Existing law establishes the California State University and the California Community Colleges as 2 of the 3 segments of public postsecondary education in the state. Existing law requires each campus of the California State University and the California Community Colleges, and requests each campus of the University of California, with a campus mental health hotline to have printed on either side of student identification cards the telephone number of the campus mental health hotline for a student identification card issued to a student on or after January 1, 2023, as specified. Existing law also requires each campus of the California State University and the California Community Colleges, and requests each campus of the University of California, without a campus mental health hotline to have printed on either side of student identification cards the telephone number of their citys or countys mental health hotline for a student identification card issued to a student on or after January 1, 2023, as specified.

This bill would require the Chancellor of the California Community Colleges and the Chancellor of the California State University, on or before January 1, 2026, to develop a plan to make a campus mental health hotline that is operated by an organization with expertise in student mental health available to students on their respective campuses. The bill would require the Chancellor of the California Community Colleges and the Chancellor of the California State University, on or before January 1, 2026, to each submit a report to the Legislature on the above-mentioned plan, plan and on the other types of campus mental health hotlines that campuses make available to students, as provided. The bill would repeal its provisions on January 1, 2027.

(1)Existing law establishes the California Community Colleges under the administration of the Board of Governors of the California Community Colleges, the California State University under the administration of the Trustees of the California State University, and the University of California under the administration of the Regents of the University of California as the 3 segments of public postsecondary education in the state. Existing law authorizes each campus of the California State University, the California Community Colleges, and the University of California to establish a campus mental health hotline for students to access mental health services remotely.

This bill would instead require each campus of the California State University and the California Community Colleges without a campus mental health hotline, and would request the University of California, to establish a campus mental health hotline for students to access mental health services remotely that operates during working hours, as provided. The bill would authorize a campus to utilize text hotlines or online messaging platforms offered by the campus if a verbal hotline cannot be established. The bill would require a campus mental health hotline to direct a student to specified persons, including, among others, to a licensed mental health therapist. The bill would, outside of working hours, authorize a campus mental health hotline to direct a caller to specified services and phone numbers, including, among others, to 911.

(2)Existing law requires each campus of the California State University and the California Community Colleges, and requests each campus of the University of California, with a campus mental health hotline to have printed on either side of student identification cards the telephone number of the campus mental health hotline for a student identification card issued to a student on or after January 1, 2023, as specified. Existing law also requires each campus of the California State University and the California Community Colleges, and requests each campus of the University of California, without a campus mental health hotline to have printed on either side of student identification cards the telephone number of their citys or countys mental health hotline for a student identification card issued to a student on or after January 1, 2023, as specified.

This bill would instead require each campus of the California State University and the California Community Colleges, and would request each campus of the University of California, to have printed on either side of the student identification cards the telephone number of the campus mental health hotline, as provided.

(3)By imposing new duties on community college districts, this bill would impose a state-mandated local program.

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.

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anna Caballero, Chair

2023 - 2024 Regular Session

AB 456 (Maienschein) - Public postsecondary education: campus mental health hotlines: report

Bill Summary:

This bill requires the California Community College Chancellor and the California State University (CSU) Chancellor to develop a plan to make a campus mental health hotline available to students on their respective campuses.

Fiscal Impact:

• The Chancellor’s Office estimates one-time Proposition 98 General Fund costs of $240,000 to comply with the bill’s reporting requirement. Of this amount, $150,000 would be used to hire a consultant to write the report; $40,000 to produce the report; and $50,000 to establish the platform that colleges would use to report information.
• The CSU indicates that any costs related to the one-time reporting requirement would be minor and absorbable within existing resources.

Background:

Federal law establishes the federal National Suicide Hotline Designation Act, designating the three-digit telephone number “988” as the universal number within the United States for the purpose of the national suicide prevention and mental health crisis hotline system operating through the National Suicide Prevention Lifeline maintained by the Assistant Secretary of the Department of Health and Human Services’ Substance Abuse and Mental Health Services Administration (SAMHSA) and the Veterans Crisis Line maintained by the Secretary of Veterans Affairs.

Existing state law authorizes each campus of the CCC, CSU, and the University of California to establish a campus mental health hotline for students to access mental health services remotely.

Existing law requires, beginning July 1, 2019, a public or private institution of higher education that issues student identification cards to have printed on either side of the cards the telephone number for the National Suicide Prevention Lifeline and authorizes, beginning July 1, 2019, the institutions that issue student identification cards to have printed on either side of the cards: 1) the Crisis Text Line; 2) the campus police or security telephone number or, if the campus does not have a campus police or security telephone number, the local nonemergency telephone number; and, 3) a local suicide prevention hotline telephone number.

Proposed Law:

This bill, by January 1, 2026, requires the California Community College Chancellor and the CSU Chancellor to develop a plan to make a campus mental health hotline that is operated by an organization with expertise in student mental health available to students on their respective campuses. The Chancellor’s Office and CSU would also be required to submit a report to the Legislature, as specified, on the plan that is developed.

The bill’s provisions would sunset on January 1, 2027.

Related Legislation:

AB 2122 (Choi, Chapter 183, Statutes of 2022), required each CSU and CCC campus with a campus mental health hotline, and requests each UC campus with a campus mental health hotline, to have the hotline telephone number printed on campus-issued student identification cards.

AB 624 (Gabriel, 2019), would have required, commencing July 1, 2020, every public postsecondary educational institution and nonsectarian private postsecondary educational institution, to print on student identification cards the telephone numbers for the National Sexual Assault Hotline and a local resource that provides sexual and reproductive health care information, as specified. AB 624 was vetoed by Governor Newsom whose veto message read in part:

“I signed Senate Bill 316 (Chapter 270, Statutes of 2019), which requires schools to list the National Domestic Violence Hotline on student identification cards because I support giving teens and young adults access to resources not readily available in school.

I do not support, however, burdening schools with the job of investigating local reproductive health agencies as the bill would require. There are many agencies across this state that refuse to give women information about all of their reproductive health care options, and I am not persuaded that schools have the appropriate expertise to decide which of these organizations they should direct their students to. Furthermore, I believe the time and money that would be spent on this activity would be better used improving teaching and learning as well as meeting the existing requirements of the California Healthy Youth Act.”

SB 316 (Rubio, Chapter 270, Statutes of 2019), required, in part, commencing on October 1, 2020, public or private institutions of higher education, that issue student identification cards, to print the telephone number for the National Domestic Violence Hotline or a local domestic violence hotline that provides confidential support services for students that have experienced domestic violence or stalking and is available by telephone 24 hours a day on back of those identification cards.

Staff Comments: While the bill requires the Chancellor’s Office and the CSU Chancellor to develop a plan to make a campus mental health hotline on their respective campuses, it may be duplicative of existing efforts. Specifically, AB 2122 (Choi, Chapter 183, Statutes of 2022) was enacted to authorize each UC, CSU, and CCC campus to establish a campus mental health hotline. Existing law also requires each CSU and CCC campus with a campus mental health hotline, and requests each UC campus, to have the hotline telephone number printed on campus-issued student identification cards. Campus without a campus mental health hotline are required to print the telephone number of its city or county mental health hotline on student identification cards. Currently, 107 community colleges have a mental health services online, but the services vary and are not necessarily provided by third-party contractors. Further, the Chancellor’s Office indicates there is the Crisis Text Line, in collaboration with the Chancellor’s Office and FoundationCCC, that provides free, text-based, confidential assistance to California Community College students. Crisis Text Line is a free, 24/7 text service which helps support students who may be experiencing a mental health challenge.

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SENATE COMMITTEE ON EDUCATION

Senator Josh Newman, Chair

2023 - 2024 Regular

Bill No: Hearing Date: May 29, 2024

Subject:

SUMMARY

This bill, by January 1, 2026, requires the California Community College (CCC) Chancellor and the California State University (CSU) Chancellor to develop a plan to make a campus mental health hotline that is operated by the specified type of organization available to students on their respective campuses and submit that plan to the Legislature.

BACKGROUND

Existing law:

Federal law

1. Establishes the federal National Suicide Hotline Designation Act, designating the three-digit telephone number “988” as the universal number within the United States for the purpose of the national suicide prevention and mental health crisis hotline system operating through the National Suicide Prevention Lifeline maintained by the Assistant Secretary of the Department of Health and Human Services’ Substance Abuse and Mental Health Services Administration (SAMHSA) and the Veterans Crisis Line maintained by the Secretary of Veterans Affairs. (Public Law No: 116-172, 10/17/2020)

State law

2) Establishes the Donahoe Higher Education Act, setting forth the mission of the University of California (UC), CSU, and CCC. (Education Code (EC) § 66010, et seq.)

3) Confers upon the CSU Trustees the powers, duties, and functions with respect to the management, administration, control of the CSU system and provides that the Trustees are responsible for the rule of government of their appointees and employees. (EC § 66606 and 89500, et seq.)

4) Establishes the CCC under the administration of the Board of Governors of the

CCC, as one of the segments of public postsecondary education in this state. The CCC shall be comprised of community college districts. (EC § 70900)

5) Authorizes each campus of the CCC, CSU, and UC to establish a campus mental health hotline for students to access mental health services remotely. (EC § 66027.8)

6) Requires, beginning July 1, 2019, a public or private institution of higher education that issues student identification cards to have printed on either side of the cards the telephone number for the National Suicide Prevention Lifeline and authorizes, beginning July 1, 2019, the institutions that issue student identification cards to have printed on either side of the cards: 1) the Crisis Text Line; 2) the campus police or security telephone number or, if the campus does not have a campus police or security telephone number, the local nonemergency telephone number; and, 3) a local suicide prevention hotline telephone number. Requires a school or institution of higher education that has a supply of unissued identification cards that do not comply with the requirements of this bill to issue those identification cards until that supply is depleted. Specifies that the requirements apply for an identification card issued for the first time, and to identification cards issued to replace a damaged or lost identification card. (EC § 215.5)

7) Establishes the Miles Hall Lifeline and Suicide Prevention Act (Act), creating various protocols for the statewide 988 Suicide Prevention System. (GOV § 53123.1, et seq.)

ANALYSIS

This bill:

1. This bill, by January 1, 2026, requires the CCC Chancellor and the CSU Chancellor to:
   1. Develop a plan to make a campus mental health hotline that is operated

by an organization with expertise in student mental health available to students on their respective campuses.

• 1. Submit a report to the Legislature, as specified, on the plan developed.

1. Sunsets the bill’s provisions on January 1, 2027.

STAFF COMMENTS

1. Need for the bill. The 2018 National College Health Assessment found that in 2018, “63% of college student’s surveyed felt overwhelming anxiety, 42% felt so depressed that is was difficult to function, 62% felt very lonely, and 12% have seriously considered suicide.” According to the author, “With the academic and economic burdens of higher education, college students face an overwhelming amount of pressure and struggle with a variety of mental health issues. These mental health struggles have only been exacerbated by the COVID-19 pandemic. It is imperative that we support students not only through academic development, but offer the necessary resources needed to deal with any burdens they may face.”
2. Existing mental health resources. Each CSU campus provides students with ongoing counseling, crisis care, and referrals to local resources for more severe and ongoing mental health needs. Peer-to-peer counseling, group counseling sessions, and educational programming on topics such as stress reduction, finding community on campus, and other topics that help address anxiety. In addition to the mental health services available on each campus, the CSU contracts with a number of out-of-state companies to provide students who require mental health services with 24-hour support. According to CSU, every campus has a contract with a health hotline provider or telehealth provider that facilitates access to qualified counselors after business hours and collaborates with campus mental health staff to coordinate ongoing care. These contracts fill gaps in critical services to meet student demand and assist campuses in addressing counselor hiring challenges. CSU, for example, states that they are able to offer tele-psychiatry to their students through contracts at certain campuses where a full-time psychiatrist cannot be found, particularly in rural parts of the state. Telehealth contracted services can also connect students to local emergency services if necessary. Within the CCC system, 107 colleges have mental health services online. However, services vary and are not necessarily provided by third-party contractors. Seemingly, this bill requires CSU to develop a plan for something it is already doing. However, this measure would have the greatest impact on community colleges and their students.
3. Are there duplicative efforts being made? In 2020, the National Suicide Hotline Designation Act came into effect, establishing 988 as the new three-digit number for the National Suicide Prevention Lifeline. All telephone service providers in the United States must activate the number by July 2022, although some may do so sooner. To prepare for the change, the California Health and Human Services Agency reports that the state is increasing the capacity of its crisis lines to meet any surge in demand for crisis support. While efforts are underway to build a broader continuum of crisis response and stabilization services, the 988 lifeline is one aspect of the continuum that those in need, students and the general public alike, can utilize for mental health and substance use support. When Californians dial 988, they are directed to one of 13 Lifeline crisis call centers. The call center routes calls based on the caller’s area code. Trained crisis counselors staff these call centers, listening, providing support, and sharing resources as needed. Current state law also requires campuses to print campus or local government mental health service phone numbers on student ID cards. Proponents of this measure contend that, although the 988 hotline and other local government mental health resources are publicly available, students benefit more from organizations that are knowledgeable about the mental health challenges resulting from higher education’s academic and economic demands.
4. Include other mental health telephone numbers in the report. Current law already requires public higher education institutions to make telephone numbers of mental health hotlines available to students that are not necessarily operated by a student-focused organization, as described in this bill. Specifically, AB 2122 (Choi, Chapter 183, Statutes of 2022) required each CSU campus and CCC, and requested each UC campus, with a campus mental health hotline, to have printed on student identification cards the telephone number of their campus mental health hotline or the city’s or county’s mental health hotline if the campus does not have a campus mental health hotline. A primary objective of AB 2122 was to ensure adequate access to mental health resources for college students. However, this bill falls short of acknowledging the current policy on access to information on mental health hotlines. Additional information is required in order to ensure that the Legislature has a complete account of the mental health hotlines provided to students by campuses, which may be used to guide future policy. As such, staff recommends that the bill be amended to include in the report to the Legislature a summary of the other types of mental health hotlines that campuses make available to students, including information on the mental health hotlines provided to students pursuant to 66027.8 (a-c inclusive) of the Education Code.
5. Related and prior legislation.

SB 11 (Menjivar, 2023) would required CSU campuses to have one full-time equivalent mental health counselor per 1,500 students. Requires the Department of Health Care Access and Information (HCAI) to administer a noncompetitive grant program to provide qualifying students with grants to incentivize them to become mental health counselors. SB 11 has been referred to the Assembly Appropriations Committee.

AB 2122 (Choi, Chapter 183, Statutes of 2022), required each CSU and CCC campus with a campus mental health hotline, and requests each UC campus with a campus mental health hotline, to have the hotline telephone number printed on campus-issued student identification cards. The law requires a campus without a campus mental health hotline to print the telephone number of its city or county mental health hotline on student identification cards.

AB 624 (Gabriel, 2019), would have required, commencing July 1, 2020, every public postsecondary educational institution and nonsectarian private postsecondary educational institution, to print on student identification cards the telephone numbers for the National Sexual Assault Hotline and a local resource that provides sexual and reproductive health care information, as specified. AB 624 was vetoed by Governor Newsom whose veto message read in part:

“I signed Senate Bill 316 (Chapter 270, Statutes of 2019), which requires schools to list the National Domestic Violence Hotline on student identification cards because I support giving teens and young adults access to resources not readily available in school.

I do not support, however, burdening schools with the job of investigating local reproductive health agencies as the bill would require. There are many agencies across this state that refuse to give women information about all of their reproductive health care options, and I am not persuaded that schools have the appropriate expertise to decide which of these organizations they should direct their students to. Furthermore, I believe the time and money that would be spent on this activity would be better used improving teaching and learning as well as meeting the existing requirements of the California Healthy Youth Act.”

SB 316 (Rubio, Chapter 270, Statutes of 2019), required, in part, commencing on October 1, 2020, public or private institutions of higher education, that issue student identification cards, to print the telephone number for the National Domestic Violence Hotline or a local domestic violence hotline that provides confidential support services for students that have experienced domestic violence or stalking and is available by telephone 24 hours a day on back of those identification cards.

AB 2391 (Harper of 2018), would have required, commencing July 1, 2019, a campus of the CCC or the CSU that issues student ID cards, and request a campus of the UC that issues student ID cards, to include on the back of the student ID cards the telephone numbers for the National Suicide Prevention Lifeline and Crisis Text Line. AB 2391 died in this committee.

SB 972 (Portantino, Chapter 460, Statutes of 2018) required, in part, commencing on July 1, 2019, postsecondary institutions of learning, that issue student ID cards to have printed on either side of the ID card the number for a suicide hotline.

SUPPORT

Generation Up (Sponsor)

American Academy of Pediatrics, California

California Federation of Teachers

Faculty Association of California's Community Colleges

OPPOSITION

None received

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:AB 456

Author:(Maienschein)

As Amended Ver:January 22, 2024

Majority vote

SUMMARY

Requires the Chancellor of the California Community Colleges (CCC) and the Chancellor of the California State University (CSU), on or before January 1, 2026, to do both of the following:

1. Develop a plan to make a campus mental health hotline that is operated by an organization with the expertise in student mental health available to students on their respective campuses; and,
2. Submit a report to the Legislature, as specified, on the plan, as enumerated in 1), above.

Repeals the provisions of this measure on January 1, 2027.

Major Provisions

See the Summary above.

COMMENTS

Student mental health crisis. According to the American College Health Association and the Health Minds Network, which has served as the voice for student health and wellness since 1920, in a recent study and report conducted by the Network, entitled, "The Impact of COVID-19 on College Student Well-Being," the COVID-19 pandemic has worsened mental health among college students. Nationwide, 60% of college students responded that the pandemic had made it more difficult to access mental health care.

Additionally, the study and report found that symptoms of mental health conditions remain high in college students, both before and after the start of the pandemic. Relative to Fall 2019, the prevalence of depression increased and substance use decreased in Spring 2020. Further, in March through May 2020, a higher proportion of students reported that their mental health negatively affected their academic performance.

Lastly, the study and report found that the prevalence of depression among college students nationally increased from 36% in Fall 2019, to 41% in Spring 2021, while the prevalence of anxiety increased form 31% to 34%.

How many mental health hotlines? Committee Staff understands that currently, 13 of the 23 CSU campuses have campus mental health hotlines. Additionally, nine of the 10 University of California (UC) campuses have campus mental health hotlines. It is presently unclear if any of the 116 CCC campuses have campus mental health hotlines.

Committee comments. Is this measure premature? Federal law as listed above, establishes the federal National Suicide Hotline Designation Act, designating the three-digit telephone number "988" as the universal number within the United States for the purpose of the national suicide prevention and mental health crisis hotline system operating through the NSPL maintained by the Assistant Secretary of the Department of Health and Human Services' SAMHSA and the Veterans Crisis Line maintained by the Secretary of Veterans Affairs.

Additionally, state law, pursuant to AB 988 (Bauer-Kahan), Chapter 747, Statutes of 2022, establishes the Miles Hall Lifeline and Suicide Prevention Act (Act).

The Act, in part: 1) Requires, by July 16, 2022, the Office of Emergency Services (OES) to ensure that designated 988 centers utilize technology that allow for transfers between 988 centers and 911 public safety answering points (PSAP); 2) Requires OES, by July 1, 2024, to verify interoperability between 988 and 911. Requires OES to consult with the NSPL and the Federal SAMHSA on any technology requirements for 988 centers; and, 3) Requires California Health and Human Services Agency (CHHSA), by December 31, 2023, to create a set of recommendations to support a five-year implementation plan for a comprehensive 988 system.

Lastly, state law, pursuant to AB 2122 (Choi), Chapter 183, Statutes of 2022, does the following:

1. Authorizes each campus of the UC, the CSU, and the CCC, to establish a mental health hotline for students to access mental health services remotely.
2. Requires each campus of the CSU and the CCC, with a campus mental health hotline, and requests each campus of the UC, with a campus mental health hotline to have printed on either side of campus-issued student identification cards, on or after January 1, 2023, the telephone number of the campus mental health hotline.
3. Additionally, for campuses of the UC, CSU, and CCC that do not have campus mental health hotlines, this measure requires each campus of the CSU and CCC, and requests each campus of the UC, to have printed on either side of campus-issued student identification cards, on or after January 1, 2023, the telephone number of their city's or county's mental health hotline.

The aforementioned state laws have only recently gone into effect – it may be premature to amend this law without having ample time for said laws to be thoroughly implemented.

According to the Author

According to the author, "with the academic and economic burdens of higher education, college students face an overwhelming amount of pressure and struggle with a variety of mental health issues. These mental health struggles have only been exacerbated by the COVID-19 pandemic. It is imperative that we support students not only through academic development, but offer the necessary resources needed to deal with any burdens they may face."

Further, the author contends that, "AB 456 would ensure all students have access to immediate mental health services, not just students who are financially able, helping eliminate financial inequalities."

Arguments in Support

According to the sponsors of this measure, GENup, "now more than ever, it is critical that California equip its students with necessary and easily accessible mental health resources for students to seek mental health support when needed. The increased accessibility to these resources also strives to diminish the stigma around the discussion of receiving support and experiencing mental health challenges."

Further, GENup states, "we are proud to support AB 456 and to work together towards a future in which all of California's students have the ability to easily access the mental health care that they need and deserve."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Assembly Committee on Appropriations, one-time General Fund costs in the tens of thousands of dollars each, for the CCC and CSU to develop the plans report on mental health hotlines.

VOTES

ASM HIGHER EDUCATION: 9-0-3

YES: Mike Fong, Addis, Arambula, Gabriel, Irwin, Low, Ortega, Sanchez, Santiago

ABS, ABST OR NV: Ta, Wallis, Weber

ASM APPROPRIATIONS: 13-0-3

YES: Holden, Sanchez, Arambula, Wood, Calderon, Connolly, Mike Fong, Grayson, Haney, Hart, Lowenthal, Pellerin, Villapudua

ABS, ABST OR NV: Megan Dahle, Dixon, Ta

UPDATED

VERSION: January 22, 2024

CONSULTANT: Jeanice Warden / HIGHER ED. / (916) 319-3960 FN: 0002597

Date of Hearing: April 19, 2023

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Chris Holden, Chair

ABPCA Bill Id:AB 456

Author:(Maienschein) – As Introduced Ver:February 6, 2023

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

SUMMARY:

This bill requires each campus of the California Community Colleges (CCC) and the California State University (CSU), and requests each campus of the University of California (UC), without a campus mental health hotline to establish a campus mental health hotline for students to access mental health services remotely.

Specifically, the hotline is to operate during working hours, as defined by each campus. This bill authorizes a campus, if a verbal hotline cannot be established, to utilize text hotlines or online messaging platforms offered by the campus. The bill also requires that a campus mental health hotline must direct a student to at least one of the following: a licensed mental health therapist, a peer mental health trained support staff member, or a psychiatrist.

FISCAL EFFECT:

The bill language is unclear about whether (a) a campus must have a mental health hotline staffed by an employee of the college or university, or (b) whether a campus may contract out the mental health hotline to a third party. The cost of (a) would be much higher than (b). Both scenarios are presented below.

1. UC
2. Minor and absorbable General Fund costs to UC to continue to contract out mental health hotline services. According to UC, each of UC’s ten campuses already contracts out for a hotline and costs are in the thousands of dollars monthly.
3. Ongoing General Fund costs, potentially in the low millions of dollars annually, to UC, to operate and staff a mental health hotline at each campus. Costs would include technology to operate the hotline and a system to secure sensitive mental health records. In addition, if each campus is required to employ a specialist (either a peer mental health trained support staff member, a licensed mental health therapist, or a psychiatrist) costs per specialist could be as low as $55,000 annually for a peer mental health trained support staff member and as high as $245,000 annually for a psychiatrist.
4. CSU
5. Minor ongoing General Fund costs to CSU to continue to contract out mental health hotline services. According to CSU, each of CSU’s 23 campuses already contracts out for a hotline and costs are in the thousands of dollars monthly. However, two campuses each contract with a hotline for after-hour calls only. If those two campuses switched to hotline services that operate during working hours to comply with this bill, costs may increase slightly.
6. Ongoing General Fund costs, potentially in the millions of dollars annually, to CSU, to operate and staff a mental health hotline at each campus. Costs would include technology to operate the hotlines and a system to secure sensitive mental health records. In addition, if the bill requires each campus to employ a specialist (either a peer mental health trained support staff member, a licensed mental health therapist, or a psychiatrist) costs per specialist could be as low as $55,000 annually for a peer mental health trained support staff member and as high as $245,000 annually for a psychiatrist.
7. CCC
8. Ongoing Proposition 98 General Fund costs, as high as the low millions of dollars, to CCC to contract out mental health hotline services, to the extent campuses do not already contract out for hotlines. The state has 115 CCC campuses. According to the CCC Chancellor’s Office, some CCCs already contract out services. Contracting services are at least $25,000 annually. If each campus contracted out at $25,000 annually, costs across the system would be about $3 million.
9. Ongoing Proposition 98 General Fund costs, potentially in the tens of millions of dollars annually, to CCC, to operate and staff a mental health hotline at each campus. Costs would include technology to operate the hotlines and a system to secure sensitive mental health records. In addition, if the bill requires each campus to employ a specialist (either a peer mental health trained support staff member, a licensed mental health therapist, or a psychiatrist) costs per specialist could be as low as $55,000 annually for a peer mental health trained support staff member and as high as $245,000 annually for a psychiatrist.

The state would need to reimburse these costs to CCC, if the Commission on State Mandates determines the bill’s requirements to be a reimbursable state mandate.

COMMENTS:

1. Purpose. According to the author, “AB 456 would ensure all students have access to immediate mental health services, not just students who are financially able, helping eliminate financial inequalities.”
2. Background. AB 2122 (Choi), Chapter 183, Statutes of 2022, authorized each UC, CSU, and CCC campus to establish a campus mental health hotline. The law also requires each CSU and CCC campus with a campus mental health hotline, and requests each UC campus with a campus mental health hotline, to have the hotline telephone number printed on campus-issued student identification cards. The law requires a campus without a campus mental health hotline to print the telephone number of its city or county mental health hotline on student identification cards.

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

Date of Hearing: March 21, 2023

ASSEMBLY COMMITTEE ON HIGHER EDUCATION

Mike Fong, Chair

ABPCA Bill Id:AB 456 (

Author:Maienschein) – As Introduced Ver:February 6, 2023

SUBJECT: Public postsecondary education: campus mental health hotlines.

SUMMARY: Requires each campus of the California Community Colleges (CCC) and the California State University (CSU), and requests each campus of the University of California (UC) without a campus mental health hotline, to establish a campus mental health hotline for students to access mental health services remotely that operates during working hours. Specifically, this bill:

1. Removes the requirement that any campus of the CCC, CSU, or UC that does not have a campus mental health line print on either side of student identification cards the telephone number of their city’s or county’s mental health hotline.
2. Requires each campus of the CCC and CSU, and requests each campus of the UC without a campus mental health hotline, to establish a campus mental health hotline for students to access mental health services remotely that operates during working hours.
3. Specifies each campus, as enumerated in (2) above, may define its working hours.
4. Authorizes a campus, if a verbal hotline cannot be established, to utilize text hotlines or online messaging platforms offered by the campus.
5. Stipulates that a campus mental health hotline must direct a student to at least one of the following options:
   1. A licensed mental health therapist;
   2. A peer mental health trained support staff; and,
   3. A psychiatrist.
6. Specifies that outside of working hours, a campus mental health hotline may direct a caller to any of the following:
   1. Offline mental health services, including, but not limited to, messaging with the campus’s health center or to off-campus services, such as a national suicide hotline, a California 988 mental health crisis hotline, or a local health center that offers mental health services;
   2. In the case of mental emergencies, to a local or national hotline number that operates 24 hours per day and seven days per week; and,
   3. In the case of physical emergencies, to 911.

EXISTING LAW:

Federal law. Establishes the federal National Suicide Hotline Designation Act, designating the three-digit telephone number “988” as the universal number within the United States for the purpose of the national suicide prevention and mental health crisis hotline system operating through the National Suicide Prevention Lifeline (NSPL) maintained by the Assistant Secretary of the Department of Health and Human Services’ Substance Abuse and Mental Health Services Administration (SAMHSA) and the Veterans Crisis Line maintained by the Secretary of Veterans Affairs. (Public Law No: 116-172, 10/17/2020).

State law.

1. Establishes the UC as a public trust to be administered by the Regents of the UC; and, grants the Regents full powers of organization and government, subject only to such legislative control as may be necessary to insure security of its funds, compliance with the terms of its endowments, statutory requirements around competitive bidding and contracts, sales of property and the purchase of materials, goods and services (Article IX, Section (9)(a) of the California Constitution).
2. Establishes the Donahoe Higher Education Act, setting forth the mission of the UC, CSU, and CCC (Education Code (EC) Section 66010, et seq.).
3. Confers upon the CSU Trustees the powers, duties, and functions with respect to the management, administration, control of the CSU system and provides that the Trustees are responsible for the rule of government of their appointees and employees (EC Sections 66606 and 89500, et seq.).
4. Establishes the CCC under the administration of the Board of Governors of the CCC, as one of the segments of public postsecondary education in this state. The CCC shall be comprised of community college districts (EC Section 70900).
5. Authorizes each campus of the CCC, CSU, and UC to establish a campus mental health hotline for students to access mental health services remotely (EC Section 66027.8).
6. Requires, beginning July 1, 2019, a public or private institution of higher education that issues student ID cards to have printed on either side of the cards the telephone number for the National Suicide Prevention Lifeline and authorizes, beginning July 1, 2019, the institutions that issue student ID cards to have printed on either side of the cards: 1) the Crisis Text Line; 2) the campus police or security telephone number or, if the campus does not have a campus police or security telephone number, the local nonemergency telephone number; and, 3) a local suicide prevention hotline telephone number. Requires a school or institution of higher education that has a supply of unissued identification cards that do not comply with the requirements of this bill to issue those identification cards until that supply is depleted. Specifies that the requirements apply for an ID card issued for the first time, and to ID cards issued to replace a damaged or lost ID card (EC Section 215.5).
7. Establishes the Miles Hall Lifeline and Suicide Prevention Act (Act), creating various protocols for the statewide 988 Suicide Prevention System (GOV, 53123.1, et seq.).

FISCAL EFFECT: Unknown

COMMENTS: Student mental health crisis. According to the American College Health Association and the Health Minds Network, which has served as the voice for student health and wellness since 1920, in a recent study and report conducted by the Network, entitled, “The Impact of COVID-19 on College Student Well-Being,” the COVID-19 pandemic has worsened mental health among college students. Nationwide, 60% of college students responded that the pandemic had made it more difficult to access mental health care.

Additionally, the study and report found that symptoms of mental health conditions remain high in college students, both before and after the start of the pandemic. Relative to Fall 2019, the prevalence of depression increased and substance use decreased in Spring 2020. Further, in March through May 2020, a higher proportion of students reported that their mental health negatively affected their academic performance.

Lastly, the study and report found that the prevalence of depression among college students nationally increased from 36% in Fall 2019, to 41% in Spring 2021, while the prevalence of anxiety increased form 31% to 34%.

Purpose of this measure. According to the author, “With the academic and economic burdens of higher education, college students face an overwhelming amount of pressure and struggle with a variety of mental health issues. These mental health struggles have only been exacerbated by the COVID-19 pandemic. It is imperative that we support students not only through academic development, but offer the necessary resources needed to deal with any burdens they may face.”

The author states, “AB 456 would require CSU campuses, CCC campuses, and request UC campuses to establish a campus mental health hotline, if one does not already exist, for students to access mental health services remotely.”

Further, the author contends that, “AB 456 would ensure all students have access to immediate mental health services, not just students who are financially able, helping eliminate financial inequalities.”

How many mental health hotlines? Committee Staff understands that currently, 13 of the 23 CSU campuses have campus mental health hotlines. Additionally, nine of the 10 UC campuses have campus mental health hotlines. It is presently unclear if any of the 116 CCC campuses have campus mental health hotlines.

Committee comments. Is this measure premature? Federal law as listed above, establishes the federal National Suicide Hotline Designation Act, designating the three-digit telephone number “988” as the universal number within the United States for the purpose of the national suicide prevention and mental health crisis hotline system operating through the NSPL maintained by the Assistant Secretary of the Department of Health and Human Services’ SAMHSA and the Veterans Crisis Line maintained by the Secretary of Veterans Affairs.

Additionally, state law, pursuant to AB 988 (Bauer-Kahan), Chapter 747, Statutes of 2022, establishes the Miles Hall Lifeline and Suicide Prevention Act (Act).

The Act, in part: 1) Requires, by July 16, 2022, the Office of Emergency Services (OES) to ensure that designated 988 centers utilize technology that allow for transfers between 988 centers and 911 public safety answering points (PSAP); 2) Requires OES, by July 1, 2024, to verify interoperability between 988 and 911. Requires OES to consult with the NSPL and the Federal SAMHSA on any technology requirements for 988 centers; and, 3) Requires California Health and Human Services Agency (CHHSA), by December 31, 2023, to create a set of recommendations to support a five-year implementation plan for a comprehensive 988 system.

Lastly, state law, pursuant to AB 2122 (Choi), Chapter 183, Statutes of 2022, does the following:

1. Authorizes each campus of the UC, the CSU, and the CCC, to establish a mental health hotline for students to access mental health services remotely.
2. Requires each campus of the CSU and the CCC, with a campus mental health hotline, and requests each campus of the UC, with a campus mental health hotline to have printed on either side of campus-issued student identification cards, on or after January 1, 2023, the telephone number of the campus mental health hotline.
3. Additionally, for campuses of the UC, CSU, and CCC that do not have campus mental health hotlines, this measure requires each campus of the CSU and CCC, and requests each campus of the UC, to have printed on either side of campus-issued student identification cards, on or after January 1, 2023, the telephone number of their city’s or county’s mental health hotline.

The aforementioned state laws just went into effect – it may be premature to amend this law without having ample time for said laws to be thoroughly implemented.

Moving forward, the author may wish to reach out to the CCC, CSU, and UC and ask for data as to which of their campuses do not have a mental health hotlines, and, pending provided data, look to amend existing law potentially next Session.

Additionally, as currently drafted, this measure authorizes campuses of the CCC, CSU, and UC without a campus mental health hotline to establish a campus mental health hotline for students to access mental health services remotely that operates during working hours. Further, the measure authorizes each campus to establish its own working hours. Traditionally, working hours for a campus of the CCC, CSU, or UC, is 8:00 AM to 5:00 PM. Student mental health crises can take place any time of the day or night.

Moving forward, the author may wish to work with the CCC, CSU, and UC to ensure that the established “working hours” accommodate the needs of the students and allow for an adequate number of professionals to assist the needs of the students.

Prior legislation. Throughout the last few years, several legislative measures have been introduced that sought to ensure students were equipped with necessary contact information for a variety of critical prevention and assistance helpline numbers on their campus-issued student identification cards. Some of the measures, include, but are not limited to, the following:

1. AB 2122 (Choi), Chapter 183, Statutes of 2022, as described in the Committee Comments section of this analysis.
2. AB 624 (Gabriel) of 2019, which was vetoed by the Governor, would, in part, require, commencing July 1, 2020, every public postsecondary educational institution and nonsectarian private postsecondary educational institution, to print on student identification cards the telephone numbers for the National Sexual Assault Hotline and a local resource that provides sexual and reproductive health care information, as specified.
3. SB 316 (Rubio), Chapter 270, Statutes of 2019, required, in part, commencing on October 1, 2020, public or private institutions of higher education, that issue student identification cards, to print the telephone number for the National Domestic Violence Hotline or a local domestic violence hotline that provides confidential support services for students that have experienced domestic violence or stalking and is available by telephone 24 hours a day on back of those identification cards.
4. AB 2391 (Harper) of 2018, which died in the Senate Education Committee, would, in part, require, commencing July 1, 2019, a campus of the CCC or the CSU that issues student ID cards, and request a campus of the UC that issues student ID cards, to include on the back of the student ID cards the telephone numbers for the National Suicide Prevention Lifeline and Crisis Text Line.
5. SB 972 (Portantino), Chapter 460, Statutes of 2018, required, in part, commencing on July 1, 2019, postsecondary institutions of learning, that issue student ID cards to have printed on either side of the ID card the number for a suicide hotline.

REGISTERED SUPPORT / OPPOSITION:

Support

California Federation of Teachers AFL-CIO

GENup (Sponsor)

Opposition

None on file.

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