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. Under existing law, community college districts throughout the state have established campuses where they provide instruction to students. Existing law establishes a system through which state funds are apportioned to community college districts based on specified formulas. A provision of existing law identifies the noncredit community college courses and classes that are eligible for state apportionment funding.

This bill would provide that supervised tutoring for courses and classes in all subject areas that are either basic skills, degree applicable, or transfer level, irrespective of whether a student being tutored has been referred to tutoring by a faculty member or has self-initiated the tutoring, is eligible for state apportionment funding. The bill would also make technical and conforming changes in this provision.

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. Under existing law, community college districts throughout the state have established campuses where they provide instruction to students. Existing law establishes a system through which state funds are apportioned to community college districts based on specified formulas. A provision of existing law identifies the noncredit community college courses and classes that are eligible for state apportionment funding.

This bill would provide that tutoring for courses and classes in all subject areas that are either basic skills or skills, degree applicable, or transfer level, irrespective of whether a student being tutored has been referred to tutoring by a faculty member, member or has self-initiated the tutoring, is eligible for state apportionment funding. The bill would also make technical and conforming changes in this provision.

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. Under existing law, community college districts throughout the state have established campuses where they provide instruction to students. Existing law establishes a system through which state funds are apportioned to community college districts based on specified formulas. A provision of existing law identifies the noncredit community college courses and classes that are eligible for state apportionment funding.

This bill would provide that tutoring for courses and classes in all subject areas that are either basic skills or degree applicable, irrespective of whether a student being tutored has been referred to tutoring by a faculty member, is eligible for state apportionment funding. The bill would also make technical and conforming changes in this provision.

SENATE COMMITTEE ON APPROPRIATIONS

Senator Ricardo Lara, Chair

2017 - 2018 Regular Session

SB 1009 (Wilk) - Community colleges: tutoring

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

Bill Summary:

This bill expands the categories of noncredit courses for which community colleges claim state apportionment funding to include supervised tutoring for students in certain courses.

Fiscal Impact:

The bill’s authorization of apportionment funding for supervised tutoring could increase state costs by at least $10 million annually based on the average number of students in basic skills Math and English courses each year and assuming five hours of tutoring per student (Proposition 98 General Fund). This estimate is likely to be higher as the bill also authorizes tutoring for any subject area that is degree applicable or transfer level. However, the provision of supervised tutoring services could lead to more students completing transfer-level coursework the first time and avoid the need for these students to repeat the courses. Depending on the effectiveness of these services, the resulting reduction in repeat coursework could produce some level of savings to offset the additional state costs provided for tutoring. The extent of the savings is unknown and would be impacted by other variables that are difficult to quantify such as whether these students elect to take other coursework (now that they are freed up from having to repeat Math or English classes) or whether other students backfill those slots. To achieve net savings to the state, there would have to be an overall reduction in FTES statewide that is large enough to cover the increased state spending on tutoring services.

Background:

Existing law identifies the noncredit community college courses and classes that are eligible for state apportionment funding, including classes or courses in parenting, remedial education, English as a second language, citizenship for immigrants, workforce preparation, education programs for persons with substantial disabilities, older adults, home economics, short-term vocational programs and health and safety education. Existing law prohibits state apportionment for a noncredit course or class that is not specifically identified in statute.

However, state regulations allow apportionment for student attendance in tutoring in a basic skills noncredit course and provide conditions for which those funds may be claimed. These conditions include that tutoring must be conducted through a designated learning center under the supervision of a qualified faculty member, among other things. This type of tutoring involves a student tutor who has been successful in a particular discipline and has received specific training in tutoring methods.

Proposed Law:

This bill expands the categories of noncredit community college courses and classes that are eligible for state apportionment funding to include supervised tutoring for courses and classes in all subject areas that are either basic skills, degree applicable or transfer-level. This bill specifies that referral for tutoring can be by a faculty member or self-initiated.

This bill makes various findings and declarations relative to tutoring and student success and declares legislative intent that legislation be enacted to increase community college students by expanding the state apportionment funding of tutoring.

This bill also makes conforming changes to the California Code of Regulations relative to noncredit courses.

Related Legislation:

AB 1935 (Irwin, 2018) would provide that supervised tutoring for degree-applicable and transfer-level courses is eligible for state apportionment funding. AB 1935 authorizes the Board of Governors to create regulations for purposes of implementing the bill and is silent on the inclusion of tutoring support for basic skills courses. AB 1935 is pending in the Assembly Appropriations Committee.

Staff Comments:

Under state regulations, student attendance in tutoring is eligible for apportionment only in a noncredit course that is specified in statute. These courses consist of classes relating to career development and college preparation. Instruction includes some basic skills courses, English as a second language courses, and career technical education courses. In addition, state regulations provide conditions for which funds may be claimed for tutoring assistance, including a provision that tutoring must be conducted through a designated learning center under the supervision of a qualified faculty member. This bill codifies and adds supervised tutoring support for college level and all basic skills classes to this list of eligible noncredit courses.

Apportionment funding is allocated primarily based on per-student rates. According to the Legislative Analyst Office, in 2017-18, community colleges received $5,151 per credit and enhanced noncredit Full-time Equivalent Student (FTES) and $3,050 per regular noncredit FTES. The state allows community college districts to claim the higher of their current-year or prior-year enrollment levels. District apportionments also include a base allocation determined by the number of colleges, state-approved centers, and total enrollment in the district.

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SENATE COMMITTEE ON EDUCATION

Senator Benjamin Allen, Chair

2017 - 2018 Regular

Bill No: SB 1009 Hearing Date: March 21, 2018

Subject: Community colleges: tutoring

SUMMARY

This bill expands, in statute the categories of noncredit courses for which community colleges collect apportionment to include tutoring for students in certain courses.

BACKGROUND

Existing law:

1. Establishes a system through which state funds are apportioned to community college districts based on specified formulas. (Education Code (EC) § 84750.5)
2. Identifies the noncredit community college courses and classes that are eligible for state apportionment funding including classes or courses in parenting, remedial education, English as a second language, citizenship for immigrants, workforce preparation, education programs for persons with substantial disabilities, older adults, home economics, short-term vocational programs and health and safety education. (EC § 84757)
3. Prohibits state apportionment for a noncredit course or class that is not identified in Section 84757 of the education code. (EC § 84757)
4. Under state regulations, allows apportionment for student attendance in tutoring in a basic skills noncredit course offered pursuant to EC § 84757(a)(2) and provides conditions for which those funds may be claimed. (Title 5 California Code of Regulations § 58168 and 58170)

ANALYSIS

This bill:

1. Expands, in statute, the categories of noncredit community college courses and classes that are eligible for state apportionment funding to include tutoring for courses and classes in all subject areas that are either basic skills, degree applicable or transfer-level.
2. Specifies, referral for tutoring support that is eligible for state apportionment that can be by a faculty member or self-initiated.
3. Makes various findings and declarations relative to tutoring improving student success and existing statutory restrictions for funding tutoring services.
4. Declares the Legislature’s intent that legislation be enacted to increase community college students by expanding the state apportionment funding of tutoring.
5. Makes changes to conform to California Code of Regulations relative to noncredit courses.

STAFF COMMENTS

1. Need for the bill. According to the author, “given the impact that tutoring has on student completion, it should be expanded beyond basic skills courses, and colleges should be allowed to collect apportionment funding for supervised tutoring in all subject areas that are either basic skills or degree applicable.” The author also asserts “that students should be allowed to pursue tutoring without waiting for a referral form a faculty member, as is currently required. Requiring them to wait until they are referred by a faculty member or even worse until they have demonstrated failing performance in exams makes no sense.”

This bill seeks to expand tutoring support for students taking certain courses by making noncredit tutoring assistance offered for those courses eligible for state apportionment funding and by authorizing participation in tutoring assistance to be self-initiated.

1. Existing state apportionment funding provided for student attendance in tutoring. As noted in the background of this analysis, under state regulations, student attendance in tutoring is eligible for apportionment only in a noncredit course offered in statute (EC § 84757(a)(2)). Those courses consist of classes relating to career development and college preparation. Instruction includes some basic skills courses, English as a Second Language courses, and Career Technical Education courses. This bill codifies and adds tutoring support for college level and all basic skills classes to this list of eligible noncredit courses.

In addition, state regulations provide conditions for which funds may be claimed for tutoring assistance. These conditions include that tutoring must be conducted through a designated learning center under the supervision of a qualified faculty member, among other things. This type of tutoring involves a student tutor who has been successful in a particular discipline and has received specific training in tutoring methods.

Staff recommends the following clarifying amendment:

Supervised tutoring for courses and classes as described in §58170 of California Code of Regulations, in all subject areas that are either basic skills, degree applicable, or transfer level, irrespective of whether a student being tutored has been referred to tutoring by a faculty member or has self-initiated the tutoring. The Board of Governors shall amend subdivision (e) of §58170 of California Code of Regulation to include student-initiated tutoring.

1. Overlap state funding for tutoring assistance? State funds designated for categorical programs allow for use of those funds for tutoring assistance. These include Student Success and Support program and the Basic Skills Initiative are among these programs. Staff notes that existing regulations prohibit collection of state apportionment dollars for tutoring services that are being paid from state categorical funds. Should an evaluation of categorical dollars used for tutoring assistance be explored prior to making state apportionment funds available for other noncredit courses or classes?
2. If referred by a faculty member is tutoring required? It is not the intent of the author to allow colleges to require tutoring of the students, nor does it appear that it is current practice. However, it’s not clear whether it is prohibited. The author may wish to explore clarifying this point as the bill moves forward.
3. Related legislation.

AB 1935 (Irwin, 2018) would provide that supervised tutoring for degree-applicable and transfer-level courses is eligible for state apportionment funding. Unlike this bill, AB 1935 authorizes the Board of Governors to create regulations for purposes of implementing the bill and is silent on the inclusion of tutoring support for basic skills courses. AB 1935 is pending hearing in Assembly Higher Education Committee.

SUPPORT

Coast Colleges

College of the Canyons

Foothill-De Anza Community College District

Kern Community College District

Los Rios Community College District

Peralta Community College District

San Diego Community College District

San Francisco Community College District

South Orange County Community College District

West Hills Community College District

Yuba Community College District

OPPOSITION

None received

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