Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law requires the board of governors to adopt regulations to establish and maintain the minimum qualifications for service as a faculty member teaching credit instruction, a faculty member teaching noncredit instruction, a librarian, a counselor, an educational administrator, an extended opportunity programs and services worker, a disabled students programs and services worker, an apprenticeship instructor, and a supervisor of health. Existing law provides, notwithstanding that provision, that a person authorized to serve as a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, or chief administrative officer under a credential shall retain the right to serve under the terms of that credential, and, for that purpose, shall be deemed to possess the minimum qualifications specified for every discipline or service covered by the credential until the expiration of that credential. Existing law requires the board of governors to adopt regulations authorizing local governing boards to employ faculty members and educational administrators who do not meet the specified minimum qualifications, subject to alternative minimum qualifications.

This bill would explicitly require a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, chief administrative officer, extended opportunity programs and services worker, disabled students programs and services worker, apprenticeship instructor, or supervisor of health to be a person who meets the above-described minimum qualifications to serve in that position or the alternative qualifications to serve in that position.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law requires the board of governors to adopt regulations to establish and maintain the minimum qualifications for service as a faculty member teaching credit instruction, a faculty member teaching noncredit instruction, a librarian, a counselor, an educational administrator, an extended opportunity programs and services worker, a disabled students programs and services worker, an apprenticeship instructor, and a supervisor of health. Existing law provides, notwithstanding that provision, that a person authorized to serve as a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, or chief administrative officer under a credential shall retain the right to serve under the terms of that credential, and, for that purpose, shall be deemed to possess the minimum qualifications specified for every discipline or service covered by the credential until the expiration of that credential. Existing law requires the board of governors to adopt regulations authorizing local governing boards to employ faculty members and educational administrators who do not meet the specified minimum qualifications, subject to alternative minimum qualifications.

This bill would explicitly require a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, chief administrative officer, extended opportunity programs and services worker, disabled students programs and services worker, apprenticeship instructor, or supervisor of health to be a person who meets the above-described minimum qualifications to serve in that position or the alternative qualifications to serve in that position.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law requires the board of governors to adopt regulations to establish and maintain the minimum qualifications for service as a faculty member teaching credit instruction, a faculty member teaching noncredit instruction, a librarian, a counselor, an educational administrator, an extended opportunity programs and services worker, a disabled students programs and services worker, an apprenticeship instructor, and a supervisor of health. Existing law provides, notwithstanding that provision, that a person authorized to serve as a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, or chief administrative officer under a credential shall retain the right to serve under the terms of that credential, and, for that purpose, shall be deemed to possess the minimum qualifications specified for every discipline or service covered by the credential until the expiration of that credential. Existing law requires the board of governors to adopt regulations authorizing local governing boards to employ faculty members and educational administrators who do not meet the specified minimum qualifications, subject to alternative minimum qualifications.

This bill would explicitly require a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, chief administrative officer, extended opportunity programs and services worker, disabled students programs and services worker, apprenticeship instructor, or supervisor of health to be a person who meets the above-described minimum qualifications to serve in that position or the alternative qualifications to serve in that position.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of public postsecondary education in this state. Existing law requires the board of governors to adopt regulations to establish and maintain the minimum qualifications for service as a faculty member teaching credit instruction, a faculty member teaching noncredit instruction, a librarian, a counselor, an educational administrator, an extended opportunity programs and services worker, a disabled students programs and services worker, an apprenticeship instructor, and a supervisor of health. Existing law provides, notwithstanding that provision, that a person authorized to serve as a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, or chief administrative officer under a credential shall retain the right to serve under the terms of that credential, and, for that purpose, shall be deemed to possess the minimum qualifications specified for every discipline or service covered by the credential until the expiration of that credential. Existing law requires the board of governors to adopt regulations authorizing local governing boards to employ faculty members and educational administrators who do not meet the specified minimum qualifications, subject to alternative minimum qualifications.

This bill would explicitly require a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, chief administrative officer, extended opportunity programs and services worker, disabled students programs and services worker, apprenticeship instructor, or supervisor of health to be a person who meets the above-described minimum qualifications to serve in that position or the alternative qualifications to serve in that position.

 UNFINISHED BUSINESS  

Bill No: SB 241

Author: Cervantes (D)

Amended: 9/2/25 in Assembly

Vote: 21

SENATE EDUCATION COMMITTEE: 7-0, 3/26/25

AYES: Pérez, Ochoa Bogh, Cabaldon, Choi, Cortese, Gonzalez, Laird

SENATE FLOOR: 39-0, 4/1/25 (Consent)

AYES: Allen, Alvarado-Gil, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Choi, Cortese, Dahle, Durazo, Gonzalez, Grayson, Grove, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Niello, Ochoa Bogh, Padilla, Pérez, Richardson, Rubio, Seyarto, Smallwood-Cuevas, Stern, Strickland, Umberg, Valladares, Wahab, Weber Pierson, Wiener

NO VOTE RECORDED: Reyes

ASSEMBLY FLOOR: 78-1, 9/8/25 - See last page for vote

SUBJECT: Community colleges: personnel: qualifications

SOURCE: Faculty Association of California Community Colleges

DIGEST:

This bill requires that a community college instructor and the specified staff be a person.

Assembly Amendments

of 9/2/25 clarifies that this bill’s provisions do not prevent a community college from using artificial intelligence (AI) tools to assist in its operations or in providing services to students.

ANALYSIS:

Existing law:

1) Establishes the California Community Colleges (CCC) under the administration of the Board of Governors (BOG), as one of the segments of public postsecondary education in California. The CCC system shall be comprised of community college districts. (Education Code (EC) § 70900)

2) Requires the BOG to adopt regulations to establish and maintain the minimum qualifications for service as a faculty member teaching credit instruction, a faculty member teaching noncredit instruction, a librarian, a counselor, an educational administrator, an extended opportunity programs and services worker, a disabled students programs and services worker, an apprenticeship instructor, and a supervisor of health. (EC § 87356)

3) Provides, notwithstanding 1) above, that a person authorized to serve as a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, or chief administrative officer under a credential shall retain the right to serve under the terms of that credential, and, for that purpose, shall be deemed to possess the minimum qualifications specified for every discipline or service covered by the credential until the expiration of that credential. (EC § 87355)

4) Requires the BOG to adopt regulations authorizing local governing boards to employ faculty members and educational administrators who do not meet the specified minimum qualifications, subject to alternative minimum qualifications. (EC § 87359)

5) Requires that the instructor of record for a community college course be a person who meets minimum qualifications to serve as a faculty member teaching noncredit or credit instruction. (EC § 87359.2)

This bill:

1. Requires that a CCC instructor, librarian, counselor, student personnel worker, supervisor, administrator, chief administrative officer, extended opportunity programs and services worker, disabled students programs and services worker, apprenticeship instructor, or health supervisor be a person who meets the minimum qualifications to serve in that position established in current law.
2. States that that this bill’s provisions do not prevent a community college from using AI tools to assist in its operations or in providing services to students.

Comments

Need for this bill. According to the author, “The rapid development in recent years of new technology like artificial intelligence has had a massive effect not only on our society generally, but on public policy in particular. One of the most pressing issues faced by the growing use of new technology tools has been the possible effects on human workers, particularly the threat of AI, that human workers could be replaced wholesale by artificial intelligence. In the May 2023 edition of the California Community Colleges’ ‘Digital Futures’ newsletter, an article entitled ‘Transforming Education: The Rise of AI in the California Community Colleges’ described the potential pedagogical use of AI in community colleges. It stated that ‘AI could provide excellent opportunities for more individualized instruction, tutoring, and class reviews. Faculty members might use AI to create lesson plans…’ While there is room for technology tools like AI to contribute in community college classrooms in California, human faculty are still necessary and best suited to teach human students. Senate Bill 241 follows up on my Assembly Bill 2370 (2024) by providing additional guardrails on the use of AI at our community colleges. It will accomplish this by expanding the list of instructor and faculty positions at our community colleges who must meet all of the minimum qualifications set by the Board of Governors of the California Community Colleges to serve as faculty.”

What’s the problem? As described by the Little Hoover Commission in their 2018 report on Artificial Intelligence (AI): A Roadmap for California, Artificial Intelligence refers to a quality of any computer program (algorithms, data structures, and data) that can sense reason, act, and adapt like humans. It performs with near-humanlike abilities to sense, reason, or act. Fear of the potential replacement of human jobs by AI technology is a growing concern across many sectors. The rapid development of AI has significantly impacted education as these technologies offer valuable tools for enhancing instructional practices, but also bring out the need to defend the role of human faculty and other educator positions. Current law explicitly requires that the instructor of record for a community college course be a person. This bill attempts to build on that policy by requiring that a number of other positions on campus be held by a person.

The pandemic accelerated virtual instruction. Online instruction in higher education accelerated as a result of the COVID pandemic that necessitated distance learning. The Legislative Analyst’s Office 2024 publication, Trends in Higher Education Series: Student Success demonstrates, that the rapid increase of 20% in the 2019-20 academic year and, 60% in the 2020-2021 academic year, and approximately 50% in the 2022-2023 academic year of community college courses were delivered through online instruction. Arguably, this rapid growth stimulated the use of AI technologies to support student learning, especially in virtual settings. Online courses have remained a popular option for community college students who want greater flexibility in how they access their education, particularly for those who are place-bound or have work and family obligations.

AI integration in higher education. Postsecondary educational institutions are called on to assure success in educational programs, and with that comes a personal element to effectively educate and foster personal growth among individuals. Human faculty members have the ability to simulate critical and creative thinking, inspire them, cultivate empathy and moral conviction, and respond to unexpected situations. The Faculty Association of California Community Colleges, the sponsor of this measure, asserts, “Teaching is a profound human endeavor that requires nuanced interpersonal skills, subject matter expertise, and the ability to engage students in ways that machines cannot replicate… AI, while useful for certain supplementary functions, lacks the cognitive and emotional intelligence to truly replace human faculty. Allowing AI to take over direct instruction could severely compromise education quality.” It is commonly argued that when establishing policies regarding the integration of AI, the Legislature should strive to strike a balance that fosters innovation while minimizing adverse consequences in other aspects of civic life. The same principle applies to education. AI can provide numerous benefits in augmenting traditional methods of learning and instruction. Examples of this capability include offering interactive simulations, virtual reality experiences, and intelligent tutoring systems, as well as improving accessibility for students with disabilities with text-to-speech and speech-to-text technology. The California State University’s recent announcement of becoming an AI-empowered higher education system in integrating AI learning and teaching tools across the system demonstrates AI’s growing influence in educational settings. This bill aims to strike an appropriate balance in preserving positions held by humans in academia without prohibiting the integration of AI technology to enhance instructional practices.

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

SUPPORT: (Verified 9/8/25)

Faculty Association of California Community Colleges (source)

California Community Colleges Chancellor's Office

California Teachers Association

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

OPPOSITION: (Verified 9/8/25)

None received

AYES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Castillo, Chen, Connolly, Davies, Dixon, Elhawary, Ellis, Flora, Fong, Gabriel, Gallagher, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Hart, Hoover, Irwin, Jackson, Johnson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, McKinnor, Muratsuchi, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

NOES: DeMaio

NO VOTE RECORDED: Nguyen

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

9/8/25 19:32:00

**** END ****

SENATE THIRD READING

STR Bill Id:SB 241

Author:(Cervantes)

As Amended Ver:June 26, 2025

Majority vote

SUMMARY

Clarifies a California Community College (CCC) is only permitted to hire a person who meets the minimum qualifications for specific positions at the college.

Major Provisions

1. Requires a CCC to hire a person for the role of community college instructor, librarian, counselor, student personnel workers, supervisor, administrator, chief administrative officer, extended opportunity programs and services worker, disabled students programs and service worker, apprenticeship instructor, or supervisor of health. Requires the person hired, for the roles listed above, to meet the minimum qualifications, as specified.
2. Clarifies nothing in the definitions of who qualifies for positions at the CCC limits the use of artificial intelligence by community college staff to aid in the day-to-day operations of a community college.

COMMENTS

Minimum qualification for employees. As part of a larger reform effort at the CCC, authority was granted to the Board of Governors (BOG) in 1990 to establish the minimum qualifications for faculty positions through regulations. In consultation with the systemwide Academic Senate, the BOG reviews and adopts the minimum qualifications which serve as "a statewide benchmark for promoting professionalism and rigor within the academic disciplines in the community colleges and a guideline for day-to-day decisions regarding suitability for employment." The California Code of Regulations (CCR) Title 5, Division 6, Chapter 6, Subchapter 5, Sections 53400-53430, 53500-53502, 56048, and 56260-56262, includes the minimum qualifications for instructors for credit courses, counselors, librarians, health service professionals, apprenticeship instructors, disabled student programs and service employees, learning assistance instructors, and educational administrators. The minimum qualifications are as follows:

1. For an instructors, librarians, and counselors –Possession of a master's degree in the discipline as assigned and a possession of a bachelor's degree in the discipline as assigned OR; in a discipline related to the assignment; or if a master's degree is not required for the discipline: a bachelor's degree with two years of experience in the field or an associate degree with six years of experience in the field.
2. For apprenticeship instructors – Possession of an associate degree plus four years of occupational experience in the subject matter; or six years of occupational experience in the subject, a journeyman's certificate in the subject area, and at least 12 semester units of apprenticeship or college-level course work; or, six years of occupational experience and a minimum of 10 years as an apprenticeship instructor.
3. For disabled students programs and service employees – Possession of a master's degree in counseling (variety of options to the type of counseling); and for specific disabilities the required licensure from the state identified board.
4. For educational administrators – Possession of a master's degree and one year of specified experience related to the administrative assignment.
5. For extended opportunity programs and services (EOPS) worker –Possession of a master's degree and relative work experience (time and breadth depends on the position within the EOPS program).
6. For health services supervisor – Possession of a master's degree in nursing and a California Public Health Nurse certificate; or, a bachelor's degree in nursing, a California Public Health Nurse certificate; and a master's degree in subjects related to health.
7. For a student personnel worker, supervisor, and chief administrative officer – There are no minimum qualifications for these positions pursuant to existing law beyond a certificate; which as of 1990 no longer exists.

Every few years the Chancellor's office in consultation with the Academic Senate will update the discipline and minimum qualifications manual to add additional majors, minors, and subjects offered at community colleges throughout the state. In July 2024, the BOG approved the 19^th edition. The edition included an array of new subject matters and defined the minimum qualifications for newly created faculty and administrative positions at the CCC. The 88 page manual includes every discipline taught at the CCC and the required minimum qualifications the discipline or major requires. The manual divides the disciplines and positions into three types: 90 disciplines which require a master's degree, 144 which require a specific bachelor's degree or associate degree and experience, and 145 which require any degree and experience.

Use of artificial intelligence at the California Community Colleges. In 2023, Chancellor Sonya Christian published the "Vision 2030: A Roadmap for California Community Colleges," which included three overarching goals with six associated outcomes to help the CCC in its pursuit of ensuring the system provides transformative educational opportunities to students. In addition to overarching goals and outcomes, Vision 2030 also provided direction for how the CCC will achieve the goals and outcomes. Actively engaging with the impacts of generative artificial intelligence (AI), is one of the strategic directions identified by the Chancellor.

As part of Vision 2030, Chancellor Christian established the Chancellor's Artificial Intelligence Council comprised of faculty, administrators, and students. The Council spent months in discovery and research and in July 2024, the Council produced and presented a report on their findings to the BOG at the behest of the Chancellor. The report provided an overview of the work conducted by the Council for how AI will impact industry, campus workforce, and the future of teaching and learning. The report acknowledges the fear faculty have regarding potential displacement by AI and counters this anxiety by stating the CCC approach to AI is "human centered" meaning "students, faculty, staff, and administrators should be able to opt out, where appropriate, and have access to a person who can quickly consider and remedy problems they encounter." Furthermore, the report states the work with AI as a tool should be "faculty-centered and driven by the interest of faculty and support staff," for the purpose of "optimizing outcomes for students, faculty, administrators, and staff." The entire report is full of ideas and concepts on how AI can be used as a tool to enhance the current system.

The report also provides insight for how AI is currently being used as a tool to assist in the day-to-day operations of the CCC. The California Student Aid Commission (CSAC) is partnering with Mainstay to launch an innovative chatbot to help students complete their financial aid applications and to navigate basic needs resources at the CCC. The pilot is currently available at colleges in the Los Rios Community College District, the Los Angeles Community College District, and the San Bernardino Community College District.

Foothill-De Anza Community College District and West Valley-Mission Community College District have partnered with N2N Services to use an AI platform to help identify fraudulent CCCApply admission applications, course registrations, and financial aid activities. A recent presentation of the partnership was provided at the May 2025 BOG meeting with an update on how the AI program has reduced fraudulent applications and therefore, saved money in financial aid expenditures and classroom resources.

According to the Author

As explained by the Author, "the rapid development in recent years of new technology like artificial intelligence has had a massive effect not only on our society generally, but on public policy in particular. One of the most pressing issues faced by the growing use of new technology tools has been the possible effects on human workers, particularly the threat of AI, that human workers could be replaced wholesale by artificial intelligence. In the May 2023 edition of the California Community Colleges' 'Digital Futures' newsletter, an article entitled 'Transforming Education: The Rise of AI in the California Community Colleges' described the potential pedagogical use of AI in community colleges. It stated that 'AI could provide excellent opportunities for more individualized instruction, tutoring, and class reviews. Faculty members might use AI to create lesson plans…' While there is room for technology tools like AI to contribute in community college classrooms in California, human faculty are still necessary and best suited to teach human students. Senate Bill 241 follows up on my Assembly Bill 2370 (2024) by providing additional guardrails on the use of AI at our community colleges. It will accomplish this by expanding the list of instructor and faculty positions at our community colleges who must meet all of the minimum qualifications set by the Board of Governors of the California Community Colleges to serve as faculty."

According to the author, the purpose of the measure is to "protect all faculty jobs in the CCC system, especially those who represent underserved communities in higher education."

Arguments in Support

As the sponsor of the measure, the Faculty Association of California Community Colleges see the measure as necessary as, "the value of in-person, faculty-led education extends beyond academic achievement, shaping students' personal and professional growth. Faculty help students develop soft skills, such as communication, teamwork, and resilience, which are necessary for success in the workforce and in life. Discussions, individualized feedback, and the opportunity to ask questions in real time create a dynamic learning environment that cannot be replicated by impersonal or automated methods. Removing or diminishing faculty-student interaction risks turning education into a transactional experience, rather than a transformative one. Moreover, preserving direct faculty involvement in education ensures community colleges remain institutions of opportunity and innovation. Faculty members bring lived experiences, industry knowledge, and pedagogical expertise that enrich student learning in ways that standardized or impersonalized methods cannot. By prioritizing qualified non-instructional faculty in hiring and instructional policies, SB 241 strengthens California's commitment to maintaining academic excellence and equity across its community college system."

Arguments in Opposition

None on file.

FISCAL COMMENTS

This measure is keyed non-fiscal by Legislative Counsel.

VOTES

SENATE FLOOR: 39-0-1

YES: Allen, Alvarado-Gil, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Choi, Cortese, Dahle, Durazo, Gonzalez, Grayson, Grove, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Niello, Ochoa Bogh, Padilla, Pérez, Richardson, Rubio, Seyarto, Smallwood-Cuevas, Stern, Strickland, Umberg, Valladares, Wahab, Weber Pierson, Wiener

ABS, ABST OR NV: Reyes

ASM HIGHER EDUCATION: 9-0-1

YES: Fong, Boerner, Jeff Gonzalez, Jackson, Muratsuchi, Patel, Celeste Rodriguez, Sharp-Collins, Tangipa

ABS, ABST OR NV: DeMaio

UPDATED

VERSION: June 26, 2025

CONSULTANT: Ellen Cesaretti-Monroy / HIGHER ED. / (916) 319-3960 FN: 0001040

Date of Hearing: June 24, 2025

ASSEMBLY COMMITTEE ON HIGHER EDUCATION

Mike Fong, Chair

SBPCA Bill Id:SB 241

Author:(Cervantes) – As Introduced Ver:January 30, 2025

SENATE VOTE: 39-0

SUBJECT: Community colleges: personnel: qualifications

SUMMARY: Clarifies a California Community College (CCC) is only permitted to hire a person who meets the minimum qualifications for specific positions at the college. Specifically, this bill:

1. Requires a CCC to hire a person for the role of community college instructor, librarian, counselor, student personnel workers, supervisor, administrator, chief administrative officer, extended opportunity programs and services worker, disabled students programs and service worker, apprenticeship instructor, or supervisor of health. Requires the person hired, for the roles listed above, to meet the minimum qualifications, as specified.

EXISTING LAW:

1. Establishes the CCC under the administration of the Board of Governors (BOG) of the CCC, as one of the segments of public postsecondary education in California. The CCC shall be comprised of community college districts (Education Code (EDC) Section 70900).
2. Explicitly requires a CCC to hire an instructor who is a person and meets the minimum qualifications, as defined, to serve as a faculty member teaching credit or noncredit instruction at a CCC (EDC Section 87359.2)
3. Requires a person serving as a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, or a chief administrative officer to retain the right to serve under the terms of the credential, if a credential is required for the position. Clarifies the person hired as community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, or a chief administrative officer has met the minimum qualifications for every discipline or service covered by the required credential until the credential is expired. Authorizes the CCC BOG to adopt regulations to implement the above (EDC Section 87355).
4. Authorizes the CCC BOG to adopt regulations to establish and maintain the minimum qualifications for service as a faculty member teaching credit instruction, a faculty member teaching noncredit instruction, a librarian, a counselor, an educational administrator, an extended opportunity programs and service worker, a disabled students programs and service worker, an apprenticeship instructor, and a supervisor of health (EDC Section 87356).
5. Authorizes the CCC BOG to adopt regulations for the permissible employment of faculty members and educational administrators who do not meet the applicable minimum qualifications specified in the regulations adopted by the BOG pursuant to Section 87356. Places restrictions on the use of the regulations and the manner in which the regulations are adopted by the local governing boards (EDC Section 87359).

FISCAL EFFECT: This measure is keyed non-fiscal by Legislative Counsel.

COMMENTS: Background. Due to growing concerns regarding the use of artificial intelligence (AI) at colleges and universities throughout the nation, AB 2370 (Cervantes), Chapter 66, Statutes of 2024, was introduced as an effort to define the appropriate use of AI at California Community Colleges (CCC). AB 2370 (Cervantes) explicitly defined an instructor at the CCC as a “person” who meets the minimum qualifications for teaching noncredit or credit courses.

At the time, the prevailing understanding throughout the education community was AI was a tool which could be harnessed to assist faculty and students alike in the preparation of a skilled and trained workforce. As AI became more prevalent in education as a tool to reduce workload capacities, administrators at universities began to postulate that AI could be used to replace workers. In the spring of 2024, a memo was distributed by Boston University authorizing faculty to use AI in place of graduate students and teaching assistants as the University continued its contract negotiations.^[1] For many, this was seen as the first step to outright human replacement with AI in education. AB 2370 (Cervantes) was the Legislative response to these concerns. By inserting the term “person,” the Legislature was reaffirming to faculty the continual support for human to human interaction for instruction, even in the wake of AI expansion.

SB 241 (Cervantes) seeks to expand AB 2370 (Cervantes) by requiring the positions of instructor, librarian, counselor, student personnel worker, supervisor, administrator, chief administrative officer, extended opportunity programs and service worker, disabled students programs and services worker, apprenticeship instructor, and supervisor of health, to be filled by a person who meets the minimum qualifications for the role.

Author’s intent. As explained by the Author, “the rapid development in recent years of new technology like artificial intelligence has had a massive effect not only on our society generally, but on public policy in particular. One of the most pressing issues faced by the growing use of new technology tools has been the possible effects on human workers, particularly the threat of AI, that human workers could be replaced wholesale by artificial intelligence. In the May 2023 edition of the California Community Colleges’ ‘Digital Futures’ newsletter, an article entitled ‘Transforming Education: The Rise of AI in the California Community Colleges’ described the potential pedagogical use of AI in community colleges. It stated that ‘AI could provide excellent opportunities for more individualized instruction, tutoring, and class reviews. Faculty members might use AI to create lesson plans…’ While there is room for technology tools like AI to contribute in community college classrooms in California, human faculty are still necessary and best suited to teach human students. Senate Bill 241 follows up on my Assembly Bill 2370 (2024) by providing additional guardrails on the use of AI at our community colleges. It will accomplish this by expanding the list of instructor and faculty positions at our community colleges who must meet all of the minimum qualifications set by the Board of Governors of the California Community Colleges to serve as faculty.”

According to the author, the purpose of the measure is to “protect all faculty jobs in the CCC system, especially those who represent underserved communities in higher education.”

Committee staff note the list of positions identified by SB 241 (Cervantes) includes positions that are not identified as faculty positions by the CCC. The scope of the bill expands the requirements for “person” with the required qualifications to fill designated positions beyond those positions identified as “faculty positions” at the CCC.

Minimum qualification for employees. As part of a larger reform effort at the CCC, authority was granted to the Board of Governors (BOG) in 1990 to establish the minimum qualifications for faculty positions through regulations. In consultation with the systemwide Academic Senate, the BOG reviews and adopts the minimum qualifications which serve as “a statewide benchmark for promoting professionalism and rigor within the academic disciplines in the community colleges and a guideline for day-to-day decisions regarding suitability for employment.”^[2] The California Code of Regulations (CCR) Title 5, Division 6, Chapter 6, Subchapter 5, Sections 53400-53430, 53500-53502, 56048, and 56260-56262, includes the minimum qualifications for instructors for credit courses, counselors, librarians, health service professionals, apprenticeship instructors, disabled student programs and service employees, learning assistance instructors, and educational administrators. The minimum qualifications are as follows:

1. For an instructors, librarians, and counselors –Possession of a master’s degree in the discipline as assigned and a possession of a bachelor’s degree in the discipline as assigned OR; in a discipline related to the assignment; or if a master’s degree is not required for the discipline: a bachelor’s degree with two years of experience in the field or an associate degree with six years of experience in the field.
2. For apprenticeship instructors – Possession of an associate degree plus four years of occupational experience in the subject matter; or six years of occupational experience in the subject, a journeyman’s certificate in the subject area, and at least 12 semester units of apprenticeship or college-level course work; or, six years of occupational experience and a minimum of 10 years as an apprenticeship instructor.
3. For disabled students programs and service employees – Possession of a master’s degree in counseling (variety of options to the type of counseling); and for specific disabilities the required licensure from the state identified board.
4. For educational administrators – Possession of a master’s degree and one year of specified experience related to the administrative assignment.
5. For extended opportunity programs and services (EOPS) worker –Possession of a master’s degree and relative work experience (time and breadth depends on the position within the EOPS program).
6. For health services supervisor – Possession of a master’s degree in nursing and a California Public Health Nurse certificate; or, a bachelor’s degree in nursing, a California Public Health Nurse certificate; and a master’s degree in subjects related to health.
7. For a student personnel worker, supervisor, and chief administrative officer – There are no minimum qualifications for these positions pursuant to existing law beyond a certificate; which as of 1990 no longer exists.

Every few years the Chancellor’s office in consultation with the Academic Senate will update the discipline and minimum qualifications manual to add additional majors, minors, and subjects offered at community colleges throughout the state. In July 2024, the BOG approved the 19^th edition. The edition included an array of new subject matters and defined the minimum qualifications for newly created faculty and administrative positions at the CCC. The 88 page manual includes every discipline taught at the CCC and the required minimum qualifications the discipline or major requires. The manual divides the disciplines and positions into three types: 90 disciplines which require a master’s degree, 144 which require a specific bachelor’s degree or associate degree and experience, and 145 which require any degree and experience.³

Use of artificial intelligence at the California Community Colleges. In 2023, Chancellor Sonya Christian published the “Vision 2030: A Roadmap for California Community Colleges,” which included three overarching goals with six associated outcomes to help the CCC in its pursuit of ensuring the system provides transformative educational opportunities to students. In addition to overarching goals and outcomes, Vision 2030 also provided direction for how the CCC will achieve the goals and outcomes. Actively engaging with the impacts of generative artificial intelligence (AI), is one of the strategic directions identified by the Chancellor.

As part of Vision 2030, Chancellor Christian established the Chancellor’s Artificial Intelligence Council comprised of faculty, administrators, and students. The Council spent months in discovery and research and in July 2024, the Council produced and presented a report on their findings to the BOG at the behest of the Chancellor. The report provided an overview of the work conducted by the Council for how AI will impact industry, campus workforce, and the future of teaching and learning.^[3] The report acknowledges the fear faculty have regarding potential displacement by AI and counters this anxiety by stating the CCC approach to AI is “human centered” meaning “students, faculty, staff, and administrators should be able to opt out, where appropriate, and have access to a person who can quickly consider and remedy problems they encounter.”⁴ Furthermore, the report states the work with AI as a tool should be “faculty-centered and driven by the interest of faculty and support staff,” for the purpose of “optimizing outcomes for students, faculty, administrators, and staff.” The entire report is full of ideas and concepts on how AI can be used as a tool to enhance the current system.

The report also provides insight for how AI is currently being used as a tool to assist in the day-to-day operations of the CCC. The California Student Aid Commission (CSAC) is partnering with Mainstay to launch an innovative chatbot to help students complete their financial aid applications and to navigate basic needs resources at the CCC. The pilot is currently available at colleges in the Los Rios Community College District, the Los Angeles Community College District, and the San Bernardino Community College District.⁴

Foothill-De Anza Community College District and West Valley-Mission Community College District have partnered with N2N Services to use an AI platform to help identify fraudulent CCCApply admission applications, course registrations, and financial aid activities. A recent presentation of the partnership was provided at the May 2025 BOG meeting with an update on how the AI program has reduced fraudulent applications and therefore, saved money in financial aid expenditures and classroom resources.^[4]

Arguments in support. As the sponsor of the measure, the Faculty Association of California Community Colleges see the measure as necessary as, “the value of in-person, faculty-led education extends beyond academic achievement, shaping students’ personal and professional growth. Faculty help students develop soft skills, such as communication, teamwork, and resilience, which are necessary for success in the workforce and in life. Discussions, individualized feedback, and the opportunity to ask questions in real time create a dynamic learning environment that cannot be replicated by impersonal or automated methods. Removing or diminishing faculty-student interaction risks turning education into a transactional experience, rather than a transformative one. Moreover, preserving direct faculty involvement in education ensures community colleges remain institutions of opportunity and innovation. Faculty members bring lived experiences, industry knowledge, and pedagogical expertise that enrich student learning in ways that standardized or impersonalized methods cannot. By prioritizing qualified non-instructional faculty in hiring and instructional policies, SB 241 strengthens California’s commitment to maintaining academic excellence and equity across its community college system.”

Committee comments and amendments. As highlighted above the “Generative AI and the Future of Teaching and Learning” report indicates the intention of the CCC to use Artificial Intelligence and Generative AI as a tool to enhance student learning at the CCC.

In order to provide clarity that AI can be used as a tool to assist faculty and staff with the day-to-day operations of the CCC, the Committee has suggested and the Author has agreed to amend the measure to include the following:

(c) This section does not prohibit community college staff from using artificial intelligence tools to assist in the operations of a community college or in providing services to community college students.

REGISTERED SUPPORT / OPPOSITION:

Support

California Teachers Association
CFT- a Union of Educators & Classified Professionals, AFT, AFL-CIO
Faculty Association of California's Community Colleges

Opposition

None on file.

Analysis Prepared by: Ellen Cesaretti-Monroy / HIGHER ED. / (916) 319-3960

1. https://www.insidehighered.com/news/tech-innovation/artificial-intelligence/2024/04/18/faculty-unions-seek-ai-guidelines-contracts ↑

2. 19^th edition minimum qualifications for faculty and administrators in the CCC. ↑

3. https://go.boarddocs.com/ca/cccchan/Board.nsf/files/D7BVFY8099A1/$file/Generative%20AI%20and%20the%20Future%20of%20Teaching%20and%20Learning%207-17-24%202.pdf ↑

4. https://go.boarddocs.com/ca/cccchan/Board.nsf/goto?open&id=DENVL48134B9 ↑

 Consent 

Bill No: SB 241

Author: Cervantes (D)

Introduced: 1/30/25

Vote: 21

SENATE EDUCATION COMMITTEE: 7-0, 3/26/25

AYES: Pérez, Ochoa Bogh, Cabaldon, Choi, Cortese, Gonzalez, Laird

SUBJECT: Community colleges: personnel: qualifications

SOURCE: Faculty Association of California Community Colleges

DIGEST:

This bill requires that a community college instructor and the specified staff be a person.

ANALYSIS:

Existing law:

1. Establishes the California Community Colleges (CCC) under the administration of the Board of Governors (BOG), as one of the segments of public postsecondary education in California. The CCC system shall be comprised of community college districts. (Education Code (EC) § 70900)
2. Requires the BOG to adopt regulations to establish and maintain the minimum qualifications for service as a faculty member teaching credit instruction, a faculty member teaching noncredit instruction, a librarian, a counselor, an educational administrator, an extended opportunity programs and services worker, a disabled students programs and services worker, an apprenticeship instructor, and a supervisor of health. (EC § 87356)
3. Provides, notwithstanding 1) above, that a person authorized to serve as a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, or chief administrative officer under a credential shall retain the right to serve under the terms of that credential, and, for that purpose, shall be deemed to possess the minimum qualifications specified for every discipline or service covered by the credential until the expiration of that credential. (EC § 87355)
4. Requires the BOG to adopt regulations authorizing local governing boards to employ faculty members and educational administrators who do not meet the specified minimum qualifications, subject to alternative minimum qualifications. (EC § 87359)
5. Requires that the instructor of record for a community college course be a person who meets minimum qualifications to serve as a faculty member teaching noncredit or credit instruction. (EC § 87359.2)

This bill requires that a CCC instructor, librarian, counselor, student personnel worker, supervisor, administrator, chief administrative officer, extended opportunity programs and services worker, disabled students programs and services worker, apprenticeship instructor, or health supervisor be a person who meets the minimum qualifications to serve in that position established in current law.

Comments

1. Need for the bill. According to the author, “The rapid development in recent years of new technology like artificial intelligence has had a massive effect not only on our society generally, but on public policy in particular. One of the most pressing issues faced by the growing use of new technology tools has been the possible effects on human workers, particularly the threat of AI, that human workers could be replaced wholesale by artificial intelligence. In the May 2023 edition of the California Community Colleges’ ‘Digital Futures’ newsletter, an article entitled ‘Transforming Education: The Rise of AI in the California Community Colleges’ described the potential pedagogical use of AI in community colleges. It stated that ‘AI could provide excellent opportunities for more individualized instruction, tutoring, and class reviews. Faculty members might use AI to create lesson plans…’ While there is room for technology tools like AI to contribute in community college classrooms in California, human faculty are still necessary and best suited to teach human students. Senate Bill 241 follows up on my Assembly Bill 2370 (2024) by providing additional guardrails on the use of AI at our community colleges. It will accomplish this by expanding the list of instructor and faculty positions at our community colleges who must meet all of the minimum qualifications set by the Board of Governors of the California Community Colleges to serve as faculty.”
2. What’s the problem? As described by the Little Hoover Commission in their 2018 report on Artificial Intelligence (AI): A Roadmap for California, Artificial Intelligence refers to a quality of any computer program (algorithms, data structures, and data) that can sense reason, act, and adapt like humans. It performs with near-humanlike abilities to sense, reason, or act. Fear of the potential replacement of human jobs by AI technology is a growing concern across many sectors. The rapid development of AI has significantly impacted education as these technologies offer valuable tools for enhancing instructional practices, but also bring out the need to defend the role of human faculty and other educator positions. Current law explicitly requires that the instructor of record for a community college course be a person. This bill attempts to build on that policy by requiring that a number of other positions on campus be held by a person.
3. The pandemic accelerated virtual instruction. Online instruction in higher education accelerated as result of the COVID pandemic that necessitated distance learning. The Legislative Analyst’s Office 2024 publication, Trends in Higher Education Series: Student Success demonstrates, that the rapid increase of 20% in the 2019-20 academic year and, 60% in the 2020-2021 academic year, and approximately 50% in the 2022-2023 academic year of community college courses were delivered through online instruction. Arguably, this rapid growth stimulated the use of AI technologies to support student learning, especially in virtual settings. Online courses have remained a popular option for community college students who want greater flexibility in how they access their education, particularly for those who are place-bound or have work and family obligations.
4. AI integration in higher education. Postsecondary educational institutions are called on to assure success in educational programs, and with that comes a personal element to effectively educate and foster personal growth among individuals. Human faculty members have the ability to simulate critical and creative thinking, inspire them, cultivate empathy and moral conviction, and respond to unexpected situations. The Faculty Association of California Community Colleges, the sponsor of this measure, asserts, “Teaching is a profound human endeavor that requires nuanced interpersonal skills, subject matter expertise, and the ability to engage students in ways that machines cannot replicate… AI, while useful for certain supplementary functions, lacks the cognitive and emotional intelligence to truly replace human faculty. Allowing AI to take over direct instruction could severely compromise education quality.” It is commonly argued that when establishing policies regarding the integration of AI, the Legislature should strive to strike a balance that fosters innovation while minimizing adverse consequences in other aspects of civic life. The same principle applies to education. AI can provide numerous benefits in augmenting traditional methods of learning and instruction. Examples of this capability include offering interactive simulations, virtual reality experiences, and intelligent tutoring systems, as well as improving accessibility for students with disabilities with text-to-speech and speech-to-text technology. The California State University’s recent announcement of becoming an AI-empowered higher education system in integrating AI learning and teaching tools across the system demonstrates AI’s growing influence in educational settings. This bill aims to strike an appropriate balance in preserving positions held by humans in academia without prohibiting the integration of AI technology to enhance instructional practices.

Related/Prior Legislation

SB 1235 (Gonzalez, 2024) would have required the California State University, Long Beach (CSULB), in consultation with other public institutions of higher education, to establish the AI and Deepfake Working Group and annually report to the Legislature on its research and findings; and would have authorized CSULB to develop a scoping plan in the first year to establish the topics that may be evaluated by, and the stakeholders that may be included in, the working group. The bill was held by the author in the Senate Education Committee.

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

SUPPORT: (Verified 3/26/25)

Faculty Association of California Community Colleges (source)

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

OPPOSITION: (Verified 3/26/25)

None received

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

3/27/25 15:58:00

**** END ****

SENATE COMMITTEE ON EDUCATION

Senator Sasha Renée Pérez, Chair

2025 - 2026 Regular

Bill No: SB 241 Hearing Date: March 26, 2025

Subject: Community colleges: personnel: qualifications.

SUMMARY

This bill requires that a community college instructor and the specified staff be a person.

BACKGROUND

Existing law:

1. Establishes the California Community Colleges (CCC) under the administration of the Board of Governors (BOG), as one of the segments of public postsecondary education in California. The CCC system shall be comprised of community college districts. (Education Code (EC) § 70900)
2. Requires the BOG to adopt regulations to establish and maintain the minimum qualifications for service as a faculty member teaching credit instruction, a faculty member teaching noncredit instruction, a librarian, a counselor, an educational administrator, an extended opportunity programs and services worker, a disabled students programs and services worker, an apprenticeship instructor, and a supervisor of health. (EC § 87356)
3. Provides, notwithstanding 1) above, that a person authorized to serve as a community college instructor, librarian, counselor, student personnel worker, supervisor, administrator, or chief administrative officer under a credential shall retain the right to serve under the terms of that credential, and, for that purpose, shall be deemed to possess the minimum qualifications specified for every discipline or service covered by the credential until the expiration of that credential. (EC § 87355)
4. Requires the BOG to adopt regulations authorizing local governing boards to employ faculty members and educational administrators who do not meet the specified minimum qualifications, subject to alternative minimum qualifications. (EC § 87359)
5. Requires that the instructor of record for a community college course be a person who meets minimum qualifications to serve as a faculty member teaching noncredit or credit instruction. (EC § 87359.2)

ANALYSIS

This bill requires that a CCC instructor, librarian, counselor, student personnel worker, supervisor, administrator, chief administrative officer, extended opportunity programs and services worker, disabled students programs and services worker, apprenticeship instructor, or health supervisor be a person who meets the minimum qualifications to serve in that position established in current law.

STAFF COMMENTS

1. Need for the bill. According to the author, “The rapid development in recent years of new technology like artificial intelligence has had a massive effect not only on our society generally, but on public policy in particular. One of the most pressing issues faced by the growing use of new technology tools has been the possible effects on human workers, particularly the threat of AI, that human workers could be replaced wholesale by artificial intelligence. In the May 2023 edition of the California Community Colleges’ ‘Digital Futures’ newsletter, an article entitled ‘Transforming Education: The Rise of AI in the California Community Colleges’ described the potential pedagogical use of AI in community colleges. It stated that ‘AI could provide excellent opportunities for more individualized instruction, tutoring, and class reviews. Faculty members might use AI to create lesson plans…’ While there is room for technology tools like AI to contribute in community college classrooms in California, human faculty are still necessary and best suited to teach human students. Senate Bill 241 follows up on my Assembly Bill 2370 (2024) by providing additional guardrails on the use of AI at our community colleges. It will accomplish this by expanding the list of instructor and faculty positions at our community colleges who must meet all of the minimum qualifications set by the Board of Governors of the California Community Colleges to serve as faculty.”
2. What’s the problem? As described by the Little Hoover Commission in their 2018 report on Artificial Intelligence (AI): A Roadmap for California, Artificial Intelligence refers to a quality of any computer program (algorithms, data structures, and data) that can sense reason, act, and adapt like humans. It performs with near-humanlike abilities to sense, reason, or act. Fear of the potential replacement of human jobs by AI technology is a growing concern across many sectors. The rapid development of AI has significantly impacted education as these technologies offer valuable tools for enhancing instructional practices, but also bring out the need to defend the role of human faculty and other educator positions. Current law explicitly requires that the instructor of record for a community college course be a person. This bill attempts to build on that policy by requiring that a number of other positions on campus be held by a person.
3. The pandemic accelerated virtual instruction. Online instruction in higher education accelerated as result of the COVID pandemic that necessitated distance learning. The Legislative Analyst’s Office 2024 publication, Trends in Higher Education Series: Student Success demonstrates, that the rapid increase of 20 percent in the 2019-20 academic year and, 60 percent in the 2020-2021 academic year, and approximately 50 percent in the 2022-2023 academic year of community college courses were delivered through online instruction. Arguably, this rapid growth stimulated the use of AI technologies to support student learning, especially in virtual settings. Online courses have remained a popular option for community college students who want greater flexibility in how they access their education, particularly for those who are place-bound or have work and family obligations.
4. AI integration in higher education. Postsecondary educational institutions are called on to assure success in educational programs, and with that comes a personal element to effectively educate and foster personal growth among individuals. Human faculty members have the ability to simulate critical and creative thinking, inspire them, cultivate empathy and moral conviction, and respond to unexpected situations. The Faculty Association of California Community Colleges, the sponsor of this measure, asserts, “Teaching is a profound human endeavor that requires nuanced interpersonal skills, subject matter expertise, and the ability to engage students in ways that machines cannot replicate… AI, while useful for certain supplementary functions, lacks the cognitive and emotional intelligence to truly replace human faculty. Allowing AI to take over direct instruction could severely compromise education quality.” It is commonly argued that when establishing policies regarding the integration of AI, the Legislature should strive to strike a balance that fosters innovation while minimizing adverse consequences in other aspects of civic life. The same principle applies to education. AI can provide numerous benefits in augmenting traditional methods of learning and instruction. Examples of this capability include offering interactive simulations, virtual reality experiences, and intelligent tutoring systems, as well as improving accessibility for students with disabilities with text-to-speech and speech-to-text technology. The California State University’s recent announcement of becoming an AI-empowered higher education system in integrating AI learning and teaching tools across the system demonstrates AI’s growing influence in educational settings. This bill aims to strike an appropriate balance in preserving positions held by humans in academia without prohibiting the integration of AI technology to enhance instructional practices.
5. Prior legislation.

SB 1235 (Gonzalez, 2024) would have required the California State University, Long Beach (CSULB), in consultation with other public institutions of higher education, to establish the AI and Deepfake Working Group and annually report to the Legislature on its research and findings. It would have also authorized CSULB to develop a scoping plan in the first year to establish the topics that may be evaluated by, and the stakeholders that may be included in, the working group. SB 1235 was held by the author in this committee.

SUPPORT

Faculty Association of California Community Colleges (sponsor)

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

OPPOSITION

None received

-- END --