Assessing Community College Programs at State Prisons

2024-25 BUDGET Assessing Community College Programs at State Prisons GABRIEL PETEK | LEGISLATIVE ANALYST JULY 2024 www.lao.ca.gov 1 AN LAO REPORT Cover photo courtesy of the California Department of Corrections and Rehabilitation. 2 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT Executive Summary State Began Funding In-Person Community College Instruction at State Prisons a Decade Ago. Prior to 2014, California Community Colleges (CCC) tended to provide only correspondence courses at state prisons. This was because colleges could receive state funding only for courses that were open to the general public. In 2014, the state approved Chapter 695 (SB 1391, Hancock), which allowed community colleges to receive state funding for in-person courses at state prisons (even though those courses were closed to the general public). In the ensuing years, the availability of in-person CCC courses in state prisons expanded significantly. Currently, 22 community colleges (about 30 percent of all community colleges) partner with the California Department of Corrections and Rehabilitation (CDCR) to provide in-person courses. Most of these CCC programs lead to an associate degree, typically in the humanities, social sciences, and business. Throughout this period, CCC enrollment at state prisons increased markedly. Whereas about 1,400 full-time equivalent (FTE) students were enrolled in 2015-16, nearly 5,500 FTE students were enrolled in 2018-19—reflecting a near quadrupling of enrollment within just four years. Student Outcomes in These Programs Are Mixed. In 2022-23, 40 percent of CCC instruction at state prisons was delivered in person whereas 60 percent was delivered not in person (mostly through correspondence courses). As part of our analysis, we collected data on student outcomes. The data show that course success rates for CCC students at state prisons are about the same as the rates for CCC students overall. Success rates for correspondence courses at state prisons, however, are notably lower than for in-person courses at state prisons. Term-to-term persistence rates for CCC students at state prisons also are much lower than for CCC students overall. Moreover, CCC graduation rates at state prisons are lower than for the CCC system overall, and the average time to degree among incarcerated students is longer. Data are lacking regarding the extent to which CCC programs are leading to some other key objectives, including reductions in recidivism, increases in employment, and higher wages for those released from CDCR. Anecdotally, Students and Staff Believe CCC Programs Have Several Positive Aspects. Some research conducted at other correctional settings has identified benefits to postsecondary education during incarceration, including reductions in recidivism rates. To date, CDCR, however, has not conducted a rigorous evaluation of the impacts of CCC programs. As part of our assessment of these programs, we visited several state prisons and interviewed students and staff. Incarcerated students we interviewed indicated that these programs helped them develop critical thinking skills and enhance communication with their families. CDCR staff indicated that these programs created a better prison atmosphere and made incarcerated students more productive with their time. In addition, community college faculty noted that students tended to be motivated and generally came prepared for class. We also identified that several CCCs are piloting online models for incarcerated students that appear promising alternatives to correspondence courses. These Programs Have a Number of Problems and Missed Opportunities. In assessing CCC programs at state prisons, we identified several problems, which the figure at the end of this box summarizes. Regarding enrollment, we discovered that some programs use a first-come, first-served approach rather than prioritizing those individuals without a first degree who are www.lao.ca.gov 3 AN LAO REPORT close to release. We also found that CDCR lacks a comprehensive assessment of its utilization of classroom space by prison, which could be inhibiting colleges’ ability to further expand their in-person course offerings. Additionally, despite the state spending tens of millions of dollars annually to support CCC programs in state prisons, the state does not link any of this funding to student success. (By comparison, the state links funding to student success for nearly all student groups outside of the prisons.) Another missed opportunity is that the state is not leveraging available federal funding for college education at prisons. A final problem we identified is that CCC programs at state prisons lack an evaluation component. Recommend Adopting Changes to Improve Programs. We recommend the Legislature take certain actions in response to these problems and missed opportunities. These recommendations also are included in the figure at the end of this box. Most of the recommendations we make could be adopted and implemented immediately. A few of the recommendations could take more time to implement and would place some new administrative requirements on CCC and CDCR. Overall, our recommendations would result in modest state General Fund savings (both to CCC’s and CDCR’s budgets), while incentivizing better student outcomes and improving legislative oversight. Summary of Assessment and Recommendations for CCC Programs at State Prisons Component Assessment Recommendation Enrollment prioritization Demand for CCC courses among incarcerated Adopt statutory enrollment priorities that apply at people generally exceeds supply, yet some all state prisons. Give priority to students who are colleges do not give enrollment priority to closest to obtaining their first degree and within those people most likely to benefit. five years of release. This approach could improve individuals’ post-release outcomes, including by reducing the risk of recidivism and improving job prospects. Space utilization CDCR and CCC report a lack of sufficient space Adopt statutory space and utilization standards. to hold in-person courses, yet CDCR lacks Direct CDCR to collect data and report biennially on a comprehensive assessment of its space space utilization. utilization. Online pilots Given the generally poor outcomes of Require CCC and CDCR to report on pilot outcomes, correspondence courses, some community including course success rates compared with colleges and CDCR are working together to in-person and correspondence courses and impact pilot new online instructional models. on faculty recruitment to teach high-demand courses in prisons. State funding State’s current CCC funding model lacks a Modify CCC funding formula to include a performance strong incentive for colleges to promote component. In the meantime, require CCC to report incarcerated student success. enrollment and outcomes data for incarcerated students. Federal funding State is missing an opportunity to draw down Begin charging incarcerated students to attend CCC federal funds to support prison education and use federal Pell Grant funds to offset enrollment costs. fees, textbooks, computers, and other allowable education costs. Program evaluation The state lacks an evaluation analyzing the Require CDCR to annually report data on recidivism, impact of CCC education programs on employment, and wage outcomes by educational recidivism, employment, and wages. program, provider, and risk level of reoffending. In addition, require CDCR to use external evaluators to assess the impact of CCC programs every five to ten years. CDCR = California Department of Corrections and Rehabilitation. 4 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT INTRODUCTION Report Focuses on Community College programs at California’s state prisons. Notably, it Programs at California’s Prisons. While has been ten years since the Legislature passed incarcerated in prison, people often participate legislation allowing community colleges to receive in various rehabilitation programs. Rehabilitation state funding for providing instruction inside state programs seek to improve the likelihood that prisons. In accordance with this legislation, the people will lead productive, crime-free lives upon availability of postsecondary courses in state their release from prison. These programs are prisons has expanded significantly and incarcerated intended to address the underlying factors that led student enrollment has almost quadrupled. In this to their criminal activity. These programs include report, we first provide relevant background, cover substance use disorder treatment and anger key student trends at state prisons, and explain management, as well as a range of programs how CCC education programs at state prisons aimed at cultivating academic skills and potential are funded. We then assess the strengths and future employment opportunities. In this report, weaknesses of these programs and conclude with we focus on California Community College (CCC) recommendations aimed at improving them. BACKGROUND In this section, we provide background colleges to offer baccalaureate degrees in on (1) community colleges, (2) the California certain occupational fields as long as they do not Department of Corrections and Rehabilitation duplicate the programs offered by the University (CDCR), and (3) the educational partnership of California (UC) or the California State University between CDCR and community colleges. (CSU). In 2022-23, community colleges provided instruction to about 1.9 million students in California Community Colleges headcount terms (1 million full-time equivalent, or Community Colleges Are Located Throughout FTE, students). The vast majority of CCC students the State. The CCC system is the largest of are adults taking courses that are open to the California’s three public higher education segments public. Some CCC students, however, are younger, in terms of both number of campuses and students. being dually enrolled in CCC and high school The system consists of 115 colleges operated by courses. Other CCC students are incarcerated 72 locally governed districts. (The CCC system (either in state prison, a local jail, or another also has one statewide online college.) The state correctional facility) and enrolled in courses that are provides districts with significant autonomy in not open to the public. matters such as determining course offerings, California Department of Corrections hiring and compensating staff, and managing district property. The CCC system is overseen by and Rehabilitation a state-level Board of Governors, which appoints CDCR Operates State Prisons. As of the a Chancellor to run day-to-day operations at the end of March 2024, CDCR was responsible for Chancellor’s Office (located in Sacramento). incarcerating a total of about 93,000 people Community Colleges Have a Broad Mission. convicted of certain serious or violent felonies. Community colleges offer a breadth of academic Most of these people (97 percent) are housed in programs, including lower-division transferable one of the 32 prisons owned and operated by the coursework, career technical education, and state. Currently, the state has 30 men’s prisons literacy and other precollegiate basic skills and 2 women’s prisons. The remaining people instruction. Statute also allows community incarcerated by the state are housed in various www.lao.ca.gov 5 AN LAO REPORT specialized facilities outside of prisons, such CDCR-CCC Partnership as conservation camps and community reentry CDCR Has Agreements With Community facilities. Depending on the severity of the crime Colleges for In-Person Instruction. Figure 1 and several other factors (including the length of shows the 22 public community colleges providing court proceedings), people can spend less than in-person instruction at 31 of the 32 state prisons, one year in prison or the remainder of their life. along with one nonprofit, two-year college that On average, a person spends about three to four provides in-person instruction at the remaining state years in prison before release. prison. Generally, prisons are located within the CDCR Offers Rehabilitation Programs to CCC district boundaries of their partnering college. Reduce Recidivism, Among Other Benefits. A uniform memorandum of understanding (MOU) Some people reoffend after they are released from between each CDCR prison and its partnership prison. Specifically, of the roughly 36,000 people community college outlines the responsibilities of released from California’s state prisons in 2018-19, each entity. As set forth in the MOU, community about 15,100 (42 percent) were convicted of a colleges are responsible for student enrollment, subsequent crime within three years of release. faculty recruitment, and instruction, while CDCR The primary goal of rehabilitation programs is is responsible for identifying potential students, to reduce the level of recidivism—the number of providing classroom space and classroom people that reoffend after release. If rehabilitation technology, and maintaining safety within the programs are successful at reducing recidivism, classroom. CDCR generally has discretion they in turn can result in fiscal benefits to the regarding when and where CCC instruction state, such as reducing incarceration costs and can take place within a prison. Based on CDCR increasing employment. In addition, rehabilitation practice, CCC courses are generally restricted to programs can serve other goals, such as increasing the afternoons and evenings—reserving mornings individuals’ educational attainment and reducing for other CDCR rehabilitation programs. the prevalence of substance use disorders. Prisons Also Have Arrangements With Our report, Improving In-Prison Rehabilitation Certain Colleges to Provide Correspondence Programs, provides more information on best Courses. Currently, few community colleges offer practices for reducing recidivism. online courses to students at state prisons. Instead, State Law Requires CDCR to Make Education the most common form of distance learning Programs Available at All Prisons. State law continues to be correspondence courses. Five makes education programs a part of CDCR’s community colleges (Coastline, Feather River, Lake mission and governs how CDCR is to provide those Tahoe, Lassen, and Palo Verde) provide the bulk programs. In compliance with state law, each of correspondence-based instruction to the state prison offers adult basic and secondary education prisons. These colleges generally have a broad using CDCR-employed teachers, librarians, and reach. For example, Coastline College and Lassen support staff. Many prisons also use CDCR staff College indicate they enroll at least one student to provide vocational education (such as plumbing from every or nearly every state prison. While the and welding). Beyond these types of instruction, correspondence delivery model relies primarily state law tasks CDCR with making postsecondary on paper-based instructional and assignment programs available at every prison for people who packages, in some cases instruction is delivered via have obtained a high school diploma or equivalent. closed circuit television within the prison. Under the Specifically, Chapter 766 of 2021 (SB 416, Hueso) correspondence model, the college typically uses requires that postsecondary instruction be provided a mailing service to send completed and graded by CCC; CSU; UC; or other regionally accredited, assignments back and forth between the instructor nonprofit colleges or universities. Chapter 766 and students. further requires CDCR to prioritize postsecondary programs that provide face-to-face instruction at no cost to incarcerated students (or their families) and provide comprehensive support services, such as advising and tutoring. 6 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT Course Offerings Are Figure 1 Concentrated in a Few Academic About Two Dozen Community Colleges Provide Disciplines. Whether offered in In-Person Instruction to Incarcerated Students at person or via correspondence, State Prisons CCC programs for students at state As of April 2024 prisons primarily focus on providing courses leading to associate Prison Community College degrees in the humanities, social Avenal State Prison Coalinga sciences, and business. Currently, California Correctional Institution (Tehachapi) Cerro Coso few community colleges offer California Health Care Facility (Stockton) Modesto science, technology, engineering, California Institution for Men (Chino) Chaffey and mathematics (STEM) degree California Institution for Women (Corona) Chaffey California Medical Facility (Vacaville) Solano programs to students at state California Men’s Colony (San Luis Obispo) Cuesta prisons. Beyond the associate California Rehabilitation Center (Norco) Norco degree, we identified one Calipatria State Prison Imperial Valley community college—Bakersfield Central California Women’s Facility (Chowchilla) Merced Chuckawalla Valley State Prison (Blythe) Palo Verde College—that is starting an Correctional Training Facility (Soledad) Hartnell in-person bachelor’s degree California State Prison, Centinela (Imperial) Imperial Valley program in industrial automation California State Prison, Corcoran Bakersfield at one of the prisons. The California State Prison, Los Angeles (Lancaster) Antelope Valley California State Prison, Sacramento (Represa) Los Rios CCDa Chancellor’s Office indicates other California State Prison, Solano (Vacaville) Solano colleges might also be in the midst Folsom State Prison (Represa) Los Rios CCDa of initiating additional bachelor’s High Desert State Prison (Susanville) Lassen degree programs at state prisons. Ironwood State Prison (Blythe) Palo Verde Kern Valley State Prison (Delano) Bakersfield (As covered in the text box on Mule Creek State Prison (Ione) Los Rios CCDa the next page, other colleges North Kern State Prison (Delano) Bakersfield, Porterville and universities offer various Pelican Bay State Prison (Crescent City) Redwoods postsecondary programs, including Pleasant Valley State Prison (Coalinga) Coalinga Richard J. Donovan Correctional Facility (San Diego) Southwestern bachelor’s degree programs, to Salinas Valley State Prison (Soledad) Hartnell students at state prisons.) San Quentin Rehabilitation Center Mount Tamalpais (private college) Sierra Conservation Center (Jamestown) Columbia Substance Abuse Treatment Facility (Corcoran) Bakersfield Valley State Prison (Chowchilla) Merced Wasco State Prison Bakersfield a Can include faculty from district’s four colleges. CCD = Community College District. www.lao.ca.gov 7 AN LAO REPORT Additional Postsecondary Education Opportunities An Increasing Number of Bachelor’s Degree Programs Are Offered In Person at State Prisons. Beyond partnering with community colleges, some state prisons have partnered with other colleges and universities to offer in-person bachelor’s degree programs. For example, since 2014, Pitzer College, a private nonprofit institution, has been offering tuition-free, in-person courses that lead to a bachelor’s degree at the California Rehabilitation Center in Norco. In addition, the 2022-23 Budget Act provided the California Department of Corrections and Rehabilitation (CDCR) $5 million one time and $4.7 million ongoing General Fund to offer tuition-free, in-person courses leading to a Nine State Prisons Offer In-Person Bachelor’s Degree bachelor’s degree through the California State Programs University (CSU) at seven As of January 2024 prisons. More recently, a University of California Prison University campus (Irvine) has California Institution for Women (Corona) CSU Los Angeles begun to offer tuition-free, California Rehabilitation Center (Norco) Pitzer College California State Prison, Los Angeles (Lancaster) CSU Los Angeles in-person, bachelor’s Central California Women’s Facility (Chowchilla) CSU Fresno degree coursework at a Folsom State Prison (Represa) CSU Sacramento state prison. The nearby Mule Creek State Prison (Ione) CSU Sacramento figure lists the prisons Pelican Bay State Prison (Crescent City) CSU Humboldt Richard J. Donovan Correctional Facility (San Diego) UC Irvine that currently have Valley State Prison (Chowchilla) CSU Fresno in-person bachelor’s degree programs. Bachelor’s and Graduate Degrees Also Are Available Through Correspondence Programs. In addition to in-person courses, incarcerated students can pursue bachelor’s degrees and master’s degrees through certain postsecondary institutions that offer correspondence courses. For example, some people incarcerated in a CDCR prison have reported earning master’s degrees through correspondence courses offered by Adams State University (located in Colorado). In addition, CSU Dominguez Hills recently began offering coursework primarily through correspondence and online modalities leading to a master’s degree in the humanities. CSU Dominguez Hills reports that 33 students across 11 prisons enrolled in the program in fall 2023. Typically, the student or the family cover tuition and associated costs, such as textbooks, for these types of programs. 8 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT STUDENTS In this section, we cover enrollment in community students in 2015-16 to nearly 5,500 FTE students in college programs offered at state prisons and student 2018-19—almost quadrupling within just four years. outcomes in those programs. Growth in enrollment among incarcerated students can be attributed in part to two changes in state law Enrollment that occurred during the 2010s. A 2014 statutory Incarcerated People Who Have Completed change allowed community colleges to be funded for High School-Level Education Are Eligible to Be in-person instruction at state prisons (discussed more CCC Students. Upon arriving at state prison to in the “Funding” section of this report). As Figure 2 begin serving a sentence, people are assessed for shows, CCC enrollment growth at state prisons was their rehabilitative needs, among other things. Many most substantial starting in 2016-17 (the first full year incarcerated people are assigned to mandatory of colleges offering in-person instruction) and the CDCR-provided rehabilitation programming, such subsequent two years. In addition, beginning in 2014, as substance use disorder treatment. They also various policy changes have increased people’s are asked what their educational and occupational ability to earn time off of their prison sentences— interests are while in prison. Those who indicate an known as “credits”—for participating in education interest in college and already have a high school programs. (The box on the next page provides more diploma (or equivalent) are identified by CDCR as information about these credits.) Whereas CCC potential students for postsecondary instruction. enrollment at state prisons has increased over the (Students may also express interest in college after past decade, overall enrollment across the CCC earning a high school diploma, or the equivalent, system has declined by 15 percent while incarcerated.) People at state prisons who are Though In-Person Instruction Has Grown Over interested in attending community college programs Time, Correspondence Courses Remain Most apply using a paper-based application and enroll Prevalent. Figure 3 on the next page shows that based upon course availability. in-person CCC instruction at CDCR has waxed and Enrollment Growth in CCC Courses Was waned. In-person instruction increased gradually— Strong Leading Up to the Pandemic. As Figure 2 both overall and as a share of total instruction— shows, CCC enrollment of incarcerated students between 2015-16 and 2019-20. At its peak, in state prisons increased from about 1,400 FTE 48 percent of CCC instruction at prisons was provided in person. With the onset Figure 2 of the pandemic, however, in-person instruction plummeted and the share of Incarcerated Student Enrollment at CCC instruction provided via correspondence Grew Substantially From 2015-16 Through 2018-19 increased. This is primarily because Full-Time Equivalent Students at CDCR CDCR suspended most of its in-person rehabilitation programs, including CCC instruction, to mitigate the spread 6,000 of COVID-19. In 2022-23, however, 5,000 in-person instruction recovered back to its 2018-19 level in terms of FTE student 4,000 enrollment, though it remained somewhat 3,000 lower as a share of total enrollment (40 percent). Importantly, the increase of 2,000 in-person instruction at the state prisons 1,000 occurred despite a significant reduction in the overall prison population since the 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 start of the pandemic. CDCR = California Department of Corrections and Rehabilitation. www.lao.ca.gov 9 AN LAO REPORT Sentence-Reduction Credits for Incarcerated Students Credit-Earning Opportunities Have Increased at State Prisons. Beginning in 2014, various policy changes have expanded the ability of people in prison to earn time off their sentences. For example, people can earn credits by participating in rehabilitative programs, such as community college programs. Notably, in 2016, Proposition 57 gave the California Department of Corrections and Rehabilitation (CDCR) constitutional authority to make changes to credit-earning opportunities through regulations. CDCR used this authority to expand eligibility for credits and increased the amount of time that people can earn off their sentences through credits. Incarcerated Students Can Earn Credits to Reduce Their Prison Sentences. Under current regulations, incarcerated students earn a Milestone Completion Credit (MCC) for every college course completed of at least three semester units (or 4 quarter units) with a grade of “D” or better. MCCs earned through a college course provide one week off a person’s sentence, with students able to earn up to three months off their sentences over a 12-month period. In addition to MCCs, CDCR awards an Educational Merit Credit (EMC) when an incarcerated student earns a particular degree for the first time. Students can receive multiple EMCs. For example, students would earn four EMCs if they earned a high school diploma, an associate degree, a bachelor’s degree, and a master’s degree while in prison. They are not eligible to earn an additional EMC for a second degree at the same level (such as a second associate degree in a different subject). Each EMC reduces a person’s sentence by six months. With the exception of those sentenced to death or life without the possibility of parole, all people in prison are eligible to earn MCCs and EMCs. Figure 3 In-Person Instruction Is Returning After Falling During the Pandemic Share of Instruction 100% 90 80 70 60 50 40 30 20 10 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 2021-22 2022-23 In Person Correspondenceª Other Distance Educationb a Primarily paper-based instruction in which faculty and students communicate via the mail. b Includes videoconferencing and asynchronous (non-live) online instruction. 10 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT Students Generally Reflect Overall CDCR Figure 4 Prison Population. Figure 4 shows that people incarcerated at CDCR taking CCC coursework People in CDCR Taking CCC Classes are overwhelmingly male, consistent with CDCR’s Generally Reflect Overall Prison overall prison population. Blacks and Latinos are Population somewhat underrepresented as students, while CCC Students Overall Asians are slightly overrepresented. Students at Incarcerated at CDCR CDCRa Populationa CDCR tend to be in their 30s and 40s. Many Incarcerated Students Have Long Gender Male 94% 96% Sentences Remaining. Based on information Female 5 4 received from CDCR, about 8,500 incarcerated Otherb 1 —c students enrolled in a CCC course in spring 2023. Race/Ethnicity Of those students, over half had more than five Asian 3% 1% years remaining before release, as Figure 5 shows. Black 22 28 Those with sentences of five years or longer enroll Latino 43 46 White 20 20 in CCC courses at higher rates than those with Otherd 11 5 fewer years remaining in their sentences. Moreover, Age students sentenced to death or life without the 18 to 24 4% 5% possibility of parole represent a slightly higher share 25 to 29 14 12 of CCC enrollment compared to their share of the 30 to 39 36 31 40 to 49 27 24 overall CDCR prison population. 50 or older 19 29 Some Students Already Have Earned Many a Data on CCC students incarcerated at CDCR are from 2022-23, CCC Units and a College Degree. To earn an whereas data on the overall CDCR population is a snapshot from December 2023. associate degree, students generally need to b For CCC students incarcerated at CDCR, reflects nonbinary individuals complete 60 units of coursework. While most or students with an unreported gender. For CDCR population, reflects nonbinary individuals. incarcerated students at CDCR taking CCC c Less than 0.5 percent. coursework have accumulated fewer than 60 units, d Includes Native American, Pacific Islander, multi-ethnic, or unreported. some students have accumulated notably more CDCR = California Department of Corrections and Rehabilitation. units. Specifically, in 2022-23, 1,808 CCC students at CDCR Figure 5 (12 percent) had earned more than 60 units. Of these students, Over Half of CCC Enrolled Incarcerated Students Will 418 (2.7 percent) had already Not Be Released From CDCR in the Next Five Years earned 100 or more CCC units. CCC Students Overall Just over 100 of these students Incarcerated at CDCR CDCRa Populationa had already accumulated 150 or more units. Furthermore, of Sentence Remaining: Five years or less 45% 66% the 15,500 incarcerated CCC More than five years 55 34 students enrolled in 2022-23, 905 (5.8 percent) already had earned an Life Without the Possibility of Parole and Death 8 6 Penalty Sentences associate degree in a prior year. a Data on CCC students incarcerated at CDCR are from the spring 2023 term, whereas the data on the overall CDCR population is a snapshot from October 31, 2023. CDCR = California Department of Corrections and Rehabilitation. www.lao.ca.gov 11 AN LAO REPORT Student Outcomes four-year period. For incarcerated students, the graduation rate over these periods is very low— Course Success Rates Are Similar to Other less than 5 percent. This is significantly lower than CCC Students… The Chancellor’s Office currently graduation rates for other CCC students (with an does not provide public-facing data on any overall three-year graduation rate approaching outcomes related to CCC students at state prisons. 20 percent). In 2022-23, a total of 731 students Data requested by our office and provided by the at CDCR earned their first associate degree. The Chancellor’s Office, however, indicate incarcerated average time to degree for these students was about CDCR students in CCC programs have course nine years. success rates (earning a passing grade or course credit) similar to those of other CCC students (72 percent Figure 6 on average). Correspondence Courses …Though Incarcerated Students Consistently Have Lower Success Rates Do Worse in Correspondence Share of Incarcerated Students at CDCR Passing Their CCC Course, Fall Term Courses. Course success rates vary by instructional modality among 100% incarcerated students. Figure 6 shows that success rates are consistently 90 In Person lower for students in correspondence 80 courses. In fall 2019 (the year just before the pandemic), the gap in 70 success rates between in-person Correspondence 60 and correspondence courses was 15 percentage points. The gap shrunk 50 temporarily during the pandemic as 40 success rates for in-person courses 2015 2016 2017 2018 2019 2020 2021 2022 2023 declined as a result of disruptions to in-person programming. CDCR = California Department of Corrections and Rehabilitation. Persistence Rates Are Lower for Incarcerated Students. Based upon Figure 7 our request, the Chancellor’s Office also provided data on the share of Incarcerated Students at CDCR incarcerated students that continued Have Lower Persistence Rates their studies (either at CDCR; another Share of First-Time Student Cohorts Taking CCC Courses the Next Term correctional facility, such as a county jail; or in the community, if released). 80% In higher education, these data are CDCR Students All CCC Students 70 commonly referred to as student 60 persistence rates. Figure 7 shows persistence rates for several cohorts 50 that started their CCC education at 40 CDCR. On average, incarcerated 30 students have notably lower 20 persistence rates compared with the 10 average for CCC students. Degree Earners Tend to Take a 2014-15 2015-16 2016-17 2017-18 2018-19 2019-20 2020-21 Long Time to Graduate. Community colleges typically report graduation CDCR = California Department of Corrections and Rehabilitation. rates by cohort over a three-year or 12 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT FUNDING In this section, we explain how community the general public. CCC courses at the state college programs, including those offered at state prisons are funded based entirely on how many FTE prisons, are funded. students are enrolled. Proposition 98 Is Colleges’ Main Source State Modified Funding Model for Most CCC of Funding. Proposition 98 (1988) sets aside Instruction. In 2018-19, the state adopted a new a minimum amount of funding for schools apportionments funding model for community and community colleges based upon a set of colleges, which placed more emphasis on students constitutional formulas. Proposition 98 funding achieving positive outcomes and somewhat less comes from the state General Fund and certain emphasis on enrollment. The new formula has three local property tax revenues. Most Proposition 98 main components. The components are: (1) a base funding is provided to community colleges through allocation linked to enrollment (about 70 percent “apportionments,” which is general-purpose of formula funding), (2) a supplemental allocation funding used to pay for instruction and other linked to low-income student counts (about core operating costs. The state also provides 20 percent of formula funding), and (3) a student Proposition 98 funding through categorical success allocation linked to specified student programs. Categorical funding is restricted for outcomes (about 10 percent of formula funding). specified purposes, such as targeted academic Figure 8 lists the student outcomes the state uses support for low-income students, financial for the student success allocation. For each of the aid administration, and regional workforce three components of the formula, the state set development activities. new associated funding rates. Within the student 2014 Legislation Permits CCC to Receive success component, the state sets specific funding State Funding for In-Person Instruction at rates for each measured student outcome. State Prisons. Statute generally requires CCC courses to be open to the public to be eligible for state apportionments funding. Historically, these provisions have allowed individuals incarcerated at state prisons to access only correspondence courses, which Earn an associate degree. are also available to members of the general public. In 2014, Earn a CCC baccalaureate degree. the state approved Chapter 695 (SB 1391, Hancock), which Earn a CTE or other certificate. opened the way for districts to provide in-person instruction Earn nine or more CTE units. at state prisons by allowing them to receive regular state funding for closed-to-the-public Pass transfer-level math and English in first year. courses offered to incarcerated people. Correspondence and Transfer to a four-year university. in-person courses at the state prisons are funded at the same Earn a regional living wage. per-student rate, as is the case for CCC courses provided to www.lao.ca.gov 13 (cid:28)(cid:29)(cid:30)(cid:31) Figure 8 CCC Funding Model Includes a Performance Component Based on Certain Student Outcomes (cid:28)(cid:22)(cid:23)(cid:24)(cid:25)(cid:26)(cid:27) CTE = career technnical education. AN LAO REPORT Model Left Unchanged How Colleges Are In addition, since 2016-17, the state has provided Funded for Incarcerated Students. The new $3 million ongoing Proposition 98 General Fund funding model—known as the Student Centered to colleges to pay textbook costs for incarcerated Funding Formula (SCFF)—did not change how students at CDCR. (Beginning in 2023-24, colleges the state funds incarcerated students. Instead, may use these funds to cover textbook costs in funding for these students remains based entirely other correctional settings too, including county on enrollment, without any student success jails and federal prisons located in the state.) component. The funding rate for incarcerated CDCR Is Funded to Provide Technology students ($7,345 in 2023-24) is similar to the for Incarcerated Students. CDCR’s budget average overall per-student rate for CCC instruction includes non-Proposition 98 General Fund to under SCFF. In 2022-23, the state provided districts cover technology and technology support for a total of $37 million Proposition 98 General Fund rehabilitation programs, including community for apportionments generated on behalf of CCC college and other postsecondary courses. students incarcerated at state prisons. CDCR employs technology support staff primarily Incarcerated Students Typically Do Not Pay to (1) manage and maintain the technology CCC Enrollment Fee. Statute sets an enrollment infrastructure at state prisons or (2) serve as liaisons fee of $46 per credit unit. The state, however, between the colleges and students. In these roles, waives this fee for low-income students. Students technology support staff help coordinate and apply for a waiver by completing a CCC application troubleshoot technology-related issues throughout (known as the “Community College Promise Grant the prisons. Technology used by students in Application”) or a federal application (known postsecondary education include: as the “Free Application for Federal Student • Computers. The 2021-22 state budget Aid” or FAFSA). Given that the vast majority of provided $18 million ongoing funding and incarcerated people have little to no income, very an additional $5 million one-time funding to few CCC students within CDCR pay enrollment distribute 37,000 laptops at state prisons fees. Instead, community college staff process by 2024. Laptops are to be distributed in incarcerated students’ Promise Grant applications phases across all prisons, with every student (providing assistance with completing the form, participating in postsecondary education if needed), and the state covers the cost of the each term eligible for a computer, along with foregone revenues with Proposition 98 General people participating in other rehabilitative Fund. While incarcerated students are eligible for programming. Students use the laptops to a CCC enrollment fee waiver, they are not eligible read, write, and submit assignments and can for other state grants, such as Cal Grants or Middle access them throughout the prison, including Class Scholarships. in the housing units. Students can also use State Also Funds Two CCC Categorical desktop computers in some classrooms for Programs Supporting Incarcerated Students. similar purposes (whenever access is granted Since 2021-22, the state has provided $10 million to that room). ongoing Proposition 98 General Fund for the • Division of Rehabilitative Programs Rising Scholars Network. Currently, 80 community Television (DRP-TV). The state provided colleges—including all 25 colleges providing $3.5 million one-time funding for equipment instruction to students at CDCR—receive a grant in 2016-17 and provides about $400,000 from this program. (The state also provides ongoing funding for DRP-TV, which is a $15 million ongoing Proposition 98 General Fund for closed-circuit platform that delivers 24/7 students in county juvenile correctional facilities for televised programming content. DRP-TV similar purposes.) Colleges typically use their grant stations are available at all prisons and located funds to support a coordinator position as well as throughout the prisons, including in most other purposes, such as professional development classrooms. DRP-TV’s education channel for faculty teaching incarcerated students. 14 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT televises college course content for students other costs of attendance. In 1994, Congress who are enrolled in correspondence classes. passed legislation ending this policy. Recently, • Internet and Wi-Fi Connectivity. The however, the federal government re-instated Pell state provides $5 million ongoing funding Grants for eligible incarcerated students (those for students to have access to Wi-Fi in that have a valid social security number, are a common areas of a prison, such as day U.S. citizen or eligible noncitizen, and maintain rooms, dining halls, gyms, libraries, and satisfactory academic progress, among other classrooms. Incarcerated students connect requirements). Effective July 2023, incarcerated to the internet for various reasons, including students may apply for a Pell Grant using the completing research assignments, submitting FAFSA. The maximum Pell Grant award is about coursework, or accessing academic support. $7,400 in 2023-24, with the specific amount Due to CDCR security restrictions, prisons students are entitled to receive varying based only allow students to access websites on income level, cost of attendance, and status that have been vetted and approved by as full-time or part-time student. Students may the department. receive a Pell Grant for up to six years of full-time enrollment or the equivalent, with part-time • Digital Library Subscription. The state students eligible to receive prorated awards over provides $500,000 ongoing funding for digital a longer period. (For example, a student enrolled library subscriptions for incarcerated students half time could receive about $3,700 annually for at all CDCR prisons. Students have access up to 12 years.) Incarcerated students may use to research databases, e-journals, magazine Pell Grants to cover tuition, textbooks and other subscriptions, peer-reviewed articles, and course materials, supplies and equipment (such e-books that can be used to complete as to buy or rent a personal computer), and costs course assignments. to obtain a certification or other first professional New Federal Policy Resumes Pell Grants for credential. The federal government does not Eligible Incarcerated Students. Prior to 1994, allow Pell Grants to be used for costs to house eligible incarcerated students could receive a incarcerated students. federal Pell Grant for their postsecondary studies. The funds were intended to cover tuition and ASSESSMENT In this section, we provide our assessment of Despite these types of challenges, students community college education at state prisons. commented that postsecondary education had Overall, we found that these education programs offered them a number of notable personal benefits, have several positive aspects but also a number of including changing their image of themselves in problems and missed opportunities. a positive way, building confidence, developing Anecdotally, Both Students and Staff Cite critical thinking skills, and improving their prospects Benefits of Prison Education. In fall 2023, we once they exit prison. Several students also visited several prisons (both men’s and women’s). mentioned that postsecondary education had We met with students, faculty, and staff. During helped them enhance communication with their these visits, students shared their challenges, such families. Even those confined to life sentences as having instruction disrupted by prison security shared that a CCC education had been beneficial incidences that required them to return to their in various ways, including by allowing them to serve cells and encountering technology glitches (such as mentors to younger incarcerated persons and as having difficulty finding areas of the prison with inspiring family members on the outside to go to a strong enough Wi-Fi signal for their laptops). college. Community college faculty we interviewed www.lao.ca.gov 15 AN LAO REPORT indicated that students tended to be motivated one degree when they are released from prison, and generally came prepared for class. CDCR which in turn can help reduce recidivism and staff, including administrators and correctional improve employment opportunities. officers, generally believe that prison education Key Barriers to Expanding In-Person has created a better atmosphere in prison and Enrollment. Recognizing the relatively poor course made incarcerated students more productive success rates of correspondence-based education, with their time. Some research conducted at statute directs CDCR to focus on in-person other correctional settings has identified similar postsecondary instruction. Yet, some key issues benefits of postsecondary education during prevent prisons from expanding in-person CCC incarceration. (CDCR has not conducted a rigorous instruction, including: evaluation of the impacts of its postsecondary • Prison Space Constraints. Most prisons education programs.) have a limited number of classrooms, which Course Offerings Are Insufficient to Meet hampers CDCR’s and CCC’s ability to offer Strong Enrollment Demand. Though neither additional in-person courses. A lack of data, CDCR nor CCC centrally report the data, based on however, precludes the Legislature from discussions with CDCR and CCC administrators determining if existing CDCR space is being and our visits to prisons, incarcerated students’ used efficiently and if additional classroom demand for postsecondary courses exceeds the space is warranted. In particular, CDCR lacks quantity of available courses. As a result of the high a comprehensive assessment of its utilization demand for these courses, some people can wait of classroom space by prison. up to three years to take their first postsecondary • Faculty Recruitment Challenges. CCC course while in prison. Community colleges Community college administrators indicate and CDCR generally report a much greater ability that finding enough faculty to teach inside to accommodate demand for correspondence state prisons tends to be difficult. Some courses, with typically much less wait time. (Later faculty do not feel comfortable or do not want in this section, we identify the main limitations to to work inside a prison. In addition, many expanding in-person CCC course offerings.) prisons are in rural areas of the state with Some Colleges’ Enrollment Priorities relatively small pools of individuals who are Have Drawbacks. Because demand for a CCC qualified to teach postsecondary courses. education generally outstrips the number of In particular, college administrators indicate in-person slots, colleges must decide which they would offer more STEM courses but are incarcerated people have enrollment priority. limited due to lack of available faculty to teach Enrollment priority is determined by each college. those subjects. We did not hear the same We found that enrollment prioritization varies level of challenges from colleges that provide across prisons. Some colleges open up registration instruction via correspondence education. on a first-come, first-served basis. A first-come, first-served approach does not take into account Several Colleges Are Piloting Online whether a student already has a degree or has Models That Appear Promising. With the recent many years remaining on a sentence. Under distribution of laptops to students, community this approach, students close to release who do colleges and CDCR have an opportunity to rethink not yet have a degree could be crowded out by how instruction is delivered to students from a students who already have a degree and/or have a distance. This year, several community colleges significant amount of time left on their sentences. that are large providers of correspondence Other colleges avoid these drawbacks by giving courses are piloting a form of online instruction enrollment priority to students closest to release in place of the traditional paper-and-mail model. and continuing students who are closest to finishing For example, Lake Tahoe Community College is their first associate degree. Such an approach likely piloting an online synchronous (live) format in which increases the number of people who have at least students and faculty can communicate through 16 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT videoconferencing and submit assignments online. Furthermore, incarcerated students typically do not For security purposes, each course section is have access to trained tutors, as students have in being limited to students from the same section other community college settings. of a prison. Other colleges, such as Coastline State Is Missing Opportunity to Use Federal College and Feather River College, are piloting Funds for College Education at Prisons. online models using asynchronous instruction, Though the federal government is now offering in which students and faculty have the ability Pell Grants to eligible incarcerated students, to communicate with and leave messages for California is receiving no associated benefit from each other electronically. Relative to traditional the policy change. This is because incarcerated correspondence courses, these online pilots have CCC students generally have no reported costs of the potential to provide more efficient and effective attendance. Instead, the state (through both CCC’s ways for students to complete their courses and and CDCR’s budgets) covers their fees, textbooks, receive feedback. Having access to a laptop also and other education costs. Were the state to begin opens up greater opportunities for students to charging incarcerated CCC students enrollment receive support from counselors and tutors in a fees and certain other education expenses (such as more direct and timely way, which could improve laptops), the federal government would fully cover student success. these costs. The state, in turn, would free up both CCC Funding Model Lacks Fiscal Incentive Proposition 98 and non-Proposition 98 General to Promote Success for These Students. Unlike Fund that could be used for other purposes, CCC funding for most other student groups, including other education purposes. CCC funding for incarcerated students is not CCC Education Programs at Prisons Lack linked to performance. Instead, the associated an Evaluation Component. National research apportionments funding depends only on indicates that when postsecondary education enrollment. Without performance-based funding is well designed and implemented effectively in or some other form of state accountability for correctional settings, it can reduce the rate of student outcomes, colleges lack strong incentives reoffending, along with increasing employment to improve their results. Moreover, given colleges rates and wages when incarcerated students are only generate funding through instructional time, released. Additionally, it can result in correctional support services that might lead to better student savings that more than offset program costs. outcomes likely are not being prioritized. While Although the partnership between CCC and CDCR community colleges do not collect or report the has expanded community college enrollment at number of services provided, based on our visits state prisons, there is not an existing evaluation to prisons and our related meetings, relatively few component that analyzes the specific impact of a counselors are provided to advise students, with CCC education on recidivism, employment rates, some counselors having a caseload of more than and wages. Because of this lack of evaluation, it is 1,000 incarcerated students. As a result, students not clear whether the CCC programs are producing tend to have infrequent counseling sessions. the desired results. www.lao.ca.gov 17 AN LAO REPORT RECOMMENDATIONS Legislature Could Improve Policies in changes to ensure colleges have time to adjust Several Ways. In this section, we make several their practices in response to the new fiscal recommendations aimed at addressing the incentives. Overall, our recommendations would problems and missed opportunities we have result in modest Proposition 98 General Fund identified with CCC education at state prisons. and non-Proposition 98 General Fund savings, as Our recommendations, shown in Figure 9, are discussed more at the end of this section. focused on enrollment prioritization, space Provide Statutory Guidance on Enrollment utilization, instructional modality, funding, and Prioritization Among Incarcerated Students. oversight. From a technical perspective, most of Given the different enrollment prioritization the recommendations we make could be adopted approaches that colleges are using to place and implemented immediately. Developing new individuals at state prisons into CCC courses space and utilization standards, however, could and the notable drawbacks of the first-come, take more time. In addition, the Legislature likely first-served approach, we recommend the would want to phase in any funding formula Legislature adopt a set of statutory enrollment Figure 9 Summary of Assessment and Recommendations for CCC Programs at State Prisons Component Assessment Recommendation Enrollment prioritization Demand for CCC courses among incarcerated Adopt statutory enrollment priorities that apply at people generally exceeds supply, yet some all state prisons. Give priority to students who are colleges do not give enrollment priority to closest to obtaining their first degree and within those people most likely to benefit. five years of release. This approach could improve individuals’ post-release outcomes, including by reducing the risk of recidivism and improving job prospects. Space utilization CDCR and CCC report a lack of sufficient space Adopt statutory space and utilization standards. to hold in-person courses, yet CDCR lacks Direct CDCR to collect data and report biennially on a comprehensive assessment of its space space utilization. utilization. Online pilots Given the generally poor outcomes of Require CCC and CDCR to report on pilot outcomes, correspondence courses, some community including course success rates compared with colleges and CDCR are working together to in-person and correspondence courses and impact pilot new online instructional models. on faculty recruitment to teach high-demand courses in prisons. State funding State’s current CCC funding model lacks a Modify CCC funding formula to include a performance strong incentive for colleges to promote component. In the meantime, require CCC to report incarcerated student success. enrollment and outcomes data for incarcerated students. Federal funding State is missing an opportunity to draw down Begin charging incarcerated students to attend CCC federal funds to support prison education and use federal Pell Grant funds to offset enrollment costs. fees, textbooks, computers, and other allowable education costs. Program evaluation The state lacks an evaluation analyzing the Require CDCR to annually report data on recidivism, impact of CCC education programs on employment, and wage outcomes by educational recidivism, employment, and wages. program, provider, and risk level of reoffending. In addition, require CDCR to use external evaluators to assess the impact of CCC programs every five to ten years. CDCR = California Department of Corrections and Rehabilitation. 18 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT priorities for CCC students that would apply at incidences and other circumstances generally all state prisons. We envision an approach that unique to the correctional setting. Given that several assigns priority for courses to new students who community colleges are implementing online pilots have less than five years left on their sentences with their CDCR prison partners, we recommend and continuing students making good progress the Legislature request periodic updates on the toward their first degree. Under our recommended outcomes of those pilots. The Legislature could approach, more individuals are likely to be released request that CCC and CDCR report data on student from state prison with an associate degree, which outcomes (such as course success rates) in the in turn could reduce their risk of recidivism and pilots compared with similar courses offered via improve their job prospects. correspondence or in person. CCC and CDCR also Require CDCR to Collect and Report on could be tasked with reporting any security-related Space Usage. To determine whether additional concerns with the instructional model being piloted, classroom space is warranted within state prisons, whether the model creates a better-quality teaching the state needs to know: (1) how much rehabilitation and learning experience compared with traditional space is already available within prisons, (2) the correspondence education, and whether the model extent to which that space is being used, and allows for community colleges to offer STEM or (3) how big of a space deficit or surplus exists other high-demand programs currently not offered. at each prison and systemwide. Accordingly, The Legislature could require such an update we recommend the Legislature require CDCR to through an interim legislative report within two years collect and report on its space utilization biennially, and a final report within five years. To the extent the similar to how the three segments of higher pilots yield better outcomes, CCC and CDCR could education report utilization of their instructional begin changing their programs accordingly. facilities. In tandem, we recommend the Legislature Add Performance Component to Funding adopt statutory space and utilization standards Formula Used for Incarcerated Students. for rehabilitation spaces within prisons (as the We recommend the Legislature replace the existing Legislature has done for the three segments CCC funding model for incarcerated students, of higher education). Space standards would which is based entirely on enrollment, with a model establish the amount of space (assignable square that builds in a performance component. Adding feet) that should be available on a per-student a performance component would create stronger basis for classroom purposes as well as other incentive for colleges to focus on incarcerated rehabilitation purposes, if space is being used for student outcomes and provide robust support multiple types of rehabilitation programs. Utilization services. The Legislature could use the same standards would establish the amount of time that three-component model and funding rates rooms and “stations” (such as a desk or computer currently in place for most other CCC students. terminal) should be used. Having these standards (Since incarcerated students generally are low and utilization reports would not only help guide income, the vast majority of districts would receive decisions about the amount of classroom space the supplemental allocation.) We recommend needed but would also help assess the need for the Legislature generally use the same student other rehabilitation space at a systemwide level and success metrics currently in place for most other at particular prisons. CCC students. (The Legislature might exclude one Require CCC and CDCR to Report on Online outcome measure—earning a living wage—as it is Education Pilots. Online education has the not applicable to still-incarcerated students.) The potential to alleviate a number of challenges for new funding model could be implemented such prison education. Online education, for example, that it costs no more or less in total compared could help address a potential lack of classroom to the existing way the state funds incarcerated space within prisons; limited in-person faculty students. To provide time for community colleges availability, particularly in STEM disciplines; and to adjust to the new funding model, the state could instructional disruptions related to prison security commence funding adjustments one year after www.lao.ca.gov 19 AN LAO REPORT statutory adoption. It then could phase in funding rentals and other expenses. The college would changes over three years—gradually increasing the then pass through the federal funding to the prison share of funding that is performance based until it to cover these costs.) Given students need to reaches 10 percent of apportionments funding. complete a FAFSA to obtain a Pell Grant (which Until New Funding Model for Incarcerated typically is due by March each year), the state could Students Is in Place, Require CCC to Report make these new fee policies operative commencing Enrollment and Outcomes Data. Once a new in 2025-26. CCC staff would be responsible for apportionments funding formula is operative, assisting incarcerated students with completing the state and public will have regular access to the FAFSA, similar to the FAFSA support CCC staff enrollment and outcomes data on CCC students at already provide to other CCC students. Because state prisons, as this data is needed to determine Pell Grants are not available to certain individuals funding allocations for each district. Until a new (such as undocumented immigrants), the state formula is operative, we recommend the Legislature could continue to cover associated fees for require the Chancellor’s Office to report certain those students. data by October 1 each year on the incarcerated Require CDCR to Evaluate CCC Education students whom community colleges serve. Programs. To help assess the effectiveness of Specifically, we recommend the Chancellor’s CCC courses at state prisons, we recommend Office be required to report: the number of that the Legislature require CDCR to work with incarcerated FTE students served, broken out by each of its education partners to track and report instructional modality; course success rates, also certain data. Specifically, we recommend CDCR broken out by instructional modality; term-to-term track and report recidivism rates, employment persistence rates; share of first-year cohorts that rates, and wages by educational program and pass college-level math and English; and program provider. We recommend CDCR report the results completion rates (such as earning an associate by the risk level of reoffending of the incarcerated degree or certificate). Such reporting would allow students. All of this information could be reported the Legislature to better exercise its oversight role in the existing recidivism reports CDCR conducts in the near term. annually—typically released in the spring. In To Leverage Federal Funding, Charge addition, we recommend that the education Enrollment Fees and Education-Related Fees. programs in state prisons be evaluated every five We recommend charging incarcerated students to ten years by external researchers to determine the statutory enrollment fee ($46 per unit). Similarly, how effective postsecondary programs are and we recommended charging incarcerated students which degree programs are most effective at for their textbooks. In both cases, federal Pell achieving positive outcomes. We note that CDCR Grants would reimburse colleges for these costs, has previously contracted with external researchers with students paying nothing out of pocket. to assess the effectiveness of its services and Together, these two recommendations would programs. free up a combined approximately $9 million New Administrative Workload Likely Comes ongoing Proposition 98 General Fund. We further With Little Added Cost. Taken together, these recommend directing CDCR to charge Pell recommendations would place some new Grant-eligible students a computer equipment administrative requirements on CCC and CDCR. fee and other allowable technology fees, as Pell Both agencies, however, likely could accommodate Grants also would cover these costs. We estimate the minor additional workload and minor associated this recommendation would reduce ongoing costs within their existing budgets. This is because non-Proposition 98 General Fund costs in CDCR’s both agencies already need to collect much of the budget by the low tens of millions of dollars. (Due specified data for other purposes. For example, to federal rules, prisons would need to coordinate CDCR already knows which prison spaces it uses with their CCC partners so the colleges charge for rehabilitative purposes and how much time Pell Grant-eligible students the fee for the laptop is scheduled for each rehabilitative program in 20 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT that space. Moreover, both agencies already have with specific funding earmarks to complete some incentives to track the specified data and their data collection requirements and facility undertake the specified studies. For example, with utilization studies.) Given that the results of the more reliable space and utilization data, CDCR recommended data and studies have the potential would be able to demonstrate more clearly when to notably improve legislative decision-making additional rehabilitation space (such as classroom on prison postsecondary education policy and space) is warranted. (As further context, the state programs moving forward, we believe the added does not provide the higher education segments administrative workload is warranted. www.lao.ca.gov 21 AN LAO REPORT 22 LEGISLATIVE ANALYST’S OFFICE AN LAO REPORT www.lao.ca.gov 23 AN LAO REPORT LAO PUBLICATIONS This report was prepared by Paul Steenhausen and Orlando Sanchez Zavala, and reviewed by Jennifer Pacella, Drew Soderborg, and Ross Brown. 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, California 95814. 24 LEGISLATIVE ANALYST’S OFFICE