Existing law authorizes the establishment of county and local school attendance review boards that may promote the use of alternatives to the juvenile court system if available public and private services are insufficient or inappropriate to correct school attendance or school behavioral problems, as provided. Existing law requires the Superintendent of Public Instruction to coordinate and administer a state school attendance review board, as provided.

This bill would require the State Department of Education, by the beginning of the 202627 school year, to post information on its internet website about methods of reducing chronic absenteeism, including through the formation of schoolsite absence intervention teams composed of specified members, as provided.

Existing law authorizes the establishment of county and local school attendance review boards that may promote the use of alternatives to the juvenile court system if available public and private services are insufficient or inappropriate to correct school attendance or school behavioral problems, as provided. Existing law requires the Superintendent of Public Instruction to coordinate and administer a state school attendance review board, as provided.

This bill would require the State Department of Education, by the beginning of the 202627 school year, to post information on its internet website about methods of reducing chronic absenteeism, including through the formation of schoolsite absence intervention teams composed of specified members, as provided.

Existing law authorizes the establishment of county and local school attendance review boards that may promote the use of alternatives to the juvenile court system if available public and private services are insufficient or inappropriate to correct school attendance or school behavioral problems, as provided. Existing law requires the Superintendent of Public Instruction to coordinate and administer a state school attendance review board, as provided.

This bill would require the State Department of Education, by the beginning of the 202627 school year, to post information on its internet website about methods of reducing chronic absenteeism, including through the formation of schoolsite absence intervention teams composed of specified members, as provided.

Existing law authorizes the establishment of county and local school attendance review boards that may promote the use of alternatives to the juvenile court system if available public and private services are insufficient or inappropriate to correct school attendance or school behavioral problems, as provided. Existing law requires the Superintendent of Public Instruction to coordinate and administer a state school attendance review board, as provided.

This bill would require the State Department of Education, by the beginning of the 202627 school year, to post information on its internet website about methods of reducing chronic absenteeism, including through the formation of schoolsite absence intervention teams composed of specified members, as provided.

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 2771

Author:(Maienschein)

As Amended Ver:June 6, 2024

Majority vote

SUMMARY

Requires the California Department of Education (CDE) to post information on its website about methods of reducing chronic absenteeism by the beginning of the 2026-27 school year, including but not limited to the formation of schoolsite absence intervention teams.

Senate Amendments

1. Authorize pupil personnel services (PPS) credential holder may be a member of schoolsite absence intervention teams.

COMMENTS

Impacts of chronic absenteeism. Students are considered chronically absent when they miss 10% or more of school for any reason. Left unaddressed, chronic absence can translate into students having difficulty learning to read by Grade Three, reaching grade-level standards in middle school, and graduating from high school. Chronic absenteeism has soared in California and nationally in the wake of the COVID-19 pandemic, and addressing this extraordinary increase is crucial to helping students catch up academically. Although rates of chronic absence have begun to decrease, they remain alarmingly high. Ensuring equitable opportunities to learn will require ongoing attention and action. (Chang, 2024)

Chronic absenteeism remains high and varies by grade level as well as by student subgroup. Chronic absence rates in California K-12 schools increased from 12% (702,531 students) in 2018–19 to a high of 30% (1,799,734) in 2021–22. In 2022–23, there was a decrease of five percentage points to a chronic absenteeism rate of 25% (1,486,302 students). Although this modest decrease is a hopeful sign, rates are still much higher than they were prior to the pandemic. This indicates the need for continued and intentional investment in re-engaging students and families and helping them to overcome barriers to getting to school. (Chang, 2024)

According to the Author

"The surge in chronic absences in schools highlights a need for effective and sustainable solutions. There must be a collaborative approach, where everyone- from teachers to counselors to community members plays a vital role in supporting student and families. This bill aims to make resources more accessible by mandating the CDE to provide information on its website on reducing chronic absenteeism rates. This would include information about identifying barriers, conducting home visits, creating a student absence intervention team, and organizing workshops to empower students and families. By fostering connections and working together we can ensure students have the opportunity to succeed in school and beyond."

Arguments in Support

The Los Angeles County Office of Education (LACOE) writes, "Chronic absenteeism is a significant challenge facing schools and districts across our state, stemming from various underlying causes. Despite the existing mechanisms for addressing attendance and behavioral issues, such as county and local school attendance review boards, many students continue to struggle with regular attendance, impacting their academic achievement and overall well-being. LACOE recognizes the importance of collaborative efforts in addressing chronic absenteeism and applaud the inclusion of provisions in this bill that promote coordination and partnership among stakeholders. By leveraging the expertise and resources of various community members, schoolsite absence intervention teams can develop comprehensive strategies to address the root causes of absenteeism and provide students with the necessary support to overcome barriers to attendance."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Assembly Appropriations Committee, "Minor and absorbable one-time General Fund costs to CDE to post information on its website about the methods of reducing chronic absenteeism."

VOTES:

ASM EDUCATION: 7-0-0

YES: Muratsuchi, Addis, Alvarez, Bonta, Flora, Hoover, McCarty

ASM APPROPRIATIONS: 14-0-1

YES: Wicks, Sanchez, Arambula, Bryan, Calderon, Wendy Carrillo, Dixon, Mike Fong, Grayson, Haney, Hart, Jim Patterson, Pellerin, Ta

ABS, ABST OR NV: Villapudua

ASSEMBLY FLOOR: 73-0-7

YES: Addis, Aguiar-Curry, Alanis, Alvarez, Arambula, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Juan Carrillo, Wendy Carrillo, Cervantes, Chen, Connolly, Davies, Dixon, Essayli, Mike Fong, Vince Fong, Friedman, Gabriel, Gallagher, Garcia, Gipson, Grayson, Haney, Hart, Holden, Hoover, Irwin, Jackson, Jones-Sawyer, Kalra, Lackey, Lee, Lowenthal, Maienschein, McCarty, McKinnor, Muratsuchi, Stephanie Nguyen, Ortega, Pacheco, Papan, Jim Patterson, Joe Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Rendon, Reyes, Luz Rivas, Rodriguez, Blanca Rubio, Sanchez, Santiago, Schiavo, Soria, Ta, Ting, Valencia, Villapudua, Waldron, Wallis, Ward, Wicks, Wilson, Wood, Zbur

ABS, ABST OR NV: Calderon, Megan Dahle, Flora, Low, Mathis, Weber, Robert Rivas

SENATE FLOOR: 36-0-4

YES: Archuleta, Ashby, Atkins, Becker, Blakespear, Bradford, Caballero, Cortese, Dahle, Dodd, Eggman, Glazer, Gonzalez, Hurtado, Jones, Laird, Limón, McGuire, Menjivar, Min, Newman, Nguyen, Niello, Ochoa Bogh, Padilla, Portantino, Roth, Rubio, Seyarto, Skinner, Smallwood-Cuevas, Stern, Umberg, Wahab, Wiener, Wilk

ABS, ABST OR NV: Allen, Alvarado-Gil, Durazo, Grove

UPDATED

VERSION: June 6, 2024

CONSULTANT: Debbie Look / ED. / (916) 319-2087 FN: 0003569

 CONSENT  

Bill No: AB 2771

Author: Maienschein (D)

Amended: 6/6/24 in Senate

Vote: 21

SENATE EDUCATION COMMITTEE: 7-0, 6/5/24

AYES: Newman, Jones, Cortese, Glazer, Gonzalez, Smallwood-Cuevas, Wilk

SENATE APPROPRIATIONS COMMITTEE: Senate Rule 28.8

ASSEMBLY FLOOR: 73-0, 5/2/24 (Consent) - See last page for vote

SUBJECT: Pupil attendance: schoolsite absence intervention teams

SOURCE: Generation Up

DIGEST:

This bill requires the California Department of Education (CDE), by the beginning of the 2026–27 school year, to post information on its internet website about the methods of reducing chronic absenteeism, as specified.

ANALYSIS:

Existing law:

1. Clarifies that excused absences are deemed to be absences in computing average daily attendance (ADA) and shall not generate state apportionment payments. (EC § 48205)
2. Defines “truant” as any pupil subject to compulsory full-time education or to compulsory continuation education who is absent from school without a valid excuse three full days in one school year or tardy or absent for more than any 30-minute period during the schoolday without a valid excuse on three occasions in one school year, or any combination thereof. (EC § 48260)
3. Defines “habitual truant” as any pupil who has been reported as a truant three or more times per school year, where an appropriate district officer or employee had made a conscientious effort to hold at least one conference with a parent and the pupil, after the filing of either a truancy report to the attendance supervisor or district superintendent. Specifies that a habitual truant may be referred to a student attendance review board (SARB) or a truancy mediation program. (EC § 48262)
4. Defines “chronic truant” as any pupil subject to compulsory full-time education or to compulsory continuation education who is absent from school without a valid excuse for 10 percent or more of the schooldays in one school year, from the date of enrollment to the current date. (EC § 48263.6)

This bill:

1. Requires CDE, by the beginning of the 2026–27 school year, to post the following information on its internet website about the methods of reducing chronic absenteeism:
   1. Identifying barriers to attendance for chronically absent pupils through screenings and interpersonal data collection.
   2. Developing and implementing absence intervention plans that may include supportive services for pupils and families.
   3. Home visits to chronically absent pupils.
   4. Counseling and wellness check-ins.
   5. Workshop trainings for families of chronically absent pupils.
   6. Partnering with public and nonprofit agencies to provide assistance to families and pupils to reduce absences.
   7. Forming schoolsite absence intervention teams. Members of schoolsite absence intervention teams may include, but need not be limited to, the following:
      1. A school counselor.
      2. A representative from the school or school district.
      3. A representative from the school or school district who has a relationship with truant children.
      4. A representative of community-based youth service centers.
      5. A representative of child welfare and attendance personnel.
      6. A representative of school or county health care personnel.
      7. A representative of school, county, or community mental health personnel.

Comments

1. Need for the bill. According to the author, “The surge in chronic absences in schools highlights a need for effective and sustainable solutions. There must be a collaborative approach, where everyone- from teachers to councilors to community members plays a vital role in supporting student and families. This bill aims to make resources more accessible by mandating the Department of Education to provide information on its website on reducing chronic absenteeism rates. This would include information about identifying barriers, conducting home visits, creating a student absence intervention team, and organizing workshops to empower students and families. By fostering connections and working together we can ensure students have the opportunity to succeed in school and beyond.”
2. Unexcused Absences Trigger Truancy Provisions. While excused and unexcused absences may be treated the same for funding purposes, they are not treated the same for attendance purposes. A student absent from school without a valid excuse on any day or tardy for more than 30 minutes, or any combination thereof, for three days in a school year is considered a truant.
3. Excused Absences Do Not Generate ADA. In California, school funding is primarily calculated using ADA. Each time a student is absent, that absence negatively impacts the local educational agency’s (LEA’s) ADA, ultimately reducing their overall funding. While each absence may be insignificant relative to overall funding levels, absences affect overall funding in the aggregate. Under current law, all absences, whether excused or unexcused, reduce overall ADA.
4. Chronic Absenteeism. Chronic absenteeism is when students miss 10 percent or more of school for any reason. If not addressed, this can lead to difficulties learning to read by Grade 3, reaching grade-level standards in middle school, and graduating from high school. The COVID-19 pandemic has led to a significant increase in chronic absenteeism in California and across the country. Addressing this issue is crucial in helping students catch up academically. This analysis examines the trends in chronic absenteeism through the 2022-23 school year, using data from the CDE. Although there has been a decrease in chronic absence rates, they are still alarmingly high.

In a report released by PACE, Unpacking California’s Chronic Absence Crisis Through 2022–23: Seven Key Facts, chronic absence rates increased from 12 percent (702,531 students) in 2018–19 to a high of 30 percent (1,799,734) in 2021–22. In 2022–23, there was a decrease of 5 percentage points to a chronic absenteeism rate of 25 percent (1,486,302 students). Although this modest decrease is a hopeful sign, rates are still much higher than they were prior to the pandemic.

Schools that serve socioeconomically disadvantaged (SED) students tend to have higher rates of chronic absenteeism. Only 2 percent of the most affluent schools (those serving 0–24 percent SED students) experience extreme levels of chronic absence. In comparison, 60 percent of schools serving 75 percent or more SED students have extreme levels of chronic absence. Due to the challenges posed by the pandemic, SED students are significantly behind their non-SED peers in academic performance. Chronic absence is also high among particular student populations, although all have experienced modest decreases in the last year.

Students who are involved in the foster care system, are experiencing homelessness, and have been identified as having a disability have extraordinarily high levels of chronic absenteeism. In addition, Native American, Black, and Pacific Islander students have exceptionally high rates of chronic absence. For these populations, chronic absenteeism both reflects and exacerbates inequities. These high rates can reflect challenges facing students and families in the community (e.g., lack of access to health care, unreliable transportation, housing, and food insecurity, etc.) and within the school (e.g., bullying, unwelcoming school climate, biased disciplinary or attendance practices, or lack of a meaningful and culturally relevant curriculum). Such difficulties can affect students’ learning ability and cause them to fall farther behind because they miss invaluable instruction.

The reasons behind chronic absenteeism are complex; hence addressing this issue requires a multifaceted approach. This approach should involve services that meet their basic needs, create a safe and welcoming school environment, and provide engaging and challenging learning opportunities. Furthermore, partnerships with community organizations and public agencies are crucial to tackle the barriers and challenges to school attendance that may be beyond the capacity of educators.

1. Student Attendance Review Boards (SARB). In 1974, the California Legislature passed a statute to improve the enforcement of compulsory education laws and prevent students with persistent attendance or behavior problems from being sent to the juvenile justice system until all resources have been utilized. LEAs and county offices of education (COEs) were authorized to establish SARBs at the local and county levels to provide a safety net for students and ensure a meaningful educational experience. SARBs consist of representatives from various youth-serving agencies and assist truant or recalcitrant students and their parents or guardians in resolving school attendance and behavior problems.

County and local SARBs are subject to the Brown Act's open meeting of law requirements, with agendas posted three days before meetings and members only addressing matters included in the agendas. Closed sessions may be held when discussing individual pupils unless a parent or guardian requests an open session in writing.

A State SARB was established for statewide policy coordination and personnel training to divert students with serious attendance and behavior problems from the juvenile justice system and reduce dropouts in the state public education system. The State Superintendent of Public Instruction (SPI) extends participation invitations to representatives of appropriate groups nationwide and makes annual recommendations regarding the needs of high-risk youth.

Related/Prior Legislation

AB 1939 (Maienschein, 2024) would require each county and local SARB to consult with a diverse group of students from the schools they serve at least once a year. The goal of these consultations is to gather feedback that will help the board better understand and propose interventions for any attendance or behavioral issues that students may be facing.

AB 1884 (Ward, 2024) would authorize a student’s excused absence for purposes of spending time with a member of their immediate family who is an active duty member of the military and has been called to duty for, is on leave from, or has immediately returned from deployment, without requiring that the deployment be to a combat zone or combat support position.

AB 2815 (O’Donnell, Chapter 829, Statues of 2016) authorized a supervisor of attendance to provide specified support services and take specified interventions.

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

SUPPORT: (Verified 6/17/24)

Generation Up (source)
Los Angeles County Office of Education

OPPOSITION: (Verified 6/17/24)

None received

ARGUMENTS IN SUPPORT: According to the Los Angeles County Office of Education, “Chronic absenteeism is a significant challenge facing schools and districts across our state, stemming from various underlying causes. Despite the existing mechanisms for addressing attendance and behavioral issues, such as county and local school attendance review boards, many students continue to struggle with regular attendance, impacting their academic achievement and overall well-being. AB 2771 proposes a crucial step towards mitigating chronic absenteeism by requiring the State Department of Education to disseminate information on methods for reducing absenteeism, including the formation of schoolsite absence intervention teams. These teams, composed of specified members including educators, counselors, and community stakeholders, have the potential to implement targeted interventions tailored to the unique needs of students and families. By providing LEAs with resources and guidance on effective strategies for addressing chronic absenteeism, this bill equips schools and districts with the tools necessary to support student success. LACOE recognizes the importance of collaborative efforts in addressing chronic absenteeism and applaud the inclusion of provisions in this bill that promote coordination and partnership among stakeholders. By leveraging the expertise and resources of various community members, schoolsite absence intervention teams can develop comprehensive strategies to address the root causes of absenteeism and provide students with the necessary support to overcome barriers to attendance.”

ASSEMBLY FLOOR: 73-0, 5/2/24

AYES: Addis, Aguiar-Curry, Alanis, Alvarez, Arambula, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Juan Carrillo, Wendy Carrillo, Cervantes, Chen, Connolly, Davies, Dixon, Essayli, Mike Fong, Vince Fong, Friedman, Gabriel, Gallagher, Garcia, Gipson, Grayson, Haney, Hart, Holden, Hoover, Irwin, Jackson, Jones-Sawyer, Kalra, Lackey, Lee, Lowenthal, Maienschein, McCarty, McKinnor, Muratsuchi, Stephanie Nguyen, Ortega, Pacheco, Papan, Jim Patterson, Joe Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Rendon, Reyes, Luz Rivas, Rodriguez, Blanca Rubio, Sanchez, Santiago, Schiavo, Soria, Ta, Ting, Valencia, Villapudua, Waldron, Wallis, Ward, Wicks, Wilson, Wood, Zbur

NO VOTE RECORDED: Calderon, Megan Dahle, Flora, Low, Mathis, Weber, Robert Rivas

Prepared by: Kordell Hampton / ED. / (916) 651-4105

6/18/24 13:52:40

**** END ****

SENATE COMMITTEE ON EDUCATION

Senator Josh Newman, Chair

2023 - 2024 Regular

Bill No: Hearing Date: June 5, 2024

Subject: .

SUMMARY

Requires the California Department of Education (CDE), by the beginning of the 2026–27 school year, to post information on its internet website about the methods of reducing chronic absenteeism, as specified.

BACKGROUND

Existing Law:

Education Code (EC)

1. Clarifies that excused absences are deemed to be absences in computing average daily attendance (ADA) and shall not generate state apportionment payments. (EC § 48205)
2. Defines "truant" as any pupil subject to compulsory full-time education or to compulsory continuation education who is absent from school without a valid excuse three full days in one school year or tardy or absent for more than any 30-minute period during the schoolday without a valid excuse on three occasions in one school year, or any combination thereof. (EC § 48260)
3. Defines "habitual truant" as any pupil who has been reported as a truant three or more times per school year, where an appropriate district officer or employee had made a conscientious effort to hold at least one conference with a parent and the pupil, after the filing of either a truancy report to the attendance supervisor or district superintendent. Specifies that a habitual truant may be referred to a student attendance review board (SARB) or a truancy mediation program. (EC § 48262)
4. Defines "chronic truant" as any pupil subject to compulsory full-time education or to compulsory continuation education who is absent from school without a valid excuse for 10 percent or more of the schooldays in one school year, from the date of enrollment to the current date. (EC § 48263.6)

ANALYSIS

This bill:

1. Requires CDE, by the beginning of the 2026–27 school year, to post the following information on its internet website about the methods of reducing chronic absenteeism:
   1. Identifying barriers to attendance for chronically absent pupils through screenings and interpersonal data collection.
   2. Developing and implementing absence intervention plans that may include supportive services for pupils and families.
   3. Home visits to chronically absent pupils.
   4. Counseling and wellness check-ins.
   5. Workshop trainings for families of chronically absent pupils.
   6. Partnering with public and nonprofit agencies to provide assistance to families and pupils to reduce absences.
   7. Forming schoolsite absence intervention teams. Members of schoolsite absence intervention teams may include, but need not be limited to, the following:
      1. A school counselor.
      2. A representative from the school or school district.
      3. A representative from the school or school district who has a relationship with truant children.
      4. A representative of community-based youth service centers.
      5. A representative of child welfare and attendance personnel.
      6. A representative of school or county health care personnel.
      7. A representative of school, county, or community mental health personnel.

STAFF COMMENTS

1. Need for the bill. According to the author, “The surge in chronic absences in schools highlights a need for effective and sustainable solutions. There must be a collaborative approach, where everyone- from teachers to councilors to community members plays a vital role in supporting student and families. This bill aims to make resources more accessible by mandating the Department of Education to provide information on its website on reducing chronic absenteeism rates. This would include information about identifying barriers, conducting home visits, creating a student absence intervention team, and organizing workshops to empower students and families. By fostering connections and working together we can ensure students have the opportunity to succeed in school and beyond.”
2. Unexcused Absences Trigger Truancy Provisions. While excused and unexcused absences may be treated the same for funding purposes, they are not treated the same for attendance purposes. A student absent from school without a valid excuse on any day or tardy for more than 30 minutes, or any combination thereof, for three days in a school year is considered a truant.
3. Excused Absences Do Not Generate ADA. In California, school funding is primarily calculated using ADA. Each time a student is absent, that absence negatively impacts the local educational agency’s (LEA’s) ADA, ultimately reducing their overall funding. While each absence may be insignificant relative to overall funding levels, absences affect overall funding in the aggregate. Under current law, all absences, whether excused or unexcused, reduce overall ADA.
4. Chronic Absenteeism. Chronic absenteeism is when students miss 10 percent or more of school for any reason. If not addressed, this can lead to difficulties learning to read by Grade 3, reaching grade-level standards in middle school, and graduating from high school. The COVID-19 pandemic has led to a significant increase in chronic absenteeism in California and across the country. Addressing this issue is crucial in helping students catch up academically. This analysis examines the trends in chronic absenteeism through the 2022-23 school year, using data from the CDE. Although there has been a decrease in chronic absence rates, they are still alarmingly high.

In a report released by PACE, Unpacking California’s Chronic Absence Crisis Through 2022–23: Seven Key Facts, chronic absence rates increased from 12 percent (702,531 students) in 2018–19 to a high of 30 percent (1,799,734) in 2021–22. In 2022–23, there was a decrease of 5 percentage points to a chronic absenteeism rate of 25 percent (1,486,302 students). Although this modest decrease is a hopeful sign, rates are still much higher than they were prior to the pandemic.

Schools that serve socioeconomically disadvantaged (SED) students tend to have higher rates of chronic absenteeism. Only 2 percent of the most affluent schools (those serving 0–24 percent SED students) experience extreme levels of chronic absence. In comparison, 60 percent of schools serving 75 percent or more SED students have extreme levels of chronic absence. Due to the challenges posed by the pandemic, SED students are significantly behind their non-SED peers in academic performance. Chronic absence is also high among particular student populations, although all have experienced modest decreases in the last year.

Students who are involved in the foster care system, are experiencing homelessness, and have been identified as having a disability have extraordinarily high levels of chronic absenteeism. In addition, Native American, Black, and Pacific Islander students have exceptionally high rates of chronic absence. For these populations, chronic absenteeism both reflects and exacerbates inequities. These high rates can reflect challenges facing students and families in the community (e.g., lack of access to health care, unreliable transportation, housing, and food insecurity, etc.) and within the school (e.g., bullying, unwelcoming school climate, biased disciplinary or attendance practices, or lack of a meaningful and culturally relevant curriculum). Such difficulties can affect students’ learning ability and cause them to fall farther behind because they miss invaluable instruction.

The reasons behind chronic absenteeism are complex; hence addressing this issue requires a multifaceted approach. This approach should involve services that meet their basic needs, create a safe and welcoming school environment, and provide engaging and challenging learning opportunities. Furthermore, partnerships with community organizations and public agencies are crucial to tackle the barriers and challenges to school attendance that may be beyond the capacity of educators.

1. Student Attendance Review Boards (SARB). In 1974, the California Legislature passed a statute to improve the enforcement of compulsory education laws and prevent students with persistent attendance or behavior problems from being sent to the juvenile justice system until all resources have been utilized. LEAs and county offices of education (COEs) were authorized to establish SARBs at the local and county levels to provide a safety net for students and ensure a meaningful educational experience. SARBs consist of representatives from various youth-serving agencies and assist truant or recalcitrant students and their parents or guardians in resolving school attendance and behavior problems.

County and local SARBs are subject to the Brown Act's open meeting of law requirements, with agendas posted three days before meetings and members only addressing matters included in the agendas. Closed sessions may be held when discussing individual pupils unless a parent or guardian requests an open session in writing.

A State SARB was established for statewide policy coordination and personnel training to divert students with serious attendance and behavior problems from the juvenile justice system and reduce dropouts in the state public education system. The State Superintendent of Public Instruction (SPI) extends participation invitations to representatives of appropriate groups nationwide and makes annual recommendations regarding the needs of high-risk youth.

1. Related Legislation.

AB 1939 (Maienschein, 2024) would require each county and local SARB to consult with a diverse group of students from the schools they serve at least once a year. The goal of these consultations is to gather feedback that will help the board better understand and propose interventions for any attendance or behavioral issues that students may be facing.

AB 1884 (Ward, 2024) would authorize a student’s excused absence for purposes of spending time with a member of their immediate family who is an active duty member of the military and has been called to duty for, is on leave from, or has immediately returned from deployment, without requiring that the deployment be to a combat zone or combat support position.

AB 2815 (O’Donnell, Chapter 829, Statues of 2016) authorizes a supervisor of attendance to provide specified support services and take specified interventions.

SUPPORT

Los Angeles County Office of Education

OPPOSITION

None received

-- END --

Date of Hearing: April 24, 2024

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 2771

Author:(Maienschein) – As Introduced Ver:February 15, 2024

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

SUMMARY:

This bill require the California Department of Education (CDE), beginning of the 2026-27 school year, post information on its website about the methods of reducing chronic absenteeism.

Specifically, this bill requires CDE to post information about the following methods, among others: identifying barriers to attendance for chronically absent pupils, developing and implementing absence intervention plans, home visits, and forming schoolsite absence intervention teams.

FISCAL EFFECT:

Minor and absorbable one-time General Fund costs to CDE to post information on its website about the methods of reducing chronic absenteeism.

COMMENTS:

1. Purpose. According to the author, “The surge in chronic absences in schools highlights a need for effective and sustainable solutions…This bill aims to make resources more accessible by mandating the CDE to provide information on its website on reducing chronic absenteeism rates.”
2. Background. Students are considered chronically absent when they miss 10% or more of school per year for any reason. Chronic absenteeism has greatly increased since the COVID-19 pandemic. Through chronic absenteeism has improved somewhat since the pandemic, rates are still very high, as compared to historic trends. Specifically, chronic absence rates in California K-12 schools increased from 12% in the 2018-19 academic year to a high of 30% in the 2021-22 academic year. In the 2022-23 academic, chronic absence rates were 25%

This bill requires CDE to post methods for reducing chronic absenteeism on its public website such that schools can access the information.

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

Date of Hearing: April 3, 2024

ASSEMBLY COMMITTEE ON EDUCATION

Al Muratsuchi, Chair

ABPCA Bill Id:AB 2771 (

Author:Maienschein) – As Introduced Ver:February 15, 2024

SUBJECT: Pupil attendance: schoolsite absence intervention teams

SUMMARY: Requires the California Department of Education (CDE) to post information on its website about methods of reducing chronic absenteeism by the beginning of the 2026-27 school year. Specifically, this bill:

1. Requires the CDE to post information on its website about the methods of reducing chronic absenteeism by the beginning of the 2026-27 school year, including all of the following:
2. Identifying barriers to attendance for chronically absent pupils through screenings and interpersonal data collection;
3. Developing and implementing absence intervention plans that may include supportive services for pupils and families;
4. Home visits to chronically absent pupils;
5. Counseling and wellness check-ins;
6. Workshop trainings for families of chronically absent pupils;
7. Partnering with public and nonprofit agencies to provide assistance to families and pupils to reduce absences; and
8. Forming schoolsite absence intervention teams. Members of schoolsite absence intervention teams may include, but need not be limited to the following:
9. A school counselor;
10. A representative from the school or school district;
11. A representative from the school or school district who has a relationship with truant children;
12. A representative of community-based youth service centers;
13. A representative of child welfare and attendance personnel;
14. A representative of school or county health care personnel; and
15. A representative of school, county, or community mental health personnel.

EXISTING LAW:

1. Requires the governing board of a school district and any county office of education (COE) to appoint a supervisor of attendance and assistant supervisors of attendance as may be necessary to supervise the attendance of pupils in the school district or county. Requires the governing board to prescribe the duties of the supervisor or assistant supervisor to include, among other duties that may be required by the governing board, those specific duties related to compulsory full-time education, truancy, work permits, compulsory continuation education, and opportunity schools, classes, and programs, now required of attendance supervisors. (Education Code (EC) Section 48240)
2. Expresses the intent of the Legislature that in performing their duties, the supervisor of attendance promotes a culture of attendance and establishes a system to accurately track student attendance in order to achieve all of the following:
3. Raise the awareness of school personnel, parents, guardians, caregivers, community partners, and local businesses of the effects of chronic absenteeism and truancy and other challenges associated with poor attendance;
4. Identify and respond to grade level or pupil subgroup patterns of chronic absenteeism or truancy;
5. Identify and address factors contributing to chronic absenteeism and habitual truancy, including suspension and expulsion;
6. Ensure that pupils with attendance problems are identified as early as possible to provide applicable support services and interventions; and
7. Evaluate the effectiveness of strategies implemented to reduce chronic absenteeism rates and truancy rates. (EC 48240)
8. Authorizes the supervisor of attendance to provide support services and interventions, including, but not limited to:
9. A conference between school personnel, the student’s parent or guardian, and the student;
   
10. Promoting co-curricular and extracurricular activities that increase student connectedness to school, such as tutoring, mentoring, the arts, service learning, or athletics;
11. Recognizing students who achieve excellent attendance or demonstrate significant improvement in attendance;
12. Referral to a school nurse, school counselor, school psychologist, school social worker, and other student support personnel for case management and counseling;
13. Collaboration with child welfare services, law enforcement, courts, public health care agencies, government agencies, or medical, mental health, and oral health care providers to receive necessary services;
14. Collaborating with school study teams, guidance teams, school attendance review teams, or other intervention-related teams to assess the attendance or behavior problem in partnership with the student and their parents, guardians, or caregivers;
15. In schools with significantly higher rates of chronic absenteeism, identify barriers to attendance that may require school-wide strategies rather than case management;
16. Referral for a comprehensive psychosocial or psychoeducational assessment, including for purposes of creating an individualized education program for an individual with exceptional needs;
17. Referral to a school attendance review board established by the county or by a school district or to the probation department pursuant to Section 48263; and
18. Referral to a truancy mediation program operated by the county’s district attorney or probation officer. (EC 48420)
19. Requires that each person between the ages of 6 and 18 years, not otherwise exempted, be subject to compulsory full-time education and attend the public full-time day school or continuation school or classes in which their parent or guardian resides, and that each parent, guardian or other person having control or charge of the pupil ensure that pupil's enrollment and attendance. (EC Section 48200)

1. Defines a "truant" as any student subject to compulsory full-time education or to compulsory continuation education who is absent from school without a valid excuse for three full days in one school year or tardy or absent for more than any 30-minute period during the schoolday without a valid excuse on three occasions in one school year, or any combination thereof. (EC Section 48260)
2. Authorizes a School Attendance Review Board (SARB) to be established at the local and county level to provide intensive guidance and coordinated community services to meet the needs of students with school attendance or school behavior problems. (EC Section 48320)

FISCAL EFFECT: Unknown

COMMENTS:

Need for the bill. According to the author, “The surge in chronic absences in schools highlights a need for effective and sustainable solutions. There must be a collaborative approach, where everyone- from teachers to counselors to community members plays a vital role in supporting student and families. This bill aims to make resources more accessible by mandating the CDE to provide information on its website on reducing chronic absenteeism rates. This would include information about identifying barriers, conducting home visits, creating a student absence intervention team, and organizing workshops to empower students and families. By fostering connections and working together we can ensure students have the opportunity to succeed in school and beyond.”

Impacts of chronic absenteeism. Students are considered chronically absent when they miss 10% or more of school for any reason. Left unaddressed, chronic absence can translate into students having difficulty learning to read by Grade 3, reaching grade-level standards in middle school, and graduating from high school. Chronic absenteeism has soared in California and nationally in the wake of the COVID-19 pandemic, and addressing this extraordinary increase is crucial to helping students catch up academically. Although rates of chronic absence have begun to decrease, they remain alarmingly high. Ensuring equitable opportunities to learn will require ongoing attention and action. (Chang, 2024)

Chronic absenteeism remains high and varies by grade level as well as by student subgroup. Chronic absence rates in California K-12 schools increased from 12% (702,531 students) in 2018–19 to a high of 30% (1,799,734) in 2021–22. In 2022–23, there was a decrease of 5 percentage points to a chronic absenteeism rate of 25% (1,486,302 students). Although this modest decrease is a hopeful sign, rates are still much higher than they were prior to the pandemic. This indicates the need for continued and intentional investment in re-engaging students and families and helping them to overcome barriers to getting to school. (Chang, 2024)

The rates of chronic absenteeism vary by grade level. Prior to the pandemic, kindergarten chronic absence was 16%, just slightly lower than the chronic absenteeism rate for high school of 16%. Kindergarten chronic absence increased to 40% in 2021–22 and remained at 36% in 2022–23, approximately 10 percentage points higher than high school rates of 26%. (Chang, 2024)

Students who are involved in the foster care system, are experiencing homelessness, and/or have been identified as having a disability have extraordinarily high levels of chronic absenteeism. In addition, Native American, Black, and Pacific Islander students have especially high rates of chronic absence. For these populations, chronic absenteeism both reflects and exacerbates inequities. These high rates can reflect challenges facing students and families in the community (e.g., lack of access to health care, unreliable transportation, housing, and food insecurity, etc.) and within the school (e.g., bullying, unwelcoming school climate, biased disciplinary or attendance practices, or lack of a meaningful and culturally relevant curriculum). Such difficulties can affect students’ ability to learn as well as cause them to fall farther behind because they miss invaluable instruction. (Chang, 2024)

In California, students of color are disproportionately represented among chronically absent students compared to other student populations; 36.6% of African American students and 28.9% of Hispanic/Latino students were chronically absent in 2022-23, compared to 19.7% of White students. (Policy Analysis for California Education (Policy Analysis for California Education (PACE), 2024)

According to researchers, although the California numbers of chronic absenteeism are challenging, absenteeism can be addressed when districts, with state support, help schools take a comprehensive, data-informed approach to attendance that is grounded in an understanding of local assets and difficulties faced by students and families. 2022–23 school-year data offers hopeful signs that attendance levels in California are moving in the right direction, but even greater efforts are needed in the schools and communities most affected by COVID-19 and education inequities. (Chang, 2024)

Factors contributing to chronic absenteeism? As noted in the figure below, students may be absent from school for a wide range of reasons, including myths relating to the importance of school attendance, barriers relating to student and family needs, an aversion to attending school, and a sense of disengagement from school.

Source: Portraits of Change, Attendance Works, 2017

Chronic absenteeism is tracked on the California School Dashboard. The Dashboard provides performance information on multiple indicators for K–12 schools and districts across the state. This data is used to identify strengths and areas in need of improvement for schools. LEAs serving students enrolled in kindergarten through 8^th grade receive a chronic absenteeism indicator on their school dashboard representing the number of students who were absent 10% or more of the school year. The dashboard also compares data from one year to the next to determine whether the school or district made improvements by reducing the rate of chronic absenteeism, or had a higher rate. The 2023 California School Dashboard identifies that 24.3% of students in kindergarten through 8^th grade were chronically absent, having declined 5.7% from the prior year. As noted above, these rates varied between students of different races/ethnicities as well as by subgroup:

Arguments in support. The Los Angeles County Office of Education (LACOE) writes, “Chronic absenteeism is a significant challenge facing schools and districts across our state, stemming from various underlying causes. Despite the existing mechanisms for addressing attendance and behavioral issues, such as county and local school attendance review boards, many students continue to struggle with regular attendance, impacting their academic achievement and overall well-being. LACOE recognizes the importance of collaborative efforts in addressing chronic absenteeism and applaud the inclusion of provisions in this bill that promote coordination and partnership among stakeholders. By leveraging the expertise and resources of various community members, schoolsite absence intervention teams can develop comprehensive strategies to address the root causes of absenteeism and provide students with the necessary support to overcome barriers to attendance.”

Related legislation. AB 2815 (O’Donnell) Chapter 829, Statutes of 2016, authorizes a supervisor of attendance to provide specified support services and take specified interventions.

REGISTERED SUPPORT / OPPOSITION:

Support

Los Angeles County Office of Education

Opposition

None on file

Analysis Prepared by: Debbie Look / ED. / (916) 319-2087