Restructuring California's Adult Education System

Restructuring California’s Adult Education System MAC TAylor • l e g i s l A T i v e A n A l y s T • DeCeMBer 5, 2012 An LAO RepORt 2 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt ExECutivE SummARy Adult Education Serves Multiple Purposes. The core mission of adult education is to provide adults with the basic knowledge and skills they need to participate in civic life and the workforce. Adult education serves undereducated and underskilled state residents who have educational objectives such as learning to speak English; passing the oral and written exams for U.S. citizenship; earning a high school diploma; receiving job training; and obtaining proficiency in reading, writing, and mathematics to succeed in collegiate coursework. Under state law, adult education also can serve various other purposes, including offering enrichment classes (such as ceramics) to older adults and providing instruction in effective parenting techniques. Adult Schools and Community Colleges Are the State’s Main Adult Education Providers. Adult schools, which are operated by school districts, and the California Community Colleges (CCC) are the state’s primary providers of adult education. Adult schools were the first providers of adult education in the state. Later, the Legislature authorized community colleges (then called “junior colleges”) to provide adult education in addition to their traditional mission of instruction at the lower-division (freshman and sophomore) collegiate level. Responsibility for Adult Education Unclear for Decades. In the late 1960s and early 1970s, the Legislature transferred statewide governance of community colleges from the State Board of Education to the CCC Board of Governors. This split raised the question of which segment—school districts or community colleges—should have responsibility for providing adult education in the state. Despite a subsequent lawsuit between schools districts and community colleges and numerous attempts by the state to clarify their respective roles, more than 40 years later the issue remains unresolved. Adult Education Suffers From Several Other Shortcomings. In addition to unclear lines of responsibility, we find the state’s adult education system suffers from a number of other problems, including: (1) an overly broad mission; (2) lack of clear delineations between precollegiate (adult education) and collegiate coursework at CCC; (3) inconsistent state-level policies; (4) widespread lack of coordination among providers; and (5) limited student data, which impairs the public’s ability to hold the system accountable for performance. Over the past few years, the role of adult education in California has become even more clouded, as the Legislature has allowed school districts to use for any educational purpose General Fund monies that previously had been dedicated to adult education. As a result of all these issues, adult education in California today is a complex, confusing, and incoherent system. Adult Education Is in Need of Comprehensive Restructuring. Given adult education’s numerous and significant challenges, we believe the system is in need of comprehensive restructuring. In our view, the Legislature has an important role in guiding the development of such a new system. This report lays out a vision and roadmap for a more focused, rational, collaborative, responsive, and accountable system. Proposed New System Builds Upon the Relative Strengths of Adult Schools and Community Colleges. We find that community colleges and adult schools each have comparative advantages for www.lao.ca.gov Legislative Analyst’s Office 3 An LAO RepORt delivering adult education. The 112 colleges that make up the CCC system focus on adult learners almost exclusively and provide a continuum of education and training through the sophomore year of college. Adult schools, meanwhile, are spread even more widely across the state (even with recent budget cuts, there are about 300 adult schools). They also often provide instruction that is very accessible to adults. For example, some adult education programs are run at elementary schools, such that parents can take classes at the same time and location as their children. Though comparative data on student outcomes are limited, research suggests that adult schools and community colleges perform equally well at educating adult learners. The new system we recommend takes these factors into account and builds upon the strengths of each provider. Recommend Package of Fiscal and Policy Changes. The figure below compares the existing system with the new system we recommend. Given that the state’s current adult education system is both complex and riddled with serious shortcomings, we recommend the Legislature get started immediately in moving toward a better system—particularly as the transition to a better system likely will entail many steps and take several years to implement fully. By taking at least a few steps now, the foundation for a more efficient and effective system would be in place in the event that the state has new funds to invest in adult education in future years. Restructuring the State’s Adult Education System Current System New System Under LAO Plan Authorizes ten state-supported instructional Focuses on the six instructional programs most programs that serve various purposes. closely aligned with adult education’s core mission. Lacks a clear and consistent distinction between Clearly distinguishes between adult education and adult education and collegiate instruction. collegiate education. Applies inconsistent and conflicting policies Applies a consistent set of policies for faculty and regarding faculty qualifications, fees, and student students at adult schools and community colleges. assessments at adult schools and community colleges. Misses opportunities to create strong collaborations Creates a funding mechanism for adult education between adult schools and community colleges. that promotes a coordinated system centered around student access and success. Fails to collect key data needed to fully evaluate the Collects same data on student enrollment and effectiveness of the adult education system. outcomes for both adult schools and community colleges. Links the respective data systems. 4 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt intRoduCtion Over 150 years ago, the state’s first adult adult education’s long history, the state continues education program began offering instruction to to struggle with fundamental issues relating to residents seeking basic language and job skills. the system. To help the Legislature address these Today, considerable need continues to exist for such challenges, this report provides a comprehensive services. According to the U.S. Census Bureau, for overview and assessment of adult education example, more than 10 percent of Californians over services provided by school districts (through their 24 years old have less than a ninth grade education, adult schools) and CCC—the largest providers and an additional 9 percent of Californians over of such instruction in the state. (Other providers 24 years old have attended high school but lack a include nonprofit community-based organizations high school diploma. For some, adult education can and public libraries.) The first part of the report serve as a “second chance” after dropping out of contains background on California’s system of high school. For others (such as recent immigrants), adult education. The second part identifies five adult education can be a first opportunity to learn major problems with the current adult education English and train for a career. system, and the third part provides a package of Despite the importance of the mission, funding recommendations for improving the state’s adult for adult education in California has declined education system. significantly over the past few years. And, despite BACkgRound Many Complexities of Adult Education. precollegiate-level knowledge and skills they need This part of the report provides an overview of to participate in society and the workforce. Adult adult education—reviewing its history in the education is intended to serve various types of state, its array of course offerings, enrollment, students, including: funding, and data on program outcomes. Adult • Immigrants who want to learn English, education in California is a complex—and in obtain citizenship, and receive job training. many ways confusing—system consisting of multiple providers and policies. The material • Native English speakers who are illiterate presented here is intended to provide relevant or only can read and write simple information for understanding our later analysis sentences. and recommendations. • High school dropouts who want to Adult Education Serves Various Types of earn a diploma or General Educational Students. In contrast to collegiate (postsecondary) Development (GED) high school education, the primary purpose of adult education equivalency certificate to increase their is to provide persons 18 years and older with employability or attend college. www.lao.ca.gov Legislative Analyst’s Office 5 An LAO RepORt • High school graduates who seek to earn them to offer adult education. By the 1950s, over a college degree but have not yet fully 300 adult schools existed in the state, with about mastered reading, writing, or mathematics 50 of them operated by junior colleges. at precollegiate levels. School Districts and Community Colleges Struggle Over Which Has Responsibility for Adult • Unemployed persons or unskilled workers Education. In the late 1960s and early 1970s, the earning low wages who seek short-term Legislature transferred state-level governance of vocational training to improve their the junior colleges (renamed “community colleges” economic condition. shortly thereafter) from SBE to the colleges’ own In addition to serving these types of students, adult systemwide Board of Governors (BOG), and all education fulfills other purposes. For example, remaining colleges that had been run by school adult education also serves older adults who want districts came under the authority of CCC districts. to stay active physically and mentally as well as This split raised the question of which segment, parents seeking to learn effective techniques for school districts or community college districts, raising their children. should have responsibility for the delivery of adult education. The Legislature sought to address this T e h s he nTangled isTory of chool issue in 1976 by giving statutory responsibility for d c c isTricTs and ommuniTy olleges several core adult education programs—literacy, State’s First Adult Schools Run by School high school diploma and GED programs, English Districts. As shown in Figure 1, in 1856 the San as a second language (ESL), and citizenship—to Francisco Board of Education established the state’s school districts. Community colleges were first adult school. By the end of the 19th century, permitted to provide such instruction within the adult schools (commonly known as “centers for geographical area of a school district only if they Americanization”) were providing evening classes obtained a formal agreement with the school in English and other subject areas in a number of district. Statute did not assign responsibility for cities, including Sacramento, San Jose, and Los the other instructional areas, such as vocational Angeles. In the early 1900s, school districts were education, to one particular segment. Instead, legally entitled to operate two distinct types of school districts and community colleges had to programs for adults: (1) adult schools to provide reach a “mutual agreement.” instruction to immigrants and others lacking basic Often Responsibilities Ended Up Split Between language and job skills, and (2) junior colleges to School Districts and Community Colleges. provide instruction to high school graduates in the School districts and community college districts first two years of postsecondary education. responded to this legislative directive in various Junior Colleges Begin Offering Adult ways. In most cases, school districts took primary Education Too. Beginning in 1921, junior colleges responsibility for literacy, high school diploma, started forming their own local boards apart from ESL, and citizenship programs, with community school districts, though many continued to be colleges offering adult education-related governed by school districts and all junior colleges instruction in areas such as vocational instruction remained under the authority of the State Board of and precollegiate (remedial) English and math Education (SBE). Junior colleges’ responsibilities coursework. In a few cases (such as in San expanded in 1941, when the Legislature authorized Francisco and Santa Barbara), school districts gave 6 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt up their right to run all adult education programs in Southern California. Specifically, in 1991 the and the community college district became the sole Legislature changed law by adding adult education local provider. In one case (San Diego), the school as a mission of the community colleges. Three years district and community college district agreed to later, six school districts filed a lawsuit against offer a joint high school diploma program, with three community college districts. The school the community college district providing all other districts contended that, pursuant to state law, their adult education instruction on its own. neighboring community colleges had no right to School Districts and CCC Districts in Court operate literacy, high school diploma, ESL, and Over Issue. In the 1990s, adult education was citizenship programs because the colleges lacked further complicated both by a change in statute a formal agreement with the school districts to and a subsequent lawsuit involving certain do so. In its decision, the court observed that the school districts and community college districts 1976 legislation requiring such agreements and Figure 1 State’s Adult Education System Developed Over Long Period of Time 1856 San Francisco Board of Education approves state’s first “evening” (adult) school. 1907 State Supreme Court rules that adult schools have legal right to state funding. Legislature authorizes school districts to offer first two years of postsecondary instruction to high school graduates. 1910 Superintendent of Fresno Schools establishes the state’s first junior (community) college, an extension of Fresno High School. 1921 Legislature permits voters to establish community college districts to administer community colleges. (Despite focus on postsecondary instruction, new districts remain under the authority of K-12 system’s State Board of Education.) Legislature passes separate statute (still in the Education Code) giving right of adult residents to ask for and receive English as a second language (ESL) and citizenship classes from school districts. 1941 Community colleges permitted to establish own evening (adult) programs. 1960 Donohoe Act recognizes community colleges as higher education segment (with state colleges and universities) but retains State Board of Education as CCC system’s governing board. 1968 Community colleges removed from State Board of Education governance and placed under authority of Board of Governors of the California Junior (later renamed “Community”) Colleges. 1970 All community colleges are legally separated from local school districts, replaced by community college districts. 1976 Statute assigns core adult education responsibilities (such as literacy and ESL) to school districts. School districts permitted to transfer instructional responsibility to community colleges by “mutual agreement.” 1991 Statute adds adult (noncredit) education as an “essential and important” mission of community colleges. 1994 Several school districts file lawsuit against CCC for offering adult education courses, contending that neighboring CCC districts have no legal right to do so absent mutual agreement with school districts. 1997 Court of Appeal rules that CCC districts do not need a mutual agreement to offer adult education, since the program is part of CCC’s mission. Both school and CCC districts permitted to provide adult education. 2009 The requirements governing adult education program and funding were made flexible for school districts—though not for CCC—through 2012-13 (since extended through 2014-15). www.lao.ca.gov Legislative Analyst’s Office 7 An LAO RepORt the 1991 statute that included adult education as School districts’ core statutory and constitutional a CCC mission were “irreconcilably inconsistent” responsibility is for kindergarten through high with each other since “the requirement that [CCCs] school (K-12). Furthermore, school districts are obtain a mutual agreement before offering these responsible for adult education only “to the extent” programs . . . would interfere with the fulfillment state support is provided. of their mission.” The court concluded in its 1997 Recently Adult Schools Signaled by State ruling that, based on its reading of current law, as Lower Priority. Adult schools’ lower priority both school and community college districts have within the K-12 system was reinforced by budgetary the “authority, power or right to offer the full decisions made in February 2009. Prior to 2008-09, range” of adult education programs within the the state provided funding for adult schools though same geographical area, regardless of whether they a categorical program and required school districts have a mutual agreement in place. The court noted, to use these monies for adult instruction. During however, that the 1991 statute “contemplates that a February 2009 special session, the Legislature the community colleges will act conjointly or in removed the categorical program requirements unison with the school districts” to provide ESL and allowed school districts to use adult education and certain other adult education programs. funding (along with funding associated with a Lack of Clarity Continues. Since that time, number of other categorical programs) for any the state has made some notable efforts to clarify educational purpose. As part of the change, the adult-education governance in statute, but none Legislature also exempted school districts from has been implemented. For example, noting that reporting and certain other statutory requirements the “conflicting statutes . . . cause confusion among pertaining to adult education. (This flexibility is adult schools and community colleges,” in 1998 a authorized through 2014-15.) joint SBE and BOG task force called for “statewide i a o nsTrucTional reas verlap in clarification regarding both systems’ authority to T s wo egmenTs offer . . . adult education in a coordinated way.” A few years later, the Davis administration’s initial Adult Education Encompasses a Number budget proposed to place adult education under of Instructional Areas. While adult education’s the community colleges, though the May Revision initial focus was on basic academic and vocational later rescinded the proposal. Thus, more than skills, other categories of instruction were added 40 years after the legal split of school districts and and expanded over time. For example, in 1915 community colleges into separate segments, the the Legislature authorized teachers to instruct state continues to leave unresolved fundamental adults in their own homes on food nutrition. With issues of governance and coordination of adult the growth of the state’s population after World education. War II, adult schools greatly expanded offerings Adult Education Is Neither Segment’s Core in parenting education. Courses targeted to older Statutory Responsibility. While adult education adults began in the early 1950s. By 1982, the falls under the purview of both community colleges Legislature had settled on the ten state-supported and school districts, it is not the top statutory instructional areas that are still authorized today. mission of either segment. The community college’s Community Colleges Can Offer Courses on core mission is to provide academic and vocational “Credit” or “Noncredit” Basis. Figure 2 shows programs at the lower-division collegiate level. that both adult schools and community colleges 8 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt are authorized to offer courses in each of these ten e nrollmenT instructional areas. The figure also shows that, in More Than 400 State-Funded Entities six of these ten categories, community colleges Providing Adult Education. In 2011-12, about can offer instruction on a credit or noncredit basis. 300 adult schools (down from 335 in 2007-08, For example, community colleges can choose the year prior to flexibility) and 112 community to offer ESL and “health and safety” instruction colleges were operating throughout the state. (which consists largely of exercise and fitness Exactly how many students were enrolled in classes) as either credit or noncredit. In addition, adult education programs, however, is unclear. community colleges offer a number of noncredit This is because attendance data has become vocational courses and certificate programs (such less and less complete in recent years. For adult as automotive repair, carpentry, certified nurse schools, the California Department of Education assisting, culinary arts, and welding) whose (CDE) contracts with a nonprofit organization, content is very similar to credit instruction. In fact, Comprehensive Adult Student Assessment Systems a few community colleges enroll both credit and (CASAS), to collect attendance data. Prior to noncredit vocational students in the same class. the enactment of flexibility, every adult school (Though many credit vocational courses are similar reported attendance data to CASAS in all ten state- to noncredit vocational courses, credit vocational authorized instructional areas. In 2008-09 and programs generally tend to be somewhat more 2009-10, the roughly half of adult schools receiving advanced and longer in length.) The nearby box federal Workforce Investment Act (WIA) funding (see next page) discusses the differences between continued to report complete attendance data to credit and noncredit courses. It also explains the CASAS, with the remaining schools generally differences between credit degree applicable and submitting partial data or no data at all to CASAS. credit non-degree applicable courses. (Confusingly, Enrollment data became even more incomplete in despite the name, not all credit courses give 2010-11 when CDE revised the CASAS contract community college students academic credit they to require WIA-funded schools to submit only can apply toward graduation.) attendance data for the three instructional areas Figure 2 Adult Education Includes a Wide Array of Instructional Areas Adult CCC CCC Instructional Area Schools Noncredit Credit Adults with disabilities X X X Apprenticeship X X X Vocational educationa X X X Immigrant education (citizenship and workforce preparation) X X Elementary and secondary education X X X English as a second language X X X Health and safetyb X X X Home economics X X Older adults X X Parenting X X a Also referred to in statute as career technical education. b Includes exercise and fitness classes. www.lao.ca.gov Legislative Analyst’s Office 9 An LAO RepORt applicable to the federal program (adult elementary 2009-10, which translates into about 550,000 education, adult secondary education, and ESL). full-time equivalent (FTE) students. (One FTE In contrast to adult schools, the CCC Chancellor’s represents 525 instructional hours—reflecting one Office continues to collect complete attendance student taking a full load of coursework during data from community colleges. an academic year. It is equivalent to the “average Estimate Over 1.5 Million Students Served in daily attendance” [ADA] measure used by school 2009-10. Though the data are incomplete, based districts.) Figure 3 shows that community colleges upon the data from CASAS and CCC that are provide the largest share of adult education in available, we estimate adult schools and community the state, primarily through its credit program. colleges provided adult education instruction As Figure 4 details, vocational education is the to at least 1.5 million students (headcount) in largest adult education instructional area, with various types of California Community College (CCC) Courses Notable Differences Between Community College Credit and Noncredit. Though CCC credit and noncredit instruction overlap in many ways, they differ in five notable ways. First, depending on the course and college, students taking noncredit courses may be permitted to join or leave a class at any time during the term. Second, unlike credit courses, typically there is no restriction on the number of times students may reenroll in a noncredit course (which can be beneficial for under- prepared students who need additional time to master course material). Third, CCC regulations generally require faculty to possess at least a master’s degree in order to teach a credit course (with exceptions made for certain vocational disciplines), but at least a bachelor’s degree for noncredit courses. Fourth, students are charged enrollment fees for CCC credit courses but not CCC noncredit courses. Lastly, the state funds noncredit courses at a lower rate than credit courses and calculates attendance differently. Two Types of Credit Courses—Degree Applicable . . . Credit courses that count toward an associate degree are referred to as “credit degree applicable.” Community college regulations stipulate the types of credit coursework that can count toward an associate degree: (1) lower- division (freshman and sophomore) coursework that is transferable to the University of California or California State University systems and (2) non-transferable vocational courses that a college requires as part of its major requirements for an associate degree in a vocational field. Additionally, colleges can designate certain precollegiate-level math and English courses as credit degree applicable. . . . And Non-Degree Applicable. The CCC regulations allow for a second type of credit instruction known as “non-degree applicable.” Whereas the units from credit degree-applicable courses count toward a student’s associate degree, units from credit non-degree-applicable courses do not. The CCC regulations give colleges considerable discretion as to whether they may offer precollegiate (adult education) math, English, and English-as-a-second-language courses as credit degree applicable or credit non-degree applicable. Community colleges receive the same funding rate regardless of whether a course is credit degree applicable or credit non-degree applicable. 10 Legislative Analyst’s Office www.lao.ca.gov Graphic Sign Off Secretary Analyst Director Deputy An LAO RepORt most of this instruction Figure 3 offered through the Community Colleges Provide More community colleges on Adult Education Than Adult Schools a credit basis. English as Full-Time Equivalent Students in Adult Education Courses (2009-10) a second language and adult elementary and secondary education (which includes remedial Adult Schoolsa math and English) are the second and third 34% most-offered adult 52% CCC Credit Graphic Sign Off education programs, respectively. Whereas Secretary most adult elementary Analyst 14% and secondary Director instruction is provided Deputy CCC Noncredit by community colleges, ESL is more commonly taught by adult schools. a Total is somewhat understated because not all adult schools reported enrollment data for 2009-10. Also, while health and safety is a relatively small Figure 4 instructional category for Adult Education Is Concentrated in Three Instructional Areas adult schools and CCC noncredit programs, it 2009-10 Full-Time Equivalent Students (In Thousands) ARTWORK #110494 accounted for over 50,000 180 FTE students in the CCC Credit 160 CCC credit program (in CCC Noncredit 140 Adult Schoolsa physical education classes 120 such as yoga, pilates, and 100 80 weight lifting). 60 A Few Community 40 Colleges Have Large 20 Noncredit Programs. Vocational ESL Elementary/ Health Older Adults Parenting Home Citizenship Whereas all community Educationb Secondary and Adults With Economics colleges widely offer adult Education Safety Disabilities education instruction a Totals for adult schools are somewhat understated because not all schools reported enrollment data for 2009-10. on a credit basis, only b Based on LAO assessment of which credit vocational courses reflect adult education. Totals include apprenticeship. ESL = English as a second language. a handful of colleges offer a robust selection (Orange County), San Francisco, San Diego, North of noncredit adult education. The largest CCC Orange, Mount San Antonio (Los Angeles County), noncredit providers are the Rancho Santiago and Los Angeles districts. Together, these six www.lao.ca.gov Legislative Analyst’s Office 11 ARTWORK #110494 An LAO RepORt districts accounted for two-thirds of total noncredit Flexibility Has Had Significant Implications FTE students in 2011-12, with the top ten largest for Adult School Funding. Beginning in 2008-09, district providers accounting for about 85 percent the state reduced funding for school districts due of CCC noncredit instruction. (Data exclude to declining revenues. That fiscal year, the state enrollments in supervised tutoring.) implemented a 15 percent across-the-board cut to adult education (the same reduction applied to the f unding majority of other categorical programs). This cut More Than $2 Billion Spent in 2011-12. As deepened from 15 percent to 20 percent in 2009-10 with enrollment, pinpointing the exact amount and remained at that reduced level in 2010-11 and the state spends on adult education is not possible. 2011-12. As discussed earlier, in a corresponding This is primarily because school districts are not action, the state allowed school districts to use their required to report to the state how they spend adult education funding for any education purpose. their now-flexible adult education monies. A The amount that has been redirected for K-12 rough estimate is that a total of $2.1 billion was purposes varies considerably among districts— spent on community colleges and adult schools from no funds in a few districts to the entire in 2011-12 (all funding sources), of which about amount in others. Based on our survey of school $1.7 billion supported community colleges and districts, it is likely that only between 40 percent to about $400 million supported adult schools. The 50 percent of the $635 million nominally provided largest funding sources are state General Fund and in Proposition 98 adult education categorical funds local property tax revenues—commonly known as actually is spent on adult education. Proposition 98 funding. The other major funding Three Funding Rates for CCC. Under current sources are student fees and federal funds. law and regulations, community colleges receive enrollment funding that can be used for both Proposition 98 Funding credit and noncredit instruction, with colleges Prior to 2008-09, Adult Schools Funded Based independently deciding the combination of credit on Attendance. Historically, funding for adult and noncredit enrollment they deem appropriate. schools was based on ADA, with school districts These general-purpose monies (commonly known receiving $2,645 in state funding per ADA in as apportionment funds) are provided to cover each 2007-08. School district adult education programs campus’ basic operating costs for serving students. had funding caps on the number of ADA they were Under current law, there is one per-student funding paid for each year. Per statute (initially adopted rate for credit instruction and two per-student in 1979-80), each district’s cap was increased by funding rates for noncredit instruction. These 2.5 percent annually. If a school district failed to rates can be adjusted annually for a cost-of-living reach its cap for two consecutive years, the amount increase, though the last year of such an adjustment of enrollment monies that went unused would be was in 2007-08. For both types of noncredit redirected to other districts serving students in instruction, apportionment funding is calculated excess of their funding caps. This redistributive based on students’ daily course attendance (known approach was intended to help match school as “positive attendance”). This is different from district allocations with statewide demand for adult credit instruction, which is generally calculated education services. based on the number of students enrolled in a course at a given point in the academic term 12 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt (typically the third or fourth week). The funding compared with 2008-09 levels. These reductions were rates are as follows: focused primarily on regular noncredit instruction (as opposed to CDCP programs). • Credit. In 2012-13, the per-student funding rate for credit courses is $4,565. Colleges Student Fees receive this funding rate regardless Two State Policies on Student Fees for of whether the coursework is degree- CCC Courses . . . The state has two policies applicable or non-degree applicable. with regard to fees for CCC students enrolled in • “Enhanced” Noncredit. Chapter 631, adult education. Under current law, community Statutes of 2006 (SB 361, Scott), established colleges are prohibited from charging a fee for any an enhanced funding rate for noncredit noncredit instruction. By contrast, a fee is charged “career development and college for credit instruction (which increased to $46 preparation” (CDCP) courses that lead to per unit, from $36 per unit, in July 2012), though noncredit certificates (such as a certificate financially needy students qualify for a fee waiver. of completion in medical assisting). The In 2011-12, community colleges collected a total of 2006-07 Budget Act included $30 million $360 million in enrollment fees. The community in base funding toward the enhanced colleges do not disaggregate fee revenue associated noncredit rate. The CDCP courses, with individual programs or courses. Given that which include noncredit elementary and adult education-related instruction accounts for secondary education, ESL, and vocational roughly one-quarter of total credit instruction, it is instruction, receive $3,232 per FTE student likely that fee revenue for this type of instruction in 2012-13. was about $100 million in 2011-12. . . . Also Multiple Policies on Student Fees • Regular Noncredit. All other noncredit for Adult Schools. Until recently, adult schools courses (such as home economics and were prohibited from charging fees for ESL and programs designed for older adults) receive citizenship classes, as well as adult elementary and $2,745 per FTE student in 2012-13. secondary education. Chapter 606, Statutes of 2011 Budget Cuts Have Resulted in Smaller Adult (AB 189, Eng), amended the law to allow adult Education Program for CCC. Over the past few schools to charge a fee for ESL and citizenship (but years the state’s economic and fiscal situation has not for adult elementary or secondary education) resulted in a considerable reduction to community through 2014-15. As they have in the past, adult colleges’ funding levels. Although not reduced in schools continue to be permitted to charge adults a 2008-09, the 2009-10 budget package reduced CCC fee for vocational courses and the other instructional base apportionments by $190 million (3.3 percent). areas (such as parenting classes). Current law does To balance their local budgets, community colleges not specify a specific fee level that may be charged, responded by cutting course sections. Course but the fee cannot exceed the amount it costs sections were further reduced in 2011-12 as a result of adult schools to offer the course. The amount of additional budget cuts that year. Many districts have fee revenue that was collected by adult schools in targeted noncredit instruction for a disproportionate 2011-12 is unknown but is likely to total in the low share of cuts. Statewide, the number of noncredit FTE tens of millions of dollars. Figure 5 (see next page) students served in 2011-12 was about 30 percent lower summarizes the state’s various fee policies. www.lao.ca.gov Legislative Analyst’s Office 13 An LAO RepORt Figure 5 The State Has Multiple Fee Policies for Adult Education Adult Schools CCC Noncredit CCC Credit English as a second language Fee permitted (varies) No fee permitted $46/unit Citizenship Fee permitted (varies) No fee permitted N/A Elementary and secondary education No fee permitted No fee permitted $46/unit Vocational education Fee permitted (varies) No fee permitted $46/unit Other (such as health and safety) Fee permitted (varies) No fee permitted $46/unit Federal Funds amount on literacy pre- and post-tests. The CDE then takes the WIA grant and divides the funding Federal Funds Supplement Many Providers’ by the total points earned across participating Budgets. A primary source of federal funding adult education programs to determine a per-point for adult education is WIA Title II. The state rate. Grants are determined by multiplying the was allocated $91 million in WIA funding for per-point rate by the number of points earned by 2011-12 to support instruction in adult elementary a particular provider. This approach is meant to education, adult secondary education, and create a strong incentive for providers to deliver ESL—the instructional areas authorized under services that improve academic performance and the act. A total of 169 adult schools ($59 million), program completion rates. Beginning in 2013-14, 17 community colleges with noncredit programs CDE plans to introduce additional performance ($13 million), and 38 other providers such as measures that track student transitions from libraries and community-based organizations adult education to postsecondary studies and the ($7 million) received WIA funding. (The remaining workforce. The intent is to reward providers not just $12 million in WIA funding is retained by CDE for their students’ success in adult education but to administer the federal program, as well as to also for developing partnerships and pathways that support statewide activities such as professional advance individual and societal goals of continued development.) Pursuant to CDE policy, only education and successful job placement. providers that submitted successful applications Federal Perkins Funds Support Vocational in 2005 are eligible to receive this funding. (The Instruction. In addition to WIA funding, both CDE plans to reopen the grant to new applicants adult schools and community colleges receive beginning in 2013-14.) federal Perkins funding to support vocational State Allocates Federal Adult Education programs. Unlike WIA Title II, Perkins monies Funds to Providers Based on Performance. are distributed to educational providers through Although the federal government does not require formula allocation (based on student enrollment). it, CDE allocates funds to educational providers In 2011-12, adult schools and community colleges using a pay-for-performance mechanism. Under received $8 million and $55 million in Perkins the outcomes-based approach, specified student funds, respectively. Providers can use these funds outcomes earn a provider performance points. For for a number of purposes, including curriculum example, adult education programs earn points and professional development and the acquisition each time a student attains a high school diploma of equipment and supplies for the classroom. or GED or when a student’s score improves by a set 14 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt d aTa and a ccounTabiliTy noncredit basic skills and ESL instruction (such as the percentage of underprepared students State Receives Comprehensive Data on who eventually obtain an associate degree) and Certain Adult Schools. Though the federal a separate report with wage data and persistence government only requires states to collect rates of students enrolled in CDCP noncredit demographic and student performance data for courses. providers receiving WIA funding, for years CDE Student Outcomes Comparable at Adult used the federal data infrastructure to collect Schools and CCC Noncredit. While the state lacks data from all adult schools in the state. That is, a single data system that allows for comprehensive until flexibility was adopted in 2009, adult schools comparisons between students at adult schools were required to supply CASAS with various data and community colleges, CASAS data can supply (including student enrollment, demographics, labor insights into comparative student outcomes. The force status, and certain student outcomes) as a CASAS recently analyzed all adult students who condition of receiving categorical funds. As noted took an adult elementary, adult secondary, or ESL earlier, however, data on adult schools has been course at a WIA Title II-funded adult school or incomplete since that time. community college during 2005-06. The study CCC Chancellor’s Office Collects Own Set tracked the cohort over a three-year period to of Data. In addition to the federal accountability determine the extent to which students’ learning requirements discussed above, the state requires increased (as demonstrated by either improving CCC to collect and report on a wide range of data their standardized-test results a certain number of pertaining to its educational programs. Pursuant points or advancing to a higher instructional level). to statutory requirements, the CCC Chancellor’s The data indicate that the students in adult schools Office releases an annual report known as and community college noncredit programs Accountability Reporting for the Community generally had similar demographic characteristics Colleges (ARCC). The ARCC includes certain (such as age, gender, and ethnicity) and performed system and campus-level demographic and nearly equally. For example, about half of students performance data over multiple years, primarily in in each segment’s cohort advanced at least one credit coursework. The report includes completion instructional level during the three-year period, rates in vocational courses, fall-to-fall persistence with another 40 percent of students showing rates, and other metrics. The Chancellor’s Office learning gains within the same instructional level. also produces an annual performance report About 10 percent of students in each segment did that focuses exclusively on students in credit and not demonstrate any notable progress. ASSESSmEnt oF thE StAtE’S Adult EduCAtion SyStEm Review Finds Some Key Strengths but Many strengths. These include having two large segments Weaknesses. Our review finds that California’s with extensive experience working with adult adult education system possesses some key learners throughout the state. Adult education also www.lao.ca.gov Legislative Analyst’s Office 15 An LAO RepORt has a data system that can measure learning gains levels of state resources. This, in turn, reduces the for at least some students and an innovative state amount of instruction that is available to advance policy that allocates federal funds to providers the state’s highest priorities of civic engagement based on performance. Our review, however, also and economic growth. has identified a number of major problems and CCC lacks Clear and Consistent lines Between challenges with the current system, as summarized Adult Education and Collegiate Education in Figure 6. Specifically, we have concerns with the adult education system’s: (1) overly broad mission; CCC Funding System Creates Incentives to (2) lack of clear delineation between precollegiate Offer Certain Precollegiate Material on Credit and collegiate studies at CCC; (3) inconsistent state- Basis. Currently, neither state law nor CCC level policies; (4) widespread lack of coordination regulations establish a minimum level for credit among providers; and (5) limited data, which coursework in math, English, and ESL (in contrast makes oversight difficult. to other academic disciplines such as history and science, which must be transferable to the Adult Education mission overly Broad University of California (UC) or the California Some Programs Are Not Aligned With State’s State University (CSU) to be offered on a credit Highest Educational Priorities. Several of the basis). As a result, credit instruction in remedial current categories of instruction (such as adult math and English can be less advanced than elementary education, adult secondary education, noncredit instruction (or instruction offered by an ESL, and vocational education) generally are adult school) in the same discipline. Based on our centered around the core goal of providing students discussions with CCC, the major factor in colleges’ with the foundational education and skills they decision to provide math, English, and ESL on a need to participate effectively in society and the credit basis (as opposed to noncredit) often boils workforce. The state currently authorizes other down to the higher funding rate districts receive instructional categories, however, that serve various for credit instruction. Given the lack of a floor on other vaguely defined and unrelated purposes, such credit instructional levels, colleges have a strong as “programs for older adults” and “programs in financial incentive to offer adult education-level home economics.” While these classes can be of material on a credit basis, regardless of actual value, they can have the effect of stretching finite course costs or whether it is the best fit for students. CCC Lacks Common Definition of Degree- Figure 6 Applicable Coursework. California’s Adult Education System Not only are community Has a Number of Problems colleges permitted to • Adult education has overly broad mission. claim the credit funding rate for precollegiate-level • Community colleges lack clear and consistent lines between precollegiate and collegiate education. instruction in math, English, and ESL, they • Providers are subject to inconsistent rules by the state. also have considerable • Inter-agency coordination is limited. flexibility to count • Gaps in data systems make oversight difficult. these courses as degree 16 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt applicable. For example, CCC regulations allow Faculty Subject to Different Qualification colleges to award students credit toward an Requirements. Despite teaching similar or identical associate degree for Elementary Algebra, which is a content to adult students, instructors from adult course commonly taken by high school freshmen. schools and community colleges are subject to Colleges also can choose whether to give credit different minimum qualifications for employment. toward an associate degree for even the lowest-level Whereas both adult schools and community ESL courses. In effect, then, colleges within the colleges generally require instructors to have a same system have different definitions of what is bachelor’s degree or higher, statute requires adult- adult education (precollegiate instruction) and school instructors also to be credentialed by the what is collegiate instruction. Commission on Teacher Credentialing. No Clear Basis for Delineating Vocational Students Can Be Subjected to Different Programs as Credit or Noncredit. The state also Fee Levels for Similar Programs. Whereas the provides little guidance to community colleges Legislature does not allow CCC to charge for with regard to whether vocational courses are noncredit coursework (and sets a specified fee level offered on a credit or noncredit basis. As a result, for credit instruction), for years the Legislature has the distinction between credit and noncredit permitted multiple fee policies for adult schools, vocational education is locally determined and including allowing them to charge up to the full inconsistent across the state. Statute authorizes cost of instruction for vocational and certain adult schools and community colleges to offer other instructional programs. As discussed earlier, noncredit vocational training that is “short-term” in 2011 the state enacted Chapter 606, which in nature (typically understood as a program that authorizes adult schools to offer ESL instruction is one year or less in length). Community colleges, for a fee. While the purpose of the law is to enable however, routinely offer short-term programs on a adult schools to maintain courses they may credit basis too. In 2011-12, for example, over half otherwise have to cancel due to a lack of state of credit certificates awarded to students were for funding, the policy raises the question of why it programs of fewer than 30 units (the equivalent is permissible to charge a fee to English learners of one full year of coursework). Some community taking an ESL class but not to native English colleges award certificates to students who complete speakers taking a literacy class through an adult as little as six units of credit (the equivalent of two elementary education program. (Inconsistencies courses). And, as mentioned earlier, some colleges also exist for funding policies, which are addressed also place credit and noncredit students in the same later.) vocational class. These practices raise a question Providers’ Assessment and Placement Policies about why the state provides two different funding Are in Conflict. State law allows adult schools and rates for what can amount to similar or the same community colleges to require entering students instructional content. to undergo assessment to determine their level of proficiency in math and English. Whereas adult inconsistent State-level Policies schools can use any assessment instrument they Though adult schools and CCC generally cover deem appropriate, community colleges can only the same geographic areas, statutes have created use assessment instruments (typically standardized two markedly different systems operating within tests) that have been approved by their state the same state. governing body (the BOG). In addition, current law www.lao.ca.gov Legislative Analyst’s Office 17 An LAO RepORt requires assessment results for CCC students—but to form working partnerships that leverage not adult school students—to be nonbinding. That these differing strengths and capabilities. These is, CCC cannot prevent students from enrolling in collaborations can take different forms. For an educational program based on their assessment example, some school and CCC administrators score. Instead, students are free to take any courses have created aligned course sequences so that that do not carry a math or English prerequisite— students can move seamlessly from lower levels of which includes most course offerings at CCC. ESL at adult schools to increasingly more-advanced Conversely, adult schools have a widespread levels at a community college. In other cases, practice of requiring prospective students to obtain instructors from adult schools and neighboring a certain score on an assessment test in order to be community colleges have created articulation admitted into a vocational program. agreements for comparable courses. This allows students who successfully complete a course or missed opportunities for Collaboration set of courses at an adult school to receive credit Both CCC and Adult Schools Have Strengths. toward an associate degree or certificate upon their In our view, both community colleges and adult enrollment at a community college. schools have comparative advantages for delivering . . . But Survey Results Indicate Such adult education. The 112 colleges that make up Coordination Is Not Extensive. While examples of the CCC system focus on adult learners almost coordination exist throughout the state, too often exclusively and provide a continuum of education the two agencies work independently from one and training through the sophomore year of another at the local level. For example, 48 percent college. Adult schools, meanwhile, are spread even of CCC respondents to a survey we conducted in more widely across the state—even with recent July 2011 indicated that they do not coordinate budget cuts, there are about 300 adult schools. They with any adult schools to provide aligned pathways also often provide instruction that is very accessible for adult school students to continue their studies to adult learners. For example, some adult at their college. (Another 42 percent reported that education programs are run at elementary schools, they do coordinate to provide such pathways. The such that parents can take classes at the same time remaining 10 percent of respondents were unsure and location as their children. Individual providers whether their college coordinated in this way.) can possess differing strengths too. For instance, In addition, 52 percent of respondents reported even before flexibility, a number of adult schools that their college does not articulate comparable had large high school diploma and GED programs courses with adult schools. (Another 23 percent but offered minimal (if any) vocational training. of respondents reported that they did articulate at Conversely, many CCCs have robust vocational least some courses. The remaining 25 percent were programs but relatively few (currently just 12 of either unsure or indicated that they did not offer 72 districts) have high school diploma programs. courses that were comparable with those of adult Although both providers offer ESL, adult schools schools.) The adult schools we surveyed indicated often provide less advanced levels of instruction of similar responses. This lack of articulation means ESL than community colleges. that a student may have completed a course at an Inter-Segmental Coordination Beneficial adult school yet would not receive credit for it at for Students . . . In some cases, adult schools and the community college even if the two courses were neighboring community colleges have managed identical. 18 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt Multiple Factors Inhibit Cooperation. In our • CASAS Data System. A major strength discussions with adult schools and community of CASAS is that the system collects data colleges, a number of faculty and administrators on student learning gains and high school indicated that the lack of a statewide or regional diplomas (and their equivalent) earned by structure for articulation inhibits the ability of students. A major shortcoming of CASAS providers to develop such cooperative agreements. is that since flexibility was enacted, it only For example, currently there is no formal program collects data from providers that receive or body in place for faculty from adult schools WIA funds. Another shortcoming is that and community colleges to engage in ongoing CASAS does not collect any information on dialogue on curriculum and standards. In vocational education (such as the number addition, because course titles vary by provider, of skills certificates earned by students). identifying comparable courses at adult schools • CCC Data System. The CCC Chancellor’s and community colleges can be difficult and Office maintains a data system that, cumbersome for instructors. Many also remarked in some ways, has opposite strengths that the state’s adult education system lacks and shortcomings to CASAS’ system. strong incentives for providers to collaborate. To A strength of the CCC data system is the contrary, funding based on “seat time” has that it maintains complete enrollment historically created a sense of competition among information on community colleges. providers and created a disincentive to coordinate Another strength is that the Chancellor’s their services. Office’s information system links with the data and Accountability Systems Employment Development Department Are of limited utility (EDD) to obtain wage data on former CCC students who have entered the workforce. Each Data System Has Pros and Cons. As discussed in the previous section, data pertaining Figure 7 to adult education in Two Data Systems Collect Different Types of Information the state is collected CASAS CCC MIS and maintained by two Data Element: primary organizations: Student enrollment? Limiteda Yes CASAS and the CCC Course grades? No Credit courses onlyb Chancellor’s Office. Each Learning gains? Yesa No High school diplomas earned? Yesa Limitedc organization’s data system Vocational certificates earned? No Limitedc has core strengths, as well Linked with EDD wage data? No Yes as notable shortcomings. a Currently, CASAS collects data only from providers that are Workforce Investment Act Title II recipients, and only for instruction in English as a second language and adult elementary and secondary The major capabilities of education. b CASAS’ and CCC’s data Though most CCCs that offer noncredit instruction assign grades (or pass/no pass marks) to students in at least some classes (such as in courses leading to the high school diploma), currently the systems—as summarized Chancellor’s Office data system does not collect such information. The CCC database does collect grades in credit courses. in Figure 7—are: c Only a few community colleges report to MIS the annual number of high school diplomas (or their equivalent) and noncredit vocational certificates earned by students. CASAS = Comprehensive Adult Student Assessment Systems; CCC MIS = California Community College Management Information Systems; and EDD = Employment Development Department. www.lao.ca.gov Legislative Analyst’s Office 19 An LAO RepORt A notable shortcoming is that, unlike incapable of data matching because community CASAS, the CCC data system does not colleges and adult schools use different student collect information on student learning identification numbers. This makes tracking gains. In addition, our review finds student transfers from adult schools to CCC (or that only a handful of colleges offering other postsecondary institutions) and the labor CDCP noncredit courses report to the market difficult. In fact, currently adult schools Chancellor’s Office the annual number of must rely on surveying former adult school noncredit awards earned by students (such students to determine whether they have moved as high school diplomas and vocational on to college, obtained a CCC degree or certificate, certificates), which renders the CCC data or entered the workforce. (Survey return rates system of limited utility for assessing the are typically very low.) Because the two data segment’s overall contribution to adult systems are not linked, they are of limited value to education. researchers, policymakers, and practitioners. Data Systems Are Not Coordinated. Another notable issue is that the two data systems are lAo RECommEndAtionS Challenges Facing Adult Education Are restructuring. We also believe the Legislature has Numerous and Growing. As described above, an important role in guiding the development even before recent budget cuts and the removal of a new system. Below, we lay out a vision and of categorical spending requirements, the state’s roadmap for a more rational, coordinated, and system of adult education was characterized by a responsive system with both adult schools and CCC myriad of challenges. Adult education encompasses as providers. Our recommendations include the many instructional categories—several of which creation of: (1) a state-subsidized system focused are ill-defined and unrelated to the traditional on adult education’s core mission; (2) common, focus on providing adults with basic language and statewide definitions that clearly differentiate job skills. In addition, fundamental terms and between adult education and college education; policies related to adult education lack consistency (3) a common set of policies relating to faculty and coherence. Furthermore, coordination and qualifications, fees, and student assessment; accountability are uneven. Since budget cuts and (4) a dedicated stream of funding that fosters flexibility, adult education has become a program cooperation between adult schools and community adrift. Community colleges and, in particular, colleges; and (5) an integrated data system that school districts have cut enrollment funding, which tracks student outcomes and helps the public likely has resulted in a significant amount of unmet hold providers accountable for results. Figure 8 demand. summarizes our recommendations. Adult Education in Need of Comprehensive Several Reasons to Start Transitioning to New Restructuring. Given all these challenges, we System Now. Given that the state’s existing adult believe adult education is in need of comprehensive education system is both complex and riddled 20 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt with serious shortcomings, we recommend the efficient, effective, and better coordinated system Legislature get started immediately in moving would be in place in the event that the state has toward a better system—particularly as the new funds to invest in adult education in future transition to a better system likely will entail years. As discussed below, the first steps involved in many steps and take several years to implement restructuring are to narrow adult education’s focus fully. Given that many of our recommended and develop a clearer delineation between adult changes could be adopted without incurring education and college-level instruction. additional costs, we recommend the Legislature Focus Adult Education on Core mission begin implementing at least some components of a better system in 2013-14 regardless of the state’s Though many types of instruction can be of fiscal condition. By taking at least a few steps value to students, we believe the ten statutorily immediately, the foundation for a more rational, permitted instructional areas of adult education Figure 8 A Roadmap to Restructuring California’s Adult Education System: Summary of LAO Recommendations 9 Focus State Support on Core Adult Education Mission • Reduce number of authorized state-supported instructional programs from ten to six: (1) adult elementary and secondary education, (2) English as a second language (ESL), (3) citizenship and workforce preparation, (4) vocational education, (5) apprenticeship, and (6) adults with disabilities. 9 Provide a Clear and Consistent Distinction at California Community Colleges (CCC) Between Adult Education and Collegiate Instruction • Restrict credit instruction in English and ESL to transfer-level coursework, and credit instruction in math to one level below transfer. Require courses below these levels to be offered on a noncredit basis. • Convene a work group to advise the Legislature and CCC Board of Governors on the appropriate delineation between adult education (noncredit) and collegiate instruction (credit) for vocational education. 9 Resolve Inconsistent and Conflicting Adult Education Policies • No longer require instructors at adult schools to hold a teaching credential so that adult education faculty can teach at both adult schools and community colleges. • Establish an enrollment fee (such as $25 per course) for students taking adult education courses through adult schools or CCC. • Allow CCC faculty to place students into adult education courses based on assessment results (as faculty at adult schools currently are permitted to do). Require that adult schools use only assessment instruments that have been evaluated and approved for placement purposes (as community colleges currently are required to do). 9 Create a New Funding Mechanism for Adult Education • Fund adult education as a separate item within school district budgets. • Provide adult schools with the same noncredit funding rate that CCC districts receive. • Allocate base adult education funds on combination of enrollment and performance. • Allocate new funds for adult education based on regional needs. • Promote collaboration among providers by adopting common course numbering for adult education. 9 Promote a Coordinated Data System • Clarify legislative intent that adult schools and CCC use common student identification numbers. www.lao.ca.gov Legislative Analyst’s Office 21 An LAO RepORt are not all of equal value. Rather, the most (Reclassifying such coursework as noncredit would important programs in adult education are those have no material effect on students’ eligibility that provide the knowledge and skills students for state and federal financial aid such as Cal need to participate in civic life and the workforce. Grants, Pell Grants, and federal loans.) Although Going forward, we recommend the Legislature UC and CSU consider Intermediate Algebra to focus state support on programs that advance be one level below transfer math, we recommend this core mission. Specifically, we recommend the Legislature make an exception and permit the state support adult elementary and secondary community colleges to offer the course on a credit education, ESL, citizenship and workforce basis. This is because community colleges consider preparation, and vocational education—including Intermediate Algebra to be “college level” given apprenticeship. (Because of their focus on basic that it is a systemwide graduation requirement for skills and employment preparation, we recommend any student seeking an associate degree. As a result courses for adults with disabilities also continue of shifting certain precollegiate-level coursework to be eligible for state support.) Although school from credit to noncredit, districts would be eligible districts and community college districts would for less apportionment funding. The Legislature not be able to claim apportionments for instruction could decide to keep CCC funding at the same that fall outside these core areas, adult schools and level, however, which would allow colleges to CCCs could still provide opportunities for students accommodate additional students. to take these other classes (as many already do) Recommend the Legislature Convene Work through “community services education,” which Group on Credit and Noncredit Vocational are fully supported by student fees. Alternatively, Education. In our view, credit coursework individuals could participate in these programs generally should include instructional content through other local providers, such as senior that requires students to possess and demonstrate centers and city parks and recreation departments. college-level knowledge and skills, whereas noncredit content should be accessible for Establish Clear line Between Adult less-advanced students. Given that there are Education and Collegiate Education at CCC currently no common standards for what is Recommend Establishing Clear Distinctions collegiate and precollegiate vocational coursework, Between Precollegiate and Collegiate Instruction. we recommend the Legislature convene a work We recommend the Legislature create consistent group of experts to address the issue. The work rules and terms that clearly distinguish adult group could consist of vocational as well as math education (precollegiate) coursework in math, and English educators. The group could be required English, and ESL from collegiate coursework—as to consult with industry representatives to help is already the case for other academic subjects such identify the level of skills needed for various as history and science. Specifically, we recommend vocational programs. Based on the work group’s the Legislature restrict credit instruction in English findings, the Legislature could clarify through and ESL to transfer-level coursework within statute the definition of credit and noncredit those disciplines. Under our recommendation, vocational education. This, in turn, would assist the English and ESL courses that are precollegiate BOG in adopting more-detailed regulations on the (below transfer level) would only be offered on a appropriate division of the two types of instruction. noncredit (and thus non-degree applicable) basis. 22 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt Adopt Consistent Policies on Faculty $25 per course) for students in adult schools and Qualifications, Fees, and Assessment noncredit CCC programs. Align Student Assessment and Placement To further achieve consistency of standards Policies. We also recommend the Legislature for providers and students, we recommend the address conflicting state policies with regard to the Legislature address policy differences between assessment and placement of students. As we discuss adult schools and community colleges in several in Back to Basics: Improving College Readiness issue areas. of Community College Students (June 2008), Establish Consistent Qualifications for most research concludes that incoming students Faculty. We recommend the Legislature amend should be assessed prior to enrolling in classes. statute so that individuals no longer need a Studies also generally recommend that, based teaching credential to serve as an instructor at an on assessment results, colleges should mandate adult school. By aligning policy for adult schools placement of students into coursework that is with that of the community colleges, instructors appropriate for their skill level. To enhance student could readily teach adult education courses with success, we thus recommend the Legislature amend both providers. statute to allow CCC faculty to place students Adopt Consistent Policy for Enrollment Fees. in courses and programs based on assessment Over the years, the state has adopted different results. This would align CCC’s policy with that of fee structures for adult schools and community adult schools. In addition, to ensure that reliable colleges. In order to create a more integrated assessment instruments are used, we recommend system, we believe the Legislature needs to the Legislature require adult schools to use tests reconcile these differences and devise a consistent that have been pre-approved by a state agency such fee policy. We believe that certain social benefits— as SBE or BOG. This would align policy for adult such as a population better able to support schools with that of the community colleges. itself and a better-informed electorate—justify an investment by the state’s taxpayers in adult Create Funding mechanism that education. At the same time, however, students Promotes Coordinated System derive personal benefits from their education and Along with adopting common terms and training, and in many cases these benefits show reconciling disparate policies, the state will need up in the form of higher earnings. Consequently, to decide on a funding mechanism for adult it is not unreasonable, we believe, to expect the education. In our view, such a mechanism should recipients of these benefits to bear a proportion balance the goal of providing stable, predictable of the costs involved in educating them. Fees can funding so providers can plan for the future while cause positive behavioral tendencies in students also fostering innovation and collaboration to too—such as making them more deliberate in maximize access and student success. As discussed their selection of courses and more purposeful in more detail below, we envision a financing about holding campuses accountable for providing mechanism that includes a dedicated stream of high-quality services. It is important, though, that funding for adult education, provides the same fee policies are structured so that students’ financial funding rate for the same instruction, rewards circumstances do not limit their educational providers for student success, and aligns future opportunities. We thus recommend the Legislature allocations with program need. consider levying a modest enrollment fee (such as www.lao.ca.gov Legislative Analyst’s Office 23 An LAO RepORt Fund Adult Schools as a Separate Budget Allocate Base Apportionments on Item. To help rebuild and restructure the state’s Combination of Enrollment and Performance. system of adult education, we recommend the Initially, we recommend the Legislature fund Legislature create a separate line item for adult districts’ base apportionments entirely on actual schools. Specifically, we recommend the Legislature instructional hours (consistent with traditional restore adult education as a stand-alone categorical practice). After a short transitional period, we program once flexibility sunsets at the end of recommend the Legislature phase in a pay-for- 2014-15. Given that virtually all school districts performance component that would comprise a have redirected at least some of these categorical specified percentage of total apportionments that funds to cover K-12 instructional costs, the adult schools and community colleges receive for Legislature will face a transitional issue regarding adult education (such as at least 10 percent at full whether districts will be required to resume implementation). We envision the state allocating spending their entire pre-flex categorical allocation these performance funds in largely the same way on adult education. While such a requirement that WIA Title II funds go out to adult education would benefit adult education services, it also providers. (As with WIA Title II funding, these would create a funding shortfall for the non-adult funds would be based on performance in a prior education programs that currently are supported year such that no delay would occur in their by the flexed funds. To minimize such a disruption, distribution to providers.) Since WIA does not we recommend the Legislature require districts to fund vocational education, one notable difference spend on adult education in 2015-16 whatever they would be that providers also would receive points spent on the program in a specified prior year (such for vocational certificates earned by students. By as in 2012-13). Such a categorical program is not funding both enrollment and outcomes, the state needed for CCC because colleges already itemize would create a strong incentive for adult schools their expenditures by type of instruction. This and CCC to provide educational access for students makes it easy to identify how much community while at the same time focusing on strategies that colleges spend on adult education. improve student learning and successful transitions Equalize Funding Rate for Adult Education. to collegiate studies and the workforce. Once flexibility ends, we also believe the Legislature Assess Regions’ Relative Funding Needs. should make equalizing per-student funding rates After multiple years of budget cuts and categorical across the two segments a priority. Specifically, we flexibility, considerable variation exists at the local recommend providing adult schools with the same level in terms of the availability of adult education funding rate that community colleges receive to instruction. In years in which the state has new provide adult education (noncredit) instruction. In Proposition 98 monies to invest, we recommend a most cases, providers would receive the enhanced process whereby local areas are eligible for funds noncredit rate (though instruction in citizenship based on relative need. To assess local needs, we and adults with disabilities would receive the regular recommend the enactment of legislation that noncredit rate, consistent with current practice). requires a state agency (such as the Department Equalization could be under taken in a few different of Finance) to report annually how much in state ways, including providing a special appropriation funds are being provided for adult education for this purpose or providing higher cost-of-living by geographic area. Using census data, the state adjustments to adult schools in future years. could then estimate relative funding needs. For 24 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt each county, for example, the state could calculate • Courses the providers have sequenced and the amount of adult education funding currently aligned career pathways they have in place provided per adult with less than a high school (such as from adult elementary education diploma and per adult who does not speak English to high school diploma programs and at home. Other indicators of need could include high school diploma programs to short- regional unemployment and poverty rates. term vocational training and CCC credit Make New Funding Available on a Regional programs). Basis. Based on these calculations and the • Partnerships that have been developed with availability of state funding, the state could other workforce-related agencies (such as determine a region’s eligibility for additional adult business and labor organizations) in the education funding. (In general, we think counties region. are a reasonable proxy for a regional approach, though heavily populated counties could be divided Task CCC, SBE, and a Third Agency With into multiple regions, and multiple counties with Evaluating Applications. We recommend the relatively small populations could be combined into Legislature charge the CCC Chancellor’s Office a single region.) Any existing or potentially new and SBE with scoring and ranking the applications. provider (including adult schools and community In cases in which CCC and SBE do not agree colleges) would be eligible to apply for these on the winning application, we recommend the funds. In areas in which both school districts Legislature task a third-party agency (such as EDD) and community colleges offer adult education, with breaking the tie. Once these additional monies providers would be permitted to apply for these are awarded, they would roll into the providers’ new regional monies on their own (that is, without respective base budgets. including any other partners in the application). Promote Collaboration Among Providers Providers would have an incentive to apply with by Adopting Common Course Numbering for others, however, because applications would be Adult Education. To facilitate the creation of awarded on a competitive basis and evaluated coordinated course sequences and seamless career based on statutorily define criteria. For example, pathways among providers, we recommend the applications could be scored and ranked based on Legislature support the development of a common their inclusion of details, such as: course numbering system for adult education. • The role each provider would have in We envision a system along the lines of what is already in place for the CCC and CSU systems. providing instruction and services to Specifically, to implement recent legislation students. requiring CCC and CSU to create streamlined • The educational programs and student pathways for transfer students, faculty from both support services (such as counseling) that segments have collaborated to develop a common would be offered within the region. course numbering system (known as “C-ID”) for hundreds of the most commonly taken courses • The proposed location of educational sites by undergraduate students. Courses that meet within the region and the extent to which the curricular standards of discipline faculty are the sites are accessible to populations in given a C-ID number. (For example, all approved need of adult education. college-level algebra courses are designated C-ID www.lao.ca.gov Legislative Analyst’s Office 25 An LAO RepORt MATH 150.) The C-ID designation provides data system than what is currently in place. For assurance to faculty that a course taken by students example, in addition to enrollment data, the state at one campus is comparable elsewhere, which would need CASAS to collect outcomes data significantly simplifies the articulation process. (such as learning gains) for all adult schools and The C-ID designation also provides CCC faculty community colleges—not just those that receive with the building blocks for creating associate WIA monies. Community colleges, meanwhile, degree programs that are properly aligned with would need to start reporting complete data on more-advanced coursework at CSU. (For more the number of noncredit certificates earned by details on C-ID, please see Reforming the State’s students. Without key data such as these, the Transfer Process: A Progress Report on Senate Bill Legislature would continue to have significant 1440, May 2012.) The CCC Academic Senate has difficulty holding providers accountable for their recently indicated that it has preliminary plans to use of state funds. By incorporating performance use a similar approach to improve alignment and into the funding mechanism, however, we believe articulation of vocational courses between high that both segments would have a strong incentive schools and CCC associate degree programs. Going to ensure that such information is collected and forward, we recommend the Legislature support reported to the state. the inclusion of adult education providers in this Adopt Common Student Identifiers to proposed effort. The Legislature could do so by Improve Accountability. To further improve providing special grant monies (such as through accountability, the state also will need a better way the Proposition 98-funded Career Technical to track students as they move from one segment Education Pathways Initiative) that allow faculty to the other. As noted in the previous section, a from adult schools and community colleges to major obstacle to implementing a coordinated meet and identify comparable vocational courses. data system is the lack of uniform identification We believe it also makes sense to adopt a common numbers for students in adult schools and the course numbering system for non-vocational CCC system. While community colleges and other instruction (such as ESL). In so doing, adult postsecondary institutions collect and use students’ education providers within a given region would social security numbers, CDE policy prohibits be better able to coordinate on the academic all schools from doing so (regardless of whether and vocational courses that each offers (to avoid they serve children or adults). We recommend the unnecessary duplication) as well as to design clear Legislature request CDE to review its current policy pathways that facilitate the transition of students for adult students. Depending on the outcome from adult education (noncredit) to coursework at of CDE’s review, the Legislature could further the collegiate level. clarify in statute its intent that adult schools and community colleges use students’ social security monitor Provider Performance numbers to better facilitate the tracking of students With linked data System across segments and into the labor force. Legislature Needs More Data to Exercise Its Oversight Function. Our proposed funding mechanism would require a much more robust 26 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt ConCluSion Adult education occupies a unique place in adult school in California, adult education faces the state’s education continuum between K-12 and a number of major problems and challenges. In higher education in that it serves adult learners this report, we lay out a roadmap for restructuring but consists of subject matter at the elementary the system. Taken together, we believe our and secondary level. Adult education plays an recommendations would improve adult education important role in providing adults with the basic by making it more focused, coherent, collaborative, skills and training they need to participate in civic responsive to local needs, and accountable to the life and become economically self-sufficient. Yet, public. a century and a half after the founding of the first www.lao.ca.gov Legislative Analyst’s Office 27 An LAO RepORt LAO Publications This report was prepared by Paul Steenhausen and reviewed by Jennifer Kuhn. The Legislative Analyst’s Office (LAO) is a nonpartisan office that provides fiscal and policy information and advice to the Legislature. To request publications call (916) 445-4656. This report and others, as well as an e-mail subscription service, are available on the LAO’s website at www.lao.ca.gov. The LAO is located at 925 L Street, Suite 1000, Sacramento, CA 95814. 28 Legislative Analyst’s Office www.lao.ca.gov