Existing law establishes the California College Promise, under the administration of the Chancellor of the California Community Colleges, to provide funding, upon appropriation by the Legislature, to each community college meeting prescribed requirements. Existing law authorizes a community college to use that funding to waive some or all of the fees for 2 academic years for first-time community college students and returning community college students, as defined, who are enrolled in 12 or more semester units or the equivalent, or less for students certified as full time by a staff person in the disabled student services program, as specified, and who complete and submit either a Free Application for Federal Student Aid or a California Dream Act application, except as provided.

This bill would instead require, for purposes of eligibility for the California College Promise, that students be enrolled in 9 or more, rather than 12 or more, semester units or the equivalent, or less for a student certified as eligible, based on a commitment by the student that is analogous to the 9 semester unit or equivalent workload, by a staff person in the disabled student services program. The bill would additionally require, as a condition of participating in, and receiving funding for, the California College Promise, community colleges and community college districts to refrain from referring to any other student financial aid funding or program as the California College Promise. Promise, and require community colleges to provide a written notification to initial recipients of the California College Promise that includes specified information related to the 2 academic years of eligibility for the California College Promise.

Existing law establishes the California College Promise, under the administration of the Chancellor of the California Community Colleges, to provide funding, upon appropriation by the Legislature, to each community college meeting prescribed requirements. Existing law authorizes a community college to use that funding to waive some or all of the fees for 2 academic years for first-time community college students and returning community college students, as defined, who are enrolled in 12 or more semester units or the equivalent, or less for students certified as full time, time by a staff person in the disabled student services program, as specified, and who complete and submit either a Free Application for Federal Student Aid or a California Dream Act application, except as provided.

This bill would remove, instead require, for purposes of eligibility for the California College Promise, the qualification that students be full-time. enrolled in 9 or more, rather than 12 or more, semester units or the equivalent, or less for a student certified as eligible, based on a commitment by the student that is analogous to the 9 semester unit or equivalent workload, by a staff person in the disabled student services program. The bill would additionally require, as a condition of participating in, and receiving funding for, the California College Promise, community colleges and community college districts to refrain from referring to any other student financial aid funding or program as the California College Promise.

Existing law establishes the California College Promise, under the administration of the Chancellor of the California Community Colleges, to provide funding, upon appropriation by the Legislature, to each community college meeting prescribed requirements. Existing law authorizes a community college to use that funding to waive some or all of the fees for 2 academic years for first-time community college students and returning community college students, as defined, who are enrolled in 12 or more semester units or the equivalent, or less for students certified as full time, as specified, and who complete and submit either a Free Application for Federal Student Aid or a California Dream Act application, except as provided.

This bill would remove, for purposes of eligibility for the California College Promise, the qualification that students be full-time. The bill would additionally require, as a condition of participating in, and receiving funding for, the California College Promise, community colleges and community college districts to refrain from referring to any other student financial aid funding or program as the California College Promise.

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anna Caballero, Chair

2025 - 2026 Regular Session

AB 537 (Ahrens) - Community colleges: California College Promise

Bill Summary:

This bill would reduce the minimum unit requirement for California Community College (CC) students to qualify for a California College Promise fee waiver from 12 or more units (full-time) to 9 units.

Fiscal Impact:

• This bill could potentially result in additional, unknown Proposition 98 General Fund cost pressures for community college districts to provide fee waivers to part-time students under the California College Promise Program. It is unclear how many part-time students taking 9 units that are not currently receiving a program fee waiver. However, the Chancellor’s Office indicates that the bill does not require a community college district to provide fee waivers nor are they required to waive all fees.
• The Chancellor’s Office estimates one-time Proposition 98 costs of between $33,000 and $86,000 statewide to develop and provide information to students regarding the benefits of full-time enrollment. This estimate assumes that all 115 colleges choose to grant fee waivers to students enrolled in 9 or more units. However, the exact costs would depend on the method used by the college to provide this information. The costs could also be lower to the extent that colleges use the most cost-effective method.

Background:

Existing law establishes a per unit fee of $46 for students attending a California community college. The law provides for a fee waiver for certain types of students, including those who meet minimum academic and progress standards adopted by the CCC Board of Governors (BOG) and have household incomes below certain thresholds established by the BOG or have demonstrated financial need pursuant to federal law.

Existing law establishes the California College Promise, under the administration of the Chancellor, to provide funding, upon appropriation by the Legislature, to each community college meeting prescribed requirements. The law authorizes a community college to use that funding to waive some or all of the fees for two academic years for first-time community college students and returning community college students, as defined, who are enrolled in 12 or more semester units or the equivalent, or less for students certified as “full time,” as specified, and who complete and submit either a Free Application for Federal Student Aid or a California Dream Act Application, except as provided;

Existing law requires the Chancellor to establish a funding formula that advances the goals of the program, as specified.

Proposed Law:

This bill reduces the minimum unit requirement for CCC students to qualify for a California College Promise fee waiver from 12 or more units to 9 units.

This bill defines “an eligible workload” to mean 9 or more semester units or the equivalent, and provides that a student enrolled in fewer than 9 units can be deemed to have an “eligible workload” at the discretion of the institution if the student has been certified as eligible, based on a commitment by the student that is analogous to an eligible workload, by a staff person in the disabled student services program at the college who is qualified to make a determination.

This bill prohibits any other student financial aid program from being referred to as the California College Promise.

This bill requires community colleges to provide written notification to a recipient of the California College Promise fee waiver, upon issuing the initial waiver to include the following:

1. A statement that eligibility for the California College Promise fee waiver is limited to a period of two academic years, as specified in EC 76396.3 (b)(1).
2. A description of the number of units a student needs to complete per semester or the quarter equivalent, or the number of semester units or the quarter units necessary per academic year, to complete an associate degree or certificate program within two academic years.
3. Information on how to access other financial aid opportunities available to students who have exceeded their two-year eligibility under the California College Promise fee waiver program.

Staff Comments:

The existing California College Promise program allows but does not require community college districts to waive fees for full-time students (12 or more units per semester) for two academic years using funds that are provided for the program. Student applicants are not required to demonstrate financial need in order to qualify for a waiver. This bill removes the requirement that students must be enrolled full-time, and would instead establish a minimum enrollment of 9 units per semester. According to the author, “AB 537 improves opportunities for upward mobility in California. By expanding eligibility for fee waivers at California Community Colleges to include part-time students who are eligible, this bill aims to reduce financial barriers to higher education. As someone who has benefited from the community college system, I can personally attest to its ability to provide a pathway to success for disadvantaged populations. I am proud to sponsor a bill that will extend this opportunity to more individuals.”

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Sasha Renée Pérez, Chair

2025 - 2026 Regular

Bill No: AB 537 Hearing Date: June 25, 2025

Subject: Community colleges: California College Promise.

SUMMARY

This bill reduces the minimum unit requirement for California Community College (CC) students to qualify for a California College Promise fee waiver from full-time (12 or more units) to 9 units.

BACKGROUND

Existing law:

1) Establishes the mission and function of the CCC, which, in part is to: 1) offer

academic and vocational instruction at the lower division level for both younger and older students, including those persons returning to school; 2) authorizes the CCC to grant the associate in arts and the associate in science degrees; 3) requires the CCC to offer English as a Second Language instruction, adult noncredit instruction, and support services which help students succeed at the postsecondary level; and, 4) advance California’s economic growth and global competitiveness through education, training, and services that contribute to continuous work force improvement. (Education Code (EC) § 66010.4)

2) Establishes a $46 per unit fee for students at the CCC. Provides for a fee waiver for certain types of students, including those who meet minimum academic and progress standards adopted by the CCC Board of Governors (BOG) and have household incomes below certain thresholds established by the BOG or have demonstrated financial need pursuant to federal law. (EC § 76300)

3) Establishes the California College Promise, under the administration of the CCC Chancellor, to provide funding, upon appropriation by the Legislature, to each community college meeting prescribed requirements. Additionally, existing law:

a) Authorizes a community college to use that funding to waive some or all of the fees for two academic years for first-time community college students and returning community college students, as defined, who are enrolled in 12 or more semester units or the equivalent, or less for students certified as “full time,” as specified, and who complete and submit either a Free Application for Federal Student Aid (FAFSA) or a California Dream Act Application (CADAA), except as provided;

b) Requires the Chancellor to establish a funding formula that advances the goals of the program;

c) Requires the funding formula to include, for funding appropriated for the program in excess of the funding needed to waive all student fees, the number of full-time equivalent students at a community college and the number of students at a community college who satisfy the requirements to receive federal Pell Grants and the requirements to receive a specified exemption from paying nonresident tuition; and,

d) Requires the CCC Chancellor to submit a report to the Legislature by July 1, 2024, evaluating the use of funding for the California College Promise to waive student fees. (EC § 76396-76396.4)

ANALYSIS

This bill:

1. Reduces the minimum unit requirement for CCC students to qualify for a California College Promise fee waiver from full-time (12 or more units) to 9 units.
2. Defines “an eligible workload” to mean 9 or more semester units or the equivalent.
3. Provides that a student enrolled in fewer than 9 units can be deemed to have an “eligible workload” at the discretion of the institution if the student has been certified as eligible, based on a commitment by the student that is analogous to an eligible workload, by a staff person in the disabled student services program at the college who is qualified to make a determination.
4. Prohibits any other student financial aid program from being referred to as the California College Promise.

STAFF COMMENTS

1. Need for the bill. According to the author, “AB 537 improves opportunities for upward mobility in California. By expanding eligibility for fee waivers at California Community Colleges to include part-time students who are eligible, this bill aims to reduce financial barriers to higher education. As someone who has benefited from the community college system, I can personally attest to its ability to provide a pathway to success for disadvantaged populations. I am proud to sponsor a bill that will extend this opportunity to more individuals.”
2. Impact of reducing minimum unit requirements for a 2-year waiver program. Current law, established by AB 19 (Santiago, Chapter 735, Statutes of 2017), created the California College Promise program, which allows but does not require CCCs to waive fees for full-time students for two academic years using program funds. Applicants are not required to demonstrate their financial need to qualify for a waiver. This bill removes the requirement that students must be enrolled full-time— defined as 12 or more units. Instead, it establishes a minimum enrollment of 9 semester units. A primary function of the California Community Colleges is to award associate degrees, which are typically composed of 60 semester units. A student enrolled in 12 units per semester can complete the degree in 2.5 years while a student taking 9 units per semester would take approximately 3.5 years. Current law limits eligibility for the California College Promise waiver program to two years. The proposed change to reduce the minimum unit requirement from 12 to 9 units could potentially extend the time needed to finish an associate degree beyond the waiver’s expiration date. This gap could leave students without financial aid or needing to rely on other aid programs for additional semesters.
3. Full-time enrollment can help students save money overtime. According to a related 2014 report by the Campaign for College Opportunity, the Real Cost of College: Time and Credits to Degree in California, a student who takes four years to earn an associate degree can spend as much as $15,200 more on fees and other expenses, and will earn $33,500 less than someone who graduated in two years. As a result of these additional years, this student would incur $48,700 in extra expenses and lost wages.
4. Amendment. Timely degree completion can reduce the overall cost of higher education but many CCC students forgo the additional units to meet work or family obligations. Other students may be unaware that full-time enrollment is necessary to graduate within two years. To ensure that students are fully informed about how long they can use their fee waiver and the number of units needed to complete their degree or certificate within the same number of years. Committee staff recommends that the bill be amended to require that a community college provide written notification to a recipient of the California College Promise fee waiver, as authorized in EC § 76396.3(b)(1), upon issuing the initial waiver to include all of the following:

• A statement that eligibility for the California College Promise fee waiver is

limited to a period of two academic years, as specified in EC 76396.3 (b)(1).

• A description of the number of units a student needs to complete per semester or the quarter equivalent, or the number of semester units or the quarter units necessary per academic year, to complete an associate degree or certificate program within two academic years.

• Information on how to access other financial aid opportunities available to students who have exceeded their two-year eligibility under the California College Promise fee waiver program.

1. CCC completion rates. According to the Legislative Analyst’s Office’s 2024 report on Trends in Higher Education-Student Outcomes, Community College completion rates have ticked up over time but remain very low. It finds that the three-year completion rate has increased steadily over time, rising from 13 percent in 2011-12 to around 18 percent by 2017-18 and the two-year completion rate also shows a gradual increase from roughly 5 percent in 2011-12 to around 9 percent by 2027-18. Despite these improvements, overall completion rates remain low. It is unclear to what extent reducing the unit requirement for this specific program may have on completion rates.
2. Two programs one name. Community college fees for enrollment are established in statute at $46 per unit. The BOG fee waiver has been in place since the inception of CCC enrollment fees, and waives fees for any CCC student who demonstrates financial need. The BOG fee waiver was renamed the California College Promise Grant, which is frequently confused with the California College Promise program and vice versa. In addition to lowering unit requirement this bill seeks to resolve this confusion by limiting the use of the “California College Promise” to the financial aid program related to this bill.

SUPPORT

CFT - A Union of Educators & Classified Professionals, AFT, AFL-CIO (Sponsor)

Alliance for Children's Rights

California Community College Independents

California Community Colleges, Chancellor's Office

California EDGE Coalition

California Teachers Association

Campaign for College Opportunity

Community College League of California

Faculty Association of California's Community Colleges

Hadassah

JCC/Federation of San Luis Obispo

JCRC Bay Area

Jewish Community Federation and Endowment Fund

Jewish Democratic Club of Marin

Jewish Family & Community Services East Bay

Jewish Family and Children's Service of Long Beach and Orange County

Jewish Family and Children's Services of San Francisco, the Peninsula, Marin and Sonoma Counties

Jewish Family Service of San Diego

Jewish Family Services of Silicon Valley

Jewish Federation of the Greater San Gabriel and Pomona Valleys

Jewish Free Loan Association

Jewish Long Beach

Jewish Public Affairs Committee

JVS SoCal

Los Angeles College Faculty Guild, Local 1521

Southern California College Attainment Network>

OPPOSITION

None received

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:AB 537

Author:(Ahrens)

As Amended Ver:May 23, 2025

Majority vote

SUMMARY

Requires, for purposes of eligibility for the California College Promise Program, that students be enrolled in nine or more, rather than 12 or more, semester units or the equivalent, or less for a student certified as eligible, based on a commitment by the student that is analogous to the nine semester unit or equivalent workload, by a staff person in the disabled student services program.

Major Provisions

1. Stipulates that for purposes of eligibility for the California College Promise Program, students can now be enrolled in nine or more semester units or the equivalent, thus no longer needing to be enrolled full-time to qualify for participation.
2. Requires, as a condition of participating in, and receiving funding for, the California College Promise Program, California Community Colleges (CCC) and Districts must refrain from referring to any other student financial aid funding program as the California College Promise.
3. Clarifies that the CCC may use funding appropriated, as specified, to waive some or all of the fees for first-time community college students and returning community college students who are enrolled at a CCC with an eligible workload, and who complete and submit appropriate applications, as specified.
4. Defines ″an eligible workload″ to mean nine or more semester units or the equivalent.
5. Makes clarifying changes to existing law.

COMMENTS

Fees and fee waivers at the CCC. Enrollment fees at CCCs are the lowest in the country ($46 per unit), and are waived for almost half of all CCC students (this amounts to over one million students). For decades, this waiver was known as the Board of Governors (BOG) fee waiver and has existed since enrollment fees were established (1984) at the CCC and waives the per unit enrollment fee for any CCC student who demonstrates financial need.

The BOG fee waiver has been renamed as the California College Promise Grant (not to be confused with the separate California College Promise Program). Additionally, current law requires fees to be waived for surviving dependents of certain military service members and first responders.

California College Promise Program. In addition to the statute waivers (as noted in the Fees and fee waivers at the CCC section of this analysis), AB 19 (Santiago), Chapter 735, Statutes of 2017, established the California College Promise Program, which authorizes, but does not require, CCCs to waive fees for two years of college for first-time or returning full-time students regardless of financial need. To be eligible for these waivers, students must have no prior postsecondary coursework or have taken one or more semesters off from college coursework, enroll in 12 or more units per semester (which is considered full-time), and submit a Free Application for Federal Student Aid (FAFSA) or the California Dream Act Application (CADAA). Under the Program, colleges may also use their college program funds for a variety of other purposes, such as providing students with supplemental services.

The California College Promise Program was funded beginning in 2018-19 for $46 million. Not all colleges receiving Promise funds are waiving enrollment fees; many believe their California Promise funding is better used for other purposes, such as strengthening student support services to boost outcomes, or providing grants to help students cover the costs of child care, transportation, books or other expenses. Under the provisions of the Promise Program, colleges receiving California Promise funds must engage in several outlined activities.

Among those activities: operating programs with local high school districts that support pathways to college; implementing the Guided Pathways framework; and helping students access need-based financial aid such as Pell Grants and Cal Grants.

This measure, in part, seeks to expand eligibility for the California College Promise Program to include community college students who are less than full-time students.

According to the CCC Chancellor′s Office (CCCCO), from 2018-2023, $375 million was allocated by the Legislature to colleges for purposes of administering the California College Program. On average, 75% of the allocated funds were spent on direct student aid.

How many? As noted above in the last two sections of this analysis, the California College Promise Grant and the California College Promise Program are two different programs, both which potentially significantly reduce the costs associated attending a CCC. The chart below, as compiled via the CCC Management Information Systems Data Mart and the CCCCO delineates the number of CCC students who have received the California College Promise Grant waiver and those who have received a California College Promise Program waiver:

The CCC has over 1.9 million students. According to the CCCCO, from Fall 2021-2024 the percentage of part-time CCC students ranged from 61% - 65%; making part-time students well over the majority of students attending the CCC.

Many community college students attend part-time for myriad of reasons, including, but not limited to, the cost of living requiring them to work a full-time job and/or caring for a dependent(s). If the California College Promise Program is expanded to enable part-time students to potentially experience the benefits of the California College Promise Program, it may assist part-time students in taking more classes even if not equal to full-time status, thus potentially reducing their time to degree or transfer.

However, it could also increase their time to degree or transfer because it removes the incentive that currently exists – being enrolled full-time – in order to benefit from the waiver.

According to the Author

According to the author, ″I am proud to lead the fight to expand the California College Promise program to help our neediest students by expanding the ability of our community colleges to waive the fees for part-time students for two years. Existing law requires that a student be full-time in order to receive a fee waiver through the program, which erroneously locks out our least advantaged students and perpetuates inequity and inequality at our community colleges.″

The author contends that, ″while California State Chancellor′s Vision 2030 has a goal of having 70% of its workforce to obtain a postsecondary degree or certificate. To achieve this goal, community colleges must enroll and serve non-traditional students, part-time students, non-degree seeking students, and students seeking to refresh job skills or explore career changes. They should have access to all resources that are aimed at supporting students in their academic achievement.″

Arguments in Support

According to the California Teachers Association (CTA), ″64% of students attended college on a part-time basis (less than 12 units). This means an overwhelming majority of students do not qualify for the California College Promise Program. These students may be working parents or caregivers who cannot go without a paycheck. They may have other responsibilities that do not allow them to take on a full course load. Whatever their reasons, they should be eligible for the Program like their full-time classmates.″

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Assembly Committee on Appropriations:

1. Ongoing Proposition 98 General Fund cost pressures of an unknown, but significant amount, likely in the tens of millions of dollars for the CCCs, collectively statewide, to provide fee waivers to part-time students enrolled in at least 9 units under the California College Promise Program.
2. The bill does not require a CCC to provide a fee waiver to part-time students or require that they provide a full fee waiver. Therefore, to the extent that a CCC provides a lesser amount of aid to part-time students, if any, costs would be lower.

VOTES

ASM HIGHER EDUCATION: 9-0-1

YES: Fong, DeMaio, Boerner, Jeff Gonzalez, Jackson, Muratsuchi, Patel, Celeste Rodriguez, Tangipa

ABS, ABST OR NV: Sharp-Collins

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Hart, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

UPDATED

VERSION: May 23, 2025

CONSULTANT: Jeanice Warden / HIGHER ED. / (916) 319-3960 FN: 0000850

Date of Hearing: May 7, 2025

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 537

Author:(Ahrens) – As Introduced Ver:February 11, 2025

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

SUMMARY:

This bill expands eligibility for a fee waiver provided under the California College Promise Program to part-time students. The bill also prohibits, as a condition of receipt of program funds, participating California Community Colleges (CCCs) and Districts (CCDs) from referring to any other student financial aid program as the California College Promise.

FISCAL EFFECT:

Ongoing Proposition 98 General Fund cost pressures of an unknown, but significant amount, likely in the tens of millions of dollars to low hundreds of millions of dollars for the CCCs, collectively statewide, to provide fee waivers to part-time students under the California College Promise Program.

While the committee is unaware of how many part-time students are not currently receiving a California College Promise grant fee waiver, if the CCCs provide fee waivers under the program to an additional 250,000 newly eligible part-time students with an average course load of eight units at $46 per unit, then the bill creates $92 million in costs. The bill does not require a CCC to provide a fee waiver to part-time students or require that they provide a full fee waiver. Therefore, to the extent that a CCC provides a lesser amount of aid to part-time students, if any, costs would be lower.

COMMENTS:

1. Purpose. According to the author:

I am proud to lead the fight to expand the California College Promise program to help our neediest students by expanding the ability of our community colleges to waive the fees for part-time students for two years. Existing law requires that a student be full-time in order to receive a fee waiver through the program, which erroneously locks out our least advantaged students and perpetuates inequity and inequality at our community colleges.

1. Background. California College Promise Program. Established in 2017, the California College Promise Program authorizes CCCs to waive fees for the first two years of college for first-time or returning full-time students regardless of financial need. To qualify, students must have no prior postsecondary coursework or have taken one or more semesters off from college coursework, enroll full-time (defined as 12 or more units per semester), and submit a Free Application for Federal Student Aid or California Dream Act Application. Under the program, CCCs may also use the California College Promise Program funds for a variety of other purposes, such as strengthening student support services, or providing grants to help students cover the costs of child care, transportation, books or other expenses. The Legislative Analyst’s Office (LAO) estimates that CCCs spent 75% of the total $375 million allocated by the Legislature for the program between fiscal years 2018-19 and 2022-23 on direct student aid. According to the CCC Chancellor’s Office, approximately 61% to 65% in a given year of over 1.9 million total CCC students enrolled are part-time students.

This bill allows a CCC to provide a fee waiver under the California College Promise Program to part-time students.

California College Promise Grant Fee Waiver. Enrollment fees at CCCs are the lowest in the country ($46 per unit), and almost half of all CCC students (over one million) receive a fee waiver. Until recently, the CCCs referred to a fee waiver as a Board of Governor’s (BOG) fee waiver. The BOG fee waiver has existed since the establishment of enrollment fees at the CCC in 1984 and waives the per unit enrollment fee for any CCC student (part-time or full-time) who demonstrates financial need, without limit on the number of years a student may be eligible.

The California College Promise Grant replaced the BOG fee waiver. Additionally, current law requires CCCs to provide fee waivers for surviving dependents of certain military service members and first responders.

Analysis Prepared by: Aaron Heredia / APPR. / (916) 319-2081

Date of Hearing: April 22, 2025

ASSEMBLY COMMITTEE ON HIGHER EDUCATION

Mike Fong, Chair

ABPCA Bill Id:AB 537 (

Author:Ahrens) – As Introduced Ver:February 11, 2025

SUBJECT: Community colleges: California College Promise.

SUMMARY: Removes, for purposes of eligibility for the California College Promise Program, the qualification that students be enrolled full-time. Specifically, this bill:

1. Stipulates that for purposes of eligibility for the California College Promise Program, students no longer need to be enrolled full-time to qualify for participation.
2. Requires, as a condition of participating in, and receiving funding for, the California College Promise Program, California Community Colleges (CCC) and Districts must refrain from referring to any other student financial aid funding program as the California College Promise.
3. Makes clarifying changes to existing law.

EXISTING LAW:

1. Establishes the mission and function of the CCC, which, in part is to: 1) offer academic and vocational instruction at the lower division level for both younger and older students, including those persons returning to school; 2) authorizes the CCC to grant the associate in arts and the associate in science degrees; 3) requires the CCC to offer English as a Second Language instruction, adult noncredit instruction, and support services which help students succeed at the postsecondary level; and, 4) advance California’s economic growth and global competitiveness through education, training, and services that contribute to continuous work force improvement (Education Code (EC) Section 66010.4).
2. Establishes a $46 per unit fee for students at the CCC. Provides for a fee waiver for certain types of students, including those who meet minimum academic and progress standards adopted by the CCC Board of Governors (BOG) and have household incomes below certain thresholds established by the BOG or have demonstrated financial need pursuant to federal law (EC Section 76300).
3. Establishes the California College Promise, under the administration of the CCC Chancellor, to provide funding, upon appropriation by the Legislature, to each community college meeting prescribed requirements. Additionally, existing law:
   1. Authorizes a community college to use that funding to waive some or all of the fees for two academic years for first-time community college students and returning community college students, as defined, who are enrolled in 12 or more semester units or the equivalent, or less for students certified as “full time,” as specified, and who complete and submit either a Free Application for Federal Student Aid (FAFSA) or a California Dream Act Application (CADAA), except as provided;
   2. Requires the chancellor to establish a funding formula that advances the goals of the program;
   3. Requires the funding formula to include, for funding appropriated for the program in excess of the funding needed to waive all student fees, the number of full-time equivalent students at a community college and the number of students at a community college who satisfy the requirements to receive federal Pell Grants and the requirements to receive a specified exemption from paying nonresident tuition; and,
   4. Requires the CCC Chancellor to submit a report to the Legislature by July 1, 2024, evaluating the use of funding for the California College Promise to waive student fees (EC Sections 76396-76396.4).

FISCAL EFFECT: Unknown

COMMENTS: Purpose of the measure. According to the author, “I am proud to lead the fight to expand the California College Promise program to help our neediest students by expanding the ability of our community colleges to waive the fees for part-time students for two years. Existing law requires that a student be full-time in order to receive a fee waiver through the program, which erroneously locks out our least advantaged students and perpetuates inequity and inequality at our community colleges.”

The author contends that, “while California State Chancellor’s Vision 2030 has a goal of having 70% of its workforce to obtain a postsecondary degree or certificate. To achieve this goal, community colleges must enroll and serve non-traditional students, part-time students, non-degree seeking students, and students seeking to refresh job skills or explore career changes. They should have access to all resources that are aimed at supporting students in their academic achievement.”

Fees and fee waivers at the CCC. Enrollment fees at CCCs are the lowest in the country ($46 per unit), and are waived for almost half of all CCC students (this amounts to over one million students). For decades, this waiver was known as the BOG fee waiver and has existed since enrollment fees were established (1984) at the CCC and waives the per unit enrollment fee for any CCC student who demonstrates financial need.

The BOG fee waiver has been renamed as the California College Promise Grant (not to be confused with the separate California College Promise Program). Additionally, current law requires fees to be waived for surviving dependents of certain military service members and first responders.

California College Promise Program. In addition to the statute waivers (as noted in the Fees and fee waivers at the CCC section of this analysis), AB 19 (Santiago), Chapter 735, Statutes of 2017, established the California College Promise Program, which authorizes, but does not require, CCCs to waive fees for two years of college for first-time or returning full-time students regardless of financial need. To be eligible for these waivers, students must have no prior postsecondary coursework or have taken one or more semesters off from college coursework, enroll in 12 or more units per semester (which is considered full-time), and submit an FAFSA or CADAA. Under the Program, colleges may also use their college program funds for a variety of other purposes, such as providing students with supplemental services.

The California College Promise Program was funded beginning in 2018-19 for $46 million. Not all colleges receiving Promise funds are waiving enrollment fees; many believe their California Promise funding is better used for other purposes, such as strengthening student support services to boost outcomes, or providing grants to help students cover the costs of child care, transportation, books or other expenses. Under the provisions of the Promise Program, colleges receiving California Promise funds must engage in several outlined activities.

Among those activities: operating programs with local high school districts that support pathways to college; implementing the Guided Pathways framework; and helping students access need-based financial aid such as Pell Grants and Cal Grants.

This measure, in part, seeks to expand eligibility for the California College Promise Program to include community college students who are less than full-time students.

According to the CCC Chancellor’s Office (CCCCO), from 2018-2023, $375 million was allocated by the Legislature to colleges for purposes of administering the California College Program. On average, 75% of the allocated funds were spent on direct student aid.

How many? As noted above in the last two sections of this analysis, the California College Promise Grant and the California College Promise Program are two different programs, both which potentially significantly reduce the costs associated attending a CCC. The chart below, as compiled via the CCC Management Information Systems Data Mart and the CCCCO delineates the number of CCC students who have received the California College Promise Grant waiver and those who have received a California College Promise Program waiver:

The CCC has over 1.9 million students. According to the CCCCO, from Fall 2021-2024 the percentage of part-time CCC students ranged from 61% - 65%; making part-time students well over the majority of students attending the CCC.

Committee comments. Many community college students attend part-time for myriad of reasons, including, but not limited to, the cost of living requiring them to work a full-time job and/or caring for a dependent(s). If the California College Promise Program is expanded to enable part-time students to potentially experience the benefits of the the California College Promise Program, it may assist part-time students in taking more classes even if not equal to full-time status, thus potentially reducing their time to degree or transfer.

However, it could also increase their time to degree or transfer because it removes the incentive that currently exists – being enrolled full-time – in order to benefit from the waiver.

Additionally, while it is presently unknown the exact costs associated with expanding the California College Promise Program to everyone, regardless of enrollment status or financial need, it is also unknown where the funds to expand this program will come from.

Committee Staff understands that the author did not submit a Budget Request Letter in order to potentially augment the current fiscal allocation for California College Promise Program.

Moving forward, the author may wish to work with the appropriate stakeholders in order to determine if it is prudent to augment the Program for all part-time CCC students or perhaps augment just for part-time CCC students who have a proven financial need.

Arguments in support. According to the California Teachers Association (CTA), “64% of students attended college on a part-time basis (less than 12 units). This means an overwhelming majority of students do not qualify for the California College Promise Program. These students may be working parents or caregivers who cannot go without a paycheck. They may have other responsibilities that do not allow them to take on a full course load. Whatever their reasons, they should be eligible for the Program like their full-time classmates.”

Related legislation. AB 1035 (Mark González), which passed out of this Committee on April 8, 2025, with a vote of 8-2 and is currently pending action by the Assembly Committee on Appropriations, in part, authorizes the expansion of the community college enrollment fee waiver that students are eligible for under the California College Promise by an additional two years of full-time attendance for a student enrolled in a community college baccalaureate degree program for a total of four years of eligibility.

Prior legislation. AB 1342 (Megan Dahle), Chapter 102, Statutes of 2023, deems a student as a first-time CCC student for purposes of qualifying for a California College Promise Program fee waiver, even if that student had been enrolled in a CCC through a dual enrollment program in high school.

AB 2 (Santiago, et al.), Chapter 509, Statutes of 2019, expands the California Promise Program, allowing a student enrolled in fewer than 12 units, and part of the Disabled Students Programs and Services (DSPS), to be considered a full-time student for purposes of eligibility for the California College Promise Program.

SB 77 (Committee on Budget and Fiscal Review) Chapter 53, Statutes of 2019, which is the higher education budget trailer bill, includes the statutory changes necessary to expand the California College Promise Program for a second academic year.

AB 19 (Santiago), Chapter 735, Statutes of 2017, establishes the California College Promise Program, to be administered by the CCCCO which must distribute funding, upon appropriation by the Legislature, to each community college meeting the specified requirements to be used to accomplish certain goals and waive the $46 per unit fee for one academic year for first-time students.

AB 1741 (Freddie Rodriguez and O'Donnell), Chapter 434, Statutes of 2016, in part, until January 1, 2021, establishes the California College Promise Innovation Grant Program to be administered by the CCC Chancellor's Office. The Program would support the CCC in establishing or expanding regional programs to address college preparedness, attendance, and graduation in partnership with school districts and public postsecondary universities in California.

REGISTERED SUPPORT / OPPOSITION:

Support

Alliance for Children's Rights
CA Edge Coalition
California Community College Independents
California Teachers Association
Coast Community College District
Faculty Association of California Community Colleges
San Jose-Evergreen Community College District
Student Senate for California Community Colleges

Opposition

None on file.

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