to comply with this bill. The state would need to reimburse these costs, were the Commission on State Mandates to find these requirements to be a reimbursable state mandate.
2. Minor and absorbable costs to the CCC Chancellor’s Office to collect and review annual reports.

COMMENTS:

1. Purpose. According to the author:

It is crucial that colleges provide clear information about how students will be placed into courses so they can make informed decisions about their educational and career paths. By presenting placement rules in a clear and understandable way, students will be better informed about decisions that will affect their trajectory through higher education and their careers.

1. Background. In determining course placements, colleges traditionally have considered only students’ scores on placement tests. Research indicates this approach has led to many students who likely would succeed in credit-bearing courses being placed in noncredit remedial courses, which can slow time to degree and hinder college completion. To improve the placement process, AB 705 (Irwin) Chapter 745, Statutes of 2017, requires community colleges to use a “multiple measures” approach to placing students in college courses. The multiple measures approach considers several variables beyond test scores to determine student course placements, such as high school grade point average.

This bill would be implemented in tandem with AB 705 (Irwin) in fall 2019.

Analysis Prepared by: Natasha Collins / APPR. / (916) 319-2081

Date of Hearing: April 3, 2018

ASSEMBLY COMMITTEE ON HIGHER EDUCATION

Jose Medina, Chair

ABPCA Bill Id:AB 1805 (

Author:Irwin) – As Amended Ver:February 28, 2018

SUBJECT: Seymour-Campbell Student Success Act of 2012: matriculation: assessment and placement.

SUMMARY: Requires each community college to inform students of their rights to access transfer-level coursework and of the multiple measures placement policies as adopted by the college, pursuant to Education Code (EC) Section 78213. Specifically, this bill:

1. Requires that the information described in the "summary" above, be communicated in language that is easily understandable, and be prominently featured in the community college catalog, orientation materials, information relating to student assessment on the community college’s Internet Web site, and any communication with a student about the student’s course placement.
2. Requires a community college to annually report both of the following to the California Community Colleges (CCC) Chancellor’s Office (CCCCO):
   1. The community college’s placement policies, including how it uses self-reported high school information or guided placement; and,
   2. The community college’s placement results.
3. Requires a community college, when reporting its data in (2) (a) and (b) above, to include the number of students assessed and the percentage of students placed into transfer-level coursework or transfer-level coursework with concurrent support, disaggregated by race and ethnicity.
4. Requires a community college, when reporting its data in (2) (a) and (b) above, if a student is placed in a stand-alone course that is below transfer-level coursework, to provide a justification based on placement research, as described in EC Section 78213.
5. Stipulates that a community college shall publicly post its placement results, including the number of students assessed and the percentage of students placed into transfer-level coursework or transfer-level coursework with concurrent support, disaggregated by race and ethnicity.
6. Specifies that a community college shall satisfy the requirements of this measure by the one-year timeframe, as specified in EC Section 78213, for purposes of being in compliance with the requirements of EC Section 78213.

EXISTING LAW:

1. Establishes the CCC, a postsecondary education system consisting of community college districts and the Board of Governors (BOG) of the CCC (EC Section 70900).
2. Requires the CCC BOG to provide leadership and direction in the continuing development of the CCC as an integral and effective element in the structure of public higher education in the state. The work of the BOG shall at all times be directed to maintaining and continuing, to the maximum degree permissible, local authority and control in the administration of the CCC (EC Section 70901).
3. Prohibits a community college district or college from using any assessment instrument for specified purposes, without the authorization of the BOG. Requires the BOG to review all assessment instruments to ensure that they meet all of the following requirements: a) are sensitive to cultural and language differences between students, and are adapted as necessary to accommodate students with disabilities; b) used as an advisory tool to assist students in the selection of appropriate courses; and, c) not used to exclude students from admission to community colleges. Requires a community college district or college to maximize the probability that a student will enter and complete transfer-level coursework in English and mathematics within a one-year time frame, and requires multiple measures be applied in the placement of all students, as specified. Defines "assessment" as the process of gathering information about a student regarding the student’s study skills, English language proficiency, computational skills, aptitudes, goals, learning skills, career aspirations, academic performance, and need for special services. Specifies that assessment methods may include, but not necessarily be limited to, interviews, standardized tests, attitude surveys, vocational or career aptitude and interest inventories, high school or postsecondary transcripts, specialized certificates or licenses, educational histories, and other measures of performance (EC Section 78213).

FISCAL EFFECT: Unknown

COMMENTS: Purpose of this measure. According to the author, "As thousands of students throughout the year start to apply to college and begin their path toward higher education, it is crucial that colleges provide clear information about how students will be placed into courses so they can make informed decisions about their educational and career paths". The author contends that, "By presenting placement rules in a clear and understandable way, students will be better informed about decisions that will affect their trajectory through higher education and their careers".

This measure requires community colleges to inform students of their placement rights under EC Section 78123 (as amended by AB 705) related to the multiple measures policies used by each community college campus to determine placement into math and English courses. This measure tasks colleges to communicate their policies in a way that is easily understandable and prominently featured in course catalogs, orientation materials, and on the colleges' Web sites.

Additionally, this measure requires colleges to include their placement policies in current reports to the CCCCO. Under this measure, colleges will have to publicly post their placement results, including the number of students assessed and the percentage of students placed into transfer-level or transfer-level with concurrent support courses, disaggregated by race and ethnicity.

To note, in order to provide colleges flexibility, this measure's implementation will coincide with the timeframe for implementing AB 705, as determined by the CCCCO's AB 705 Implementation Team.

Background. Two November 2016 reports by the Public Policy Institute of California (PPIC) entitled, "Determining College Readiness in California's Community Colleges – A Survey of Assessment and Placement Policies" and "Preparing Students for Success in California's Community Colleges" found, in part, that one in every five community college students in the country is in California.

The vast majority (80 percent) of students entering a California community college enroll in at least one basic skills/remediation course in math, English, or both during their college journey. Students placed into developmental math take an average of 2.5 terms to complete the sequence, while developmental English students take an average of 1.9 terms. To note, these courses cannot be applied toward a degree.

Additionally, PPIC found that underrepresented student groups are overrepresented in developmental courses; 87 percent of both Latino and Black students enroll in developmental education, compared to 70 percent of Asian American and 74 percent of White students. Also, 86 percent of low-income students enroll in developmental coursework.

The PPIC also found that community colleges vary in how they identify college-ready students. Colleges use different assessment tests, and in cases whereby colleges may use the same test, in many cases they apply different rules for the minimum scores that qualify as college-ready. According to the PPIC, over half of the colleges reported using the Accuplacer test to assess college readiness in math. Cut scores ranged from 25 to 96 out of a possible 120. A student with a score of 58 on the test would be deemed college-ready at only half of the participating colleges.

PPIC found that the wide variation may be particularly challenging for the 40 percent of students who eventually enroll in more than one community college campus. To note, students of color, were found to be more likely to attend colleges that set higher math cut scores, leaving them to have more restrictive access to transfer-level math courses.

Multiple measures. The PPIC suggested that colleges should be more consistent in the use of multiple measures, and use measures in addition to assessment tests to inform placement. Research shows that measures such as high school achievement data do a comparable or better job at predicting college success than just utilizing an assessment exam.

Some colleges used multiple measures in a systematic way, while others only used multiple measures if students requested it or challenged their placement.

The author of this measure sought to address some of the findings raised by the PPIC reports with AB 705, which was enacted. Assembly Bill 705, in part, requires community college districts to maximize the probability that a student will enter and complete coursework in math and English within a one-year timeframe by utilizing multiple measures to achieve this goal.

Committee comments and amendments. As currently drafted, this measure specifies that each community college must to inform students of their rights to access transfer-level coursework and of the multiple measures placement policies as adopted by the college, pursuant to Education Code (EC) Section 78213. The bill stipulates that said information be communicated in language that is easily understandable, and be prominently featured in the community college catalog, orientation materials, information relating to student assessment on the community college’s Internet Web site, and any communication with a student about the student’s course placement.

The above cites various methods that a college would need to provide this information to each student, but it is presently unclear as to what is meant by "and any communication with a student about the student's course placement" and whom is doing the communicating. Committee Staff understands that the author's intent is for the communication to be written and by a counselor.

With that in mind, Committee Staff recommends, and the author has agreed to, the following amendment:

78213.5. (2) The information described in paragraph (1) shall be communicated in language that is easily understandable, and shall be prominently featured in the community college catalog, orientation materials, information relating to student assessment on the community college’s Internet Web site, and any written communication by a college counselor with to a student about the student’s course placement options.

Previous legislation. AB 705 (Irwin) Chapter 745, Statutes of 2017, as referenced in the "Multiple measures" section of this analysis.

REGISTERED SUPPORT / OPPOSITION:

Support

California Teachers Association

Opposition

None on file.

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