A sixth grade math teacher helps two students during a lesson about math and music.
Credit: Allison Shelley for American Education
Becoming a public school teacher is a calling. It’s incredible to see students learn and grow and achieve their dreams. Many see this as a rewarding career and want to pursue it, which raises the question — why would anyone be in favor of unnecessary hurdles for these aspiring educators?
In my work as an educator, with more than 30 years in the classroom and as vice president of the California Teachers Association (CTA), I’ve seen firsthand and heard from educators up and down the state about the deeply problematic Teaching Performance Assessments (TPAs). These assessments were enacted to measure the teaching performance of prospective teachers.
There is no shortage of horror stories about the TPAs. We hear from talented teachers constantly that they are long and time-consuming. They are full of low-value tasks, and they come at a very busy time for new educators. They do not prepare teachers for the classroom and detract from programs with proven success.
Aspiring teachers can better learn the teaching craft in the real world. Vital preparation for new educators includes working with mentors to improve their instruction, having time to concentrate on developing quality lesson plans, and learning how to apply knowledge gained from a credential program in real classrooms. These programs consistently assess student teachers. They ensure we meet California’s high teaching standards.
The TPAs also keep talented educators out of the profession of public education. This is especially true for Black, Indigenous and people of color working to become teachers. Educators of color have raised concerns about biases undermining their success at passing the TPAs. Moreover, aspiring teachers must pay $300 out-of-pocket to take these assessments. After spending thousands of dollars on a degree, one can see how this costly assessment becomes an impossible hurdle for too many.
This is why CTA is sponsoring Senate Bill 1263 to eliminate the TPAs, alongside Sen. Josh Newman.
Two years ago, I began leading a CTA work group with educators from across the state. We met to study the teacher shortage. We aimed to find ways to ease the problem and increase teacher diversity. Our group determined that these assessments hurt teacher training. They harm our new teacher pipeline and hinder efforts to diversify public education careers.
We compiled this data and analysis from educators and practitioners, including a survey of educators. We took this information to the California Commission on Teacher Credentialing (CTC) and noted the disproportionate impact on educator candidates (see page 33). This issue was first raised three years ago by the California Alliance of Researchers for Equity in Education when the group asked the commission to end high-stakes testing in teacher education, citing concerns with “validity, reliability, fairness and bias.”
At the meeting, Commissioner Christopher Davis underscored the TPA’s “disproportionate harm” to teaching candidates from diverse backgrounds: “We continue to struggle with the reality that our state, through these examinations, is systematically discriminating against the very diversity it alleges it wants to track into our workforce.”
In December, the commission heard our call, adopting a secondary passing standard in the event an educator did not complete the TPA requirement. This allows teacher candidates who met all other credential requirements a path to a credential if they demonstrate Teacher Performance Expectations (TPE) through classroom observations, course projects and similar avenues.
This is a step in the right direction. More than 1,500 aspiring California educators who did not pass the TPA would have met the secondary standard in 2022-23, meaning they would be spared the cost and extreme stress of retaking the TPA.
Our work continues. As Sen. Newman said, the issue is simple: “One key to improving the educator pipeline is removing barriers that may be dissuading otherwise talented and qualified prospective people from pursuing a career as an educator.”
We must end the unnecessary TPA and evolve our state system of educator preparation to better equip teachers to bridge California’s diverse students to bright futures. This is becoming a national standard. Other states including New York, New Jersey, Georgia and even Texas have already eliminated the TPA requirement. It’s time for California to take this step forward and improve the path for aspiring educators on their way to the classroom.
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Leslie Littmanis vice president of the California Teachers Association. She previously taught AP U.S. history, economics and government at Hart High School in the William S. Hart Union School District in Santa Clarita.
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California State Board of Education student member Julia Clauson talks with First Partner Jennifer Siebel Newsom at a convening on smart phones hosted by the governor.
As national conversations about the role of states in public education unfold, it’s crucial to center these discussions around the most important stakeholders in our school system: students. In California, we ensure that student voices are included in policymaking by empowering them to become policymakers.
Within our state, there are numerous opportunities for students to get involved in education policy. One of the most significant opportunities for California students is applying to be the student board member for the State Board of Education, a position I currently hold. Every year, the governor appoints one student to serve, and the application and selection process takes place during the applicant’s junior year.
In fact, Gov. Gavin Newsom recently appointed my successor to the board, Vanessa Ejike, who is currently a junior at Whitney High School in Cerritos, California.
As my one-year term on the State Board of Education comes to an end this July, I reflect on the incredible opportunity I’ve had to represent the nearly 6 million students in California public schools. It’s an immense responsibility to be the only student with voting rights on the board. As the application opens for students in the class of 2027, I highly encourage all students to learn about the position and consider applying.
After the applications are received this fall, a screening committee for the State Board of Education selects 12 semifinalists, who are then invited to the Student Advisory Board on Education (SABE) hosted by the California Association of Student Councils. At SABE, the semifinalists present themselves to student delegates from across the state through speeches and question-and-answer sessions. This is a wonderful opportunity for them to showcase their advocacy, passions, and commitment to leadership. Finally, the student delegates at SABE vote for the top six candidates.
The top six semifinalists then interview with members of the State Board of Education, who select three finalists. During these interviews, candidates have the chance to share more about their past leadership experience, the topics they care about, and why they should be considered for the role. The board members select the three top candidates, who are then submitted to the governor’s office for interviews in the following months. The final selection is made by the governor.
Although the process may seem daunting, each step of the journey offers students opportunities to challenge themselves and develop leadership skills. I remember enjoying the chance to advocate for my community, share my perspective on policy, and engage with passionate students.
Since being appointed by Gov. Newsom, I have been able to connect with students from across California and work hard to bring their voices to the forefront of policy discussions. Outside of the board meetings in Sacramento, I have liaised with the Statewide Model Curriculum Coordinating Council and provided feedback on the developing Native American Studies curricula. I have also engaged with the National Association of State Boards of Education through their Student Advisory Council. Meeting and collaborating with student representatives from other states has been incredible, and together, we have worked to propose new policies that make high schools more engaging.
Last November, I met with the governor, the first partner, and various policymakers and educational leaders to discuss cellphone policies and restrictions. I was able to echo the concerns of my peers, amplify student voices, and learn from our leaders in education, health, and government.
To better connect with the diverse student body in California, I established the first student board member social media account (@ca_sbe_studentboardmember on Instagram). Since its inception, I’ve used the account to make policy more accessible by sharing information about board meetings, highlighting other student leaders, and providing opportunities for students to get involved with various councils and scholarships.
These are just a few examples of the impact the student board member can have. Each student who assumes this role has the freedom to make the position their own, identify their own priorities, and share their unique perspective.
Applying to be the student board member was initially daunting, but I’m incredibly grateful I took the step. Competing for the position offers applicants invaluable leadership and communication skills, fostering collaboration with various stakeholders in education policy.
All students in the class of 2027 should definitely apply to be the next student board member. It’s truly an exceptional and unique opportunity for students across California.
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Julia Clauson is the current student board member for the State Board of Education, California’s K-12 policymaking body for academic standards, curriculum, instructional materials, assessments and accountability.
The opinions expressed in this commentary represent those of the author. EdSource welcomes commentaries representing diverse points of view. If you would like to submit a commentary, please review our guidelines and contact us.
San Diego Unified teachers protest pink slips before a school board meeting last year. The district plans to issue 30 preliminary layoff notices this year.
Courtesy of San Diego Education Association
Second-grade teacher Jacob Willis has worked in the San Diego Unified School District in different roles since he graduated from high school in 2016. Now, he is one of hundreds of California teachers waiting to see if they will still have a job when campuses reopen next school year.
Declining enrollment, expiring federal funds for Covid relief, plus a proposed state budget with no new money for education made school leaders in 100 of California’s 1,000 school districts nervous enough about balancing their districts’ budgets to issue layoff notices to 1,900 teachers — 16 times more than the 124 that were issued last spring, according to the California Teachers Association.
State law requires that districts send pink slips by March 15 to any teacher who could potentially be laid off by the end of the school year. Although many of the layoff notices are withdrawn by May 15 — the last day final layoff notices can be given to tenured teachers — the practice is criticized by many for being demoralizing to teachers and disruptive to school systems.
“It creates serious insecurity and stress for teachers, including those who are ultimately asked to stay,” said Ken Jacobs, co-chair of the UC Berkeley Labor Center. “This will make it harder for districts to hire teachers and leads teachers to leave the profession.”
Holding out hope
Willis, 26, knows that with the state’s enduring teacher shortage he could find a teaching job at another school district, but he’d rather not. His heart is at San Diego Unified, where he started as a noon duty assistant at age 18. He watched over students during recess and lunch for four years while completing his teaching credential.
“I have no intention to stop teaching,” said Willis, who is in his second year as a teacher. “This is what I went to school for. This is what I intended to do for my whole career arc and life.”
The month since the pink slips were issued has been a tough one for Willis and his class at Porter Elementary, who learned of his potential layoff when he appeared on the local news. They are upset that he might not be on campus when they return for third grade, he said.
“There’s so much uncertainty,” Willis said. “There’s a chance that my pink slip might be rescinded. There’s a chance that it might not be rescinded, or I have to go to a different site. … It’s really stressful because I don’t know at all what’s going to happen.”
Almost a quarter of the pink slips issued in California were from Anaheim Union High School District, which issued 226, and San Diego Unified School District, which initially sent out 208 layoff notices. As of Friday, Anaheim had rescinded at least 55 notices and San Diego Unified 30, according to district officials.
San Diego Unified, the state’s second-largest district, employs 4,290 teachers, while Anaheim Union High School District has about 1,346 teachers, according to 2022-23 data from the National Center for Education Statistics.
“We haven’t seen layoffs on this scale in San Diego since 2017,” said Kyle Weinberg, president of the San Diego Education Association, referring to the notices of possible layoffs.
Pink slips don’t necessarily mean job loss
Districts generally send out more notices than the number of positions they might need to eliminate to ensure they meet the state requirement. Some pink slips are rescinded after district officials review credentials, expected retirements and projected enrollment numbers at school sites, and hearings with an administrative law judge are held to determine who stays and who goes.
In San Diego, all the teachers still holding pink slips by the end of last week were probationary employees, said Mike Murad, spokesperson for the district. When the dust settles, Anaheim Union High School District expects to lay off 119 teachers by the end of the school year, while San Diego has said the number will likely be 127.
Teachers are generally considered probationary if they have been with the district two years or less, are working in the district on an emergency-style credential or are hired into a position with restricted funding.
The president of the state’s largest teachers union blamed the pink slips on reduced funding and officials who issue more layoff notices than necessary.“Unfortunately, a lot of districts go to it as if it’s like a playbook,” said David Goldberg, president of the California Teachers Association.
School districts should look to their reserves to fund these positions next school year, he said.
Teacher layoffs are complicated
Generally, teacher layoffs are based on seniority, although districts can skip more junior teachers if they have special training and experience to teach a specific course that a more senior teacher does not. Pink-slipped teachers, who can prove they have more seniority than another teacher with equal expertise, can also bump that teacher and take that position, resulting in a reshuffling of teachers in multiple schools.
In Anaheim, the district protected 16 categories of teachers from layoffs, leading to layoff notices for more senior staff that included a teacher with 25 years of experience, said Geoff Morganstern, president of the Anaheim Secondary Teachers Association. The teacher has since had the pink slip rescinded, but others with 10 to 16 years of service have still not had layoff notices revoked, he said.
San Diego Unified also is not issuing layoff notices to teachers in some difficult-to-fill positions, and expects to have job openings in some credential areas, including special education, math and science, according to district officials.
Revenue dips prompt layoffs
Potential staff reductions at San Diego Unified are the result of the loss of nearly $540 million in Covid-relief funds, declining enrollment and projections of decreased state revenue, said board President Shana Hazan.
“As a district, we are committed to balancing our budget without significant impacts to students and school sites,” Hazen said. “Over the last year, our team has worked to thoughtfully and strategically build a budget that considers the needs of our children first and foremost.”
The district is trying to maximize attrition to minimize layoffs, she said. “We are hopeful we can continue to reduce the actual number of employees affected before May 15, when reductions are to be finalized.”
The San Diego Education Association has asked district officials to tap reserves to pay teacher salaries and to eliminate positions as teachers retire or leave the district, Weinberg said.
Anaheim Union High School Superintendent Michael Matsuda blamed the layoffs in the district on budget deficits brought on, in part, by the loss of 3,500 students. The district had used one-time state funds to extend a three-year agreement, made during the 2017-18 school year, to temporarily increase teaching staff to address critical needs in core content areas, he said in a video statement to the school community. The funds are running out, according to the district.
Union officials would have liked to have seen the district offer a retirement incentive this year and to manage declining enrollment through attrition and smaller cuts, but district officials didn’t want to spend the money, Morganstern said. The district has many teachers ready to retire, he added.
Layoffs can hurt teacher recruitment
Teacher layoffs during the Great Recession, between 2007 and 2009, are widely considered to be one of the causes of the current teacher shortage because they discouraged people from entering teacher preparation programs.
“It’s a huge risk that the district is taking (by) not rescinding the layoff notices,” Weinberg said. “We are the only large district and the county that’s doing layoff notices, and there are plenty of vacancies in other districts that our educators will apply for, and they will accept jobs. And that’s going to be devastating for our students who have relationships with those educators.”
A Commission on Teacher Credentialing report released last week shows that enrollment at teacher preparation programs declined another 10% in 2022-23, the most recent year data is available, following a 16% decline the previous year.
Issuing layoff notices during a teacher shortage can be particularly tricky for districts that are still trying to find teachers for hard-to-fill positions, like those with special education, math and science credentials.
Local teachers unions have been holding rallies to gain community support and to put pressure on district officials to rescind the pink slips.
“If we are able to win and have all of the layoff notices rescinded, we will have the smaller class sizes that our students need and that we’ve seen with the additional funds during the pandemic,” Weinberg said.
Morganstern expects all classes in Anaheim Union High School District to reach their maximum allowed capacity of students if the pink slips aren’t all recalled, with some classes going over the limit. The union will file grievances in those cases because it’s a contract violation, he said.
“Then they’re going to have to scramble to hire teachers, and then they’re going to have to issue massive schedule changes because every kid’s schedule has to be rearranged because of these couple teachers at each school,” Morganstern said. “It’s going to be a disaster.”
Legislation that would remove one of the last tests teachers are required to take to earn a credential in California passed the Senate Education Committee unanimously Wednesday with little opposition.
Senate Bill 1263, sponsored by the California Teachers Association, will now move to the Senate Appropriations Committee. If ultimately approved by the Legislature, it will do away with the California Teaching Performance Assessment, known as the CalTPA.
The assessment requires that teachers demonstrate their competence via video clips of instruction and written reflections on their practice.
Eliminating the assessment would encourage more people to enter the teaching profession, said Sen. Josh Newman, D-Fullerton, author of the bill and chairman of the Senate Education Committee at Wednesday’s hearing.
“Despite its well-intentioned purpose, the demands associated with preparing for the TPA have actually had the perverse impact of reducing the overall quality of teacher preparation by undermining the capacity of teacher candidates to focus on what’s most important, which is their clinical practice,” Newman said.
He said the performance assessments duplicate other requirements teachers must fulfill to earn a credential, including proving subject-matter competency, taking teacher preparation courses, being assessed for reading instruction proficiency and completing 600 hours of clinical experience.
Brian Rivas, senior director at The Education Trust‒West, a nonprofit education research and advocacy organization, spoke in opposition to the legislation.
“We concluded when we reviewed the research that teaching performance assessments are the best available measure of teacher preparedness and whether or not a candidate is prepared to enter a classroom,” Rivas said.
The test offers a common standard to measure how well credentialing programs are preparing teacher candidates and could mean fewer prepared teachers in schools serving low-income students, which are already disproportionately taught by novice teachers, he said.
California moved away from standardized testing for teacher candidates in recent years as the teacher shortage worsened.
In July 2021, legislation gave teacher candidates the option to take approved coursework instead of the California Basic Education Skills Test, or CBEST, or the California Subject Examinations for Teachers, or CSET. In January’s tentative budget, Gov. Gavin Newsom proposed eliminating the CBEST and allowing the completion of a bachelor’s degree to satisfy the state’s basic skills requirement.
Around the same time, the state also has joined a national effort to change how reading is taught in schools, focusing on a method that teaches students to decode words by sounding them out, a process known as phonics.
Last summer, Senate Bill 488 passed the state Legislature. The bill replaced the unpopular Reading Instruction Competence Assessment, also known as RICA, with a literacy performance assessment based on a new set of literacy standards and Teaching Performance Expectations centered on phonics and other foundational reading skills. The assessment was scheduled to be piloted in the next few months. The CTA supported the bill.
Union leaders later said that a survey of its membership persuaded them to change course and to sponsor SB 1263, which would repeal the performance assessment.
Senate Bill 1263 doesn’t remove the requirement that candidates for a preliminary, multiple-subject or education specialist credential pass a test that evaluates their ability to teach reading, meaning the passage of SB 1263 could result in the RICA remaining beyond the 2025 date when it was scheduled to be abandoned.
The RICA has been a major hurdle for teacher candidates for years. About a third of all the teacher candidates who take the test fail the first time, according to state data collected between 2012 and 2017. Critics also have said that the test is outdated, racially biased and has added to the state’s teacher shortage.
The California Teachers Association also opposed Assembly Bill 2222, which would have required California teachers to use “science of reading” instruction in their classrooms. Last week the bill died without a hearing.
CTA representative Mandy Redfern spoke in support of Senate Bill 1263 Wednesday, calling the performance assessment a barrier to a diverse teacher workforce.
“Over the past 20 years, the TPA, or the teacher performance assessment, has evolved into a high-stakes, time-consuming costly barrier for aspiring teachers,” Redfern said.
“The current iteration of the TPA has been proven to be ineffective at preparing educators for the realities of the classroom,” she said. “The CTC’s data shows that TPAs disproportionately harm aspiring BIPOC (Black, Indigenous and other people of color) educators.”
The most recent passing rates on the assessment for people of color are not significantly different from others who took the test, said Mary Vixie Sandy, Commission on Teacher Credentialing executive director, at the hearing. For example, Black teacher candidates had a 75% first-time pass rate and a 95% ultimate pass rate, which is right within the norm, on average with the whole population of teachers who took the assessment, Sandy said.
The bill would also do away with oversight of literacy instruction in teacher preparation programs mandated by Senate Bill 488, authored by Sen. Susan Rubio, D-West Covina, in 2021.
Credit: Joe Sorrentino / The Trust for Public Land
Last year, in the middle of a historic heat wave, I visited an elementary school that I represent in South Los Angeles. Visits like this are one of the best parts of my job — it’s an opportunity to get to know students, teachers, and administrators, and to see the great things that happen every day in Los Angeles Unified School District. I finished around noon, and as I left, the school seemed oddly quiet. Looking around, I saw that students had all abandoned the play yard to sit under the shade of a few trees on the edge of the campus.
The mercury that day was above 90, which meant the temperature coming off the asphalt that covers the school was probably over 140 degrees. It’s not uncommon in the dog days of summer to see students huddled up against our buildings seeking precious inches of shade, or sheltering inside as the weather begins to overpower air conditioning systems. But this wasn’t summer at all; we were in the middle of the hottest October on record. It’s possible that every October now will be the hottest October on record.
But green schoolyards are also essential modern infrastructure for everybody, not just students. They absolutely increase academic success, but they also improve community health, reduce the urban heat island effect, and provide massive opportunities for rainwater capture in a state that is plagued by flooding even while it is desperate for drought relief. They can also provide access to nature and recreation for communities that lack park space. Throughout the state, districts are some of the largest local landowners. California simply cannot adapt to climate change without reimagining what our schools look like.
We are making progress, but nowhere near as quickly as we need to. In September 2022, the LAUSD Board of Education voted to create “Green Schools for All” in Los Angeles by 2035. This requires a dramatic conversion of all our campuses to at least 30% green space — including shade trees, bioswales, gardens, native plants and other investments that will turn our schools from concrete-and-asphalt jungles to outdoor learning environments and play fields. Currently, over 560 Los Angeles Unified School District schools are below our 30% target, and over 230 schools have less than 10% green space. The district estimates that the overall cost of fixing this situation is $4 billion.
We have worked hard to identify resources for this crucial greening effort, resulting in over $500 million in bonds and other funding to increase green space at dozens of our campuses. Millions of dollars in CalFire funding will make improvements at almost 40 additional schools, but this was a one-time funding source and will get us nowhere near the target. Forget about 2035 — at this rate, we won’t meet our target until after 2050, when temperatures will regularly pass 100 degrees and the number of “extremely hot” days over 95 degrees will triple. Schools in Los Angeles — and throughout California — clearly do not have the money for a transformation this huge and this critical. Without funding from the state, no school districts will finish this necessary work on the timeline that our new climate reality demands.
This is why I am asking our Legislature to allocate $1 billion for schoolyard greening in this year’s school bond measure. The urgency of this moment comes from a climate emergency that we adults are passing on to the most vulnerable people among us — our own children, many of them in low-income communities disproportionately impacted by climate change. But few emergencies provide so many opportunities for widely distributed positive change at the same time. By providing sufficient funding for schoolyard greening, our leaders in Sacramento will improve academic outcomes and provide access to green space for students regardless of their ZIP code, and at the same time, they will build the foundation of a climate resilient future for all Californians.
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Jackie Goldberg is president of the Los Angeles Unified School District Board of Education.
The opinions in this commentary are those of the author. If you would like to submit a commentary, please review our guidelines and contact us.
Transitional Kindergarten students in Garden Grove Unified School District benefit from a full day of high quality instruction.
Courtesy: Garden Grove Unified School District
According to a recent survey on education, overwhelming majorities of Californians think that preschool is important for student success in K–12 schools, and a strong majority supports state-funded programs such as transitional kindergarten for all 4-year-olds.
California is on course to make TK a universal option for California families. Universal TK in our districts provides a full-day program with credentialed teachers and full-time aides. In 2021, the state laid out a five-year timeline to expand TK, gradually phasing in younger students each year, until 2025-26 — when all 4-year-old children will have the ability to enroll.
The intent of this foundational program is to meet a critical need for quality early learning and care for children at no cost to families. This allows parents to work full time to support their families, knowing that their children are receiving educational services that lay a foundation for academic success and support children’s development. Our districts serve distinct communities that have in common a high proportion of low-income students and significant numbers of English learners. As we shared information about the TK expansion with families, unsurprisingly, we heard from many who wanted to enroll their 4-year-old children, including young learners whose fourth birthdays fall outside the annually expanding eligibility window.
Our families urged us to accelerate the implementation of the early TK timeline and provide universal TK as soon as possible.
Recognizing our families’ significant need and the benefits of early learning, our districts decided to get ahead of the curve. We planned ahead for an accelerated two-year rollout of transitional kindergarten for students born through June 30. We knew we would not receive average daily attendance (ADA) funding for students whose birthdates fell outside the state’s rollout plan, but as we were planning well in advance of the 2023-24 school year, we were unaware of any penalties for early rollout as they did not exist at that time. We budgeted accordingly for the expansion of our enrollment and made plans to staff our TK classrooms months in advance of school starting.
Our districts are now facing penalties in the millions of dollars for taking these proactive steps. And we are not alone. Based on a voluntary informal survey, seven of 28 districts in Orange County likely face penalties for accelerated implementation. We believe many districts across the state are similarly impacted, with some yet unaware of the fiscal hit for early expansion.
Last July — months after districts started planning for the 2023-24 school year — Gov. Gavin Newsom signed education budget trailer bill SB 114, which created new statutory requirements for the 2023-24 and 2024-25 school years for school districts offering early transitional kindergarten. These changes included a maximum class size of 20 students and a 1:10 adult-to-student ratio, which is smaller than regular TK ratios. No additional funding was provided to meet these new requirements. The trailer bill imposed significant fiscal penalties for districts if they did not comply with the new provisions.
Districts like ours were not able to meet the lower class size requirements because the school year was weeks away from starting when this bill was signed. We had no time to change course. Many families in large urban districts like ours are most in need of TK due to families’ inability to afford private preschool and lack of free preschool options. Turning away families who had enrolled their child in TK and who desperately needed this care was unthinkable.
School districts plan and budget — inclusive of staffing, facilities and bargaining — at least nine months in advance of the next school year, which typically begins in early or mid-August. This includes communicating with families so they can make plans for their children, and enrolling students in January and February for the following school year. This is necessary so that schools will be appropriately staffed and classrooms are ready before the first day of school.
The steep fiscal penalties we face for early enrollment in TK threaten our fiscal outlook in a budget year that is already anticipated to be lean.
There is an opportunity to make this right.
The Legislature and Newsom administration can waive the current year, 2023-24 fiscal penalties and allow districts appropriate time to plan and implement requirements for 2024-25. Actions can be taken via legislation — Assembly Bill 2548, authored by Assemblymember Tri Ta, would waive the current school year penalties on districts offering early TK; another option is to enact the waiver for 2023-24 through budget trailer bill language. We, and more than 40 leaders of districts and county offices of education, are urging lawmakers to take action now.
The districts that are impacted by penalties for early enrollment in TK serve high-poverty communities where free or low-cost full-day preschools are not available and parents cannot afford paid preschools.
Making early TK available to as many families as possible is the right thing to do. Approving the waiver of the fiscal penalties for 2023-24 will save our districts from millions of dollars in penalties and protect our fiscal stability while we continue to make great strides in serving early learners.
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Gabriela Mafi is superintendent of the Garden Grove Unified School District. John Garcia is superintendent of the Downey Unified School District
The opinions in this commentary are those of the authors. If you would like to submit a commentary, please review our guidelines and contact us.
The overreliance on undersupported part-time faculty in the nation’s community colleges dates back to the 1970s during the era of neoliberal reform — the defunding of public education and the beginning of the corporatization of higher education in the United States. Decades of research show that the systemic overreliance on part-time faculty correlates closely with declining rates of student success.
Furthermore, when faculty are equitably compensated and thus able to provide high-quality student-faculty engagement in and out of the classroom, students succeed at significantly higher rates.
Nonetheless, part-time faculty do not have job security, often teach at several different colleges, struggle to earn a living wage, are generally not paid for office hours, and are not compensated equally for the same work as their full-time counterparts. This two-tiered structure was never meant to be permanent. It has deprived students and colleges of having a fully supported faculty, and has mostly remained hidden from the public.
It is time for the California Community Colleges to address the hypocrisy at the heart of its institutions: decades of disinvestment from the faculty and thus, students. Transitioning from a two-tiered to a nontiered — unified faculty— model will better serve the students, colleges and the state of California. The concept of a unified faculty emphasizes the elimination of the two employment tiers — part-time and full-time — to create a nontiered structure.
This model is based on faculty and collegewide unity as opposed to the current structure that has produced a divided faculty, inequitable service to students, and stagnant or diminishing student outcomes. The K-12 system and the Vancouver model at Vancouver Community College exemplify education systems structured around a unified faculty model.
A unified faculty model would vastly improve student success rates and the efficiency of the California Community Colleges by prioritizing student-faculty engagement in and out of the classroom, ensuring a culture of academic freedom, increasing the number of faculty participating in college governance and institutional effectiveness processes, fulfilling the system’s civic engagement mission to prepare Californians to become active participants in the state’s democratic processes, and increasing college and systemwide fiscal stability.
In 1988, AB 1725, a landmark community college bill, codified in California education law the goal to have 75% of its credit instruction taught by full-time faculty. Given its overreliance on an undersupported part-time faculty, however, the system has never come close to achieving this goal. The fact that the state established such a goal and has invested in some yearly budget increases to improve part-time faculty conditions indicates California’s awareness of the problem and interest in addressing the inequities of the two-tiered model.
Taking inspiration from the Vancouver model, many of the California Community Colleges’ system partners and stakeholders have been preparing to launch a systemwide transition to a unified faculty model. While the creation and adoption of legislation could also support this transition, legislation is not necessary for a transition to begin at the college level. Individual colleges, for example, could pilot a unified faculty model to demonstrate its efficacy.
A statewide transition to a unified faculty model will require leadership and coalition-building among the statewide faculty unions, academic senate, Faculty Association of California Community Colleges, the Chancellor’s Office, and other stakeholder groups.
In the past two decades, the California Community Colleges system has undergone significant “reform,” narrowing students’ educational opportunities and shrinking the student body by more than 1 million students. For example, remedial instruction, English as a second language programs, and lifelong learning courses have been cut or severely reduced without public debate.
During this period, the system’s student outcomes have declined, stagnated or only slightly improved despite decades of so-called reform efforts. Furthermore, the system has not successfully met its transfer, employment, or equity goals over the past five years. After decades of narrowing the student experience, defunding instructional programs and curriculum, and deprofessionalizing the faculty, the community college system has failed the California public.
Investing in a unified faculty model would remedy the California Community College system that is currently struggling to bring back the millions of students who have been pushed out of their colleges. Prioritizing the faculty’s vital role in students’ lives, California will set a precedent for a truly inclusive and equitable educational system that will empower millions of students to positively impact the economy and democracy of California, the nation and the world.
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Debbie Klein is an anthropology professor at Gavilan College in Gilroy and a former president of the Faculty Association of California Community Colleges.
The opinions in this commentary are those of the author. If you would like to submit a commentary, please review our guidelines and contact us.
As a guide teacher and induction mentor, I am worried about the future of our profession.
Nearly half of all California teachers quit before their fifth year. Teachers like me know that it isn’t just about throwing in more troops alongside our new recruits. Teacher morale, teacher self-efficacy, and teacher autonomy have never been more worrisome.
The more you listen to new teachers, like I often do, the more you realize: It’s not about what these teachers think of teaching. It’s about the way they feel.
I believe that what teachers need, but seldom get, are opportunities to celebrate victories for ourselves, to feel empowered. As an induction candidate recently told me, “I want to watch my kids leave at the end of the day and think, ‘Wow, I really taught something special today.’”
This is what every teacher I know, the veteran and the new, needs to feel.
So, whenever a new teacher candidate calls me looking for that feeling, I send them to the same place that I go for a recharge: The California Subject Matter Project. The response is always the same: “What’s that, Tom?”
And that worries me a little because at times it seems this amazing resource on teaching is the best-kept secret in education.
I think it’s the perfect time to make it the worst-kept secret.
The California Subject Matter Project is a collection nine initiatives operating out of UC and Cal State campuses up and down the state. Essentially, picture in your mind an organization of experts in all content areas you can think of: art, history, science, math, reading, writing, all housed on a UC or Cal State campus. And the best part is, these offices are found on campuses throughout California.
The purpose of the projects is to create seeds of strong teaching around many disciplines. The reason why it’s such an essential organization is that its impartial, filled with very smart academics, and has no other agenda but to connect with willing participating districts, schools and teachers.
Each location, led by a regional director, creates and connects empowering research-based, content-focused outreach programs that teachers, frankly, don’t see enough of at their school sites. If ever.
Removed from the politics surrounding so many education issues, the California Subject Matter Project is focused on the actual learning and teaching. Under its umbrella, smaller content-specific projects (like art, math, global education) offer rich and engaging programs directed to exactly the teachers who need them most. And they do it in a way that is pro-equity and pro-access for marginalized student populations, like many of my students. They also have a lot of fun.
For example, I am a proud teacher leader with one of the Subject Matter’s projects, the California Reading and Literacy Project. I now join my colleagues to learn, grow, reflect, and share research-driven approaches to reading. Our project hosts virtual book studies, conferences and invitationals, and runs professional development that always exceeds my expectations.
When I attend any of these events, I feel empowered, and I know I am in the company of teachers who feel the same way. Through just this initiative, I have learned things I feel I should have gotten a long time ago — like how to incorporate phonics in small dynamic groups at middle school, collect a lifetime supply of great literature for small groups, and the value of having my students write authentically.
But the California Reading and Literacy Project is just one of many projects you can connect with. For instance, I am also a member of California Science Project, California History Project, and the California Global Education Project. Each one of these spaces is, as my induction candidate Kelly Gonzales calls them, “a breath of fresh air,” and each is a place where I can be exposed to dozens of things that I wouldn’t be privy to at my school site.
I also have gained many friends from many different work environments. I can now see, on those tough days, that I am not alone, and know where to go to get real, authentic help as a teacher and a person of conscience. These friendships have helped me better understand what I need to advocate for in regard to my own students, and that empowers me too. It gives me a sense of autonomy. It gives me a sense of authentic purpose.
In the California Subject Matter Project spaces, I know I am around academics and professionals seeking to better education, not better their results on a math or reading test alone. And in many ways, it’s what I had always been needing, but didn’t have, until I found them.
How to join and tell them Tom sent you
If you can use a little recharge in your teaching, or if you need a massive one, I’d like to strongly encourage you to reach out to one of the subject matter projects too. Choose an area in which you teach and are passionate about. To find contact information for the region nearest you, look here.
Teach in a rural area? Not to worry. Many subject matter programs are also available virtually, so you may be surprised how much amazing professional development, sometimes with a stipend, is available over Zoom.
And you may just be surprised at how much you, like I still do, love teaching again.
•••
Thomas Courtney is a sixth-grade humanities and English language arts teacher at Millennial Tech Middle School in southeast San Diego.
The opinions in this commentary are those of the author. If you would like to submit a commentary, please review our guidelines and contact us.
Nine years ago, Analilia Gutierrez gave birth to her son, a micro preemie who needed intensive care.
At the time, Gutierrez, an immigrant from Mexico, spoke and read little English. Filling out health forms and trying to keep up with her son’s care was an overwhelming experience. Interpreters, if available, sometimes created problems with misinterpretation.
“There were so many barriers,” said Gutierrez, a resident of Tulare, in the Central San Joaquin Valley.
In California, an estimated 28% of adults have such poor literacy in English that they struggle to do anything more complicated than filling out a basic form or reading a short text, according to a survey, the Program for the International Assessment of Adult Competencies (PIAAC). California’s rate is worse than any other state except New Mexico, where the estimated rate is 29%.
The U.S. version of the survey was conducted only in English, and many immigrants, unsurprisingly, tend to struggle more with what is often not their home language: 19% of adults in California say they speak English “less than very well,” according to 2022 American Community Survey data.
Not being able to read English well doesn’t just make life difficult — it can be dangerous.
As the CEO of the Central San Joaquin Valley-based Clinica Sierra Vista, Dr. Olga Meave routinely sees patients who struggle to read in any language. Sometimes it’s a patient who doesn’t know how to sign their name. Other times, patients can’t read the directions. One patient ended up in the emergency room after taking the wrong dose of blood thinners, which caused their stomach to bleed.
Low literacy is particularly acute in heavily agricultural regions, such as the Central San Joaquin Valley and the Central Coast, that rely on a largely immigrant labor force that may have little formal education, even in their home languages. More than 4 out of 10 residents in Imperial, Tulare, Merced, Madera, Kings and Monterey counties struggle with basic English literacy.
But signs of adults who struggle to read are in every community in California: job seekers unable to get jobs or promotions; business owners who cannot complete paperwork for loans and grants; prisons with a disproportionate number of struggling readers and parents who cannot help their children with homework or even read bedtime stories.
No state has more immigrants than California: Over a third of adults over 25 are immigrants, according to 2022 American Community Survey data. Most are from Mexico and other Latin American countries, but an increasing number hail from Asian countries. Nearly half of children in the state have at least one parent who is an immigrant.
Immigrants make up a huge share of workers in key industries in California. While highly educated immigrants bring their in-demand skills to the tech industry, those who work in agriculture may have little or no formal education.
Experts say programs aimed at addressing poor literacy reach only a fraction of those who need help, such as courses that improve English skills, help students get a GED or their citizenship or even a basic education. In California, that is largely adult immigrants. In 2021-22, adult schools served over 480,000 students in California, while the state says more than 10,000 adults were served through library tutoring programs in 2022-23.
Those numbers are dwarfed by the need for adult education from immigrants alone: 5.9 million Californians don’t speak English “very well” and 2.9 million immigrants lack a high school education, according to 2022 American Community Survey data.
Programs that serve adult students are often plagued by long wait lists, a lack of funding or a lack of accessibility. Advocates say that one of the biggest problems is simply that adult education seems to fly under the radar in a way that TK-12 schools and colleges don’t.
“We are the best-kept secret in education,” said Carolyn Zachry, education administrator and state director of the Adult Education Office for the California Department of Education.
As a new immigrant, Gutierrez didn’t have time to take classes while she was focused on raising young children. Now that her children are school-aged, she has been able to attend Tulare Adult School, and her world has opened up.
Gutierrez has since become an American citizen and she has earned a GED. Her newfound English skills recently helped her land a job at Chipotle. She is now able to help her son and daughter with their homework and read to them in the evenings, a ritual she treasures. She thinks about how much easier it would have been to navigate the hospital during her son’s traumatic birth with the education she has now.
“I would now have the knowledge,” Gutierrez said. “It’s so much different.”
‘Their circles are small’
Research has found that an adult’s literacy skills are strongly connected to their income and civic engagement, as well as their health. The effects of low literacy are felt not just by individuals and their families but by local and national economies. That’s why researchers say adult education is a worthy investment.
Going Deeper
Unlike the data measuring students in TK-12 schools or college, surveys of adult skills in reading and math occur only sporadically in the U.S.
The most recent data comes from the Program for the International Assessment of Adult Competencies (PIAAC), an international survey of adults’ basic skills of literacy, as well as numeracy and digital problem-solving. In the U.S., the survey was offered only in English, although background questions were offered in Spanish.
Between 2012 and 2017, the National Center for Education Statistics administered the first cycle of the PIAAC survey to 12,330 U.S adults ages 16 to 74 in all 50 states.
The second cycle of PIAAC surveys was conducted in 2022-23, and results are expected later this year.
Level 1 is the lowest literacy level in the PIAAC survey. Adults at this level struggle to understand written material or may be functionally illiterate. Level 2 means that an adult is approaching proficiency in literacy, while Level 3 signals the minimal proficiency an adult needs to function well. It means being able to understand and interpret information across complex written texts. Levels 4 and 5 represent advanced literacy skills.
A 2020 Gallup study, conducted by economist Jonathan Rothwell, estimated that if everyone in the U.S. was minimally proficient in English literacy, according to the standards of the international PIAAC survey, it would increase the gross domestic product by 10%. This study looked at the literacy levels of both immigrants and native residents.
The Gallup study noted that areas with concentrated low literacy would see the biggest financial gains from this kind of improvement. One of those places is the Merced Metro Area, in the Central Valley. It would stand to gain an estimated 26% of its GDP, largely because 72% of its adults are not proficient readers, the report said.
The study estimated that those at the lowest level of literacy made on average $34,127 in 2020 dollars, while those who scored proficient made on average $62,997.
Immigrants tend to earn less than natives, but a Migration Policy Institute analysis of PIAAC survey data found that immigrants and native workers with similar literacy and math skills tend to earn the same amount. This report says that immigrants “need higher levels of English competency to be paid well — and on par with natives — for their work in the U.S. labor market.”
Struggling to read as an adult can be a shameful, lonely experience for those who grew up speaking English. But for immigrants, the experience of not being able to read well can be even more isolating when they cannot speak English or are not a citizen. Christine Spencer, a Tulare Adult School instructor, wishes that many more immigrants in her community were taking advantage of these classes.
“My students tell me that they have no friends,” said Spencer. “Their circles are small.”
Bringing literacy into workplaces is a ‘secret sauce’
When Marcelina Chamu emigrated from Mexico decades ago, she longed to do more than just get by. She hoped to become a citizen, learn English, all while creating a better life for her family in the U.S.
But getting the education to achieve those goals wasn’t easy. Chamu, 58, is part of a vast, largely immigrant, labor force of custodians who begin their work shifts in office buildings just as the sun is going down. For the last 25 years, she has clocked in at 6 every night. Because of her work schedule and raising four children, she put off her own education for decades.
“It is very difficult for someone who works through dawn to get up and start studying,” Chamu said, in Spanish. “But it’s not impossible.”
Advocates say that the best way to target immigrants is by reaching them wherever they are in the community — whether that’s at their child’s school or workplace.
Immigrants with low English literacy skills tend to have jobs — more so than U.S. natives with low literacy and more so than immigrants in other nations, according to the Migration Policy Institute. That means they’re busy, but it also means they are easy to reach at work.
One program in California is doing just that, and it helped Chamu.
A few years ago, Chamu learned that her union, SEIU-United Service Workers West, had a partnership with a nonprofit called the Building Skills Partnership, which aims to improve the lives of property service workers in low-wage jobs along with their families.
Chamu has done her best to take advantage of all the programs she could: citizenship, English courses, free tax preparation and nutrition courses. She has become more confident going to the grocery store and filling out forms in the doctor’s office.
The California-based Building Skills Partnership estimates that it reaches 5,500 workers and community members each year through in-person courses, and another 20,000 through online classes throughout the state.
“Part of the secret sauce of why we’re so effective is that we’re able to take our programming into where workers are at,” said Building Skills Partnership executive director Luis Sandoval.
An instructor with Building Skills Partnership teaches a class of custodians in Orange County.Credit: Courtesy of Building Skills Partnership
Property workers, who tend to be clustered around large metro areas in the Bay Area and Southern California, can take part in programming before they head into work or during their lunch hour, which might be at 10 p.m.
Reaching immigrants at their workplaces isn’t just convenient, it allows these programs to cater to workers’ language and job needs, said Jeanne Batalova, senior policy analyst at the Migration Policy Institute.
She points to the Welcome Back Initiative, which focuses on tapping the talents of internationally trained health care workers who need help with specialized English skills or acclimating to a different type of health system to fill staffing shortages in California’s health care sector.
But work-based programs are rare in the U.S., where employers often view workers in low-skilled positions as easily replaceable. The Migration Policy Institute report says these work-based programs could be expanded through subsidies or other incentives, which exist in Canada and other European countries.
Tulare Adult School instructor Yolanda Sanchez, right, assists her student Mariana Gonzalez.EdSource/Emma Gallegos
Building Skills Partnership offers English paired with vocational training. Many workers in the program take English classes with an eye on switching to a more desirable daytime shift. Custodians who work during the daytime are expected to interact more with office workers, so their English skills matter more.
Rosa Lopez, 55, a custodian in a downtown San Diego building, is taking vocational English classes. That allows her to more easily communicate with security guards, a supervisor who only speaks English or just to direct a guest to the elevator.
Lopez said, “I’m more confident and secure in my position.”
Adult schools run on ‘dust’
Sometimes Beatrice Sanchez, 35, a stay-at-home mother of six, comes home from the store with the wrong items because she can’t read the labels in English. She is eager to take the English courses offered at her local school district, Madera Unified, but the program doesn’t currently offer child care. She said she will have to wait to take the courses until her youngest two children are in kindergarten.
Many of those most in need of adult education, like Sanchez, don’t have the time or resources to attend. Adults find it hard to squeeze in time between raising children and working. Even if they have time, transportation can be tricky — particularly in rural areas that lack an extensive public transportation system.
Some Americans used to view poor literacy as an individual’s failure to study during childhood, said Sarah Cacicio, the director of the Adult Literacy and Learning Impact Network (ALL IN), a national nonprofit focused on adult literacy. Now, she said, there is an increasing understanding that systemic factors — never-addressed learning disabilities, a chaotic home life, obligations to care for family or simply a poor education system here or abroad — may mean reaching adulthood without knowing how to read English well.
Most states rely entirely on skeletal funding from the federal government. In 2021-22, the federal government spent less than $800 per student on adult education classes aimed at English language, civics skills, and basic or high-school level education.
California provides robust additional funding. During the 2021–22 years, the state spent roughly $1,200 on each student who enrolled in adult education classes — primarily adult schools or community colleges. But adult educators say it’s not enough to meet the great needs of its students.
Adult schools, said John Werner, president-elect of the California Council for Adult Education “do it on dust. I don’t know how we pull it off.”
In California, adult education receives a fraction of the funding per pupil that TK-12 schools do. Werner said that more funding would allow programs serving adults to get rid of wait lists, improve their technology and facilities, and increase access by offering the child care so many of its potential students need.
Adult educators see the work of their field as an investment not just in individual adult students but in their families and greater communities.
“If we can pull (adult students) in,” Zachry said, “we can raise the economics of that family.”
Werner, director of the Sequoia Adult Education Consortium, said he’s proud of the work being done by the consortium that serves Tulare and Kings counties, which he calls the “Appalachia of the West.” But he is frustrated to see that adult schools are reaching just an estimated 8% of the adults in the region who need it.
“If we could just invest in this,” Werner said. “The greatness that would come out of this.”
More than 20 years ago, California passed a law allowing some undocumented immigrant students to attend college with in-state tuition, if they meet certain requirements.
But immigrant rights advocates say many students who should have been eligible have been wrongfully denied in-state tuition because of confusion over requirements, misinformation and different interpretations of the law at different college campuses.
“We lose that incredible brain power and colleges are losing enrollment,” said Nancy Jodaitis, director of higher education for Immigrants Rising, a nonprofit organization that advocates for undocumented people to achieve educational and career goals.
Immigrants Rising brought together officials from all three public college systems — California Community Colleges, California State University and University of California — to discuss and agree on answers to frequently-asked questions about the law.
The result is a document called the Systemwide AB 540 FAQ, which all three systems have now signed. The document includes answers to 59 questions, such as:
What if a student graduated from a California high school (completing three years’ worth of high school credits), but did not attend three years at a California high school?
Does a student have to take classes full time for their attendance to count?
Does all their coursework have to be taken at the same school?
Spokespeople from UC, CSU and California Community Colleges all celebrated the document.
Paul Feist, vice chancellor of communications and marketing for the California Community Colleges Chancellor’s Office, said the document is particularly important because there are several different laws regarding the nonresident tuition exemption.
The first bill exempting some undocumented immigrants from out-of-state tuition, Assembly Bill 540, was signed into law in 2001. Since then, three other bills have been passed to expand the law, in 2014, 2017 and 2022.
“While the intent was to expand access to AB 540 financial assistance, they had the unintended effect of making it more difficult to navigate,” Feist said. “This FAQ is designed to provide clearer explanations and provide additional resources in advising students.”
Under current California law, students who are undocumented or have temporary protection from deportation such as Deferred Action for Childhood Arrivals (DACA), or who are U.S. citizens or permanent residents, are eligible for in-state tuition and state financial aid, if they attended at least three years of high school, adult school or community college in California and obtained a high school diploma or equivalent, an associate degree or fulfilled the minimum requirements to transfer to a UC or CSU.
Access to state financial aid and in-state tuition can be a critical factor for undocumented students, who are barred from receiving federal financial aid. Without the law in place, some of them would be charged tuition rates for international students, often much higher than in-state tuition.
“This is huge,” said Maria Gutierrez, a college counselor at Chabot College in Hayward and a doctoral student at San Francisco State University. “It helps us be aligned and have something in writing.” Before the FAQ document, Gutierrez says college staff in charge of approving exemptions from out-of-state tuition were sometimes afraid to make decisions without written proof of how to interpret the law.
Gutierrez herself has benefited from AB 540. She came to the U.S. when she was 5 years old on a visa, which later expired. She attended elementary, middle and most of high school in California. She also graduated from high school in California. But when she applied to attend community college in California, different campuses disagreed on whether she was eligible for in-state tuition because she had spent two years of high school in Utah. At the time, a second law had recently been passed to allow colleges to consider years of attendance in elementary and middle school for AB 540 eligibility.
“One college that I went to in So Cal, I was approved for AB 540. When I had to go back to the Bay Area, I was not approved for AB 540. So then I was confused that there was this inconsistency,” Gutierrez said.
A few years later, when she applied to transfer to a four-year college, both UC and CSU campuses told her she was not eligible for in-state tuition, even though by then, a law had passed that clarified that attendance at community college could be counted toward the requirements. She spent a semester paying out-of-state tuition at San Jose State University, before the university finally acknowledged she was legally eligible for in-state tuition.
As a college counselor, Gutierrez continues to meet students who have been incorrectly told they are not eligible for in-state tuition.
“It’s crazy because in reality it hasn’t changed much,” she said. However, she said, the financial burden is harder now, because most students graduating from high school cannot apply for work permits under DACA, because the government has not accepted new applications since 2017.
“I see my students now and I see the struggles they’re going through. If I didn’t have DACA, I honestly don’t think I would be where I am now,” Gutierrez said. “There’s no way that I would’ve been able to pay nonresident fees or wait for whoever it is that is determining that to learn what they need to do for me to be able to go to college.”
Advocates say they hope the document will help colleges give correct information and avoid students having to research on their own for information.
California also recently streamlined the process for undocumented students to apply for financial aid and exemption from in-state tuition on the same application when they fill out the California Dream Act application. In the past, students had to both fill out a California Dream Act application and an AB 540 affidavit form for each college. Now, the AB 540 form will be part of the same application.
Diana Aguilar-Cruz said that change is significant. Aguilar-Cruz is currently pursuing a master’s degree in public health at Cal State Fullerton. When she first began her undergraduate education at Cal Poly Pomona, she was charged nonresident tuition, which was almost double the in-state tuition. She had immigrated to the U.S. from Mexico City in 2015, when she was 14 years old, and lived with her grandmother in Baldwin Park while attending high school.
She had completed a California Dream Act application, but no one told her she also had to complete a separate form. After researching it herself online, she found the form and completed it, at which point the university finally changed her tuition to in-state.
“If I didn’t find it in my Google search, would I be paying in-state tuition for my four years of college?” Aguilar-Cruz said. “I always think to myself, what would have happened if I was a more fearful student or a student who did not have a strong support system at home?”
This article was corrected to clarify how Maria Gutierrez immigrated to the U.S. and that Chabot College is in Hayward.
