Existing law establishes the California Promise, which requires at least 20 campuses of the California State University to establish a California Promise program by which the campus enters into a pledge with a qualifying transfer student to support the student in earning a baccalaureate degree within 2 academic years of the students first year of enrollment to the campus, as provided. Existing law repeals these provisions on January 1, 2026.

This bill would rename the California Promise program the Finish in Four and Through in Two program, as provided. The bill would require each campus participating in the Finish in Four and Through in Two program to take specified actions to promote the program. The bill would require the Trustees of the California State University, on or before July 1, 2025, and annually thereafter, until January 1, 2036, 2034, to submit a report to the Legislature that includes specified program participation information. The bill would delete an obsolete reporting requirement. The bill would delete the January 1, 2026, program repeal date, thereby extending the program indefinitely.

Existing law establishes the California Promise, which requires at least 20 campuses of the California State University to establish a California Promise program by which the campus enters into a pledge with a qualifying transfer student to support the student in earning a baccalaureate degree within 2 academic years of the students first year of enrollment to the campus, as provided. Existing law repeals these provisions on January 1, 2026.

This bill would rename the California Promise program the Finish in Four and Through in Two program, as provided. The bill would require each campus participating in the Finish in Four and Through in Two program to take specified actions to promote the program. The bill would require the Trustees of the California State University, on or before July 1, 2025, and annually thereafter, until January 1, 2036, to submit a report to the Legislature that includes specified program participation information. The bill would delete an obsolete reporting requirement. The bill would delete the January 1, 2026, program repeal date, thereby extending the program indefinitely.

Existing law establishes the California Promise, which requires at least 20 campuses of the California State University to establish a California Promise program by which the campus enters into a pledge with a qualifying transfer student to support the student in earning a baccalaureate degree within 2 academic years of the students first year of enrollment to the campus, as provided. Existing law repeals these provisions on January 1, 2026.

This bill would rename the California Promise program the Finish in Four and Through in Two program, as provided. The bill would require the Trustees of the California State University, on or before July 1, 2025, and annually thereafter, to submit a report to the Legislature that includes specified program participation information. The bill would delete an obsolete reporting requirement. The bill would delete the January 1, 2026, program repeal date, thereby extending the program indefinitely.

Date of Hearing: August 7, 2024

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

SBPCA Bill Id:SB 1200

Author:(Glazer) – As Amended Ver:July 3, 2024

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

SUMMARY:

This bill renames the California Promise Program established at the California State University (CSU) as the Finish in Four and Through in Two program. The bill further requires CSU campuses to promote the program and establishes an annual reporting requirement. Lastly, the bill eliminates the program’s January 1, 2026, sunset date, thereby extending the program indefinitely at CSU campuses.

Specifically, this bill:

1. Requires each CSU campus participating in the Finish in Four and Through in Two program to (a) share information about the program at new student orientation, (b) provide information about the program during the online course registration process, (c) provide information about the program through an annual email to all students, (d) post information about the program in an easily identifiable and accessible place on the campus’s website, and (e) post information about the program at advising offices.
2. Requires the CSU trustees, on or before July 1, 2025, and annually thereafter, until January 1, 2034, to submit a report to the Legislature that includes (a) program participation rates, as a percentage and number of students per campus, (b) program participation demographics, including student race and ethnicity, whether the student is a federal Pell Grant recipient, whether the student is a first-generation college student, and whether the student entered as a first-time freshman or transfer student, and (c) the amount of student success funds received and used per campus.

FISCAL EFFECT:

1. Ongoing General Fund costs, potentially in the millions of dollars, beginning January 1, 2026, to the 23 CSU campuses to continue operating the Finish in Four and Through in Two program beyond its current sunset.

While CSU does not collect information about the amount of funding spent by campuses on the program, CSU Long Beach, which has the largest program, has re-allocated five academic advisors to provide extra academic advising to program students. Assuming each campus has reallocated an average of 2.5 staff to operate the program, and assuming an average annual salary of $60,000 for an academic advisor, costs would be $3.5 million across 23 campuses annually to extend the program indefinitely. CSU notes the program has never received earmarked funding for its operation and CSU campuses have absorbed the cost of operating the program within their general operating budgets.

1. One-time General Fund costs totaling the high tens-of-thousands of dollars for 23 CSU campuses to promote the program in the ways required by this bill. The ongoing costs of these requirements are likely minor and absorbable.
2. Ongoing General Fund costs, in the high tens of thousands of dollars to low hundreds of thousands of dollars annually, for 23 CSU campuses and to the CSU Chancellor’s Office to track data and report certain information.

According to the Legislative Analyst’s Office, the General Fund faces a structural deficit in the tens of billions of dollars over the next several fiscal years. The enacted 2024 budget cuts operational General Fund funding to CSU by 8%.

COMMENTS:

1. Background.

CSU California Promise Program. SB 412 (Glazer), Chapter 436, Statutes of 2016, required the trustees of the CSU to develop and implement the California Promise program at a minimum of eight campuses for first-time freshman students and a minimum of 20 campuses for qualified transfer students. Participating campuses enter into a pledge with a first-time freshman or with a qualified transfer student to support the student in obtaining a baccalaureate degree within four academic years or within two years for transfer students. A student who commits to enter either the four-year or two-year pledge are given priority registration and are provided with other supports, such as routine academic advisement.

Currently, all 23 CSU campuses offer Promise programs. Of these, 16 CSU campuses offer the first-time freshman Promise program and 22 campuses offer the two-year Promise program for qualified transfer students. As of fall 2021, across all campuses, about 5% of first-time freshman students or qualified transfer students were enrolled in a Promise program.

The number of first-time freshman students and qualifying transfer students enrolled in the Promise program varies by campus. For example, in fall 2021, CSU Long Beach enrolled 14% of qualified students in the Promise program, while CSU San Luis Obispo enrolled less than 1% of qualified students in the Promise program.

This bill renames the California Promise Program as the Finish in Four and Through in Two program and eliminates the sunset on the program, among other requirements.

Graduation Initiative 2025. CSU launched its “Graduation Initiative 2025” in 2015 to address its low graduation rates. The program also aims to address the achievement gap in graduation rates for low-income and first-generation college going students. Toward this end, CSU has hired faculty, offered additional courses, hired academic advisors and provided more support services to students. In addition to base funding to the university to serve students, the state budget has included tens of millions of dollars in additional funding for this initiative in recent years. Most recently, the 2022 and 2023 budget acts each provided $35 million General Fund to CSU for the initiative.

CSU indicates, between 2015 and 2023, four-year graduation rates for first-time students increased from 19% to 35% and six-year graduation rates increased from 57% to 62%.

1. Related Legislation. SB 856 (Glazer) renames the California Promise program at CSU to the Finish in Four and Through in Two program and enrolls all incoming first-time students into the program, with the option to students to opt out. In addition, the bill, commencing with the 2024-25 academic year, requires at least 5% of each incoming class of first-time freshman students and qualifying transfer students participate in the Finish in Four and Through in Two program at each campus of the CSU that offers the program. The bill was held on this committee’s suspense file.

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

 THIRD READING  

Bill No: SB 1200

Author: Glazer (D)

Introduced: 2/15/24

Vote: 21

SENATE EDUCATION COMMITTEE: 7-0, 4/10/24

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

SENATE APPROPRIATIONS COMMITTEE: 7-0, 5/16/24

AYES: Caballero, Jones, Ashby, Becker, Bradford, Seyarto, Wahab

SUBJECT: California State University students: California Promise: Finish in Four and Through in Two

SOURCE: Author

DIGEST:

This bill renames the California Promise program established at the California State University (CSU) as the Finish in Four and Through in Two program. It further establishes an annual reporting requirement as specified and eliminates the sunset date, thereby extending the program indefinitely.

ANALYSIS:

Existing law:

1. Establishes the California Promise program for the purposes of supporting CSU students in earning a baccalaureate degree within four academic years of the student’s first year of enrollment, or for transfer students, within two academic years of the student’s first year of enrollment to the campus.
2. Requires the Trustees of the CSU to:
   1. Develop and implement a California Promise program, beginning the

2017-18 academic year, at a minimum of eight campuses for non-transfer students and a minimum of 15 campuses (20 campuses by 2018-19) for qualifying transfer students. These campuses enter into a pledge with a first-time freshman or with a qualifying transfer student to support the student in obtaining a baccalaureate degree within a total of four academic years.

• 1. Submit a report to Legislative policy and fiscal committees by January

1, 2021 that includes the number of students participating in the program in total, the total number of students who graduated in four academic years for students who entered as first-time freshmen and two academic years for California Community College transfer students, and a summary description of significant differences in the implementation of the California Promise program at each campus.

• 1. Submit recommendations to the appropriate policy and fiscal

committees of the Legislature, by March 15, 2017, regarding potential financial incentives that could benefit students who participate in the California Promise program.

1. Requires support provided by a CSU campus for a California Promise program student to include, but not necessarily be limited to, both of the following:
   1. Priority registration in coursework provided that a student does not

qualify for priority registration under another policy or program, as specified.

• 1. Academic advisement that includes monitoring academic progress.

1. Requires a student, in order to qualify for the program to:
   1. Be a California resident for purposes of in-state tuition eligibility.
   2. Commit to completing at least 30 semester units or the quarter

equivalent per academic year, including summer term units, as specified.

1. Requires a campus to guarantee participation in the program to, at a minimum, any student who is a low-income student, as defined, a student who has graduated from a high school located in a community that is underrepresented in college attendance, a first-generation college student or a transfer student who successfully completes his or her associate degree for transfer at a community college.
2. Establishes that, as a condition of continued participation in a California Promise program, a student may be required to demonstrate both of the following:
   1. Completion of at least 30 semester units, or the quarter equivalent, in

each prior academic year.

• 1. Attainment of a grade point average in excess of a standard

established by the campus.

1. Sunsets the program on January 1, 2026. (Education Code § 67430 et. seq.)

This bill:

1. Renames the California Promise program established at the CSU as the Finish in Four and Through in Two program.
2. Requires the CSU Trustees, by July 1, 2025, and annually thereafter, to submit a report to the Legislature that includes all of the following information:
   1. The program participation rate, as a percentage, and the number of students per campus.
   2. Program participation demographics, including all of the following:
      1. Student race and ethnicity.
      2. Whether the student is a federal Pell Grant recipient.
      3. Whether the student is a first-generation college student.
      4. Whether the student entered as a first-time freshman or transfer student.
   3. The amount of graduation initiative funds received and used per campus.
3. Eliminates the January 1, 2026 sunset date, effectively extending the program indefinitely.
4. Makes technical and conforming changes.

Comments

1. Need for the bill. According to the author:

“Today, the CSU awards nearly half of California’s bachelor’s degrees and more than half of the CSU students are students of color. While system-wide graduation rates have steadily improved over the past five years, more must be done to increase rates of California students receiving their bachelor’s degrees within four years of cumulative study. The system continues to struggle with graduation gaps for underrepresented students, and the system’s graduation rates still lag behind those of similar universities nationwide. This bill will ensure the vital supports of the California Promise Program continue for future cohorts of CSU students and indefinitely extends the program’s goals of eliminating longstanding opportunity and achievement gaps between low-income or first-generation students and their peers. Improving education outcomes for young adults in California is essential to generate upward economic mobility and ensure a prosperous state.”

1. California Promise pledge. Existing law, established by Senate Bill 412 (Glazer, Chapter 436, Statutes of 2016), requires that the CSU Trustees develop and implement California Promise programs on at least 8 campuses for non-transfer students and at least 20 campuses for qualifying transfer students. Each participating campus commits to helping participating students finish their baccalaureate degree in four academic years, or two for transfer students. Students who commit to either the four-year or two-year pledge with the campus receive priority registration and routine and comprehensive academic advice. California Promise students self-select into the program and must complete 30 units per academic year and maintain minimum grade point average requirements. Participation is guaranteed for students who are low-income, graduated from a local high school, transferred from a community college or, are first-generation. Not all CSU majors are eligible for this program due to the curriculum and required units, and students must meet pledge requirements to remain in the program.
2. Promise program participation and graduation rates. According to CSU’s 2021 report to the legislature on the program, participation grew from 2017, with 16 campuses offering a four-year pledge plan and 22 campuses offering a two-year pledge plan. From 2017 to 2021, more than 30,000 CSU students participated in some variation of the four- or two-year pledge. Of those, more than 13,000 were among the first in their family to attend college. Data from the CSU 2021 report shows that 64 percent of community college transfer students who engaged in the two-year pledge were able to graduate within two years. This figure is significantly higher than that of the system as a whole at that time. The higher graduation rates also hold across student groups by first-generation status, Pell status, and race/ethnicity. Four-year graduation rates for first-time students were unavailable at the time the report was prepared. There is no obligation to provide a report on the Promise program beyond 2021. This bill requires the submission of an annual report on student participation in the program and makes the program permanent.
3. Other systemwide effort to promote timely degree completion at CSU. To address low graduation rates, CSU launched “Graduation Initiative (GI) 2025” in 2015. By 2025, CSU aims to boost the six- and four-year graduation rates for first-time freshmen to 70 percent and 40 percent, respectively, as well as the graduation rates for student transfers to 45 percent (two-year rate) and 85 percent (four-year rate). It also intends to close achievement gaps by decreasing graduation rate disparities across various student groups, particularly low-income and first-generation students. Over the last five years, the state has made significant investments; because of these investments, CSU reports that it has achieved all-time highs in graduation rates for first-time students and for transfer students and is on track to meet the GI 2025 goals. Currently, the systemwide four-year graduation rate is 33 percent (historically below 20 percent) for first-time students, and the two-year graduation rate is 44 percent (historically below 30 percent) for transfer students. Campuses may employ their own strategies to achieve goals, which include hiring faculty, adding more course sections, hiring academic advisors, and investing in student support programs and services. A campus may use California Promise to fulfill GI objectives, but it is not currently required. This bill requires CSU campuses to report annually the amount of graduation initiative funds received and used per campus.
4. Addressing achievement gaps. Despite the increases in graduation rates for first-time and transfer students, the GI has struggled to meet its goals to close equity gaps for underrepresented students. In response, the CSU convened an advisory committee in 2021 to address these remaining gaps. The advisory committee submitted a report in July 2021 with a set of recommendations and strategic imperatives to address equity gaps, and the CSU subsequently adopted five recommendations and will dedicate resources to these efforts:

• Reengage and reenroll underserved students, such as students of color,

Pell Grant recipients, and first-generation students.

• Expand credit opportunities during the summer or intersession.
• Ensure “equitable access” to digital degree planners that help students

navigate the registration process, select core courses, and stay on track for timely graduation.

• Eliminate administrative barriers to graduation, such as fee assessments, registration holds, and cumbersome processes.
• Promote “equitable learning practices” and reduce non-passing (D-F-

Withdraw) rates by providing opportunities for additional learning when needed.

The California Promise program is not mentioned among the adopted strategies, but it continues to remain an option for campuses and has demonstrated positive outcomes for underrepresented groups. As described in the California Promise report of 2021, students from priority groups, including first-generation and low-income students, are well-represented among California Promise participants, and there is evidence of reduced time-to-degree across groups based on the initial cohorts of transfer students who participated in California Promise.

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

According to the Senate Appropriations Committee:

• The CSU indicates that the bill’s reporting requirements will result in additional, but undefined administrative costs to gather the required information for the annual reporting. While the existing program currently requires CSU to solicit, review, admit, and advise participating students while also tracking them within its data system and ensure that they are maintaining eligibility for the program, campuses have had to absorb this workload within existing resources.
• The bill’s removal of the sunset date would result in the continued administrative costs necessary to administer the Promise Program at CSU campuses, thereby eliminating the possibility of savings if the program were to expire. The extent of the forgone savings is unknown and would vary by campus.

SUPPORT: (Verified 5/16/24)

California Chamber of Commerce

OPPOSITION: (Verified 5/16/24)

None received

Prepared by: Olgalilia Ramirez / ED. / (916) 651-4105

5/17/24 10:09:26

**** END ****

SENATE COMMITTEE ON

Senator Anna Caballero, Chair

2023 - 2024 Regular Session

SB 1200 (Glazer) - California State University students: California Promise: Finish in Four and Through in Two

Bill Summary:

This bill renames the California Promise Program established at the California State University (CSU) as the Finish in Four and Through in Two program. It further establishes an annual reporting requirement as specified and eliminates the January 1, 2026 sunset date, thereby extending the program indefinitely.

Fiscal Impact:

• The CSU indicates that the bill’s reporting requirements will result in additional, but undefined administrative costs to gather the required information for the annual reporting. While the existing program currently requires CSU to solicit, review, admit, and advise participating students while also tracking them within its data system and ensure that they are maintaining eligibility for the program, campuses have had to absorb this workload within existing resources.
• The bill’s removal of the sunset date would result in the continued administrative costs necessary to administer the Promise Program at CSU campuses, thereby eliminating the possibility of savings if the program were to expire. The extent of the forgone savings is unknown and would vary by campus.

Background:

Existing law establishes the California Promise Program for the purposes of supporting CSU students in earning a baccalaureate degree within four academic years of the student’s first year of enrollment, or for transfer students, within two academic years of the student’s first year of enrollment to the campus.

Existing law requires participating campuses to provide priority registration in coursework provided that a student does not qualify for priority registration under another policy or program, as specified, and academic advisement that includes the monitoring of academic progress.

Existing law requires a student, in order to qualify for the program to be a California resident for purposes of in-state tuition eligibility and commit to completing at least 30 semester units or the quarter equivalent per academic year, including summer term units, as specified.

Existing law requires a campus to guarantee participation in the program to, at a minimum, any student who is a low-income student, as defined, a student who has graduated from a high school located in a community that is underrepresented in college attendance, a first-generation college student or a transfer student who successfully completes his or her associate degree for transfer at a community college.

As a condition of continued participation in a California Promise program, a student may be required to demonstrate both of the following: completion of at least 30 semester units, or the quarter equivalent, in each prior academic year and attainment of a grade point average in excess of a standard established by the campus.

The program sunsets on January 1, 2026.

Proposed Law:

This bill renames the California Promise Program established at the CSU as the Finish in Four and Through in Two program, and requires the CSU Trustees, by July 1, 2025, and annually thereafter, to submit a report to the Legislature that includes all of the following information:

1. The program participation rate, as a percentage, and the number of students per campus.
2. Program participation demographics, including student race and ethnicity, whether the student is a federal Pell Grant recipient, whether the student is a first-generation college student, and whether the student entered as a first-time freshman or transfer student.
3. The amount of graduation initiative funds received and used per campus.

This bill eliminates the January 1, 2026 sunset date, effectively extending the program indefinitely.

Related Legislation:

SB 856 (Glazer, 2023), similar to this bill, would have renamed the California Promise program at CSU as the “Finish in Four and Through in Two” program. It also would have required all incoming first-time students to enroll in the program with the option for students to opt out. SB 856 was held in the Assembly Appropriations Committee.

SB 785 (Glazer, 2021) would have required at least 5 percent of each incoming class to participate in the California Promise program at each CSU campus. This bill was vetoed with the following message:

The author’s efforts to increase CSU graduation rates and close equity gaps are laudable. I too share these goals, which is why my Administration, and the CSU entered a five-year Compact aimed at increase student achievement, advancing equity, increasing affordability and meeting the State’s workforce needs. However, I am concerned that this bill is overly prescriptive and could result in diverting resources away from other student programs that may be more effective in realizing the goals of the Compact.

SB 148 (Glazer, 2019) would have established the Student Success and On-time Completion Fund in the State Treasury, and authorized the Trustees of the CSU to use money in the fund to incentivize participation in a California Promise Program through the offering of grants or tuition freeze, as specified. SB 148 also required CSU to waive systemwide tuition or fees for a participating student unable to complete their degree due to limited space or no course offerings, as specified. SB 148 was held in the Assembly Appropriations Committee.

Staff Comments:

The California Promise Program supports CSU students in earning a baccalaureate degree within four academic years, or two years for transfer students. Students who commit to either the four-year or two-year pledge with the campus receive priority registration and routine and comprehensive academic advice. California Promise students self-select into the program and must complete 30 units per academic year and maintain minimum grade point average requirements. Participation is guaranteed for students who are low-income, graduated from a local high school, transferred from a community college or, are first-generation. Not all CSU majors are eligible for this program due to the curriculum and required units, and students must meet pledge requirements to remain in the program.

The program currently has a sunset date of January 1, 2026. This bill proposes to eliminate the sunset date, effectively extending the program indefinitely. The bill also proposed to rename the program as the Finish in Four and Through in Two program, and also establish an annual reporting requirement.

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Josh Newman, Chair

2023 - 2024 Regular

Bill No: Hearing Date: April 10, 2024

Subject: .

SUMMARY

This bill renames the California Promise program established at the California State University (CSU) as the Finish in Four and Through in Two program. It further establishes an annual reporting requirement as specified and eliminates the sunset date, thereby extending the program indefinitely.

BACKGROUND

Existing law:

1. Establishes the California Promise program for the purposes of supporting CSU students in earning a baccalaureate degree within four academic years of the student’s first year of enrollment, or for transfer students, within two academic years of the student’s first year of enrollment to the campus.
2. Requires the Trustees of the CSU to:
   1. Develop and implement a California Promise program, beginning the

2017-18 academic year, at a minimum of eight campuses for non-transfer students and a minimum of 15 campuses (20 campuses by 2018-19) for qualifying transfer students. These campuses enter into a pledge with a first-time freshman or with a qualifying transfer student to support the student in obtaining a baccalaureate degree within a total of four academic years.

• 1. Submit a report to Legislative policy and fiscal committees by January 1,

2021 that includes the number of students participating in the program in

total, the total number of students who graduated in four academic years for students who entered as first-time freshmen and two academic years for California Community College transfer students, and a summary description of significant differences in the implementation of the California Promise program at each campus.

• 1. Submit recommendations to the appropriate policy and fiscal committees

of the Legislature, by March 15, 2017, regarding potential financial incentives that could benefit students who participate in the California Promise program.

1. Requires support provided by a CSU campus for a California Promise program student to include, but not necessarily be limited to, both of the following:
   1. Priority registration in coursework provided that a student does not qualify

for priority registration under another policy or program, as specified.

• 1. Academic advisement that includes monitoring academic progress.

1. Requires a student, in order to qualify for the program to:
   1. Be a California resident for purposes of in-state tuition eligibility.
   2. Commit to completing at least 30 semester units or the quarter equivalent

per academic year, including summer term units, as specified.

1. Requires a campus to guarantee participation in the program to, at a minimum, any student who is a low-income student, as defined, a student who has graduated from a high school located in a community that is underrepresented in college attendance, a first-generation college student or a transfer student who successfully completes his or her associate degree for transfer at a community college.
2. Establishes that, as a condition of continued participation in a California Promise program, a student may be required to demonstrate both of the following:
   1. Completion of at least 30 semester units, or the quarter equivalent, in

each prior academic year.

• 1. Attainment of a grade point average in excess of a standard established

by the campus.

1. Sunsets the program on January 1, 2026. (Education Code § 67430 et. seq.)

ANALYSIS

This bill:

1. Renames the California Promise program established at the CSU as the Finish in Four and Through in Two program.
2. Requires the CSU Trustees, by July 1, 2025, and annually thereafter, to submit a report to the Legislature that includes all of the following information:
   1. The program participation rate, as a percentage, and the number of students per campus.
   2. Program participation demographics, including all of the following:
      1. Student race and ethnicity.
      2. Whether the student is a federal Pell Grant recipient.
      3. Whether the student is a first-generation college student.
      4. Whether the student entered as a first-time freshman or transfer student.
   3. The amount of graduation initiative funds received and used per campus.
3. Eliminates the January 1, 2026 sunset date, effectively extending the program indefinitely.
4. Makes technical and conforming changes.

STAFF COMMENTS

1. Need for the bill. According to the author, “Today, the CSU awards nearly half of California’s bachelor’s degrees and more than half of the CSU students are students of color. While system-wide graduation rates have steadily improved over the past five years, more must be done to increase rates of California students receiving their bachelor’s degrees within four years of cumulative study. The system continues to struggle with graduation gaps for underrepresented students, and the system’s graduation rates still lag behind those of similar universities nationwide. This bill will ensure the vital supports of the California Promise Program continue for future cohorts of CSU students and indefinitely extends the program’s goals of eliminating longstanding opportunity and achievement gaps between low-income or first-generation students and their peers. Improving education outcomes for young adults in California is essential to generate upward economic mobility and ensure a prosperous state.”
2. California Promise pledge. Existing law, established by Senate Bill 412 (Glazer, Chapter 436, Statutes of 2016), requires that the CSU Trustees develop and implement California Promise programs on at least 8 campuses for non-transfer students and at least 20 campuses for qualifying transfer students. Each participating campus commits to helping participating students finish their baccalaureate degree in four academic years, or two for transfer students. Students who commit to either the four-year or two-year pledge with the campus receive priority registration and routine and comprehensive academic advice. California Promise students self-select into the program and must complete 30 units per academic year and maintain minimum grade point average requirements. Participation is guaranteed for students who are low-income, graduated from a local high school, transferred from a community college or, are first-generation. Not all CSU majors are eligible for this program due to the curriculum and required units, and students must meet pledge requirements to remain in the program.
3. Promise program participation and graduation rates. According to CSU’s 2021 report to the legislature on the program, participation grew from 2017, with 16 campuses offering a four-year pledge plan and 22 campuses offering a two-year pledge plan. From 2017 to 2021, more than 30,000 CSU students participated in some variation of the four- or two-year pledge. Of those, more than 13,000 were among the first in their family to attend college. Data from the CSU 2021 report shows that 64 percent of community college transfer students who engaged in the two-year pledge were able to graduate within two years. This figure is significantly higher than that of the system as a whole at that time. The higher graduation rates also hold across student groups by first-generation status, Pell status, and race/ethnicity. Four-year graduation rates for first-time students were unavailable at the time the report was prepared. There is no obligation to provide a report on the Promise program beyond 2021. This bill requires the submission of an annual report on student participation in the program and makes the program permanent.
4. Other systemwide effort to promote timely degree completion at CSU. To address low graduation rates, CSU launched “Graduation Initiative (GI) 2025” in 2015. By 2025, CSU aims to boost the six- and four-year graduation rates for first-time freshmen to 70 percent and 40 percent, respectively, as well as the graduation rates for student transfers to 45 percent (two-year rate) and 85 percent (four-year rate). It also intends to close achievement gaps by decreasing graduation rate disparities across various student groups, particularly low-income and first-generation students. Over the last five years, the state has made significant investments; because of these investments, CSU reports that it has achieved all-time highs in graduation rates for first-time students and for transfer students and is on track to meet the GI 2025 goals. Currently, the systemwide four-year graduation rate is 33 percent (historically below 20 percent) for first-time students, and the two-year graduation rate is 44 percent (historically below 30 percent) for transfer students. Campuses may employ their own strategies to achieve goals, which include hiring faculty, adding more course sections, hiring academic advisors, and investing in student support programs and services. A campus may use California Promise to fulfill GI objectives, but it is not currently required. This bill requires CSU campuses to report annually the amount of graduation initiative funds received and used per campus.
5. Addressing achievement gaps. Despite the increases in graduation rates for first-time and transfer students, the GI has struggled to meet its goals to close equity gaps for underrepresented students. In response, the CSU convened an advisory committee in 2021 to address these remaining gaps. The advisory committee submitted a report in July 2021 with a set of recommendations and strategic imperatives to address equity gaps, and the CSU subsequently adopted five recommendations and will dedicate resources to these efforts:

• Reengage and reenroll underserved students, such as students of color,

Pell Grant recipients, and first-generation students.

• Expand credit opportunities during the summer or intersession.
• Ensure “equitable access” to digital degree planners that help students

navigate the registration process, select core courses, and stay on track for timely graduation.

• Eliminate administrative barriers to graduation, such as fee assessments, registration holds, and cumbersome processes.
• Promote “equitable learning practices” and reduce non-passing (D-F-

Withdraw) rates by providing opportunities for additional learning when needed.

The California Promise program is not mentioned among the adopted strategies, but it continues to remain an option for campuses and has demonstrated positive outcomes for underrepresented groups. As described in the California Promise report of 2021, students from priority groups, including first-generation and low-income students, are well-represented among California Promise participants, and there is evidence of reduced time-to-degree across groups based on the initial cohorts of transfer students who participated in California Promise.

1. Related and prior legislation.

SB 856 (Glazer, 2023), similar to this bill, would have renamed the California Promise program at CSU as the “Finish in Four and Through in Two” program. Unlike this bill, it would have required: 1) all incoming first-time students into the program, with the option for students to opt out; 2) at least 5 percent of each incoming class of first-time freshman students and qualifying transfer students to participate in the program at each campus of the CSU that offers the program; and 3) at least 70 percent of program participants to be either low-income students, first-generation students, or students from underrepresented communities within postsecondary education. SB 856 was held in the Assembly Appropriations Committee.

SB 785 (Glazer, 2022) similar to this bill, would have required at least 5 percent of each incoming class at each participating CSU campus to participate in the California Promise program, and that at least 70 percent of those participating undergraduate students be either low-income students, first-generation, or students from communities that are underrepresented in postsecondary education. SB 785 did not include an opt out requirement. SB 785 was vetoed by Governor Newsom whose message, in pertinent part, read:

“The author’s efforts to increase CSU graduation rates and close equity gaps are laudable. I too share these goals, which is why my Administration, and the CSU entered a five-year Compact aimed at increase student achievement, advancing equity, increasing affordability and meeting the State’s workforce needs. However, I am concerned that this bill is overly prescriptive and could result in diverting resources away from other student programs that may be more effective in realizing the goals of the Compact.”

SB 1211 (Glazer, 2020), identical to this bill, was not heard by this committee due to the shortened 2020 Legislative Calendar.

SB 148 (Glazer, 2019) would have established the Student Success and On-time Completion Fund in the State Treasury, and authorized the Trustees of the CSU to use money in the fund to incentivize participation in a California Promise program through the offering of grants or tuition freeze, as specified. SB 148 also required CSU to waive systemwide tuition or fees for a participating student unable to complete their degree due to limited space or no course offerings, as specified. SB 148 was held in the Assembly Appropriations Committee.

SB 346 (Glazer, 2018) was nearly identical to SB 148 in its final form, and failed passage on the Assembly floor. SB 346 was not heard by this committee.

SB 803 (Glazer, 2017) was nearly identical to SB 346, was approved by this committee by a vote of 5-2 and was subsequently held on the Senate Appropriations Committee Suspense file.

SB 412 (Glazer, Chapter 436, Statues of 2016) required the CSU Board of Trustees to develop and implement a program, known as the California Program, that authorizes a campus to enter into a pledge with qualifying students, as defined, to support completion of a baccalaureate degree within four years or for transfer students within two years, and outlines the requirements which may be included in such a program. SB 412 also required the Board of Trustees to submit recommendations regarding potential financial incentives that could benefit students who participate in the program.

SB 1450 (Glazer, 2016) both SB 1450 and SB 412 required the CSU to develop and implement a program that authorizes a campus to enter into a pledge with qualifying students to support completion of a baccalaureate degree within four years and offer incentives to students in exchange for participation in the program.

Unlike SB 412 and similar to this bill, SB 1450 established various requirements regarding systemwide fees for California Promise students at CSU, including freezing tuition and granting tuition waivers if students were unable to complete a degree within the required timeframe due to unavailability of courses. SB 1450 also imposed these same requirements on the community colleges (CCC) and required the CCC Board of Governors to establish the Promise program as well. The CCC was removed from the scope of the bill and instead required CSU to ensure entry into a Promise program for any CCC student who transfers with an Associate Degree for Transfer. SB 1450 was heard by this committee on April 20, 2016 and failed passage, by a vote of 4-2.

SUPPORT

California Chamber of Commerce

OPPOSITION

None received

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