Overview
To help high school students and adults who are pursuing a high school diploma or GED get a head start on college, California has introduced several dual enrollment options that connect community colleges and high schools. These opportunities are designed to meet the unique needs of local communities while giving students the chance to experience college before graduating from high school. This section explores the structures and policies that create meaningful early college opportunities for students, advance equity, and strengthen collaboration between educational systems.
Developing student-centered, equity-driven dual enrollment is key to expanding access and fostering success, especially for students from communities that have been historically underserved by postsecondary education. When schools and colleges work together to build supportive structures, they can align policies to remove barriers and create a more seamless transition to postsecondary for students and families. This cooperation around structure and policy fosters a deeper understanding of shared expectations and responsibilities, enhancing student access, support, and success in dual enrollment.
Dual Enrollment Structures in California
For the purposes of this guide, structures are defined as the various ways dual enrollment is organized in California and the infrastructure that institutions build to support dual enrollment. These structures are legislatively defined, yet local partnerships are able to shape many aspects of implementations to meet the needs of the students and communities they serve.
There are many different ways a student can access dual enrollment in California, as illustrated in the chart, Dual Enrollment Structures (see excerpt below). These vary from highly structured middle- and early-college high schools to little-to-no structure for students who sign up for college courses individually and on their own.
More Structured Less Structured |
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|---|---|---|---|---|
| At the College | At the High School | At the College | ||
| Middle College High School | Early College High School | CCAP at HS Governed by Agreement | Non-CCAP at HS Governed by Agreement | Individual |
Structure Definitions
Middle College High Schools (MCHS) are located on a college campus, as set forth in Ed Code, and are designed to mitigate the dropout rate for at-promise students (see Education Code 11300). An MCHS has a special designation by the California Department of Education. MCHSs are supported in part through a grant managed by the California Community Colleges Chancellor’s Office. Early College High School (ECHS) is a small autonomous high school that allows a student to earn a high school diploma and up to two years of college credit while in high school (see Education Code 11302). ECHSs have a special designation by the California Department of Education. The location of an ECHS is not specified in legislation.
A Note on Programs
Unlike other forms of dual enrollment, early college programs and middle college programs are not legislatively defined and should not be confused with ECHSs and MCHSs which are entire schools. Sometimes “early college program” is used as a descriptive marketing term to convey to students and families that dual enrollment opportunities—either CCAP or non-CCAP—are available.
College and Career Access Pathways (CCAP) are partnerships governed by a formal CCAP agreement and empowered through legislation (Ed Code 76004). There are many legally required elements of CCAP agreements. Some distinguishing features include:
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- CCAP is designed for students from groups who have been historically underrepresented in postsecondary education or who are not already college-bound.
- Students do not pay tuition or fees for supplies and textbooks.
- Classes may be closed to the general public and the college may still claim apportionment, if the course meets certain requirements including being offered during the regular high school day.
- The dual enrollment experience is designed along pathways to transfer, career technical education, college and career readiness and/or high school graduation.
- Students may take up to 15 units of college credit per term, if specific requirements are met:
Ed Code 76004 (p) states, “A community college district may allow a special part-time student participating in a CCAP partnership agreement established pursuant to this article to enroll in up to a maximum of 15 units per term in courses offered at the community college campus or the participating high school campus, if all of the following circumstances are satisfied: (1) The units constitute no more than four community college courses per term. (2) The units are part of an academic program that is part of a CCAP partnership agreement established pursuant to this article. (3) The units are part of an academic program that is designed to award students both a high school diploma and an associate degree or a certificate or credential.”
Non-CCAP refers to partnerships governed by agreement or individual admit covered by Education Code section 48800. This is distinct from CCAP, which falls under Ed Code 76004. Non-CCAP is designed for “advanced scholastic and vocational work” (Ed Code 48800). Courses must be open to the general public, if the college will claim apportionment. Partnerships may close the courses to the general public if they are not funded through apportionment but through a different mechanism, such as a grant or contract with the high school. These types of dual enrollment existed before CCAP legislation and often had a career technical education focus. For more about the differences, see CCAP and non-CCAP Partnerships.
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- Individual Dual Enrollment is when a high school student is admitted to the college as a special admit student and enrolled in college courses of their own choosing outside of a legislatively-defined program. The goal is to provide access to “advanced scholastic and vocational work” (Ed Code 48800). It is important to note that, while there is no legislated program for individual dual enrollment, partnerships are still able to create support and add structure to this kind of dual enrollment. For example, high school counselors can suggest courses and colleges can provide support to help students navigate the enrollment process.
- Non-CCAP Partnerships are governed by a formal agreement or memorandum of understanding (MOU) and must comply with Ed Code section 48800. These kinds of agreements existed before CCAP legislation and often had a career technical education focus. Non-CCAP MOUs may close the courses to the general public, if they are not funded through apportionment, but through a different mechanism, such as a grant or contract with the high school.
Equity Considerations in Choosing Structures
When deciding which type of dual enrollment structure to offer, consider the local context and which structure offers the most equitable solutions. A February 2024 PACE report found that, among types of dual enrollment, CCAP had the smallest access gaps by race and by socioeconomic status. An August 2023 PPIC report showed that student participation in CCAP is relatively equitable; Latine and Asian students were proportionally represented, while white and Black students were slightly underrepresented.
Implementing more equitable dual enrollment opportunities starts with understanding the needs and context of the students the partnership intends to serve, and then deciding on a structure that best fits those needs. Schools and colleges can consider the following in choosing a dual enrollment structure for their partnership. Which structure:
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- Allows for more access for students historically-underserved by postsecondary education?
- Enables the student supports to meet students’ needs?
- Removes common barriers such as fees, supply costs, or transportation?
- Supports the college and career aspirations of students and families?
College Example
Los Rios Community College District (LRCCD) undertook a major revision to their dual enrollment policies and procedures in an intentional effort to remove barriers and provide more equitable access to dual enrollment. The policy and regulation changes removed barriers to dual enrollment participation such as prerequisites to enrollment and cumbersome approval processes before enrolling in classes. LRCCD’s work to revise regulations resulted in revised definitions, a streamlined admissions process that reduced frequency of applications and consent forms, a reduced number of steps in the appeals process, clarification of FERPA regulations, and removal of exclusionary wording based on “advanced academics” in favor of a more asset-based approach to dual enrollment programming.
The LRCCD workgroup overseeing the revisions explained the district’s goal in the Los Rios District Equity and Student Success Committee Charter: “Denying access to eligible students undermines our strategic goals and commitment related to equity. Aligning our process with regulation and law as well as policies, practices and forms across the district will remove access barriers for all students, but in particular our disproportionately impacted students.”
Dual Enrollment Policy
Dual enrollment in California is governed by a body of law and regulation that establishes the structure, standards, guidelines, and policies necessary for its implementation. Educational institutions must operate within these parameters. Below are the key components that provide the legal and policy foundation for dual enrollment:
California Education Code codifies laws passed by the state legislature through senate and assembly bills and signed by the governor. These laws define the eligibility criteria, funding mechanisms, and overall governance of dual enrollment as well as the community college system and the K-12 public school system. The Education Code also covers the University of California and the California State University systems.
The Dual Enrollment Policy to Practice Guide: Policy Table provides a summary of state dual enrollment law and policy organized by topic with links to full-text references.
Title 5 of the California Code of Regulations encompasses administrative regulations for education, as authorized by legislation codified in California Education Code. It details the operational aspects for both K-12 and community college systems. Specific divisions within Title 5 provide more granular guidance:
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- Division 6: California Community Colleges is set by the Board of Governors for the California Community Colleges. This division outlines the rules and procedures for community colleges, including the responsibilities of colleges participating in dual enrollment agreements.
- Division 1: K-12 Education is set by the California Board of Education. This division provides regulations for K-12 education, including the responsibilities of school districts participating in dual enrollment agreements.
Local Community College District Policies. Each community college district in California adopts policies to implement dual enrollment in alignment with state laws and regulations. These policies address specific operational details such as course offerings, faculty qualifications, and collaboration with K-12 partners.
Local School Board Policies. School districts develop policies to support dual enrollment in areas such as dual credit. These policies ensure that dual enrollment aligns with the district’s educational priorities and provides equitable access to students.
Example: Policy Parameters for Parental Consent in Dual Enrollment
| California Education Code | Education Code Section 48800 requires parental consent for a high school student to take community college courses |
| Title 5 Code of Regulations | California Code of Regulation Title 5 Section 56700 states that when parent consent is given it is presumed for future classes |
| College District Policy | College District creates policy to store parent consent and link to student record |
| Implementation | Implementation |
State Policy
Since 2015, California has seen a steady wave of reform and support for dual enrollment. The timeline below shows the evolution of major dual enrollment policy and investments over the past ten years.
| 2015 | ➔ AB 288 | College and Career Access Pathways |
| 2016 | ➔ AB 2364 | Special admit nonresident tuition exemption |
| 2019 | ➔ AB 30 | Extended sunset date for CCAP Curtailed multiple enrollment forms Board approvals only once |
| ➔ SB 554 | Adult Dual Enrollment | |
| 2022 | ➔ AB 181 | $200m in dual enrollment $500m Golden State Pathways |
| ➔ AB 102 | Removed 10% cap Allows COEs in CCAP Removed sunset date Removed restrictions on impacted courses |
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| ➔ California Community Colleges Roadmap | Close equity gaps in access and increase percentage graduating high school with 12 or more college units | |
| 2023 | ➔ Vision 2030 | Equity in Access Equity in Support Equity in Success (Dual enrollment is a key strategy) |
| ➔ AB 368 | Courses on high school or college campus count towards 15-unit max for CCAP |
Common Misconceptions About State Policies
| Misconception | Response |
|---|---|
| Dual enrollment is only for academically high-performing students in high school. | The Education Code governs dual enrollment through two sections: section 48800 for non-CCAP and section 76004 for CCAP. CCAP focuses on expanding access for underrepresented or non-college-bound students by creating seamless pathways to college and careers. Non-CCAP provides advanced academic or vocational training for students deemed ready for college coursework. For more details, see What is the Difference? College and Career Access Pathways (CCAP) and non-CCAP. |
| Dual enrollment partnerships can’t offer college courses that are in the high school core requirements. | Governing boards must provide alternative means for students to meet high school graduation requirements. Education Code 51225.3(b) lists examples of ways to meet this requirement, including work experience, demonstration of skill, courses at regional occupational centers or programs (ROP/ROC), independent study, and credit earned from postsecondary institutions. |
| High schools are penalized in Average Daily Attendance (ADA) with dual enrollment. | Education Code 46141 sets the minimum instructional day at 240 minutes (about four classes), and 46146.5 sets it at 180 minutes (about three classes) for early and middle college high schools. Most high schools exceed these minimums with six-class days. Schools can claim full ADA if students meet the minimum instructional minutes. College courses claimed for apportionment must occur outside these minutes. The California Department of Education recently clarified that early and middle college programs require only 180 minutes to claim full ADA. See the CDE dual enrollment FAQ for more information. |
| Partnerships can set a minimum GPA for students to participate in dual enrollment. | Because high school students in dual enrollment are college students, there are very few ways in which they can be treated differently than other college students. As open access institutions, California community colleges do not require certain GPAs or test scores to be eligible for admission. Therefore, they cannot require certain GPAs or test scores of younger students. Colleges can utilize GPAs as a part of guided self-placement for students to place themselves into a math or English course, and to help determine what level of corequisite support might be needed. See Title 3 76000-76004, Legal Opinion 16-02, Title 3 78210-78219, SB 1456). |
| Colleges can require students to submit high school transcripts and social security numbers as a condition for participating in dual enrollment. | Title 5 contains the rules and regulations adopted by the Board of Governors for the California community college system. In November 2023, Title 5 was amended to add section 56700, which clarifies that colleges may not require students to provide high school transcripts or social security numbers as a requirement for admission in dual enrollment. |
| Undocumented students are only allowed to participate in dual enrollment if they pay international student tuition. | Education Code section 74140(a)(4) allows special part-time admit students who are immigrants to be exempt from paying nonresident tuition and fees. |
| Colleges can require dual enrollment students to submit a CCCApply application and a parent consent and school recommendation form every semester. | The frequency of CCCApply completion is a local college district decision. Education Code 48800(a) requires a principal's recommendation and parental consent for high school students to attend college, but does not specify how often it must be renewed. Title 5 section 56700 states that parental consent applies to all courses until revoked in writing. For CCAP dual enrollment, Education Code 76004(c)(1) requires only one parent consent, principal recommendation, and application for the duration of participation. |
| Homeschooled students cannot participate in dual enrollment. | Homeschooled and independent study students can access dual enrollment by meeting eligibility requirements, obtaining parental or program administrator approval, and completing necessary forms like CCCApply and consent documents. Students select courses that align with their academic goals and comply with state homeschool or independent study guidelines. Fees are often waived for CCAP dual enrollment, while non-CCAP may involve additional costs. |
| College and high school partnerships cannot share student data and information due to FERPA requirements. | The Family Educational Rights and Privacy Act (FERPA) is a federal law. There are many ways that a college and high school can share student data in a dual enrollment partnership. They include two basic categories: 1) data sharing with student consent, and 2) exceptions to the student consent requirement. Some dual enrollment partnerships include a FERPA consent form as a part of their enrollment process. Exceptions to the written consent requirement include: directory information, school officials with legitimate educational interest, audits and evaluations, studies, and health and safety. For a more detailed explanation, see Understanding Federal Privacy Law and Dual Enrollment. |
Local Policy
The governing boards of school districts and community college districts approve board policies and administrative procedures or administrative regulations. Board policies are locally determined, but they need to be in compliance with policies of their respective state governing boards, which in turn need to comply with state and federal law.
State law sets broad parameters. Policy—both state and local—provides more clarity for areas in which the law is either silent or ambiguous.
To ensure more equitable access, a partnership can perform an equity audit of local policies at both the college and high school districts. The audit could address questions such as: Are there policies that are barriers for student participation, like a GPA requirement? If so, are those policies in compliance with state law? Institutions may have outdated, restrictive policies because of bureaucratic inertia. Changing those policies to bring them into compliance with state law and support students is a step towards providing more equitable dual enrollment.
Example: Dual Credit
Dual credit is when a student receives high school credit for passing a college course. Education Code 48800(c) states that, “A pupil shall receive credit for community college courses that the pupil completes at the level determined appropriate by the governing boards of the school district and community college district.” Education Code 51225.3 requires school boards to adopt alternative ways for students to meet high school graduation requirements and gives examples such as work experience, courses at regional occupational centers or programs (ROC/ROP), independent study and college courses.
Local school boards decide on the policies and procedures for dual credit; this includes determining how much high school credit to award for college courses, and what academic areas qualify. High school districts may determine that no credit is appropriate, but should consult legal counsel in determining whether they are in compliance with Education Code if they choose not to award credit.
Getting Started with Revising Policy and Structures for Equity
Local policy can remove barriers for more equitable dual enrollment, or it can create barriers. Below are some policy approaches that support more equitable dual enrollment.
Dual credit
K-12 school boards are empowered to apply successfully completed college courses as credit towards high school graduation via board policy. The local school board also determines other factors such as whether college credit will be applied towards high school subject requirements or as electives, and limitations on the total amount of credit that may be counted. The local board also determines the college-to-high school credit formula; for example, three college credits could be equal to 10 high school credits.
Having a transparent policy and equivalency list for dual credit can support students in their college journey. Honoring students’ college course work gives credit where credit is due. Merced Unified School District and Merced College created an equivalency list for awarding dual credit.
Requirements for participation in dual enrollment
Because dual-enrolled students are college students, their participation is very similar to that of adult students. The only additional requirements that can be placed upon high school students enrolled in college courses, by California law, are the requirements for a principal recommendation and parent consent. No other requirements for participation are allowed, including GPA requirements or high school transcripts. GPA may be used to support placement in math or English courses. Colleges may place age restrictions on certain courses, but those must be applied to all students regardless of enrollment status. An example could be to restrict a wine-making course to students who are 21 and older, or to restrict a firearm safety class to students who are 18 and older.
Course offerings
Ideally, courses should accelerate a student’s progress towards both high school graduation and a college certificate or degree. That means the course sequence should be designed along a pathway.
Scheduling
Local policy around scheduling should primarily serve the needs of the students in terms of location, time and modality; the needs of the institutions should be secondary. For many partnerships, this means scheduling courses during the high school day.
Instructors
Local policies that allow high school instructors who meet the minimum qualifications to teach college courses creates more opportunity for course offerings for more students and allows for scalability. It is important to include collective bargaining units for both college and high school instructors when creating policy around teaching college courses offered through dual enrollment.
Data sharing for intervention
Local policies that allow instructors and counselors to more regularly and frequently share student progress will actively support student success. Examples of real-time data sharing include: weekly or biweekly grade reports to the student and high school counselor, the use of early alerts that include high school counselors, and high school counselor access to Canvas. See the Data section for more information.
Data sharing for program improvement
Understanding the student experience beyond student course evaluations is imperative for improving programs. Partnerships can use surveys, interviews, and focus groups to collect data on the student experience to improve access, support, and success for more students in dual enrollment. See the Data section for more information.
Consistency of policy across district
A common complaint among students and families is inconsistency of dual enrollment policies and procedures across colleges in the same community college district and across high schools in the same K-12 district. More uniform policies and procedures can create a more equitable experience for students.
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- Do Middle Colleges start in middle school?
No. Middle College is short for Middle College High School (MCHS); they are high schools that enable students to earn college credit and are specially designated by the California Department of Education (CDE). Similarly, an Early College High School (ECHS) is also a CDE-designated high school where students can earn college credit. The primary difference between the two is that an MCHS must be located on a college campus, per Ed Code. Middle and early college programs are not defined in law; these are often used as marketing terms describing a program within a comprehensive high school that allows students to earn college credit. A program can start as early as middle school, typically in 8th grade, but that is uncommon. - Can ECHSs and MCHSs offer CCAP?
Yes. The CCAP agreement may be between a community college district and either a school district, county office of education, or charter school/charter school governing organization. As long as the ECHS or MCHS is governed by one of the allowable partners, it can be included in a CCAP agreement. An MCHS operating under a CCAP partnership agreement must comply with all of the sections of Education Code 76004. - Is there a limit to the number of college courses that can be offered through a CCAP partnership agreement?
No. However, students enrolled in college courses under a CCAP agreement may enroll in up to a maximum of 15 units, if all of the following circumstances are met: (1) The units comprise no more than four community college courses per term; (2) The units are part of an academic program that is part of a CCAP partnership agreement; and (3) The units are part of an academic program that is designed to award students both a high school diploma and an associate degree or a certificate or credential. - Can a student participate in Non-CCAP individual dual enrollment and CCAP dual enrollment?
Yes. The California Community Colleges Chancellor’s Office guidance has determined that, if a student participates in both Non-CCAP individual dual enrollment and CCAP dual enrollment, then the student can enroll in up to a maximum of 11 units. - I work in a school district with multiple high schools; one high school offers CCAP opportunities and the other high schools do not. How can I get other high schools included in the CCAP?
CCAP agreements are between a community college district and either a school district, county office of education, or charter school school/charter school governing organization. It is up to the school district representative to negotiate including the different high schools in the agreement. If a CCAP is already in place, the district could add another high school with an addendum that includes the pathways, college courses and student supports to be added at that particular high school. - Can we include adult schools as part of our CCAP agreements?
Yes, as long as the adult school is serving students who are pursuing a high school diploma or high school equivalency certificate, and also wants to enroll students in college at the same time.
- Do Middle Colleges start in middle school?