4585 rehabilitative programs - adult education

STATE OF CALIFORNIA B u d g e t C h a n g e P r o p o s a l - C o v e r S h e e t DF-46 (REV 08/17)

Fiscal Year 2019-20

Business Unit 5225

Department California Department of Correct ions and Retiabi l i tat ion

Priority No.

Budget Request Name 5225-142-BCP-2019-GP

Program 4585 R E H A B I L I T A T I V E P R O G R A M S

- A D U L T E D U C A T I O N

Subprogram 4 5 8 5 0 1 0 - A C A D E M I C E D U C A T I O N - A D U L T

Budget Request Descript ion Increase Inmate Literacy

Budget Request Summary The Cali fornia Depar tment of Correct ions and Rehabil i tat ion requests $5.5 mill ion General Fund and 35.0 posit ions in 2019-20 and ongoing to establ ish and support a l iteracy mentor program across all adult institutions.

Requires Legislat ion

• Yes Kl No

Code Sect ion(s) to be Added/Amended/Repea led

Does this BCP contain information technology (IT) components? • Yes No

If yes, departmental Chief information Officer must sign.

Department CIO Date

For IT requests, specify the project number, the most recent project approval document (FSR, SPR, S1BA, S2AA, S3SD, S4PRA) , and the approval date.

Project No. Project Approval Document : Approval Date:

If proposal affects another department , does other depar tment concur with proposal? • Yes • No Attach comments of affected department, signed and dated by the department director or designee.

Prepared By Date Reviewed By Date

Depar tment Director Date Agency Secretary Date

Department of F i n a n c e U s e Only

Addi t ional Review: • Capital Outlay • ITCU • FSCU • OSAE • CALSTARS • Dept. of Technology

BCP Type: • Policy • Work load Budget per Government Code 13308.05

Original Signed By:

Madelynn McClain

Date submit ted to the Legislature

I ft ( I f

B C P Title: Increase Inmate Literacy

Budget Request Summary

Personal Services Positions - Permanent

Total Posit ions

Salaries and Wages Earnings - Permanent

Total Salar ies and Wages

Total Staff Benefits Total Personal Serv ices

Operating Expenses and Equipment 5301 - General Expense 5302 - Printing 5304 - Communications 5306 - Postage 5320 - Travel: In-State 5322 - Training 5340 - Consulting and Professional Services -

Interdepartmental 5368 - Non-Capital Asset Purchases -

Equipment 539X - Other

Total Operating E x p e n s e s and Equipment

Total Budget Request

Fund Summary Fund Source - State Operations

0001 - General Fund Total State Operations Expenditures

Total All Funds

Program Summary Program Funding 4585010 - Academic Education-Adult

BCP Fiscal Detail Sheet B R Name: 5225-142-BCP-2019-GB

F Y 1 9 C Y B Y BY+1 BY+2 BY+3 BY+4

0.0 35.0 35.0 35.0 35.0 35.0 0.0 35.0 35.0 35.0 35.0 35.0

0 2,907 2,907 2,907 2,907 2,907 $0 $2,907 $2,907 $2,907 $2,907 $2,907

0 1,349 1,349 1,349 1,349 1,349 $0 $4,256 $4,256 $4,256 $4,256 $4,256

0 46 46 46 46 46 0 8 8 8 8 8 0 10 10 10 10 10 0 4 4 4 4 4 0 9 9 9 9 9 0 4 4 4 4 4

0 3 3 3 3 3

0 38 0 0 0 0

0 1,100 1,100 1,100 1,100 1,100 $0 $1,222 $1,184 $1,184 $1,184 $1,184

$0 $5,478 $5,440 $5,440 $5,440 $5,440

0 5,478 5,440 5,440 5,440 5,440 $0 $5,478 $5,440 $5,440 $5,440 $5,440

$0 $5,478 $5,440 $5,440 $5,440 $5,440

0 5,478 5,440 5,440 5,440 5,440

Total All Programs $0 $5,478 $5,440 $5,440 $5,440 $5,440

B C P Title: Increase Inmate Literacy B R Name: 5225-142-BCP-2019-GB

Personal Services Details

Salary Information Positions Min Mid Max C Y B Y BY-H BY+2 BY+3 BY+4

2290 - Teacher (Eff. 07-01-2019) 0.0 35.0 35.0 35.0 35.0 35.0

Total Posit ions o!o 35^0 35^0 35^0 35^0 3 5 ^

Salaries and Wages

2290 - Teacher (Eff. 07-01-2019) Total Salar ies and Wages

C Y B Y

2,907

BY+1

2,907

BY+2

2,907

BY+3 BY+4

2,907 2,907

$0 $2,907 $2,907 $2,907 $2,907 $2,907

Staff Benefits 5150450 - Medicare Taxation 0 42 42 42 42 42

5150600 - Retirement - General 0 626 626 626 626 626

5150800 - Workers' Compensation 0 132 132 132 132 132

5150820

5150900

Other Post-Employment Benefits (OPEB) Employer Contributions

- Staff Benefits - Other

0

0

35

514

35

514

35

514

35

514

35

514

Total Staff Benefits $0 $1,349 $1,349 $1,349 $1,349 $1,349

Total Personal Se rv ices $0 $4,256 $4,256 $4,256 $4,256 $4,256

B u d g e t C h a n g e P r o p o s a l - C o v e r S h e e t DF-46 (REV 08/17)

A. Budget R e q u e s t S u m m a r y

The California Department of Correct ions and Rehabil i tat ion requests $5.5 mill ion General Fund and 35.0 posit ions in 2019-20 and ongoing to establ ish and support a literacy mentor program across all adult institutions. .

B. Background/His tory

Literacy instruction is the pr imary focus of the Department 's correctional educat ion. On December 1, 2018, the Division of Rehabil i tat ion Programs (DRP) was serving over 26,000 literacy students daily in 35 adult schools accredi ted by the Western Associat ion of Schools and Col leges. The curr iculum includes courses in c lassroom and flexible educat ion sett ings cover ing Adult Basic Educat ion (ABE) of all grade levels, high school d ip loma and high school equivalency.

Accord ing to point- in-t ime data f rom offenders with an assessed Tests of Adult Basic Educat ion (TABE) reading score (excluding those currently unassessed in Recept ion Centers) , of the Department 's 35 instate adult institutions, approximately 53 percent of Cal i fornia's adult of fenders read above the 9th grade level.

Resource History (Dollars in thousands)

Program Budget Academic Education* 2013-14 2014-15 2015-16 2016-17 2017-18

Authorized Expenditures 135,317 130,516 127,493 138,714 139,755

Actual Expenditures 122,024 127,004 126,879 129,491 128,553

Authorized Positions 846.0 851.0 850.1 913.9 914.0

Filled Positions 704.0 731.8 734.3 774.2 821.5

Vacancies 142.0 119.2 115.8 139.7 92.5

Program Budget WlOA - Title II 2013-14 2014-15 2015-16 2016-17 2017-18

Authorized Expenditures 4,416 6,300 4,459 5,929 5,929

Actual Expenditures 5,012 5,100 5,074 5,460 5,929

Authorized Positions 0 0 0 0 6

Filled Positions 0 0 0 0 6

Vacancies 0 0 0 0 0

*Excludes WlOA, Title 11 funding/expenditures

Workload History

Earned Items 2013-14 2014-15 2015-16 2016-17 2017-18

High School Equivalency/Diplomas 4,579 3,122 2,112 4,102 3,555

Test of Adult Basic Education (TABE) Gains

10,172 3,147 7,797 2,501 2,387

Comprehensive Adult Student Assessment Systems (CASAS) Gains

28,273 27,026 37,904 13,105 15,591

PAGE 11-1


C . State Leve l Cons idera t ions

The Department has an obl igat ion to prepare offenders for release back into society. The Department provides an envi ronment conducive to an inmate's part icipation in academic, vocat ional , and rehabil i tat ive programs designed to reduce recidivism, which in turn will lower the long-term prison populat ion, and save the State money in the long term.

Cali fornia Penal Code sect ion 2053.1 requires the Department to implement programs that, in part: 1. Focus on increasing the reading ability of an inmate to at least a 9th grade level. 2. Focus on helping the inmate obtain a General Educat ion Development (GED) certif icate, or its

equivalent, or a high school d ip loma. 3. Offer col lege programs through Voluntary Educat ion Programs (VEP) or their equivalent.

Senate Bill 1200, Chapter 654, Statutes of 2012, provided for an update of the California Common Core State Standards: Engl ish Language Arts and Literacy in History/Social Studies, Science, and Technical Subjects (CA CCSS for EL/VLiteracy). The CA CCSS for ELA/Li teracy were modif ied on March 13, 2013, fol lowing the recommendat ion of State Super intendent of Public Instruction, to include the addit ion of the Col lege and Career Readiness Anchor Standards and technical changes.

D. Just i f icat ion

Al though the Depar tment is making substantial efforts toward the cont inuous incoming populat ion of of fenders, currently an est imated 62 percent of California inmates do not possess a documented high school equivalency or d ip loma. According to a 2013 Rand report, "75 percent of state prison inmates [nationally] did not complete high school or can be classif ied as low literate.^" (Davis, Bozick, & Jennifer L Steele, 2013)

For the purpose of this proposal , the Department def ines l i teracy programs as all programs leading to a high school equivalency or dip loma. This could include, but not be limited to, ABE classes, English as a Second Language (ESL) programs, library services, inmate tutoring programs, and certain innovative grant programs such as a Place for Grace parent/child reading programs.

CDCR Adult Institution Population I High School Equivalency • No High School Equivalency

Academic Educat ion Programs The Depar tment is required to provide rehabil i tative programs to offenders in need, including academic, l iteracy, career technical educat ion (GTE), and col lege educat ion. The Division of Rehabil i tative Programs' (DRP) Office of Correct ional Educat ion (OCE) is responsible for delivering academic programs to of fenders with the aim of preparing them for release. Beyond general l iteracy and academic instruction, the Department has implemented a number of initiatives support ing l iteracy through academic educat ion, as detai led below.

^ Davis, L. M., Bozick, R., & Jennifer L. Steele, J. S. (2013). Evaluating the Effectiveness of Correctional Education: A meta

analysis of programs that provide education to incarcerated adults. Santa Monica: Rand Corporation.

PAGE 11-2


Reading Horizons for Non- and Early Learners DRP has implemented a diagnost ic remedial reading program for low level readers called Reading Horizons. This digital platform is a research-based, computer-a ided literacy program that combines a digital platform and printed materials focusing on non- and early readers, struggl ing readers, and students of all ages. The overall approach targets a l imited set of phonemes, phonetic skills, and decoding skills. The materials are primarily used in the DRP's Adul t Basic Educat ion (ABE) I courses (covering grade reading levels 0.0-3.9). As students ' l i teracy levels increase past ABE I into a grade level of 4.0 or above, students are transit ioned into higher A B E levels and have access to other support resources like Aztec (d iscussed below).

Aztec Software for High School Equivalency Preparat ion Aztec sof tware is another computer-based software (available off l ine) focused on students with a fourth grade reading level and above. It is also used as a high school equivalency preparat ion program which leverages student test data to develop and cont inuously adapt individual learning plans for students to learn at their own pace.

Correct ional educat ion instructors use individual student learning plans throughout both digital platforms to enhance and inform direct instruction and remediate individual skill gaps. Programs are not intended to replace face-to-face educat ional instruction, but rather to enhance and inform instruction to aid in l i teracy development . A l though not all instructors have access to student computers within their c lassrooms, instructors can typically access a standalone (offl ine) computer lab for students to utilize these important resources. C D C R currently uses a desktop version of Aztec but is moving to the c loud-based plat form, al lowing for t imely software updates and addit ional instructional features not available with the desktop vers ion.

Formal Establ ishment of English as a Second Language (ESL) Program The Depar tment offers the same A B E programs to those who speak a language other than English as native Engl ish speakers, and has some limited instructional resources to focus on students for whom Engl ish is a second language. DRP is currently developing a train-the-trainer model in which academic instructors will train A B E I teachers in instructional theory, strategies, and differentiation of instruction for mult i- level c lassrooms of students. This training will focus instruction on developing literacy for col lege-level and career-readiness standards. Fol lowing initial training at three adult inst i tut ions—Cali fornia Institution for Men, Richard J. Donovan, and California State Prison, Cent inela—it is expected that all A B E I teachers will part icipate in the training and educat ion to focus on ESL students over the next three fiscal years. Research support ing this model was publ ished by the California Department of Education (CDE) in 2010: Improving Education for English Learners: Research-Based Approaches.

Al though there is currently no designat ion to identify the number of students who could benefit f rom ESL instruct ion, DRP is currently training and testing the introduction of the TABE Class-E exam, an English language prof ic iency assessment for adults. Accurate identif ication and assessment of students will enable the effective provision of needed instruction and support. This expansion is anticipated to be funded by federal monies given to the Depar tment via the Workforce Innovation and Opportuni ty Act (W lOA) , Title II: Adul t Educat ion and Literacy, which is administered by the United States Department of Educat ion.

Cont inuat ion of Academic Instructional Coaches Leveraging W l O A funding, DRP hired six exper ienced master teachers who were organized into pairs regionally, to provide coaching and mentorship for new and current teachers in need of addit ional support in l iteracy instruct ion. These instructional coaches were selected based upon various factors, including exper ience within the Department, instructional coaching exper ience, academic teaching credentials, exper ience as a teacher- leader, and exper ience del ivering professional development .

PAGE 11-3


Instructional coaches work closely with correct ional administrators within the institutions and at the headquarters level to identify areas where they can conduct informal c lassroom observat ions and provide feedback on instructional pract ices. DRP has received positive responses f rom instructors who have engaged with these instructional coaches and consider them a valuable resource in support ing the growth and standards required for success in academic sett ings.

A l though much work has been done to support l i teracy growth in the Department, cont inuat ion of new and innovative ideas is integral to the success of the offender populat ion, future entry to other programming, and reentry back into the communi ty .

Establ ishment of Literacy Mentor Program In order to facil i tate innovat ion, learning, and a cost-effective approach, the Department proposes to establ ish 35 Literacy Instructors (academic teaching posit ions), one at each adult institution to create, mainta in, and facil i tate an Inmate Literacy Mentor Program.

The l i teracy (academic) instructor will facil i tate and provide formal academic instructor training to select of fenders to become literacy mentors to other students aiming to achieve their high school d ip loma or equivalency. The l i teracy instructors will solely train, monitor, and supervise qualif ied inmate literacy mentors.

This concept will al low for the expansion of l iteracy learning opportunit ies to an exponent ial number of s tudent offenders outside of tradit ional academic instruction. This includes addit ional one-on-one learning opportuni t ies within c lassrooms, l ibraries, and day rooms, when appropr iate. Under the current model , academic c lassrooms are l imited to 27 students who attend 5 days per week, 3.25 hours per day. Voluntary Educat ion Program instructors can have ratios of up to 120 students and see students in a face-to- face envi ronment at least twice weekly. The voluntary instructor model creates a f lexible model al lowing for a greater number of students to participate in l iteracy instruction, including those with other ass ignments , local institutional jobs, or working in the Prison Industry Authority. This proposal would al low for each l i teracy instructor to train and establ ish a cohort of 20 literacy mentors, who would have a rat io/assignment roster of 20 students each, thus expanding the reach of each academic instructor from 120 to 400.

The training of l iteracy mentors has a number of benefi ts, including flexibility in where academic l iteracy mentor ing can occur, thereby maximiz ing the use of available institutional space. Al though the Depar tment bel ieves inmate l i teracy mentors will likely be most successful with mot ivated individuals already on a path to earn their high school d ip loma or equivalency, providing this opportuni ty may also inspire of fenders to become mentors. Moreover, providing a one-on-one teaching envi ronment provides more learning opportunit ies for those with visual impairments or learning disabil it ies. Finally, inmate l i teracy mentors can be very effective due to their shared exper iences as peers. Mentors are not intended to supplant existing teacher assistants or c lassroom aides performing minor administrat ive c lassrooms dut ies. Rather, mentors would work in a variety of locations, with a variety of students of different demograph ics , and be specif ical ly trained by and report to l iteracy instructors.

Proposed Curricula and Credit Earning Once running, the literacy instructor will take those offenders who have volunteered, appl ied, and been accepted to participate in the l i teracy mentor program through a series of robust academic modules a imed to train, teach, and ensure each mentor is prepared for the rigor of assist ing the populat ion with academic l i teracy needs. Addit ionally, this program will provide literacy mentors the opportuni ty for addit ional mi lestone complet ion credits and educat ional merit credits.

PAGE 11-4


Module 1 Orientat ion (40 hours) • This component will teach a l iteracy mentor expectat ions, general academic standards such as

the Col lege and Career Readiness Standards, and critical skills necessary to complete the literacy mentor program. Here, the inmate literacy mentor will begin to work with students at a very high level wi th close oversight by the academic instructor.

Developmenta l Learning Theor ies (200 hours) • This component will guide the literacy mentors through various development learning theories,

including, but not l imited to, Socratic, B looms Taxonomy, Multiple Intel l igences, Framework for 21=' Century, Discovery Learning (Bruner, Hunter), and Metacogni t ion.

pMotivat ional Interviewing (20 hours) • This component will teach literacy mentors the basic components of motivat ional interviewing

within an academic sett ing. *Completion of Module 1 will give literacy mentors a 4-week Milestone Completion Credit*

Module 2 Criminal Thinking (78 hours) . • Literacy mentors will be required to complete a Criminal Thinking cognit ive behavioral t reatment

component either prior to, or as part of, this mentor training program. This program curr iculum is designed to focus on goal-or iented t reatment that takes a hands-on, practical approach to problem solving a imed to t ransform criminal thinking patterns and behaviors.

*Completion of Module 2 will give literacy mentors a 2-week Milestone Completion Credit if not already obtained*

Module 3 Internship and Mentor ing (720 hours)

• After successful ly part icipating in, and complet ing, the first two modules, l iteracy mentors will be required to part icipate in a fully immersed mentor ing internship est imated to last approximately 6 months or longer.

*Completion of the Literacy Mentor Program in its entirety will give literacy mentors a 90-day Educational Merit Credit*

Once l iteracy mentors successful ly complete the program, they will be offered a ful l-t ime work ass ignment with pay ranging f rom $0.85-$1.00 per hour, depending upon their level of educat ion. Those literacy mentors with an Associate of Arts degree or higher will earn $1.00 per hour whi le all other successful l i teracy mentors will earn $0.85 per hour. Below is the est imated need for inmate mentor wages upon full rollout:

Literacy Instructors

Avg. # of Yards

#of Mentors/Yard

Mentor Work

Hours/Day

Working Days

Annuaiiy

Est . Avg. Rate Totai Cost

35 5 4 6 261 $1.00 $1,100,000

At present, the Department has over 5,200 offenders that have an Associates of Arts Degree or higher, ranging f rom 30 to 300 at a single adult institution. This, combined with over 1,300 inmate teacher assistants/clerks, provides a signif icant opportuni ty for the immediate creat ion of a sizable candidate pool to become engaged with the inmate l i teracy mentor program.

PAGE 11-5


Student Criteria for Inmate Literacy Mentor and Credit Earning The criterion for p lacement is all offenders with a l iteracy need, i.e., those who have not yet completed their high school equivalency or diploma educat ion.

Further, with tracking through the Department 's Strategic Offender Management System (SOMS) , those part icipating in the l i teracy mentor ass ignment will receive hours toward earning Rehabil i tat ive Ach ievement Credits. These credits will be in addit ion to normal earning credits under Comprehens ive Adul t Student Assessment Systems (CASAS) educat ional gains and consistent with other voluntary inmate activity group opportunit ies a imed at the offender populat ion.

E . O u t c o m e s and Accountabi l i ty

Projected ou tcomes for the l i teracy mentor program: .

• Increased educat ional C A S A S literacy gains

• Increased educat ional T A B E literacy gains

• Increased High School Dip loma/Equivalencies earned

• Increase credit earning opportunit ies

Through use of S C M S , it is expected that once this program is fully establ ished and peer literacy mentors are t ra ined, there will be increases associated to educat ional gains for those offenders who had mentor involvement. • •

Projected Outcomes Workload Measure BY BY+1 BY+2 BY+3 BY+4

High School Equivalency/Diplomas

3,829 4,004 4,179 4,354 4,459

Test of Adult Basic Education (TABE) Gains

2,444 3,144 3,844 4,544 4,964

Comprehensive Adult Student Assessment Systems (CASAS) Gains

14,348 15,048 15,748 16,448 16,868

F. A n a l y s i s of All Feas ib le Alternat ives

Alternative 1: $5.5 mil l ion General Fund and 35.0 posit ions in 2019-20 and ongoing to establish and support a l i teracy mentor program across all adult institutions.

Pros:

Cons:

Provides funding to improve offender part icipation in educat ional programs; Improves access to academic programming; Increases educat ional l iteracy gains, including grade level, high school diploma/equivalency; Engages of fenders as mentors; Provides addit ional posit ive credit earning opportunit ies; and, Reduces recidivism by educat ing offenders prior to release.

Impact to the General Fund. •

PAGE 11-6


Alternative 2: $5.5 mill ion General Fund and 35.0 posit ions in 2019-20 and $11.0 mill ion and 70.0 posit ions in 2020-21 and ongoing to establ ished and support a literacy mentor program across all adult institutions.

Pros:

Cons:

Provides funding to improve offender participation in educat ional programs; Improves access to academic programming; Increases educat ional l i teracy gains, including grade level, high school diploma/equivalency; Engages offenders as mentors; Provides addit ional posit ive credit earning opportunit ies; and. Reduces recidivism by educat ing offenders prior to release.

Greater impact to the General Fund.

Alternative 3: Redirect 35.0 current academic teacher posit ions and provide $1.1 mill ion General Fund to cover mentor wages only.

Pros:

Cons:

Minimal impact to the state Genera l Fund; Provides some funding to improve offender part icipation in educat ional programs; Improves access to academic programming; Engages offenders as mentors; Provides addit ional posit ive credit earning opportunit ies; and. Reduces recidivism by educat ing offenders prior to release.

Reduces availabil i ty of teacher resources already focused on literacy.

Alternative 4: Redirect 35.0 current academic teacher posit ions and internally redirect funding to support of fender l iteracy program.

Pros:

Cons:

No impact to the state General Fund; Improves access to academic programming; Engages offenders as mentors; Provides addit ional posit ive credit earning opportunit ies; and, Reduces recidivism by educat ing offenders prior to release.

Reduces availabil i ty of teacher resources already focused on literacy; and. Reduces funding avai lable for other educat ional purposes.

G . Implementation Plan

January 10, 2019 -Ju l y 1, 2019: Develop policy and finalize all curricula for mentor program, including establ ishing ass ignment codes, pay codes, and structure necessary to ensure tracking of offenders part icipating in the mentor program. Establ ish necessary mi lestone complet ion credits, educat ional merit credits, and rehabil i tative ach ievement credits through the regulatory process. Train academic instructors part icipating in the program.

PAGE 11-7


April 1, 2019 -Augus t 1, 2019: Begin academic instructor recrui tment beginning April 1, 2019 with potential redirection of staffing in the interim to begin the training process. No offers will be made for newly author ized posit ions until the Budget Act has been s igned.

July 1, 2019 -Oc tobe r 1, 2019: Train the literacy mentors who will begin accept ing application for the l iteracy mentor program. Depending upon literacy mentor ass ignment start/redirection of vacant teacher posit ion to start process, l i teracy mentors could begin gett ing paid as early as January 1, 2020.

H. Supplementa l Information

None.

I. Recommenda t ion Alternative 1: Provide $5.5 mill ion General Fund and 35.0 posit ions in 2019-20 and ongoing to establ ish a l i teracy mentor program at all 35 adult institutions.

PAGE 11-8

4585 rehabilitative programs - adult education

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