The 2021-22 Budget: Educator Workforce Proposals

analysis full gutter The 2021-22 Budget: Educator Workforce Proposals FEBRUARY 2021 In this post, we analyze the Governor’s as his proposals to provide additional professional proposals to address teacher shortages, as well development for school staff. Teacher Shortages Below, we provide background on teacher the demand for teachers was low. Certain subject shortages, describe the Governor’s proposals areas and types of schools are more likely to rely on related to these issues, assess these proposals, underprepared teachers: and offer associated recommendations. • Special Education, Science, and Math Are Background More Likely to Reflect Shortages. In reports required by the U.S. Department of Education, California Has About 300,000 School California has identified shortages of special Teachers. In 2018-19, about 295,000 full-time education, science, and math teachers nearly equivalent teachers were employed in California’s every year since 1990-91. Special education public school system. This is an increase of teachers tend to have higher rates of turnover 9.8 percent over the 2010-11 level (the low point due to several factors, such as the increased during the Great Recession). Coupled with the effects of Figure 1 declining student enrollment, the statewide student-to-teacher Share of Underprepared Teachers Is Low, but Increasing ratio, in turn, has dropped every Share of Teacher Workforce on Emergency Credentials year since its peak in 2010-11 6% (23:1). In 2018-19, this ratio was about 21:1—comparable to the 5 level prior to the Great Recession. Some Districts Unable to 4 Find Credentialed Teachers. Despite recent growth in the 3 teacher workforce, some school districts in the state are unable 2 to find credentialed teachers. As Figure 1 shows, almost 3 percent 1 of the teacher workforce (about 8,700 teachers) had an emergency credential in 2018-19. 2003-04 2006-07 2009-10 2012-13 2015-16 2018-19 The share of teachers on emergency credentials has risen every year since 2009-10, when 2021-22 LAO Budget Series 1 analysis full gutter risk of lawsuits and considerable reporting In Recent Years, State Has Funded Various requirements to comply with federal special Programs to Address Teacher Shortages. education law. Teacher shortages in science Figure 2 on the next page describes the programs and math are attributed to a shortage of that have received one-time state funding since undergraduates in science, technology, 2016-17 to address teacher shortages. Some engineering, and math (STEM) majors and the programs are aimed at increasing the supply of high salaries that these graduates can receive teachers. For instance, the Classified School in other professions. Employee Teacher Credentialing Program • Low-Income Urban Schools and (Classified Program) provides financial support Rural Schools Rely More Heavily on for classified staff to pursue their teaching Underprepared Teachers. Staffing difficulties credential. Other programs focused on improving appear most pronounced in low-income urban or accelerating teacher preparation, particularly in schools, as well as rural schools. National high-need subject areas. The Teacher Residency research shows that between 1987 to Grant Program funds the expansion of residency 2016, about one-quarter of public schools programs in special education, bilingual education, accounted for almost half of all public school and STEM fields that provide teacher candidates teacher turnover. Schools most affected by more support and classroom experience by high teacher turnover were those with higher first teaching alongside a mentor teacher. Other shares of low-income students programs, such as the Golden State Teacher and/or students of color, as well as those Grant Program, target the recruitment of special in urban or rural areas. In California, higher education teachers in schools with higher shares of teacher turnover also is reported in these underprepared teachers. types of schools. Substantial Federal Emergency Relief Has Been Provided to Schools Within the Coronavirus Disease 2019 Pandemic Could Past Year. In response to the pandemic, the Worsen Teacher Shortages. A national survey federal government passed two emergency relief of teachers from November 2020 found that packages providing significant one-time funding 27 percent of teachers were considering taking a for K-12 public education. The Coronavirus Aid, leave of absence, leaving the teaching profession, Relief, and Economic Security (CARES) Act, signed or retiring early in response to the pandemic. into law on March 27, 2020, allocated $1.5 billion Data in California is consistent with this finding. to California public schools based on numbers of According to the California State Teachers’ low-income and disadvantaged children. These Retirement System, which manages the state’s federal funds are available until September 30, pension system for teachers, 3,202 California 2022 and could be used on a variety of activities teachers retired in the second half of 2020—a including maintaining continuity of school services 26 percent increase relative to 2019. Although the (such as teacher recruitment and retention). Signed pandemic appears to have accelerated teachers into law on December 27, 2020, the second federal leaving the workforce, data on teachers entering relief package allocated an additional $6 billion to the workforce—such as district hiring of new California public schools under the same allocation teachers and enrollment in teacher preparation formula and broad range of allowable uses as the programs in 2020-21—are not yet available. CARES funding. Schools must spend these funds Anecdotal evidence, however, suggests that by September 30, 2023. enrollment in teacher preparation programs is higher for 2020-21 relative to the prior year, which Governor’s Proposals could mitigate other pandemic-related impacts in Provides $225 Million One Time for Previously subsequent years. Funded Teacher Programs. The Governor’s budget provides additional funding for three previously funded programs: 2021-22 LAO Budget Series 2 analysis full gutter Figure 2 State Has Provided $190 Million Since 2016-17 to Address Teacher Shortages General Fund Unless Otherwise Indicated (In Millions) Program Year Description Funding Allocation Amount Teacher Residency 2018‑19 Supports establishing and expanding CTC competitively awards grants to $51a Grant Program teacher residency programs in districts, COEs, and school‑university special education, STEM, and partnerships. There are two grant bilingual education. types: (1) planning grants of up to $50,000 and (2) residency grants of up to $20,000 per resident in the new or expanded program. Local Solution Grants 2018‑19 Provided funding to local efforts to CTC competitively awarded grants of up 50 recruit and retain special education to $20,000 per participant to districts, teachers. COEs, and schools. Grantees required to provide a dollar‑for‑dollar match. Classified School 2016‑17 and Provides financial assistance to CTC competitively awarded grants of 45 Employee Teacher 2017‑18 classified school employees, such $4,000 per participant per year for up Credentialing Program as instructional aides, to pursue to five years to districts, COEs, and teaching credentials. schools. Golden State Teacher 2020‑21 Provides financial assistance to CSAC awards funds to participating 15b Grant Program students enrolled in teacher teachers. This program was federally preparation programs who commit funded. to working in special education at a school with a high share of teachers on emergency credentials. Integrated 2016‑17 Supported expanding integrated CTC competitively awarded planning 10 Undergraduate programs that allow participants grants of up to $250,000 to Teacher Preparation to earn a bachelor’s degree and universities. Grants a teaching credential within four years. Programs focused on special education, STEM, and bilingual education received funding priority. California Educator 2017‑18 Assisted districts with recruiting and California Center on Teaching Careers 9 Development Program preparing teachers, principals, and competitively awarded grants to other schools leaders. 26 districts, COEs, and schools. This program was federally funded. California Center on 2016‑17 Established a statewide teacher CTC competitively awarded grant to 5 Teaching Careers recruitment center to recruit Tulare COE to operate center. qualified and capable individuals into the teaching field, particularly to low‑income schools in special education, STEM, and bilingual education. Bilingual Teacher 2017‑18 Supported teachers pursuing CDE competitively awarded grants to 5 Professional authorization to teach bilingual and eight districts and COEs. Development Program multilingual classes. Total $190 a Program initially received $75 million. The 2020-21 Budget Act swept $23 million in unused funds. b Program initially received $90 million in 2019‑20 budget, but funds were swept as part of 2020‑21 budget. STEM = science, technology, engineering, and math; CTC = Commission on Teacher Credentialing; COE = county office of education; CSAC = California Student Aid Commission; and CDE = California Department of Education. 2021-22 LAO Budget Series 3 analysis full gutter • Teacher Residency Grant Program School districts, county offices of education ($100 Million Proposition 98). Funding is (COEs), and charter schools that have not for another round of awards to establish new previously received funding would receive and expand existing teacher residencies. priority for funding. The proposal also includes several changes to the program rules. Most notably, the Assessment proposal allows the Commission on Teacher First Round of Funding for Teacher Credentialing (CTC) to expand the subject Residency Grant Was Not Fully Exhausted. Of areas eligible for grant funding to include the $50 million provided in 2018-19 specifically for other shortage areas identified by CTC. Unlike special education residency programs, CTC was previous funding, the Governor’s proposal only able to award $27 million in the first funding does not allocate a specific amount of funding round. The CTC subsequently released a second for each shortage area. (The initial funding for request for proposals to award the remaining funds, the program provided $50 million for special but these funds were swept in the 2020-21 budget education and $25 million for both STEM and package due to the state’s fiscal condition. The bilingual education.) $25 million set aside for STEM and bilingual • Golden State Teacher Grant Program education, however, has been exhausted. ($100 Million Non-Proposition 98 Residency Programs May Improve General Fund). The California Student Aid Preparation but Are Challenging to Initiate Commission would award grants of up to and Sustain. Research suggests that teachers $20,000 to each teacher candidate agreeing prepared through residency programs tend to feel to teach in a priority school for four years. more prepared than other beginning teachers and A teacher candidate must be enrolled in a typically remain teaching in the same district for teacher preparation program to receive a a longer period of time. Despite these potential grant and agree to repay the grant if they benefits, however, residency programs can be fail to complete the service commitment. In difficult to develop and financially sustain. For contrast to the funding provided in 2020-21, example, the districts we spoke to mentioned they the Governor’s proposal includes two main had challenges establishing a reliable partnership program changes. First, rather than limiting with the university, attracting residents due to the the program to special education candidates, appeal of other preparation pathways (such as grants would be available for candidates internship programs) that allow teacher candidates pursuing credentials to teach bilingual to earn a teaching salary while completing their education, STEM, special education, multiple program, and sustaining funding for the program subject instruction, and other shortage areas after the residency grant ends. identified by CTC. Second, the Governor proposes to change the definition of a priority Classified Program Is in High Demand. The school to one in which 55 percent or more of Classified Program is oversubscribed. The initial its student population is either low income or two rounds of funding provided enough financial an English learner. (Under current law, priority assistance to support 2,260 classified employees. schools are defined based on having a high However, an additional 6,000 classified employees share of teachers on emergency credentials.) requested to participate, and applications from After accounting for funding that can be used 27 school districts and COEs remain unfunded. for administration and outreach, the proposed Administrators we spoke to viewed the program funding would support up to 4,925 grants. as a long-term recruitment and “grow-your-own” retention strategy. Administrators also noted that, • Classified Program ($25 Million compared to the current teacher workforce, the Proposition 98). Funding would support at participants in the Classified Program are more least an additional 1,041 participants with likely to be from the local community and share grants of up to $24,000 over five years. 2021-22 LAO Budget Series 4 analysis full gutter the same racial and ethnic backgrounds as the possible that the program might provide grants students they serve. to some teachers who would have taught at a Classified Program Not Targeted to Statewide low-income school even without the grant. Shortage Areas. Although applicants were Given Recent Influx of One-Time Federal required to demonstrate a need for credentialed Funding, Schools Have Broad Options for teachers in their applications, those with greater Teacher Recruitment and Retention. With a total need did not receive priority in the application of $7.5 billion available across the two federal process. As a result, several districts participating emergency relief packages, California public in the program have relatively low shares of schools will have significant one-time resources underprepared teachers. Of the 23 districts that available to spend in 2021-22. This is particularly applied individually (not part of a larger consortium), the case for low-income school districts, which 14 had a lower percentage of teachers on received significantly more funding per student emergency credentials than the statewide average. under the federal allocation formulas. Given the Seven districts have both lower shares of teachers flexibility and local control over these federal funds, on emergency credentials and lower shares of schools have a broad range of options to hire low-income students than the statewide averages. and retain qualified, prepared teachers, including This differs from most other teacher-related state teacher service awards, signing bonuses, or programs, which target resources to subject areas student debt payments. These approaches may be and school districts where teacher shortages are more responsive to local needs than state-funded most pronounced. initiatives, such as those proposed by the Governor. Evaluation of Classified Program to Be Recommendations Released This Summer. As statutorily required, CTC has contracted with an independent program Reduce Proposed Teacher Residency Grant evaluator to complete and submit to the Legislature Program Augmentation to $50 Million, Reject an evaluation of the Classified Program by Expanding to Other Shortage Areas. We July 1, 2021. Although the evaluation will not be recommend the Legislature provide $50 million available for the 2021-22 budget deliberations, (half the amount proposed by the Governor) for CTC shared with us their intent to incorporate any new residency programs in 2021-22—roughly notable evaluation findings into the next application equivalent to the amount of funds awarded thus process. far. Given the challenges in building and sustaining Impact of Golden State Teacher Grant these programs, we believe this amount is sufficient Remains Unknown, Could Be Limited. At the to address additional demand for new residency time of this analysis, the first round of Golden State programs. We also believe the current program Teacher Grants had not been awarded. As such, rules are more appropriately targeted than the the state cannot yet measure the effect of the Governor’s proposed change in addressing program on teacher supply. Several programmatic long-standing shortage areas. As such, we elements of the grants, however, could limit their recommend the Legislature reject the proposed effects. Although teacher candidates agree to change to broaden the funding to other subject teach in a low-income school to receive funding, areas as identified by CTC. there is no guarantee they will ultimately teach at Target Classified Program to Shortage Areas. a low-income school. For instance, the teacher Given the substantial demand for the Classified candidate may not be able to secure employment Program, we recommend the Legislature approve at a low-income school due to reasons beyond the Governor’s proposal to provide $25 million their control. Furthermore, there is no guarantee for this program. In addition, we recommend the teacher candidates would repay grant funding if several modifications to ensure the program is they are unable to meet the program requirements. more directly targeted toward addressing teacher Moreover, the effectiveness of this grant as a shortage areas. Specifically, we recommend giving recruitment incentive is limited. For example, it is priority to districts with higher shares of teachers 2021-22 LAO Budget Series 5 analysis full gutter on emergency credentials and higher shares of low-income schools. Furthermore, the low-income low-income students. After reviewing the findings schools intended to benefit from this program of the forthcoming evaluation, the Legislature also have access to significant one-time federal funding may want to revisit program rules in subsequent that provides broader flexibility to address these years. long-standing recruitment challenges. Should the Reject Golden State Teacher Grant Proposal. Legislature be interested in incentive funding for We recommend the Legislature reject the teachers, we suggest focusing efforts on expanding Governor’s proposal to augment the Golden State the total supply of teachers in shortage areas. For Teacher Grant Program. Given that the first round instance, the Legislature could instead consider of grant funding has not yet been allocated in the targeting funding to expand enrollment in the current year, the effect of the program on teacher integrated teacher preparation programs at the supply remains uncertain. Moreover, by mainly undergraduate level. Many other states currently focusing on teacher candidates still in preparation offer this route into teaching. Under this approach, programs prior to securing a teaching job, the the state could increase the total supply of teachers proposal cannot guarantee that grant funds will by encouraging more undergraduate students to effectively address recruitment challenges in pursue teaching in a high-need subject when they might have otherwise pursued another profession. Professional Development Below, we provide background on professional local general purpose funding (mainly through development for teachers, describe the Governor’s the Local Control Funding Formula). In addition, proposals to provide additional professional the federal government provides $210 million development for teachers and other school staff, to California annually to support professional and offer issues for the Legislature to consider. development activities. All districts receive this federal funding, but a majority of the funds go to Background low-income districts and schools. Additionally, Professional Development Activities Are the state provides districts funding for mandated Locally Determined and Funded. Teachers and school staff trainings on HIV prevention education other school staff negotiate with their school and mandated reporting of child abuse. district on the amount of required time dedicated Districts Have a Variety of Options for to professional development each year. If these Providing Professional Development. School activities occur when school is not in session, the districts have a variety of options for choosing district typically compensates staff at a negotiated how to provide training and resources to their hourly or daily rate. If teachers attend professional employees. Many districts develop their own development during the school day, the district training and resources based on the specific generally must pay the cost of hiring a substitute needs of their workforce. For example, some teacher. The topics of the professional development districts set aside time for professional learning also can be decided through collective bargaining. communities, where teachers from the same Outside of the negotiated activities, teachers and grade level or subject area work collaboratively to school staff may voluntarily participate in additional improve their teaching skills throughout the school professional development opportunities. This time year. In addition, districts can obtain professional may also be compensated as determined in the development from a variety of local and state local collective bargaining agreement. educational agencies, public universities, and Districts Receive Some Federal and State various agencies associated with the statewide Funding for Professional Development. Districts system of support. For instance, the University of primarily fund professional development through California receives $7.6 million ongoing (state and 2021-22 LAO Budget Series 6 analysis full gutter federal funds) to support professional development Issues for Legislative Consideration in core subject areas through the Subject Matter Block Grant Approach Would Give Districts Projects. These options can be free of charge or on Flexibility to Address Greatest Needs. In the fall a fee-for-service basis. Districts also may receive of 2019, the California Department of Education training from various private entities, including conducted a survey of school staff to identify the private universities and nonprofit organizations. key barriers to accessing professional development. Governor’s Proposals Respondents most commonly identified a lack of time as a major barrier, followed by the cost of Provides $320 Million One Time for Various participating in training. Under the Governor’s block Professional Development Initiatives. Figure 3 grant proposal, districts would have flexible funding summarizes the Governor’s professional to help address these underlying challenges. development proposals, which include both For instance, districts can use this funding to previously funded and new initiatives. compensate staff for time spent on trainings and Figure 3 Governor’s Budget Proposes $320 Million for Educator Professional Development One-Time Proposition 98 Unless Otherwise Indicated (In Millions) Proposed Program Proposal Amount Previously Funded Educator Effectiveness Provides grants to schools based on counts of teachers (estimated to be $800 per teacher). $250 Block Grant Funds could be used for training in a broad array of topics, including core academic subjects, social‑emotional learning, school climate, inclusive practices, and English learner supports. Available through 2024‑25. Last funded in 2015‑16. 30 MTSSa Provides schools grants to support MTSS implementation, including site‑specific coaching and staff compensation to complete training. Last funded in 2018‑19. 8 Early Math Initiative Funds development of training and resources to improve math skills for children age eight and under. Received federal funding in 2018‑19. 7 University of California Provides $5 million for teacher training on learning recovery in core subject areas (such as math Subject Matter Projects and language arts) and $2 million for training in ethnic studies. Received federal funding in 2020‑21. This program also receives $7.6 million ongoing through a mix of federal and state funds. Subtotal ($295) Newly Funded Social-emotional learning Provides funding to Orange and Butte COEs, in partnership with another educational entity or $20 consortia, to develop resources, convene professional learning communities, and provide ongoing training on social‑emotional learning and trauma‑informed practices. Ethnic studies Provides funding for one or more COEs to provide training on developing or expanding ethnic 5 studies courses, including those aligned with the Model Curriculum to be adopted by SBE by March 31, 2021. Subtotal ($25) Total $320 a MTSS is framework that integrates academic, social, and behavioral interventions in a multitiered approach. The broadest tier provides general supports for all students, with tiers escalating in intervention based on student needs. MTSS = multitiered system of support; COEs = county offices of education; and SBE = State Board of Education. 2021-22 LAO Budget Series 7 analysis full gutter cover other associated training costs. By providing for example, provides training resources in an some flexibility over the focus of trainings, this area where relatively few training resources exist. approach also allows for professional development Providing training on the forthcoming ethnic studies to be targeted to areas that would most benefit the model curriculum is reasonable, given elements of teachers and other staff at each local school. the guidance will be new to schools. We are less Recent Federal Funds Could Also Support clear, however, on how the funding for Subject Professional Development Activities. Since the Matter Projects would address existing gaps. The recent federal funds can also support professional proposal includes $5 million for learning recovery development activities, the Legislature may in core subject areas, but it is unclear how this want to consider how the Governor’s proposals would differ from other training currently provided complement these funds and other funding through the program. Furthermore, the $2 million dedicated to professional development. Providing provided to the Subject Matter Projects for ethnic block grant funding specifically for professional studies appears duplicative of the Governor’s other development would allow districts to use federal or proposal on ethnic studies. local funds for other local activities. Alternatively, Consider Requiring Clear Deliverables and the Legislature could provide less funding for Expectations Tied With Funding for Targeted professional development and direct schools to Proposals. The Governor’s budget includes very rely on existing federal and local funds to cover few details on the deliverables and expected these activities. This would free up one-time activities to be funded under the subject-specific Proposition 98 funds that the Legislature could proposals. For instance, the Early Math Initiative dedicate to its other K-12 priorities. proposal does not specify the types of activities Most Targeted Proposals Are Addressing to be supported with additional funding. The Specific Gaps in Training. Given most decisions Subject Matter Projects proposal does not clarify about professional development are made locally, how the proposed one-time augmentation would we think directing most professional development be used differently than ongoing funding currently funding to districts makes sense. To the extent the provided to the program. The proposed funding for Legislature wants to dedicate state-level funding social-emotional learning also lacks detail regarding to develop additional training resources, we think it the level of support this funding would provide for should consider whether the additional resources schools. The Legislature may want to establish a are addressing existing gaps in training. Most of clear set of deliverables and expectations for each the targeted proposals in the Governor’s budget proposal that is approved to ensure funds are spent address existing gaps. The Early Math Initiative, as intended and achieve the desired outcomes. 2021-22 LAO Budget Series 8 analysis full gutter LAO Publications This report was prepared by Amy Li, and reviewed by Edgar Cabral and Anthony Simbol. The Legislative Analyst’s Office (LAO) is a nonpartisan office that provides fiscal and policy information and advice to the Legislature. 2021-22 LAO Budget Series 9