California's community colleges have long served as vital gateways to higher education for diverse populations, particularly those needing foundational support in subjects like math and English. However, the push to eliminate traditional remedial—also known as developmental education—courses through landmark legislation has introduced significant challenges. Assembly Bill 705 (AB 705), enacted in 2017 and fully implemented by fall 2019, mandated that colleges use multiple measures such as high school grade point average (GPA), rather than standardized tests, to place incoming students directly into transfer-level courses. This shift aimed to accelerate progress toward degrees and transfers to four-year universities, but it has sparked debates over whether the policy truly benefits all students.

Understanding AB 705: From Policy Intent to Practice

AB 705 represented a sea change in how California's 116 community colleges approached student placement. Prior to the law, up to 75% of incoming students were funneled into non-credit remedial sequences that often extended their time to degree completion by one or more years, with many never advancing. The legislation required colleges to maximize the number of students enrolling in college-level, credit-bearing courses—the so-called transfer-level gateway courses—in English and mathematics within their first year. Corequisite models emerged as a key strategy: students deemed underprepared receive concurrent support, such as embedded tutoring or supplemental labs, alongside the main course.

This approach was predicated on research showing that prolonged remediation deterred completion. By fall 2023, direct enrollment in transfer-level math had surged from 30% in 2017 to nearly 100%, a transformation lauded by reformers.

📊 Early Wins: Surging Completion Rates Systemwide

The data paints an optimistic picture at the aggregate level. Since AB 705's rollout, the number of students completing transfer-level math doubled from about 30,000 per fall term pre-reform to 62,000 by fall 2023. One-term throughput—the percentage passing transfer-level math within a year—jumped 17 percentage points to 53%. In English, completion rates climbed from 52% to 67% compared to fall 2016 baselines. Overall, the California Community Colleges system recorded roughly 825,000 fewer failed math attempts and 250,000 fewer in English since 2019, as students bypassed lengthy remedial tracks.

• Latino and Black student completers in math nearly tripled, narrowing some equity gaps.
• First-year math completion for fall 2022 starters reached 34%, up 10 points from 2017.
• Transfer rates improved, with 31% of intending students transferring within two years by 2021–22, versus 22% pre-reform.

These gains underscore AB 705's role in boosting access and momentum, particularly for middle- and low-achieving high school graduates who previously languished in remediation.

The Hidden Costs: Escalating Failures in College-Level Courses

While systemwide metrics shine, classroom realities reveal roadblocks. Pass rates in transfer-level gateway courses have declined as enrollment expanded dramatically. For instance, math pass rates dropped from highs around 80% to 70% in some districts, meaning more absolute failures despite fewer overall attempts. Instructors report larger classes overwhelmed by unprepared students, leading to higher dropout rates and frustration.

Faculty often cite personal anecdotes of students struggling profoundly, questioning the equity of a one-size-fits-all model. A 2025 EdSource analysis highlighted that many instructors hadn't reviewed outcome data, fueling perceptions of policy failure. Check the full EdSource report on math challenges for deeper insights.

AB 1705: Intensifying the Remediation Crackdown

Building on AB 705, Assembly Bill 1705 (2022), effective for 2023–24, prohibited enrolling high school graduates in non-degree-applicable sub-collegiate math courses, except for specific pathways like statistics for non-STEM majors. This targeted lingering remedial holdouts, but implementation has amplified tensions. STEM-aspiring students now face direct jumps to calculus prerequisites without intermediate support, prompting concerns over absurd placement policies and inevitable failures.

Colleges have innovated condensed prep courses, but faculty warn of emotional tolls and mistrust. Resolutions from groups like the Student Senate for California Community Colleges in 2025 called for reforms to both AB 705 and 1705, citing accelerated corequisites as too rushed for many.

Photo by Ian Mackey on Unsplash

Equity Under Scrutiny: Who Wins and Who Falls Behind?

Proponents celebrate narrowed gaps, yet disparities persist. Latino and Black students, once over-placed in remediation (over 80% pre-AB 705), now complete transfer-level courses at higher rates but remain underrepresented among top performers compared to white and Asian peers. Completion gaps between high- and low-performing colleges span 20 percentage points in corequisites.

Critics argue the reforms exacerbate inequities for first-generation and low-income students needing foundational skills, with higher failure rates disproportionately affecting underrepresented groups. A Public Policy Institute of California (PPIC) testimony in February 2025 acknowledged tripled completers for Black and Latino students but urged holistic supports to close lingering gaps. Explore PPIC's detailed testimony on progress and gaps.

Frontline Voices: Faculty, Students, and Administrators Speak

Math professors describe chaos: "There are a lot more people failing than before," one told EdSource. Students echo this, with some thriving via corequisites while others withdraw early, derailed from STEM paths. Administrators defend data-driven gains but admit uneven implementation—some colleges still placed one-third of students below transfer-level in early years.

At Sonoma County Junior College (SRJC), opinion pieces lament lost opportunities for remedial build-up, arguing low-cost local support is crucial. In contrast, El Camino College boasts high transfers thanks to robust supports.

Case Studies: Varied Experiences Across Campuses

The Los Angeles Community College District (LACCD) saw English throughput soar but math pass rates dip post-AB 705. A 2021 USC Pullias Center report noted lower pass rates but emphasized long-term benefits for persisters.

• Mt. San Antonio College (Mt. SAC): Leveraged AB 705 grants for professional development, achieving equitable placement while monitoring outcomes.
• Compton College: Spring 2022 success rates aligned with peers, but equity focus revealed preparation gaps.
• General Trend: Only one-third of below-transfer starters reach transfer-level, versus 31 points higher for corequisite peers.

These examples illustrate that success hinges on local execution.

Innovative Responses: Corequisites, Multiple Measures, and Beyond

Colleges have poured $64 million in state grants into corequisite scaling, professional development, and counseling. Multiple measures—high school GPA (primary), grades in relevant courses, early assessment—guide placements more accurately than tests. New AB 1705-compliant pathways, like stats-focused tracks, cater to diverse majors.

Yet challenges persist: validating exceptions requires rigorous data, and some colleges skirt rules. The Chancellor's Office dashboard tracks progress, showing steady climbs but room for improvement. View live stats at the CCCCO Transfer-Level Dashboard.

Long-Term Implications: Retention, Transfer, and Workforce Readiness

Early transfer-level completers show 34% higher transfer rates and faster degrees. However, failures cascade: derailed STEM aspirants pivot or exit, impacting California's workforce pipeline in tech and health. Retention suffers without targeted interventions like intrusive counseling or financial aid bridges.

Photo by Ryan Park on Unsplash

Pathways Forward: Reforms, Supports, and Policy Tweaks

Solution-oriented voices call for:

• Enhanced corequisite funding and faculty training.
• Flexible pathways with proven pre-requisites for calculus/STEM.
• Holistic student supports addressing non-academic barriers.
• 2025 legislative pushes to refine AB 1705, per faculty resolutions.

Balancing access with preparation remains key. See RP Group's failure rate analysis for evidence-based tweaks.

Outlook for 2026: Adaptation Amid Evolving Needs

As California navigates post-pandemic recovery and AI-driven skill shifts, community colleges must evolve. Promising pilots in adaptive learning and AI tutors could personalize support, while data transparency builds trust. Policymakers, educators, and students share a stake in refining these reforms to ensure no one is left behind in the pursuit of equitable higher education.

For those eyeing careers in higher ed, opportunities abound in advising and instruction amid these changes.