Florida 2022 2022 Regular Session

Florida House Bill H1025 Analysis / Analysis

Filed 02/15/2022

                    This docum ent does not reflect the intent or official position of the bill sponsor or House of Representatives. 
STORAGE NAME: h1025.SEC 
DATE: 2/15/2022 
 
HOUSE OF REPRESENTATIVES STAFF ANALYSIS  
 
BILL #: HB 1025    Summer Youth Service Learning 
SPONSOR(S): Bush 
TIED BILLS:  None IDEN./SIM. BILLS: SB 1512 
 
REFERENCE 	ACTION ANALYST STAFF DIRECTOR or 
BUDGET/POLICY CHIEF 
1) Secondary Education & Career Development 
Subcommittee 
 	Aaronson Sanchez 
2) Post-Secondary Education & Lifelong Learning 
Subcommittee 
   
3) Appropriations Committee    
4) Education & Employment Committee   
SUMMARY ANALYSIS 
In an effort to enable students to gain meaningful work experience and exposure to exciting career industries; 
interact with working professionals in a positive work environment; and learn and develop the skills, attitudes, 
and commitment necessary to succeed in today’s economy, the bill creates summer youth employment 
opportunities for students. 
 
The bill creates a summer youth service learning program to match low- and moderate-income students who 
have demonstrated outstanding academic records or trade skills with appropriate summer employment 
opportunities to prepare such students to enter the workforce as adults.  
 
Participating students must: 
 be between 14 and 22 years old; 
 be enrolled in a secondary school or postsecondary education institution in Florida; 
 be in good academic standing as established by the State Board of Education (SBE); 
 be responsible for transportation to and from the place of employment; and 
 meet any other criteria established by the SBE. 
 
The bill requires state agencies and district school boards, and allows local governments and private 
businesses, to participate in the program. The Department of Education must create a statewide employment 
hub for summer employment opportunities. Each school district and postsecondary institution must notify 
students of the employment hub.  
 
Participating employers may provide students with a pass for public transportation for the duration of the 
student’s summer employment. Participating employers are required to provide each participating student with 
an honest and accurate letter of recommendation at the end of the student’s summer employment. 
 
The bill has an indeterminate fiscal impact. See fiscal comments, infra. 
 
The bill provides an effective date of July 1, 2022.  
   STORAGE NAME: h1025.SEC 	PAGE: 2 
DATE: 2/15/2022 
  
FULL ANALYSIS 
I.  SUBSTANTIVE ANALYSIS 
 
A. EFFECT OF PROPOSED CHANGES: 
Present Situation 
 
K-20 Education System 
 
The mission of Florida’s K-20 education system is to “allow its students to increase their proficiency by 
allowing them the opportunity to expand their knowledge and skills through rigorous and relevant 
learning opportunities.”
1
 Florida’s K-20 education system prioritizes preparing all students at every level 
for the transition from school to postsecondary education or work by providing information regarding: 
 career opportunities;  
 educational requirements associated with each career; 
 educational institutions that prepare students to enter each career; 
 student financial aid available to pursue postsecondary instruction required to enter each 
career; 
 how to make informed decisions about the program of study that best addresses the students’ 
interests and abilities, while preparing them to enter postsecondary education or the workforce; 
and 
 recommended coursework and programs that prepare students for success in their areas of 
interest and ability.
2
 
 
Florida’s education system prioritizes closing the achievement gap between economically 
disadvantaged and non-economically disadvantaged students. The gap between graduation rates for 
such students has significantly decreased since 2014.
3
 Students are provided a variety of opportunities 
to develop skills to prepare for employment and postsecondary education in Florida’s K-20 education 
system, including work-based learning programs. 
 
Work-Based Learning 
 
High school work-based learning programs support young people in gaining the skills and experiences 
that help facilitate the transition from high school into a career. Work-based learning opportunity is 
defined as “an interaction with industry or community professionals that occurs in a workplace setting, 
to the extent possible, or a simulated environment at an educational institution that allows firsthand 
experience with tasks required in a given career field, is aligned with curriculum and instruction, and is 
provided in partnership with an educational institution.”
4
 Work-based learning includes network building 
and allowing students to build relationships with real-life industry experts. Work-based learning in 
Florida schools is aligned with state-board adopted standards and guided by the teacher and employer 
of the student.
5
 
 
In 2019-2020, 72,334 kindergarten through grade 12 students were enrolled in work-based learning 
courses during summer, fall, and spring semesters. This enrollment was across 119 different available 
work-based learning courses, such as Executive Internship, Voluntary Public Service, Pre-
Apprenticeships, Career Experience, Cooperative Diversified Education On-the-Job Training, and 
Career and Technical Education Internships.
6
 
 
                                                
1
 Section 1000.03(4), F.S. 
2
 Section 1000.03(5)(h), F.S. 
3
 Florida Department of Education, Closing the Gap, https://edudata.fldoe.org/StrategicPlan/reports/ClosingTheGap.html (last visited 
Feb. 11, 2022). 
4
 Section 446.0915(1), F.S. 
5
 Florida Department of Education, Division of Career and Adult Education, Work-Based Learning & the Comprehensive Local Needs 
Assessment (2020), available at https://www.fldoe.org/core/fileparse.php/18815/urlt/CLNA-Work-BasedLearning.pdf.  
6
 Florida Department of Education, Agency Analysis of 2022 Senate Bill 1512, p. 2 (Jan. 26, 2022).  STORAGE NAME: h1025.SEC 	PAGE: 3 
DATE: 2/15/2022 
  
Youth Summer Employment 
 
Low-income students experience cumulative summer learning losses, resulting in a negative impact on 
the achievement gap between economically disadvantaged and non-economically disadvantaged 
youth.
7
 Summer employment opportunities for high school youth, specifically economically 
disadvantaged youth, provide a variety of benefits leading to greater academic success including 
gaining work experiences, supplementing family income, increasing time-management skills, self-
confidence, and responsibility.
8
 The youth labor force grows drastically between April and July of each 
year as many high school and college students attain summer jobs. In July 2021, 54.4 percent of young 
people ages 16 to 24 were employed, growing the labor force as a whole by 2.4 million working 
individuals.
9
   
 
Studies have shown that participation in summer youth employment programs affects academic 
outcomes by increasing school attendance,
10
 test taking skills, and passing outcomes.
11
 Multiple 
Florida districts support youth through summer employment programs.
12
 
 
Career Source Broward Summer Youth Employment Program 
 
CareerSource Florida in Broward County provides summer youth employment opportunities through 
the Summer Youth Employment Program (SYEP). To participate, high school students must:
13
 
 be able to work in the United States; 
 be a Broward County resident; 
 have a valid and current identification; and  
 be between 16 and 18 years old. 
 
The SYEP provides Broward county students employment for 30 hours per week for 8 weeks over the 
summer. Participating youth earn the current minimum wage rate per hour, which is deposited onto a 
payroll card every two weeks. The selection of students is based on if the student is economically 
disadvantaged,
14
 the date of application submission, and a random lottery selection. All students are 
required to take a three-day employability training focusing on skills including punctuality, 
communication, problem solving, and teamwork.
15
 
 
The SYEP is funded primarily by the Children’s Services Council of Broward County and employers 
participating in the program host students at no cost. Employers must apply to become a host site and 
undergo a site visit and approval, as well as mandatory orientation and training for supervisors directly 
overseeing students. Youth are assigned to each agency through the program and employers do not 
conduct interviews or select their summer employee.
16
  
 
                                                
7
 National Summer Learning Association, On Summer Loss, available at https://www.readingrockets.org/article/summer-loss.  
8
 Joanna Penn, The impact of summer youth employment on academic outcomes, The Journalist’s Resource, August 12, 2014, 
available at https://journalistsresource.org/politics-and-government/impact-summer-youth-employment-academic-year-outcomes/.  
9
 United States Department of Labor, Bureau of Labor Statistics, Employment and Unemployment Among Youth – Summer 2021 
(August 18, 2021), available at https://www.bls.gov/news.release/pdf/youth.pdf.  
10
 Jacob Leos-Urbel, What Is a Summer Job Worth? The Impact of Summer Youth Employment on Academic Outcomes, Journal of 
Policy Analysis and Management, July 8, 2014, available at https://onlinelibrary.wiley.com/doi/10.1002/pam.21780.  
11
 Amy Ellen Schwartz, Making summer matter: The impact of youth employment on academic performance, Quantitative Economics, 
May 13, 2021, available at https://onlinelibrary.wiley.com/doi/full/10.3982/QE883.  
12
 Summer employment programs are available for youth in Broward, St. Lucie, and Martin county, as well as Palm Beach county and 
Duval county. See Junior Achievement of South Florida, Summer Employment, https://www.jasouthflorida.org/summer-employment/ 
(last visited Feb. 14, 2022). See also City of Jacksonville, Florida, Mayor’s Youth at Work Partnership, 
https://www.coj.net/departments/mayors-youth-at-work-partnership (last visited Feb. 14, 2022). 
13
 CareerSource Broward, Summer Youth Employment Program, About the Summer Youth Employment Program, 
https://careersourcebroward.com/youth-services/syep (last visited Feb. 13, 2022). 
14
 Based on household income and household size. 
15
 CareerSource Broward, Summer Youth Employment Program, Youth Enrollment Frequently Asked Questions (2021), available at 
https://careersourcebroward.com/assets/uploads/general/YOUTH-ENROLLMENT-2022.pdf.  
16
 CareerSource Broward, Summer Youth Employment Program, Worksite Frequently Asked Questions (FAQs) (2021), available at 
https://careersourcebroward.com/assets/uploads/documents/EMPLOYER-FAQs-2020-1.pdf.   STORAGE NAME: h1025.SEC 	PAGE: 4 
DATE: 2/15/2022 
  
Employment locations include local governmental organizations such as schools, libraries, 
municipalities, non-profit companies, and for-profit businesses. Job types available for students in the 
SYEP include clerical, child care assistant, camp counselor aide, park aide, custodial, library assistant, 
landscaping, data entry, and many more.
17
 
 
In 2021, the SYEP in Broward County had a total of 823 youth, with 640 youth (78 percent) completing 
the program. Eighty-seven percent of program completers in 2021 showed proficiency in employability 
skills according to pre- and post-testing.
18
 
 
CareerSource Summer of Success Youth Employment Success Solutions 
 
A similar program to the SYEP in Broward County occurs in St. Lucie and Martin counties through the 
Summer of Success Youth Employment Success Solutions training programs.
19
 To participate in the 
program, students must: 
 be 16 to 21 years of age (St. Lucie County)
20
 or 16 to 18 years of age (Martin County);
21
 
 be a resident of the county in which the program occurs (St. Lucie or Martin); 
 be able to commit to the full program; 
 have reliable transportation to and from the program training location and worksite; and 
 be motivated to succeed.
22
 
 
Students who complete the classroom training portion of the program, learning valuable skills for 
success in the workplace, may work up to 32 hours a week for four to six weeks, depending on county 
of residence. Participating youth receive $9.50 per hour. Employers may include private, non-profit, and 
public companies and go through a similar process of approval and administration to the Broward 
SYEP. 
 
Postsecondary Education System 
 
The mission of Florida’s postsecondary education system is “to develop human resources, to discover 
and disseminate knowledge, to extend knowledge and its application beyond the boundaries of its 
campuses, and to develop in students heightened intellectual, cultural, and humane sensitivities; 
scientific, professional, and technological expertise; and a sense of purpose.”
23
 
 
The Legislature created the Florida College System (FCS) “to maximize open access for students, 
respond to community needs for postsecondary academic education and career degree education, and 
provide associate and baccalaureate degrees that will best meet the state’s employment needs.”
24
 The 
FCS is comprised of 28 public postsecondary colleges, each serving the residents of its service area.
25
 
FCS institutions are overseen by the State Board of Education (SBE) and are governed by local boards 
of trustees.
26
  
 
                                                
17
 CareerSource Broward, Youth Enrollment Frequently Asked Questions (2021), available at 
https://careersourcebroward.com/assets/uploads/general/YOUTH-ENROLLMENT-2022.pdf.  
18
 Email from Latema King, SYEP Program Manager, CareerSource Broward, re: CareerSource Broward’s Summer Youth 
Employment Program Data (Feb. 3, 2022). 
19
 CareerSource Research Coast, Summer of Success, https://careersourcerc.com/youth/summer-of-success/ (last visited Feb. 11, 
2022). 
20
 CareerSource Research Coast, Summer of Success St. Lucie County (2021), available at 
https://secureservercdn.net/198.71.233.231/8jq.6c5.myftpupload.com/wp-content/uploads/2021/04/St-Lucie-County-Summer-of-
Success-2021-Youth-Flyer.pdf.  
21
 CareerSource Research Coast, Summer of Success Martin County (2021), available at 
https://secureservercdn.net/198.71.233.231/8jq.6c5.myftpupload.com/wp-content/uploads/2021/06/Martin-County-Summer-of-
Success-2021-Employer-Flyer.pdf.  
22
 See notes 20 and 21, supra. 
23
 Section 1004.01(3), F.S. 
24
 Section 1001.60(1), F.S. 
25
 Section 1000.21(3)(a)-(bb), F.S. 
26
 Fla. Const. art. IX, s. 8.  STORAGE NAME: h1025.SEC 	PAGE: 5 
DATE: 2/15/2022 
  
Florida Work Experience Program 
 
The Florida Work Experience Program (FWEP) is a needs-based program administered by the DOE, 
providing students in Florida’s postsecondary education system with work experiences to complement 
and reinforce their educational and career goals.
27
 To receive aid through the FWEP, a student must:
28
 
 be a Florida resident and U.S. citizen or eligible non-citizen; 
 not owe repayment or be in default under any state or federal grant, loan, or scholarship 
program unless satisfactory arrangements to repay have been made; 
 not have previously received a baccalaureate degree, unless enrolled in an eligible educator 
preparation institute; 
 enroll for a minimum of six credit hours per term or 180 clock hours at a state university or 
Florida College System institution authorized by Florida law; 
 enroll no less than half-time in a career certificate program consisting of no less than 450 clock 
hours of instruction at an eligible career center, or enroll as no less than a half-time student in 
good standing at an eligible educator preparation institute; and 
 maintain the equivalent of a cumulative grade point average (GPA) of 2.0 on a 4.0 scale. 
 
Students must complete a Federal Application for Student Financial Aid prior to program participation. 
Students demonstrating financial need by qualifying and receiving federal Pell Grant funds up to the full 
cost of tuition receive first priority in the FWEP.
29
  
 
Participating institutions enter into contractual agreements with public or private employers to 
administer the FWEP
30
 and students are paid no less than minimum wage.
31
 In 2021-2022, the FWEP 
received an appropriation of $1,569,922.
32
 A total of 674 students received payment with an average 
award amount of $1,980.
33
 
 
State Summer Youth Employment Outside of Florida  
 
The Summer Youth Employment Program in New York connects youth between the ages of 14 to 24 
with career exploration opportunities and paid work experiences during the summer. This program has 
five different service options, targeting different cohorts of youth based on income, living situation,
34
 
and location of residency.
35
 Youth are selected for program participation through a lottery, or direct 
recruitment by a participating provider.  
 
This program provides paid, project-based learning experience providing enriching career exploration 
for youth ages 14 to 15. These youth work 12.5 hours a week for six weeks during the summer, and 
receive a $700 stipend based on attendance and participation.
36
  
 
                                                
27
 Section 1009.77(1), F.S. 
28
 Florida Student Financial Aid, Florida Work Experience Program Fact Sheet (2021), available at 
https://www.floridastudentfinancialaidsg.org/PDF/factsheets/FWEP.pdf. See also s. 1009.77(1)(a)-(d) and (8)(a)-(d), F.S. 
29
 Section 1009.77(8)(c), F.S. 
30
 Section 1009.77(3), F.S. 
31
 Section 1009.77(7), F.S. 
32
 Specific Appropriations 6 and 72, s. 2, ch. 2021-36, L.O.F. 
33
 Florida Department of Education Office of Student Financial Assistance, FWEP End-of-Year Report 2020-21 (2021), available at 
https://www.floridastudentfinancialaidsg.org/PDF/PSI/FWEP_2020_2021.pdf.  
34
 The Emerging Leaders option is designed for youth who are residing in shelters, justice/court involved, in foster care, receiving 
preventive services, receiving cash assistance, attending access or alternative schools, or experiencing gender-based violence. See 
New York City Department of Youth & Community Development, Summer Youth Employment Program, 
https://www1.nyc.gov/site/dycd/services/jobs-internships/about-syep.page (last visited Feb. 14, 2022). 
35
 Map to $uccess and CareerFIRST options are designed for youth residing in low-income areas. See New York City Department of 
Youth & Community Development, Summer Youth Employment Program, https://www1.nyc.gov/site/dycd/services/jobs-
internships/about-syep.page (last visited Feb. 14, 2022). 
36
 New York City Department of Youth & Community Development, Summer Youth Employment Program, Frequently Asked 
Questions: 14-15 Years Old, https://www1.nyc.gov/assets/dycd/downloads/pdf/2021SYEP_YY_FAQs.pdf (last visited Feb. 14, 2022).  STORAGE NAME: h1025.SEC 	PAGE: 6 
DATE: 2/15/2022 
  
Work-based experiences are provided for youth ages 16 to 24. Participants earn the New York State 
minimum wage at a rate of $15 per hour and work up to 25 hours per week for six weeks during the 
summer. Available industry sectors may include educational services, hospitality, information 
technology, financial services, and child care.
37
 
 
The Summer Youth Employment Program in New York City had over 74,000 participants and 14,000 
worksites in 2021. The majority of worksites were non-profit (44 percent), followed by private (42 
percent), and public (14 percent).
38
 
 
Effect of Proposed Changes 
 
The act is cited as the “Youth Service Learning and Employment Assistance Initiative Act.” 
 
The bill creates a summer youth service learning program to match low- and moderate-income 
students who have outstanding academic records or trade skills with appropriate summer employment 
opportunities to prepare students to enter the workforce as adults. Employment opportunities must 
enable students to gain meaningful work experience and exposure to exciting career industries; interact 
with working professionals in a positive environment; and learn and develop the skills, attitudes, and 
commitment necessary to succeed in today's world of work. 
 
Participating students must: 
 be between 14 and 22 years old; 
 be enrolled in a secondary school or postsecondary education institution in Florida; 
 be in good academic standing as established by the State Board of Education (SBE); 
 be responsible for transportation to and from the place of employment; and 
 meet any other criteria established by the SBE. 
 
The bill requires the DOE to create a statewide employment hub for summer employment opportunities 
through the program. The hub must be a website including: 
 a mechanism for students to search for summer employment opportunities by geographic area 
and job responsibilities; 
 requirements and qualifications for each job; and 
 an online application for students to apply.  
 
The bill requires state agencies and district school boards to participate in the program, and allows 
local governments and private businesses to participate in the program. The bill requires participating 
employers to: 
 comply with general labor regulations
39
 and child labor laws;
40
 
 post any summer employment opportunities for participating students on the DOE employment 
hub; and 
 meet any other requirements establishes by the SBE. 
 
Employment opportunities must focus on trade skills and experiences that will help a student gain full-
time employment upon completing his or her education. Each school district and public postsecondary 
institution must notify students of the employment hub.  
 
The bill allows participating employers to provide participating students with a pass for public 
transportation for the duration of the student’s employment. Participating employers must provide an 
honest and accurate letter of recommendation reflecting the student’s performance at the end of the 
student’s summer employment. 
                                                
37
 New York City Department of Youth & Community Development, Summer Youth Employment Program, Frequently Asked 
Questions: 16-21 Years Old, https://www1.nyc.gov/assets/dycd/downloads/pdf/2021SYEP_OY_FAQs.pdf (last visited Feb. 14, 2022). 
38
 New York City Department of Youth & Community Development, Summer Youth Employment Program, 2021 Annual Summary 
(2021), available at https://www1.nyc.gov/assets/dycd/downloads/pdf/SYEP_2021_Annual_Summary.pdf.  
39
 Chapter 448, F.S. 
40
 Part I, Chapter 450, F.S.  STORAGE NAME: h1025.SEC 	PAGE: 7 
DATE: 2/15/2022 
  
 
The program shall be funded in the General Appropriations Act.  
 
The bill requires the SBE to adopt rules to establish: 
 criteria for student eligibility and academic standards for participation in the program; 
 participation of private businesses in the program; and 
 summer employment opportunities available through the program. 
 
B. SECTION DIRECTORY: 
Section 1: Provides a short title. 
 
Section 2: Creates s. 446.046, F.S.; creating a summer youth service learning program; providing 
the purpose of the program; providing student eligibility; providing requirements for 
participating employers; requiring specified entities to participate in the program; 
providing requirements for employment opportunities through the program; requiring the 
Department of Education to create a statewide employment hub; providing requirements 
for the statewide employment hub; requiring school districts and public postsecondary 
institutions to provide certain information to students; authorizing employers to provide 
students with a pas for public transportation during a specified time period; requiring 
participating employers to provide students with an accurate letter of recommendation; 
providing for implementation; requiring rulemaking; providing requirements for such 
rules. 
 
Section 3: Provides an effective date of July 1, 2022. 
II.  FISCAL ANALYSIS & ECONOMIC IMPACT STATEMENT 
 
A. FISCAL IMPACT ON STATE GOVERNMENT: 
 
1. Revenues: 
None. 
 
2. Expenditures: 
See fiscal comments. 
 
 
 
B. FISCAL IMPACT ON LOCAL GOVERNMENTS: 
 
1. Revenues: 
None. 
 
2. Expenditures: 
See fiscal comments. 
 
C. DIRECT ECONOMIC IMPACT ON PRIVATE SECTOR: 
See fiscal comments. 
 
D. FISCAL COMMENTS: 
The bill requires each school district and public postsecondary institution to implement the summer 
youth service learning program and notify students of availability of summer employment opportunities. 
Expenditures in implementation will vary by school district and institution, and private businesses 
choosing to participate. 
  STORAGE NAME: h1025.SEC 	PAGE: 8 
DATE: 2/15/2022 
  
The bill requires the Department of Education (DOE) to administer the program and create an online 
employment hub. The DOE estimates a recurring cost of $100,000 for a job-board subscription and 
related services, as well as one full-time program specialist to oversee program implementation. 
 
The total fiscal impact of the bill is indeterminate. 
 
III.  COMMENTS 
 
A. CONSTITUTIONAL ISSUES: 
 
 1. Applicability of Municipality/County Mandates Provision: 
None. 
 
 2. Other: 
None. 
 
B. RULE-MAKING AUTHORITY: 
The bill authorizes the State Board of Education to adopt rules to administer the program. 
 
C. DRAFTING ISSUES OR OTHER COMMENTS: 
The bill identifies “low-income” and “moderate-income” students to participate in the summer youth 
service learning program, however, these terms are not defined. A clarifying amendment is 
recommended to establish specific guidelines regarding student income eligibility. 
 
Summer employment opportunities through the program must focus on trade skills, however, “trade 
skills” is not a defined term. Clarification regarding the definition of “trade skills” is recommended. 
 
The bill does not provide specific requirements of each participating employer. A clarifying amendment 
is recommended to establish required participation of state agencies and district school boards, and 
voluntary participation of local governments and private businesses, including the number of required 
employment positions, hours per week the student may work, and pay rate of participating students. 
Clarification is also recommended to define which entities would be responsible for ensuring 
participating employers are in compliance with the requirements set forth by the act. 
 
While each county has a school district office, many state agencies are clustered in Tallahassee, 
Florida. This may lead to the bulk of job opportunities being located in Tallahassee. The bill also does 
not address the potential issue of more students qualifying for the program than the number of jobs that 
are available, or more jobs being available through the program than the appropriated funds cover. 
Clarification is also recommended to establish a payment mechanism for students. 
 
The bill does not establish parental permission requirements for secondary students participating in the 
program. Clarification is recommended to establish guidelines regarding parental permission for 
students under the age of 18. 
 
Finally, guidelines regarding student dismissal from employment are not provided. Clarification is 
recommended to address students who do not succeed in the program or do not meet the needs of the 
employer.  
IV.  AMENDMENTS/COMMITTEE SUBSTITUTE CHANGES 
Not applicable.