Existing law requires the Commission on Teacher Credentialing to, among other duties, establish standards for the issuance and renewal of credentials, certificates, and permits, and collect, compile, and disseminate information regarding exemplary practices in supporting and assessing beginning teachers. Existing law establishes the Teacher Residency Grant Program and appropriates funds from the General Fund to the commission to make grants to develop new, or expand, strengthen, or improve access to existing, teacher residency programs that support, among other things, a list of designated shortage fields.

This bill would require the commission to contract with a public relations organization, or other organization with similar expertise, to develop a public awareness campaign that highlights the value and benefits of educational careers in Californias public schools, spanning from prekindergarten and kindergarten to elementary and secondary schools serving pupils in any of grades 1 to 12, inclusive. The bill would require the campaign to recognize the value of the contributions made by public school teachers, encourage individuals to enter the teaching profession, and include information about available high-quality teacher credentialing pathways and financial supports. The bill would authorize the campaign to include the development and distribution of public service announcements related to teacher recruitment and outreach to high school pupils and college students.

Existing law requires the Commission on Teacher Credentialing to, among other duties, establish standards for the issuance and renewal of credentials, certificates, and permits, and collect, compile, and disseminate information regarding exemplary practices in supporting and assessing beginning teachers. Existing law establishes the Teacher Residency Grant Program and appropriates funds from the General Fund to the commission to make grants to develop new, or expand, strengthen, or improve access to existing, teacher residency programs that support, among other things, a list of designated shortage fields.

This bill would require the commission to contract with a public relations organization, or other organization with similar expertise, to develop a public awareness campaign that highlights the value and benefits of educational careers in Californias public schools, spanning from prekindergarten and kindergarten to elementary and secondary schools serving pupils in any of grades 1 to 12, inclusive. The bill would require the campaign to recognize the value of the contributions made by public school teachers, encourage individuals to enter the teaching profession, and include information about available high-quality teacher credentialing pathways and financial supports. The bill would authorize the campaign to include the development and distribution of public service announcements related to teacher recruitment and outreach to high school pupils and college students.

Existing law requires the Commission on Teacher Credentialing to, among other duties, establish standards for the issuance and renewal of credentials, certificates, and permits, and collect, compile, and disseminate information regarding exemplary practices in supporting and assessing beginning teachers. Existing law establishes the Teacher Residency Grant Program and appropriates funds from the General Fund to the commission to make grants to develop new, or expand, strengthen, or improve access to existing, teacher residency programs that support, among other things, a list of designated shortage fields.

This bill would require the commission to contract with a public relations organization, or other organization with similar expertise, to develop a public awareness campaign that highlights the value and benefits of educational careers in Californias public schools, spanning from prekindergarten and kindergarten to elementary and secondary schools serving pupils in any of grades 1 to 12, inclusive. The bill would require the campaign to recognize the value of the contributions made by public school teachers, encourage individuals to enter the teaching profession, and include information about available high-quality teacher credentialing pathways and financial supports. The bill would authorize the campaign to include the development and distribution of public service announcements related to teacher recruitment and outreach to high school pupils and college students. The bill would make the implementation of these provisions contingent upon appropriation by the Legislature.

Existing law requires the Commission on Teacher Credentialing to, among other duties, establish standards for the issuance and renewal of credentials, certificates, and permits, and collect, compile, and disseminate information regarding exemplary practices in supporting and assessing beginning teachers. Existing law establishes the Teacher Residency Grant Program and appropriates funds from the General Fund to the commission to make grants to develop new, or expand, strengthen, or improve access to existing, teacher residency programs that support, among other things, a list of designated shortage fields.

This bill would require the commission to contract with a public relations organization organization, or other organization with similar expertise, to develop a public awareness campaign that highlights the value and benefits of educational careers in Californias public schools, spanning from prekindergarten and kindergarten to elementary and secondary schools serving pupils in any of grades 1 to 12, inclusive. The bill would require the campaign to recognize the value of the contributions made by public school teachers, encourage individuals to enter the teaching profession, and include information about available high-quality teacher credentialing pathways and financial supports. The bill would authorize the campaign to include the development and distribution of public service announcements related to teacher recruitment and outreach to high school pupils and college students. The bill would make the implementation of these provisions contingent upon appropriation by the Legislature.

Existing law establishes the English Language Learner Acquisition and Development Pilot Program, under the administration of the State Department of Education, as a 3-year competitive grant pilot project of 25,000 or more English language learners to be conducted during the 200708 to 200910, inclusive, school years. Under the program, grants are made to local educational agencies, as defined, to identify existing best practices regarding topics including, but not limited to, curriculum, instruction, and staff development for teaching English language learners and promoting English language acquisition and development. The program requires the Superintendent of Public Instruction to establish a 13-to-20 member advisory committee, with specified responsibilities.

This bill would repeal the statutes that establish the program.

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 934

Author:(Muratsuchi)

As Amended Ver:September 8, 2023

Majority vote

SUMMARY

Requires the Commission on Teacher Credentialing (CTC) to contract with a public relations organization to develop a public awareness campaign relating to teacher recruitment; and, states that the Legislative intent that this program not exceed $900,000.

Senate Amendments

Remove the requirement that this program be implemented upon an appropriation for these purposes in the Budget Act.

COMMENTS

What does this bill do? This bill would require the CTC to develop a public awareness campaign. The focus of this campaign would be to highlight the value and benefits of educational careers in California's public prekindergarten through grade 12 schools. The campaign would focus on recognizing the value of the contributions made by public school teachers to encourage individuals to enter the teaching profession. The campaign would include information about the available high quality teacher credentialing pathways and financial supports available. Among other things, the CTC would develop and distribute statewide public service announcements relating to teacher recruitment and outreach to high school and college students.

Governor's 2022 budget proposal. The Governor's proposed 2022-23 budget included $900,000 from the General Fund for the CTC to contract for public outreach to highlight the value and benefits of educational careers in California's prekindergarten through grade 12 schools. This budget proposal was not ultimately funded in the 2022-23 budget.

Most recent data on the status of the teacher workforce. A March 2023 Learning Policy Institute report shows, "In the two years following 2018–19, when many of the new state investments were beginning to be implemented, the number of fully prepared new entrants increased by about 3,300, while the number of emergency-style permits decreased by about 2,500. This increase represents a break from prior trends, in which the number of newly credentialed teachers had been dropping for over 10 years. Nationally, the number of individuals completing teacher preparation programs decreased by 22% between 2012–13 and 2018–19, and California was one of only eight states with increases during that period. The chart on the next page illustrates these data.

According to the Author

"California is experiencing a severe school workforce crisis among both certificated and classified employees. This workforce crisis is exacerbated by the lack of interest in college students pursuing a career in teaching. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers. AB 934 will support the state's numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. This public relations campaign will further raise awareness about careers in teaching and the financial supports available to prospective teachers, thereby increasing the supply of teachers in the coming years."

Arguments in Support

The California Teachers Association states, "The teaching profession involves complex professional expertise which needs to be better understood and more clearly presented to the public. Teaching is a form of professional artistry. John Steinbeck said of his greatest teachers, 'They all loved what they were doing. They did not tell - they catalyzed a burning desire to know. Under their influence, the horizons sprung wide and fear went away and the unknown became knowable. But most important of all, the truth, that dangerous stuff, became beautiful and precious.'

AB 934 will support the state's numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. The campaign will focus on recognizing the value of the contributions made by public school teachers and encourage individuals to enter the teaching profession."

Arguments in Opposition

None on file

FISCAL COMMENTS

According to the Senate Appropriations Committee, while this bill's requirement for the CTC to develop a public awareness campaign would be subject to an appropriation, it could lead to additional one-time General Fund cost pressure for the state to fund it. The extent of the costs is unknown as this bill does not include specific parameters. However, this bill provides that the appropriation is not to exceed $900,000. While an expansive campaign could be more costly, a shorter-term public awareness campaign could possibly be absorbed within existing resources by the CTC.

VOTES:

ASM EDUCATION: 7-0-0

YES: Muratsuchi, Megan Dahle, Juan Carrillo, Hoover, Lee, McCarty, Quirk-Silva

ASM APPROPRIATIONS: 15-0-1

YES: Holden, Megan Dahle, Bryan, Calderon, Wendy Carrillo, Dixon, Mike Fong, Hart, Lowenthal, Mathis, Papan, Pellerin, Sanchez, Weber, Ortega

ABS, ABST OR NV: Robert Rivas

ASSEMBLY FLOOR: 80-0-0

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

SENATE FLOOR: 39-0-1

YES: Allen, Alvarado-Gil, Archuleta, Ashby, Atkins, Becker, Blakespear, Bradford, Cortese, Dahle, Dodd, Durazo, Eggman, Glazer, Gonzalez, Grove, 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: Caballero

UPDATED

VERSION: September 8, 2023

CONSULTANT: Chelsea Kelley / ED. / (916) 319-2087 FN: 0002338

 THIRD READING  

Bill No: AB 934

Author: Muratsuchi (D)

Amended: 9/8/23 in Senate

Vote: 21

SENATE EDUCATION COMMITTEE: 7-0, 6/14/23

AYES: Newman, Ochoa Bogh, Cortese, Glazer, McGuire, Smallwood-Cuevas, Wilk

SENATE APPROPRIATIONS COMMITTEE: 7-0, 9/1/23

AYES: Portantino, Jones, Ashby, Bradford, Seyarto, Wahab, Wiener

ASSEMBLY FLOOR: 80-0, 5/30/23 - See last page for vote

SUBJECT: Commission on Teacher Credentialing: public awareness campaign

SOURCE: Author

DIGEST:

This bill requires the Commission on Teacher Credentialing (CTC) to develop a public awareness campaign relating to teacher recruitment, as specified.

Senate Floor Amendments of 9/8/23 remove the contingency of the bill’s provisions upon appropriation by the Legislature for its purposes.

ANALYSIS:

Existing law:

1. Establishes the minimum requirements for the preliminary multiple subject, single subject, or education specialist teaching credential as all of the following:
   1. A baccalaureate degree or higher degree from a regionally accredited institution of higher education;
   2. Demonstration of basic skills proficiency; and
   3. Satisfactory completion of a program of professional preparation that has been accredited by the Committee on Accreditation on the basis of standards of program quality and effectiveness that have been adopted by the CTC.
2. Requires the CTC to award the following types of credentials to applicants whose preparation and competence satisfy its standards:
   1. Basic teaching credentials for teaching in kindergarten, or any of grades 1 to 12, inclusive, in public schools in the state.
   2. Credentials for teaching adult education classes and vocational education classes.
   3. Credentials for teaching specialties, including, but not necessarily limited to, bilingual education, early childhood education, and special education. The CTC may grant credentials to any candidate who concurrently meets the CTC’s standards of preparation and competence for the preliminary basic teaching credential and the preliminary specialty credential.
   4. Credentials for school services, for positions including, but not necessarily limited to, administrators, school counselors, speech-language therapists, audiologists, school psychologists, library media teachers, supervisors of attendance, and school nurses.
3. Authorizes the CTC to issue single subject teaching credentials in agriculture, art, biological sciences, business, chemistry, dance, English, geosciences, health science, home economics, industrial and technology education (ITE), mathematics, music, physics, physical education, science (various subjects), social science, theater, and world languages (English language development and languages other than English).
4. Authorizes the CTC to issue credentials for teaching specialties, including bilingual education, early childhood education, and special education (education specialist). Requires education specialist teaching credentials to be based upon a baccalaureate degree from an accredited institution, completion of a program of professional preparation, and standards that the CTC may establish.

This bill:

1. Requires the CTC to contract with a public relations organization, or other organization with similar expertise, to develop a public awareness campaign relating to teacher recruitment.
2. Requires that the focus of this campaign be to highlight the value and benefits of educational careers in California's public prekindergarten through grade 12 schools.
3. Requires the campaign to recognize the value of the contributions made by public school teachers and to encourage individuals to enter the teaching profession.
4. Requires the campaign to include information about the available high quality teacher credentialing pathways and financial supports available.
5. Authorizes the CTC to develop and distribute statewide public service announcements relating to teacher recruitment and outreach to high school and college students.

Comments

1. Need for the bill. According to the author, “California is experiencing a severe school workforce crisis among both certificated and classified employees. This workforce crisis is exacerbated by the lack of interest in college students pursuing a career in teaching. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers. AB 934 will support the state’s numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. This public relations campaign will further raise awareness about careers in teaching and the financial supports available to prospective teachers, thereby increasing the supply of teachers in the coming years.”
2. Recent budget activity. The Governor’s proposed 2022-23 budget included $900,000 from the General Fund for the CTC to contract for public outreach to highlight the value and benefits of educational careers in California’s prekindergarten through grade 12 schools. This budget proposal was not ultimately funded in the 2022-23 budget.
3. Learning Policy Institute (LPI) report. The LPI’s 2016 report, “Addressing California’s Emerging Teacher Shortage: An Analysis of Sources and Solutions” included the following summary: “After many years of teacher layoffs in California, school districts around the state are hiring again. With the influx of new K-12 funding, districts are looking to lower student-teacher ratios and reinstate classes and programs that were reduced or eliminated during the Great Recession. However, mounting evidence indicates that teacher supply has not kept pace with the increased demand.” The report included the following findings:
   1. Enrollment in educator preparation programs has dropped by more than 70 percent over the last decade.
   2. In 2014-15, provisional and short-term permits nearly tripled from the number issued two years earlier, growing from about 850 to more than 2,400.
   3. The number of teachers hired on substandard permits and credentials nearly doubled in the last two years, to more than 7,700 comprising a third of all the new credentials issued in 2014-15.
   4. Estimated teacher hires for the 2015-16 school year increased by 25 percent from the previous year while enrollment in the University of California and the California State University teacher education programs increased by only about 3.8 percent.

The LPI report offered several policy recommendations for consideration, including the creation of more innovative pipelines into teaching.

1. Legislative Analyst Office (LAO) assessment. As part of the Proposition 98 Education Analysis for the 2016-17 Governor’s Budget released in February 2016, the LAO included a section on teacher workforce trends in which it examined evidence for teacher shortages in specific areas, identified and assessed past policy responses to these shortages, and raised issues for the Legislature to consider going forward in terms of new policy responses. In the report, the LAO indicated that the statewide teacher market will help alleviate existing shortages over time and that the shortages may decrease without direct state action. However, the LAO noted there are perennial staffing difficulties in specific areas, such as special education, math, and science, for which they encouraged the Legislature to address with narrowly tailored policies rather than with broad statewide policies.
2. Already weak teaching pipeline further damaged by COVID-19 education disruptions. A March 2021 report by the LPI raised concerns about the effects of the COVID-19 pandemic on the teacher shortage in California:
   1. Teacher shortages remain a critical problem. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Shortages are especially concerning as a return to in-person instruction will require even more teachers to accommodate physical distancing requirements. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers.
   2. Teacher pipeline problems are exacerbated by teacher testing policies and inadequate financial aid for completing preparation. Many districts attributed shortages to having a limited pool of fully credentialed applicants, with more than half reporting that testing requirements and lack of financial support for teacher education pose barriers to entry into teaching.
   3. Teacher workload and burnout are major concerns. The transition to online and hybrid learning models has had a steep learning curve and poses ongoing challenges that have been a primary contributor to some teachers’ decisions to retire earlier than previously planned. With district leaders estimating that teacher workloads have at least doubled, many were concerned that the stressors of managing the challenges of the pandemic on top of the challenges of an increased workload could lead to teacher burnout and increased turnover rates.
   4. Growing retirements and resignations further reduce supply. In some districts, retirements and resignations are contributing to shortages, while in others, these retirements and resignations offset the need for anticipated layoffs due to expected budget cuts this school year. District leaders anticipate higher retirement rates next year, which could exacerbate teacher shortages.

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

According to the Senate Appropriations Committee, the bill could lead to additional one-time General Fund cost pressure for the state to fund. The extent of the costs are unknown as the bill does not include specific parameters. However, the bill states that it is the intent of the Legislature that the cost of the campaign not exceed $900,000. While an expansive campaign could be more costly, a shorter-term public awareness campaign could possibly be absorbed within existing resources by the CTC.

SUPPORT: (Verified 9/11/23)

California Federation of Teachers

California Teachers Association
California School Boards Association
Children Now

OPPOSITION: (Verified 9/11/23)

None received

ASSEMBLY FLOOR: 80-0, 5/30/23

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

Prepared by: Ian Johnson / ED. / (916) 651-4105

9/11/23 17:50:57

**** END ****

 THIRD READING  

Bill No: AB 934

Author: Muratsuchi (D)

Amended: 5/1/23 in Assembly

Vote: 21

SENATE EDUCATION COMMITTEE: 7-0, 6/14/23

AYES: Newman, Ochoa Bogh, Cortese, Glazer, McGuire, Smallwood-Cuevas, Wilk

SENATE APPROPRIATIONS COMMITTEE: 7-0, 9/1/23

AYES: Portantino, Jones, Ashby, Bradford, Seyarto, Wahab, Wiener

ASSEMBLY FLOOR: 80-0, 5/30/23 - See last page for vote

SUBJECT: Commission on Teacher Credentialing: public awareness campaign

SOURCE: Author

DIGEST:

This bill requires the Commission on Teacher Credentialing (CTC), subject to an appropriation of no more than $900,000, to develop a public awareness campaign relating to teacher recruitment, as specified.

ANALYSIS:

Existing law:

1. Establishes the minimum requirements for the preliminary multiple subject, single subject, or education specialist teaching credential as all of the following:
   1. A baccalaureate degree or higher degree from a regionally accredited institution of higher education;
   2. Demonstration of basic skills proficiency; and
   3. Satisfactory completion of a program of professional preparation that has been accredited by the Committee on Accreditation on the basis of standards of program quality and effectiveness that have been adopted by the CTC.
2. Requires the CTC to award the following types of credentials to applicants whose preparation and competence satisfy its standards:
   1. Basic teaching credentials for teaching in kindergarten, or any of grades 1 to 12, inclusive, in public schools in the state.
   2. Credentials for teaching adult education classes and vocational education classes.
   3. Credentials for teaching specialties, including, but not necessarily limited to, bilingual education, early childhood education, and special education. The CTC may grant credentials to any candidate who concurrently meets the CTC’s standards of preparation and competence for the preliminary basic teaching credential and the preliminary specialty credential.
   4. Credentials for school services, for positions including, but not necessarily limited to, administrators, school counselors, speech-language therapists, audiologists, school psychologists, library media teachers, supervisors of attendance, and school nurses.
3. Authorizes the CTC to issue single subject teaching credentials in agriculture, art, biological sciences, business, chemistry, dance, English, geosciences, health science, home economics, industrial and technology education (ITE), mathematics, music, physics, physical education, science (various subjects), social science, theater, and world languages (English language development and languages other than English).
4. Authorizes the CTC to issue credentials for teaching specialties, including bilingual education, early childhood education, and special education (education specialist). Requires education specialist teaching credentials to be based upon a baccalaureate degree from an accredited institution, completion of a program of professional preparation, and standards that the CTC may establish.

This bill:

1. Requires the CTC, subject to an appropriation of no more than $900,000, to contract with a public relations organization, or other organization with similar expertise, to develop a public awareness campaign relating to teacher recruitment.
2. Requires that the focus of this campaign be to highlight the value and benefits of educational careers in California's public prekindergarten through grade 12 schools.
3. Requires the campaign to recognize the value of the contributions made by public school teachers and to encourage individuals to enter the teaching profession.
4. Requires the campaign to include information about the available high quality teacher credentialing pathways and financial supports available.
5. Authorizes the CTC to develop and distribute statewide public service announcements relating to teacher recruitment and outreach to high school and college students.

Comments

1. Need for the bill. According to the author, “California is experiencing a severe school workforce crisis among both certificated and classified employees. This workforce crisis is exacerbated by the lack of interest in college students pursuing a career in teaching. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers. AB 934 will support the state’s numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. This public relations campaign will further raise awareness about careers in teaching and the financial supports available to prospective teachers, thereby increasing the supply of teachers in the coming years.”
2. Recent budget activity. The Governor’s proposed 2022-23 budget included $900,000 from the General Fund for the CTC to contract for public outreach to highlight the value and benefits of educational careers in California’s prekindergarten through grade 12 schools. This budget proposal was not ultimately funded in the 2022-23 budget.
3. Learning Policy Institute (LPI) report. The LPI’s 2016 report, “Addressing California’s Emerging Teacher Shortage: An Analysis of Sources and Solutions” included the following summary: “After many years of teacher layoffs in California, school districts around the state are hiring again. With the influx of new K-12 funding, districts are looking to lower student-teacher ratios and reinstate classes and programs that were reduced or eliminated during the Great Recession. However, mounting evidence indicates that teacher supply has not kept pace with the increased demand.” The report included the following findings:
   1. Enrollment in educator preparation programs has dropped by more than 70 percent over the last decade.
   2. In 2014-15, provisional and short-term permits nearly tripled from the number issued two years earlier, growing from about 850 to more than 2,400.
   3. The number of teachers hired on substandard permits and credentials nearly doubled in the last two years, to more than 7,700 comprising a third of all the new credentials issued in 2014-15.
   4. Estimated teacher hires for the 2015-16 school year increased by 25 percent from the previous year while enrollment in the University of California and the California State University teacher education programs increased by only about 3.8 percent.

The LPI report offered several policy recommendations for consideration, including the creation of more innovative pipelines into teaching.

1. Legislative Analyst Office (LAO) assessment. As part of the Proposition 98 Education Analysis for the 2016-17 Governor’s Budget released in February 2016, the LAO included a section on teacher workforce trends in which it examined evidence for teacher shortages in specific areas, identified and assessed past policy responses to these shortages, and raised issues for the Legislature to consider going forward in terms of new policy responses. In the report, the LAO indicated that the statewide teacher market will help alleviate existing shortages over time and that the shortages may decrease without direct state action. However, the LAO noted there are perennial staffing difficulties in specific areas, such as special education, math, and science, for which they encouraged the Legislature to address with narrowly tailored policies rather than with broad statewide policies.
2. Already weak teaching pipeline further damaged by COVID-19 education disruptions. A March 2021 report by the LPI raised concerns about the effects of the COVID-19 pandemic on the teacher shortage in California:
   1. Teacher shortages remain a critical problem. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Shortages are especially concerning as a return to in-person instruction will require even more teachers to accommodate physical distancing requirements. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers.
   2. Teacher pipeline problems are exacerbated by teacher testing policies and inadequate financial aid for completing preparation. Many districts attributed shortages to having a limited pool of fully credentialed applicants, with more than half reporting that testing requirements and lack of financial support for teacher education pose barriers to entry into teaching.
   3. Teacher workload and burnout are major concerns. The transition to online and hybrid learning models has had a steep learning curve and poses ongoing challenges that have been a primary contributor to some teachers’ decisions to retire earlier than previously planned. With district leaders estimating that teacher workloads have at least doubled, many were concerned that the stressors of managing the challenges of the pandemic on top of the challenges of an increased workload could lead to teacher burnout and increased turnover rates.
   4. Growing retirements and resignations further reduce supply. In some districts, retirements and resignations are contributing to shortages, while in others, these retirements and resignations offset the need for anticipated layoffs due to expected budget cuts this school year. District leaders anticipate higher retirement rates next year, which could exacerbate teacher shortages.

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

According to the Senate Appropriations Committee, while the bill’s requirement for the CTC to develop a public awareness campaign would be subject to an appropriation, it could lead to additional one-time General Fund cost pressure for the state to fund it. The extent of the costs is unknown as the bill does not include specific parameters. However, the bill provides that the appropriation is not to exceed $900,000. While an expansive campaign could be more costly, a shorter-term public awareness campaign could possibly be absorbed within existing resources by the CTC.

SUPPORT: (Verified 9/1/23)

California Federation of Teachers

California Teachers Association
California School Boards Association
Children Now

OPPOSITION: (Verified 9/1/23)

None received

ASSEMBLY FLOOR: 80-0, 5/30/23

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

Prepared by: Ian Johnson / ED. / (916) 651-4105

9/2/23 14:46:02

**** END ****

SENATE COMMITTEE ON

Senator Anthony Portantino, Chair

2023 - 2024 Regular Session

AB 934 (Muratsuchi) - Commission on Teacher Credentialing: public awareness campaign

Bill Summary:

This bill requires the Commission on Teacher Credentialing (CTC), subject to an appropriation of no more than $900,000, to develop a public awareness campaign relating to teacher recruitment, as specified.

Fiscal Impact:

While the bill’s requirement for the CTC to develop a public awareness campaign would be subject to an appropriation, it could lead to additional one-time General Fund cost pressure for the state to fund it. The extent of the costs is unknown as the bill does not include specific parameters. However, the bill provides that the appropriation is not to exceed $900,000. While an expansive campaign could be more costly, a shorter-term public awareness campaign could possibly be absorbed within existing resources by the CTC.

Background:

According to the author, “California is experiencing a severe school workforce crisis among both certificated and classified employees. This workforce crisis is exacerbated by the lack of interest in college students pursuing a career in teaching. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers. AB 934 will support the state’s numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. This public relations campaign will further raise awareness about careers in teaching and the financial supports available to prospective teachers, thereby increasing the supply of teachers in the coming years.”

Proposed Law:

This bill requires the CTC, subject to an appropriation of no more than $900,000, to contract with a public relations organization, or other organization with similar expertise, to develop a public awareness campaign relating to teacher recruitment. The focus of this campaign shall be to highlight the value and benefits of educational careers in California's public prekindergarten through grade 12 schools.

This bill requires the campaign to recognize the value of the contributions made by public school teachers and to encourage individuals to enter the teaching profession and to include information about the available high quality teacher credentialing pathways and financial supports available.

This bill authorizes the CTC to develop and distribute statewide public service announcements relating to teacher recruitment and outreach to high school and college students.

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Josh Newman, Chair

2023 - 2024 Regular

Bill No: Hearing Date: June 14, 2023

Subject: .

SUMMARY

This bill requires the Commission on Teacher Credentialing (CTC), subject to an appropriation of no more than $900,000, to develop a public awareness campaign relating to teacher recruitment, as specified.

BACKGROUND

Existing law:

1. Establishes the minimum requirements for the preliminary multiple subject, single subject, or education specialist teaching credential as all of the following:
   1. A baccalaureate degree or higher degree from a regionally accredited institution of higher education;
   2. Demonstration of basic skills proficiency; and
   3. Satisfactory completion of a program of professional preparation that has been accredited by the Committee on Accreditation on the basis of standards of program quality and effectiveness that have been adopted by the CTC.
2. Requires the CTC to award the following types of credentials to applicants whose preparation and competence satisfy its standards:
   1. Basic teaching credentials for teaching in kindergarten, or any of grades 1 to 12, inclusive, in public schools in the state.
   2. Credentials for teaching adult education classes and vocational education classes.
   3. Credentials for teaching specialties, including, but not necessarily limited to, bilingual education, early childhood education, and special education. The CTC may grant credentials to any candidate who concurrently meets the CTC’s standards of preparation and competence for the preliminary basic teaching credential and the preliminary specialty credential.
   4. Credentials for school services, for positions including, but not necessarily limited to, administrators, school counselors, speech-language therapists, audiologists, school psychologists, library media teachers, supervisors of attendance, and school nurses.
3. Authorizes the CTC to issue single subject teaching credentials in agriculture, art, biological sciences, business, chemistry, dance, English, geosciences, health science, home economics, industrial and technology education (ITE), mathematics, music, physics, physical education, science (various subjects), social science, theater, and world languages (English language development and languages other than English).
   
4. Authorizes the CTC to issue credentials for teaching specialties, including bilingual education, early childhood education, and special education (education specialist). Requires education specialist teaching credentials to be based upon a baccalaureate degree from an accredited institution, completion of a program of professional preparation, and standards that the CTC may establish.

ANALYSIS

This bill:

1. Requires the CTC, subject to an appropriation of no more than $900,000, to contract with a public relations organization, or other organization with similar expertise, to develop a public awareness campaign relating to teacher recruitment.
2. Requires that the focus of this campaign be to highlight the value and benefits of educational careers in California's public prekindergarten through grade 12 schools.
3. Requires the campaign to recognize the value of the contributions made by public school teachers and to encourage individuals to enter the teaching profession.
4. Requires the campaign to include information about the available high quality teacher credentialing pathways and financial supports available.
5. Authorizes the CTC to develop and distribute statewide public service announcements relating to teacher recruitment and outreach to high school and college students.

STAFF COMMENTS

1. Need for the bill. According to the author, “California is experiencing a severe school workforce crisis among both certificated and classified employees. This workforce crisis is exacerbated by the lack of interest in college students pursuing a career in teaching. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers. AB 934 will support the state’s numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. This public relations campaign will further raise awareness about careers in teaching and the financial supports available to prospective teachers, thereby increasing the supply of teachers in the coming years.”
2. Recent budget activity. The Governor’s proposed 2022-23 budget included $900,000 from the General Fund for the CTC to contract for public outreach to highlight the value and benefits of educational careers in California’s prekindergarten through grade 12 schools. This budget proposal was not ultimately funded in the 2022-23 budget.
3. Learning Policy Institute (LPI) report. The LPI’s 2016 report, “Addressing California’s Emerging Teacher Shortage: An Analysis of Sources and Solutions” included the following summary: “After many years of teacher layoffs in California, school districts around the state are hiring again. With the influx of new K-12 funding, districts are looking to lower student-teacher ratios and reinstate classes and programs that were reduced or eliminated during the Great Recession. However, mounting evidence indicates that teacher supply has not kept pace with the increased demand.” The report included the following findings:
   1. Enrollment in educator preparation programs has dropped by more than 70 percent over the last decade.
   2. In 2014-15, provisional and short-term permits nearly tripled from the number issued two years earlier, growing from about 850 to more than 2,400.
   3. The number of teachers hired on substandard permits and credentials nearly doubled in the last two years, to more than 7,700 comprising a third of all the new credentials issued in 2014-15.
   4. Estimated teacher hires for the 2015-16 school year increased by 25 percent from the previous year while enrollment in the University of California and the California State University teacher education programs increased by only about 3.8 percent.

The LPI report offered several policy recommendations for consideration, including the creation of more innovative pipelines into teaching.

1. Legislative Analyst Office (LAO) assessment. As part of the Proposition 98 Education Analysis for the 2016-17 Governor’s Budget released in February 2016, the LAO included a section on teacher workforce trends in which it examined evidence for teacher shortages in specific areas, identified and assessed past policy responses to these shortages, and raised issues for the Legislature to consider going forward in terms of new policy responses. In the report, the LAO indicated that the statewide teacher market will help alleviate existing shortages over time and that the shortages may decrease without direct state action. However, the LAO noted there are perennial staffing difficulties in specific areas, such as special education, math, and science, for which they encouraged the Legislature to address with narrowly tailored policies rather than with broad statewide policies.
2. Already weak teaching pipeline further damaged by COVID-19 education disruptions. A March 2021 report by the LPI raised concerns about the effects of the COVID-19 pandemic on the teacher shortage in California:
   1. Teacher shortages remain a critical problem. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Shortages are especially concerning as a return to in-person instruction will require even more teachers to accommodate physical distancing requirements. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers.
   2. Teacher pipeline problems are exacerbated by teacher testing policies and inadequate financial aid for completing preparation. Many districts attributed shortages to having a limited pool of fully credentialed applicants, with more than half reporting that testing requirements and lack of financial support for teacher education pose barriers to entry into teaching.
   3. Teacher workload and burnout are major concerns. The transition to online and hybrid learning models has had a steep learning curve and poses ongoing challenges that have been a primary contributor to some teachers’ decisions to retire earlier than previously planned. With district leaders estimating that teacher workloads have at least doubled, many were concerned that the stressors of managing the challenges of the pandemic on top of the challenges of an increased workload could lead to teacher burnout and increased turnover rates.
   4. Growing retirements and resignations further reduce supply. In some districts, retirements and resignations are contributing to shortages, while in others, these retirements and resignations offset the need for anticipated layoffs due to expected budget cuts this school year. District leaders anticipate higher retirement rates next year, which could exacerbate teacher shortages.

SUPPORT

Children Now

OPPOSITION

None received

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ASSEMBLY THIRD READING

ATR Bill Id:AB 934

Author:(Muratsuchi)

As Amended Ver:May 1, 2023

Majority vote

SUMMARY

Requires the Commission on Teacher Credentialing (CTC), subject to an appropriation of no more than $900,000, to contract with a public relations organization to develop a public awareness campaign relating to teacher recruitment.

Major Provisions

1. Requires the campaign to recognize the value of the contributions made by public school teachers and to encourage individuals to enter the teaching profession.
2. Requires the campaign to include information about the available high quality teacher credentialing pathways and financial supports available.
3. Authorizes the CTC to develop and distribute statewide public service announcements (PSAs) relating to teacher recruitment and outreach to high school and college students.
4. States that the requirements of this bill are subject to an appropriation of no more than $900,000.

COMMENTS

What does this bill do? AB 934 would require the CTC to develop a public awareness campaign, subject to an appropriation of up to $900,000. The focus of this campaign would be to highlight the value and benefits of educational careers in California's public prekindergarten through grade 12 schools. The campaign would focus on recognizing the value of the contributions made by public school teachers to encourage individuals to enter the teaching profession. The campaign would include information about the available high quality teacher credentialing pathways and financial supports available. Among other things, the CTC would develop and distribute statewide PSAs relating to teacher recruitment and outreach to high school and college students.

Governor’s 2022 budget proposal. The Governor's proposed 2022-23 budget included $900,000 from the General Fund for the CTC to contract for public outreach to highlight the value and benefits of educational careers in California’s prekindergarten through grade 12 schools. This budget proposal was not ultimately funded in the 2022-23 budget.

Most recent data on the status of the teacher workforce. A March 2023 Learning Policy Institute report shows, "In the two years following 2018–19, when many of the new state investments were beginning to be implemented, the number of fully prepared new entrants increased by about 3,300, while the number of emergency-style permits decreased by about 2,500. This increase represents a break from prior trends, in which the number of newly credentialed teachers had been dropping for over 10 years. Nationally, the number of individuals completing teacher preparation programs decreased by 22% between 2012–13 and 2018–19, and California was one of only eight states with increases during that period. The chart below illustrates these data.

According to the Author

"California is experiencing a severe school workforce crisis among both certificated and classified employees. This workforce crisis is exacerbated by the lack of interest in college students pursuing a career in teaching. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers. AB 934 will support the state's numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. This public relations campaign will further raise awareness about careers in teaching and the financial supports available to prospective teachers, thereby increasing the supply of teachers in the coming years."

Arguments in Support

The California Teachers Association states, "The teaching profession involves complex professional expertise which needs to be better understood and more clearly presented to the public. Teaching is a form of professional artistry. John Steinbeck said of his greatest teachers, 'They all loved what they were doing. They did not tell - they catalyzed a burning desire to know. Under their influence, the horizons sprung wide and fear went away and the unknown became knowable. But most important of all, the truth, that dangerous stuff, became beautiful and precious.'

AB 934 will support the state's numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. The campaign will focus on recognizing the value of the contributions made by public school teachers and encourage individuals to enter the teaching profession."

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Assembly Appropriations Committee, unknown General Fund costs to CTC to contract with an entity for the campaign. The bill does not provide specific direction about what the campaign is to entail. If a contract with an outside entity is short-term and very sparse, costs likely would be minor and absorbable to CTC. However, if a contract with an outside entity is long-term and expansive, costs likely would be higher to CTC. The bill specifies the appropriation for the campaign is not to exceed $900,000.

VOTES

ASM EDUCATION: 7-0-0

YES: Muratsuchi, Megan Dahle, Juan Carrillo, Hoover, Lee, McCarty, Quirk-Silva

ASM APPROPRIATIONS: 15-0-1

YES: Holden, Megan Dahle, Bryan, Calderon, Wendy Carrillo, Dixon, Mike Fong, Hart, Lowenthal, Mathis, Papan, Pellerin, Sanchez, Weber, Ortega

ABS, ABST OR NV: Robert Rivas

UPDATED

VERSION: May 1, 2023

CONSULTANT: Chelsea Kelley / ED. / (916) 319-2087 FN: 0000806

Date of Hearing: May 10, 2023

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Chris Holden, Chair

ABPCA Bill Id:AB 934

Author:(Muratsuchi) – As Amended Ver:May 1, 2023

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

SUMMARY:

This bill requires, contingent on appropriation, the Commission on Teacher Credentialing (CTC) to contract with an organization to develop a public awareness campaign highlighting the value and benefits of an educational career in public schools. The bill states the intent of the Legislature that the appropriation for the program is not to exceed $900,000.

FISCAL EFFECT:

Unknown General Fund costs to CTC to contract with an entity for the campaign. The bill does not provide specific direction about what the campaign is to entail. If a contract with an outside entity is short-term and very sparse, costs likely would be minor and absorbable to CTC. However, if a contract with an outside entity is long-term and expansive, costs likely would be higher to CTC. The bill specifies the appropriation for the campaign is not to exceed $900,000.

COMMENTS:

Purpose. According to the author:

California is experiencing a severe school workforce crisis among both certificated and classified employees. This workforce crisis is exacerbated by the lack of interest in college students pursuing a career in teaching…AB 934 will support the state’s numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. This public relations campaign will further raise awareness about careers in teaching and the financial supports available to prospective teachers, thereby increasing the supply of teachers in the coming years.

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

Date of Hearing: April 26, 2023

ASSEMBLY COMMITTEE ON EDUCATION

Al Muratsuchi, Chair

ABPCA Bill Id:AB 934 (

Author:Muratsuchi) – As Amended Ver:April 5, 2023

SUBJECT: Commission on Teacher Credentialing: public awareness campaign.

SUMMARY: Requires the Commission on Teacher Credentialing (CTC), subject to an appropriation of no more than $900,000, to contract with a public relations organization to develop a public awareness campaign relating to teacher recruitment. Specifically, this bill:

1. Requires the focus of this campaign to be to highlight the value and benefits of educational careers in California's public prekindergarten through grade 12 schools.
2. Requires the campaign to recognize the value of the contributions made by public school teachers and to encourage individuals to enter the teaching profession.
3. Requires the campaign to include information about the available high quality teacher credentialing pathways and financial supports available.
4. Authorizes the CTC to develop and distribute statewide public service announcements relating to teacher recruitment and outreach to high school and college students.
5. States that the requirements of this bill are subject to an appropriation of no more than $900,000.

EXISTING LAW:

1. Establishes the minimum requirements for the preliminary multiple subject, single subject, or education specialist teaching credential as all of the following:
   1. A baccalaureate degree or higher degree from a regionally accredited institution of higher education;
   2. Demonstration of basic skills proficiency; and
   3. Satisfactory completion of a program of professional preparation that has been accredited by the Committee on Accreditation on the basis of standards of program quality and effectiveness that have been adopted by the CTC. (Education Code (EC) 44259)
2. Requires the CTC to award the following types of credentials to applicants whose preparation and competence satisfy its standards:
   1. Basic teaching credentials for teaching in kindergarten, or any of grades 1 to 12, inclusive, in public schools in the state.
   2. Credentials for teaching adult education classes and vocational education classes.
   3. Credentials for teaching specialties, including, but not necessarily limited to, bilingual education, early childhood education, and special education. The CTC may grant credentials to any candidate who concurrently meets the CTC’s standards of preparation and competence for the preliminary basic teaching credential and the preliminary specialty credential.
   4. Credentials for school services, for positions including, but not necessarily limited to, administrators, school counselors, speech-language therapists, audiologists, school psychologists, library media teachers, supervisors of attendance, and school nurses. (EC 44225)
3. Authorizes the CTC to issue single subject teaching credentials in agriculture, art, biological sciences, business, chemistry, dance, English, geosciences, health science, home economics, industrial and technology education (ITE), mathematics, music, physics, physical education, science (various subjects), social science, theater, and world languages (English language development and languages other than English). (EC 44257)
   
4. Authorizes the CTC to issue credentials for teaching specialties, including bilingual education, early childhood education, and special education (education specialist). Requires education specialist teaching credentials to be based upon a baccalaureate degree from an accredited institution, completion of a program of professional preparation, and standards that the CTC may establish. (EC 44274.2)

FISCAL EFFECT: Unknown

COMMENTS:

Need for the bill. According to the author, “California is experiencing a severe school workforce crisis among both certificated and classified employees. This workforce crisis is exacerbated by the lack of interest in college students pursuing a career in teaching. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers. AB 934 will support the state’s numerous efforts to recruit and retain high quality teachers, by building public awareness about the exciting and meaningful career of teaching. This public relations campaign will further raise awareness about careers in teaching and the financial supports available to prospective teachers, thereby increasing the supply of teachers in the coming years.”

What does this bill do? AB 934 would require the Commission on Teacher Credentialing (CTC) to develop a public awareness campaign, subject to an appropriation of up to $900,000. The focus of this campaign would be to highlight the value and benefits of educational careers in California's public prekindergarten through grade 12 schools. The campaign would focus on recognizing the value of the contributions made by public school teachers and will encourage individuals to enter the teaching profession. The campaign would include information about the available high quality teacher credentialing pathways and financial supports available. Among other things, the CTC would develop and distribute statewide public service announcements relating to teacher recruitment and outreach to high school and college students.

Governor’s 2022 budget proposal. The Governor’s proposed 2022-23 budget included $900,000 from the General Fund for the CTC to contract for public outreach to highlight the value and benefits of educational careers in California’s prekindergarten through grade 12 schools. This budget proposal was not ultimately funded in the 2022-23 budget.

Most recent data on the status of the teacher workforce. A March 2023 Learning Policy Institute report shows, “In the two years following 2018–19, when many of the new state investments were beginning to be implemented, the number of fully prepared new entrants increased by about 3,300, while the number of emergency-style permits decreased by about 2,500. This increase represents a break from prior trends, in which the number of newly credentialed teachers had been dropping for over 10 years. Nationally, the number of individuals completing teacher preparation programs decreased by 22% between 2012–13 and 2018–19, and California was one of only eight states with increases during that period. The chart below illustrates these data.

Teacher shortage further worsened by COVID-19 pandemic.  In the years following the Great Recession, California experienced a dramatic teacher shortage.  According to the Learning Policy Institute (LPI), the number of substandard credentials and permits issued in California nearly tripled from 2012–13 to 2019–20, numbering more than 13,000 annually.  Enrollment in teacher preparation programs had begun to increase modestly in the years immediately preceding the COVID-19 pandemic.  The pandemic, however, has exacerbated the shortage, due to several factors:

• Teacher shortages remain a critical problem. Most districts have found teachers to be in short supply, especially for math, science, special education, and bilingual education. Most districts are filling hiring needs with teachers on substandard credentials and permits, reflecting a statewide trend of increasing reliance on underprepared teachers.
• New positions from federal and state funding.  According to the LPI, a further contributing factor was the creation of additional positions enabled by federal recovery funds. These funds were appropriated to address needs associated with the pandemic, but they had to be used at least in part to support learning recovery, which in turn increased staffing needs.  LPI cited as an example the Los Angeles Unified School District, which used these funds to offer 4x4 block schedules for the 2021–22 school year, a model which requires about 25% more teachers than the traditional 6-period schedule. Other districts used funds to create intervention positions which then needed to be filled by qualified staff.  The expansion of transitional kindergarten in upcoming years will also increase the demand for credentialed teachers.
• Enrollment in teacher preparation. According to the American Association of Colleges of Teacher Education, in both fall 2020 and 2021, the majority of educator preparation programs reported the pandemic had either no impact or a minimal impact on enrollment (defined as a decline of less than 10%). However, for a sizable minority of institutions, COVID-19 had a significant effect on undergraduate enrollment in educator preparation programs. In both fall 2020 and fall 2021, 20% of institutions reported that the pandemic resulted in a decline in new undergraduate enrollment of 11% or more. The impact on graduate student enrollment is somewhat less dramatic, with 13% of respondents reporting significant declines in the number of new graduate students due to the pandemic.
• Teacher workload and burnout are major concerns. While it is unclear how widespread and temporary this factor may be, there is suggestion that in some areas with severe shortages, staff shortages are becoming a cause of staff shortages in and of themselves.  As noted in the NEA survey of reasons for teacher resignations, 80% of respondents reported “unfilled job openings leading to more work for remaining staff” as a serious problem.  The shortage of substitute teachers presents a particular workload challenge to current teachers. 
• Growing retirements and resignations further reduce supply. In a 2022 report of survey data from large and small school districts serving a total of 20% of California students, the Learning Policy Institute (LPI) found that the pandemic caused an increase in teacher resignations. In one large district, resignations increased by about two-thirds, and leaves of absence increased by about 50%. This is consistent with a nationally representative survey of 3,600 teachers published by the National Education Association (NEA) in 2022, which found that, among school employees (including classified employees), 55% of educators were considering leaving the profession earlier than they had planned, an increase from 37% from 2021, with higher rates for African American and Latino employees. 86% of respondents said that they have seen more educators leaving the profession or retiring early since the start of the pandemic in 2020. Among the most commonly cited reasons for leaving the profession or retiring early were burnout and general stress from the pandemic.

Statewide data on the diversity of teacher preparation programs. According to the LPI’s March 2023 report Educating Teachers in California, which analyzed teacher credentialing program completer surveys, the number of Latino/a candidates has more than doubled between 2016–17 and 2020–21, as shown in the table below. As of 2020– 21, 53% of survey respondents were teachers of color, compared to 39% in 2016–17. Nationally, just 27% of recent completers identified as people of color.

Clinical Pathway by Credential Type and Race/Ethnicity

The LPI report further noted, “not all completers reported equal access to the preparation experiences associated with higher ratings of program effectiveness and more positive perceptions of preparedness. Notably, access to preservice clinical experiences (i.e., student teaching or residency programs) varied considerably by race/ethnicity and credential type. As shown in Figure 3, only 46% of Black and 50% of Native American completers reported participating in student teaching or residencies, compared to at least two thirds of all other racial/ethnic groups. Fewer than one third of education specialists (i.e., special education teachers) participated in student teaching or residencies, as compared to about 7 in 10 multiple subject completers (i.e., elementary teachers) and single subject completers (i.e., secondary teachers). Education specialists were also more likely to report limited student teaching hours or low levels of clinical support from their TPPs.”

Recommended Committee Amendment. Staff recommends the bill be amended to clarify that the CTC may contract with a public relations organization or an organization with similar expertise.

REGISTERED SUPPORT / OPPOSITION:

Support

California Federation of Teachers

California Teachers Association

Opposition

None on file

Analysis Prepared by: Chelsea Kelley / ED. / (916) 319-2087