community college district system, requiring all areas of the state to be included within a community college district. The degree of local control in this system, a side effect of the origins of many colleges within high school districts, can be seen in that 53 of the 73 districts (72%) govern only a single college; only a few districts in major metropolitan areas control more than four colleges. The Legislature also expressly expanded the mission of the community colleges to include vocational degree programs and continuing adult education programs. The Master Plan for Higher Education also banned tuition, as it was based on the ideal that public higher education should be free to students (just like K-12 primary and secondary education). As officially enacted, it states that public higher education "shall be tuition free to all residents." Thus, California residents legally do not pay tuition. However, the state has suffered severe budget deficits ever since the enacting of Proposition 13 in 1978, which led to the imposition of per-unit enrollment fees for California residents (equivalent in all but name to tuition) at all community colleges and all CSU and UC campuses to get around the legal ban on tuition. Non-resident and international students, however, do pay tuition, which at community colleges is usually an additional $100 per unit (or credit) on top of the standard enrollment fee. Since no other American state bans tuition in public higher education, this issue is unique to California. In summer 2010, the state's public higher education systems began investigating the possibility of dropping the semantic confusion and switching to the more accurate term, tuition. In the past decade, tuition and fees have fluctuated with the state's budget. For much of the 1990s and early 2000s, enrollment fees ranged between $11 and $13 per credit. However, with the state's budget deficits in the early-to-mid 2000s, fees rose to $18 per unit in 2003, and, by 2004, reached $26 per unit. Since then, fees dropped to $20 per unit, down $6 from January 2007. It was the lowest enrollment fee of any college or university in the United States. On July 28, 2009, Governor Arnold Schwarzenegger signed AB2X (the education trailer bill to the 2009-10 state budget), setting the community college enrollment fee back at $26 per unit, effective for the fall 2009 term. In July 2011, per-unit fees at California's community colleges stood at $36