Reforming the State's Transfer Process: a Progress Report on Senate Bill 1440

Reforming the State’s Transfer Process: A Progress Report on Senate Bill 1440 M A C T A y l o r • l e g i s l A T i v e A n A l y s T • M A y 11, 2 0 12 An LAO RepORt 2 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt ExEcuTivE SummARy Transfer Is a Core—Yet Historically Problematic—Feature of the State’s Higher Education System. The Legislature has long recognized the importance of facilitating the efficient transfer of students between the California Community Colleges (CCC) and four-year universities. According to the Master Plan for Higher Education (originally adopted by the Legislature in 1960 and periodi- cally reviewed), “The transfer function shall be recognized by the Governor, Legislature, and the governing boards of each of California’s postsecondary education segments as a central institutional priority of all segments of higher education.” Despite this emphasis by the state, however, CCC students often must navigate a complex maze of transfer course requirements, which can make accessing and completing a baccalaureate program difficult. Recent Legislation Designed to Streamline Major Transfer Pathways. In an attempt to funda- mentally reform the state’s primary transfer pipeline from CCC to the California State University (CSU) system, the Legislature and Governor enacted Chapter 428, Statutes of 2010 (SB 1440, Padilla). The legislation requires community colleges to create two-year (60 unit) degrees (known as “associate degrees for transfer”) that are fully transferable to CSU. These degrees require completion of (1) a minimum of 18 units in a major or area of emphasis, as determined by each community college, and (2) an approved set of general-education requirements. Students who earn such a degree are automatically eligible to transfer to the CSU system as an upper-division (junior) student in a bachelor’s degree program. Though these students are not guaranteed admission to a particular CSU campus or into a particular degree program, SB 1440 gives them priority admission to a CSU program that is “similar” to the student’s CCC major or area of emphasis, as determined by the CSU campus to which the student is admitted. Once admitted, SB 1440 students need only to complete two additional years (an additional 60 units) of coursework to earn a bachelor’s degree. Notable Progress Has Been Made . . . The legislation requires the Legislative Analyst’s Office (LAO) to provide a status report to the Legislature by spring 2012 on the segments’ progress in implementing SB 1440. This report is in fulfillment of that reporting requirement. Our review finds that CCC and CSU have made some notable progress on multiple fronts: • Creation of Transfer Model Curricula (TMC). Though the legislation does not require it, intersegmental faculty have developed TMC for a number of the most commonly transferred majors. The TMC identify a set of lower-division courses in a major that will prepare CCC transfer students for the more-advanced coursework they take as juniors and seniors at CSU. Once a TMC is approved by faculty, community colleges use it to design an associate degree for transfer in that particular major. (These degrees are often referred to as “TMC-aligned associate degrees for transfer.”) To date, CCC and CSU faculty have approved TMC for 18 majors, with eight additional TMC currently under development. • Development of Associate Degrees for Transfer. A number of community colleges are rapidly rolling out TMC-aligned associate degrees for transfer and making them available to students. According to a recent survey of community colleges by the CCC Chancellor’s www.lao.ca.gov Legislative Analyst’s Office 3 An LAO RepORt Office, about 15 colleges have associate degrees for transfer either developed or in the process of being developed for each major they currently offer with an approved TMC. • Acceptance of TMC as Similar to Degrees at CSU. The CSU Chancellor’s Office has set a goal for each CSU campus to offer at least one similar degree for each TMC-aligned associate degree for transfer (where the CSU campuses offer such programs). To date, six CSU campuses have achieved this goal, with CSU working to make available more degree options to SB 1440 transfer students. . . . But Results Are Falling Short of Legislation’s Intent. While some progress has been made to implement SB 1440, both segments have much room for improvement. For example, an average of just four associate degrees for transfer have been developed per community college. In addition, a number of community colleges have expressed reluctance to create more than a handful of such degrees despite the CCC Chancellor’s Office goal that, by 2014, each community college have a TMC-aligned associate degree for transfer in every major it offers. For their part, CSU campuses and academic programs vary significantly in terms of accepting such CCC degrees for their bache- lor’s degree programs. We find that for the most part such variation and the resulting complexity could be reduced. Based on the progress to date in matching TMC to CSU majors, it appears that a significant number of CCC students with an associate degree for transfer could be denied many of the benefits of SB 1440. LAO Recommendations. Our review finds that additional work needs to be done by both segments to achieve the Legislature’s intended goals. To this end, we recommend the Legislature provide additional guidance and clarification to CCC and CSU on their responsibilities, as well as continued oversight to track their progress. Specifically, we recommend the Legislature: • Statutorily endorse the TMC approach as the preferred basis for associate degrees for transfer, and consider setting an expectation for the development of additional TMC (such as that TMC disciplines cover at least 90 percent of CCC transfer enrollments at CSU). • Clarify in statute that community colleges are expected to create an associate degree for transfer in every major they offer that has an approved TMC, and consider establishing a timeline for achievement of full compliance. • Clarify in statute its expectation that—with limited exceptions—CSU campuses accept TMC-aligned associate degrees for transfer in each of the CSU degree options within a given major. • Begin to identify next steps if the segments fall short of meeting the above goals. These steps could include involving external entities to address areas of poor compliance and the loss of some state funding (or increases if goals are exceeded). 4 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt inTRoducTion In the 1960 Master Plan for Higher Education, develop two-year (60 unit) associate degrees that the Legislature adopted a number of policies are completely transferrable to CSU. Students who for ensuring college access to the state’s public earn such a degree are guaranteed admission in higher education segments. A key provision of the CSU system, and would be required only to the Master Plan is the transfer function, which complete two additional years (an additional gives state residents an opportunity to begin their 60 units) of coursework to earn a bachelor’s degree. postsecondary studies at CCC and eventually move The legislation requires the LAO by spring 2012, to to the University of California (UC) or CSU to earn provide an update to the Legislature on CCC’s and a bachelor’s degree. Unfortunately, the transfer CSU’s implementation of SB 1440. The legislation process from CCC to the public universities has further requires a fuller assessment by 2015 of how never worked as well as intended. For years, the the reforms actually improve the transfer pathway. Legislature has sought to make improvements. This report is in fulfillment of the first Despite these efforts, transfer students still must reporting requirement. Below, we explain the often navigate a complex maze of requirements purpose and features of the new law, provide an that vary across campuses. This can make it very assessment of the segments’ progress to date, difficult for students to transfer successfully. and conclude with recommendations on how to In an attempt to fundamentally reform the ensure that the segments stay on track and achieve state’s major transfer pathway—that from CCC the legislation’s intended goals. We begin by to CSU—the Legislature and Governor enacted including an overview of key issues and concepts Chapter 428, Statutes of 2010 (SB 1440, Padilla). pertaining to the state’s higher education system Senate Bill 1440, which passed both houses with and transfer process, which provides the relevant unanimous support and included a total of background and context for our later analysis and 46 co-authors, requires community colleges to recommendations. BAckgRound importance of the Transfer Process students from somewhat larger pools of high school graduates. In reducing the eligibility pools, the Three-Tiered System Depends on Transfer to Legislature sought to protect educational standards Maintain Access. The Master Plan calls for UC to at UC and CSU. draw its entering freshmen from the top one-eighth At the same time, the Legislature stressed the (12.5 percent) of public high school graduates, CSU importance of the transfer process in maintaining to draw from the top one-third (33.3 percent), and access to higher education for all California the junior (community) colleges to admit all high residents. The Master Plan declares that “so long school graduates and all persons over 18 years as any high school graduate can be admitted to of age capable of benefiting from the instruction a junior college, it [reducing the eligibility pools] offered. When the Legislature established these will not reduce the opportunity for students able targets in 1960, both UC and CSU were admitting and willing to meet the requirements for transfer www.lao.ca.gov Legislative Analyst’s Office 5 An LAO RepORt to the upper division in the state colleges and the upper-division (junior and senior) enrollment University of California.” Overall, the Legislature of 60 percent of total undergraduate enrollment. envisioned the transfer process as an important The expressed intent is to preserve access for avenue for any student to earn a bachelor’s degree. qualified upper-division transfer students from the Transfers Given Priority in Undergraduate community colleges. Admissions. In order to guide the universities in CSU Enrolls Majority of Transfer Students. their enrollment planning and admission decisions, The majority of students transferring from CCC the Legislature has adopted statutory admissions enroll at CSU, as shown in Figure 1. In addition, priorities stating that, to the extent practicable, the transfer students from CCC regularly comprise two segments should admit and enroll California more than half of CSU’s bachelor’s degree recipients residents at the undergraduate student level in the and more than one-quarter of those at UC. following priority order. Because CSU enrolls the majority of community 1. Continuing undergraduate students in good college transfer students, the state’s efforts to standing. improve the transfer process (including SB 1440) have tended to focus on transfer pathways from 2. Qualified community college transfer CCC to CSU. students who have successfully met all transfer requirements. Graphic Sign Off Eligibility for Transfer Admission 3. Other qualified transfer students. Secretary The admissions process for transfer students Analyst consists of two parts: (1) eligibility for admission 4. New students entering as freshmen or Director to the segment and (2) selection to a particular sophomores. campDues pour taycademic program. Eligibility applies Within each of these enrollment categories, to the segment as a whole and does not guarantee statute directs that the universities give priority admission to any particular campus. Campuses consideration to certain applicants (such as and programs select students for admission from veterans) above other groups. In addition, among eligible students. current law requires that UC and CSU maintain With few exceptions, a student must complete Figure 1 60 semester (90 quarter) units of transferable CSU Is Most Common lower-division (freshman and sophomore) course Destination for CCC Transfers requirements at a community college with an Total: 112,237 Transfer Students (2010-11) overall grade point average (GPA) of 2.0 on a four-point scale to be eligible for transfer admission Out of State to CSU. Within these units, a student must complete at least 30 semester (45 quarter) units of general education courses—including courses in written communications, oral communication, In-State CSU Private critical thinking, and mathematics/quantitative reasoning—with a “C” grade or better in each of these four courses. A student who completes these requirements may be considered for transfer UC admission at the junior level. 6 Legislative Analyst’s Office www.lao.ca.gov ARTWORK #110355 An LAO RepORt Selection for Transfer Admission all nonlocal applicants that are stricter than systemwide minimum eligibility. Not All Qualified Students Are Admitted. Campuses may declare impaction at Although the Master Plan’s eligibility policy the freshman or transfer level, or both. promises access to CSU to every eligible applicant Seventeen campuses are impacted for who applies, the university’s budgetary resources in 2012-13. Consistent with the Trustees’ any given year are finite. State funding for CSU in policy of protecting local access, impacted the annual budget act typically is based on a target campuses guarantee admission to all local enrollment level that the university is expected to applicants who meet systemwide eligibility serve. The CSU Chancellor’s office must work with requirements. campuses to manage enrollment to targeted levels while still ensuring that all eligible applicants are • Program Impaction. A campus can declare offered an enrollment slot. Achieving these twin program impaction when the number of goals sometimes has required making it harder qualified freshman or transfer applicants to for students to submit eligible applications—for a particular program—such as mechanical example, by setting stricter application deadlines engineering or nursing—exceeds available or modifying transfer requirements. Until recently, space at the campus. Impacted programs a qualified transfer applicant who was attentive to may establish supplemental admission (and met) CSU’s general eligibility requirements criteria for all applicants—local and could count on admission to his or her local nonlocal. For example, they can require campus and most other campuses. In recent years, completion of specified pre-major some CSU campuses have denied admission to courses for transfer applicants, and set some qualified transfer applicants. GPA thresholds above the systemwide Campuses Use Impaction to Manage requirement of 2.0. As a result, there Enrollment. An especially powerful enrollment is no local admission guarantee for management tool is “impaction,” whereby impacted programs, although campuses admissions criteria can be raised above the may award local students extra points or systemwide requirements for certain programs other consideration to help make them or groups of students. In contrast to most other more competitive. Historically, only a enrollment management techniques (which still relatively small number of programs were guarantee a spot for all eligible applicants to a impacted—primarily programs with campus), impaction allows campuses or programs unusually high demand or more costly to deny admission to applicants who do not programs with enrollment limited by meet enhanced requirements beyond statewide resource constraints. While most CSU eligibility. There are two primary categories of campuses have some impacted programs, impaction: 4 of the 23 campuses have now declared all • Campus Impaction. A campus can declare of their majors impacted (Fullerton, San campus impaction when the number of Diego, San Jose, and San Luis Obispo). qualified applicants to a campus exceeds Students May Enter Campus-to-Campus campus capacity. An impacted campus Transfer Agreements. Some CSU campuses may establish admissions criteria for provide the opportunity for all students that attend www.lao.ca.gov Legislative Analyst’s Office 7 An LAO RepORt certain community colleges to enter into a transfer major Preparation Requirements admission agreement (sometimes called a transfer At many CSU campuses, entering transfer admission guarantee). A transfer agreement students are required to specify a major on their works as a contract between the student and the admissions application. (In other instances, university campus he or she wishes to attend by students can apply with an “undeclared” major.) granting priority or guaranteed admission if the In order to ensure that students are prepared student meets certain academic requirements, for advanced study in a particular major, some including completing specified courses and university departments advise or require students achieving a minimum GPA. to complete major preparation (also known as pre-major) courses during their first two years in general Education Requirements college. These courses may be prerequisites for In addition to basic eligibility requirements, other courses required as part of the major. For CSU maintains general education and major instance, an introductory course in statistics is preparation requirements for all students. While often a prerequisite for certain upper-division students who enroll as freshmen at CSU are able courses required for a baccalaureate degree in to satisfy these requirements during the course of psychology. Some majors, particularly in the their CSU enrollment, transfer students must fulfill sciences, require significant numbers of pre-major some of the requirements in advance to qualify for courses, while others require only a few. transfer admission. Courses May Fulfill Both General Education General Education Requirements and Major Requirements. A campus may permit Standardized. General education requirements a single course to satisfy a general education are designed to expose students to a broad range and major requirement. For example, a writing of subjects and develop their critical thinking, course could meet (1) the written communication quantitative reasoning, information literacy, requirement for GE-Breadth or IGETC and (2) a communication, and other competencies. lower-division requirement for the English major. The CSU has established systemwide general By selecting courses that serve a dual purpose, a education requirements called the CSU General student can fulfill general education and major Education Breadth, or GE-Breadth, requirements. preparation requirements in fewer units than In addition, CSU has collaborated with UC to otherwise would be possible. establish the Intersegmental General Education Major Preparation Varies by CSU Campus. Transfer Curriculum, or IGETC, with common Preparatory courses for a particular major have general education requirements that CCC transfer historically varied across CSU campuses. For students can use to fulfill lower-division general example, the pre-major course requirements for education requirements at a UC or CSU campus. physics could differ from one CSU campus to (The GE-Breadth requirements are more commonly another. This has meant that a student intending used by CCC students intending to transfer to to transfer to a specific campus might complete CSU.) These requirements are summarized in the courses that only meet the major requirements nearby box. of that campus. If the student later decides to apply to a different university campus, the student might need to take more course units at the community college or university. This is one reason 8 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt california State university (cSu) general Education Requirements Are Standardized CSU General Education Breadth (GE-Breadth) Pattern. The CSU GE-Breadth pattern consists of 48 semester (72 quarter) units. For transfer students, at least 30 and no more than 39 semester units may be transferred from a community college. Students must complete any remaining lower division units and nine upper division units after transfer. Each community college maintains a list of courses that have been approved to fulfill specific GE-Breadth requirements. (Units shown are minimum semester units; quarter unit requirements are higher.) Students must complete at least one course in each of the specified areas. • Communication in the English Language and Critical Thinking (nine units) - Written communication - Oral communication - Critical thinking • Physical Universe and Its Life Forms (six units) at least one course with a lab component - Physical science - Life science • Math and quantitative reasoning (three units) • Arts, Literature, Philosophy, and Languages Other Than English (nine units) - Arts (arts, cinema, dance, music, theater) - Humanities (literature, philosophy, languages other than English) • Social, Political, and Economic Institutions (nine units) - Sociology, anthropology, economics, history, political science, psychology, and others • Lifelong Understanding and Self-Development (three units) - Courses with sociological, physiological, or psychological content, or physical activity Intersegmental General Education Transfer Curriculum (IGETC). Similarly, the IGETC is a general education program that California Community College transfer students can use to fulfill lower-division general education requirements at a CSU or the University of California campus. The IGETC requires completion of a minimum of 37 semester (49 quarter) units of lower division work with a “C” grade or better in each course. The IGETC pattern requires one more science unit than GE-Breadth, and does not include a lifelong learning requirement. Student completing IGETC requirements at community college must also complete nine upper division semester units of general education (12 quarter units) after transfer. www.lao.ca.gov Legislative Analyst’s Office 9 An LAO RepORt many students accumulate excess units to earn a inconsistent Requirements a bachelor’s degree. Longstanding concern Course Articulation Also Varies. Each Variation in major preparation courses and CSU campus department determines which course articulation across CSU campuses has courses from each CCC campus it will accept as been an ongoing concern for transfer students comparable to its required courses. The process and policymakers. Despite previous efforts to of linking CCC courses to CSU campus course streamline transfer—including legislation requiring requirements is known as course articulation. CSU to develop systemwide lower-division While the business management department transfer curricula (called Lower-Division Transfer at one CSU campus may accept a particular Patterns)—differences persist across campuses. community college’s statistics course as satisfying This variation complicates the transfer process by its introductory statistics requirement, the business requiring multiple campus-to-campus articulation management department at another CSU campus agreements, limiting students’ campus options, may determine that the same community college and increasing students’ difficulty in identifying course does not have the focus, content, and rigor comparable courses that will satisfy requirements at necessary to satisfy its corresponding requirement. different campuses. As a result, the transfer process has not been as efficient or effective as envisioned in the Master Plan. PRoviSionS And PuRPoSE of SB 1440 New Law Designed to Create Clear Degree and Regular Associate Degrees Are Not Necessarily Transfer Pathways. In response to these concerns Transferable. Currently, community colleges offer about the transfer process, the Legislature passed associate of arts and associate of science degrees SB 1440. (The Appendix contains the full text of the in a number of programs. Under CCC regulations, legislation.) The legislation is designed to accomplish associate degrees must consist of a total of at least two main goals. First, SB 1440 seeks to create clearer 60 credit units (typically about 20 courses). Of that pathways from CCC to CSU. In so doing, the intent amount, at least 18 units must be a particular major is to reduce the number of excess units students take or area of emphasis, and a minimum of at CCC and CSU in fulfillment of CSU’s transfer and 18 units must be in general education. In addition, graduation requirements (thereby increasing students’ regulations permit community colleges to require chances of achieving their educational goals, as well as students to fulfill local course requirements, freeing up course enrollment slots for other students). such as coursework in ethnic studies or physical Second, by giving admission priority to transfer education. Degree units do not necessarily have to students with an associate degree for transfer, the be transferable to a four-year institution. (In fact, legislation seeks to create a strong incentive for students CCC regulations allow colleges to apply certain to obtain an associate’s degree while attending CCC, courses toward an associate degree which are not so that students who transfer to CSU but are unable even college-level, such as Elementary Algebra.) to complete a baccalaureate program have at least an Students who seek these degrees typically have one associate’s degree when entering the job market. of two educational goals: to enter the workforce 10 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt directly upon receiving a degree (such as a student major that is similar to what they majored in at in an Automotive Technology degree program), or the community college. Determination of which to transfer to a four-year institution. CSU and CCC degree programs are similar is left Legislation Requires Community Colleges to to the CSU campus to which the transfer student Create Associate Degrees for Transfer. Senate Bill is admitted. Students with an associate degree 1440 requires community colleges to create a new for transfer who seek to transfer to CSU receive type of associate degree called associate degrees for priority “over all other” transfer-seeking CCC transfer. These degrees consist of a total of 60 units students, with the exception of CCC students who of coursework, all of which must be transferable to entered into a transfer agreement with CSU prior to CSU. To earn this degree, students must complete fall 2012. a minimum of 18 units in a major or area of Limit on Number of Units Transfer Students emphasis “as determined by the community college Must Complete to Earn Bachelor’s Degree. Once district.” Students also must meet their general- admitted to a CSU campus and program, students education requirements by completing either the with an associate degree for transfer need to full IGETC or lower-division CSU GE-Breadth complete 60 additional units to obtain a bachelor’s pattern. The legislation prohibits CCC from degree. (Students may need to complete more than imposing additional local requirements. 60 units at CSU if the bachelor’s degree requires CSU Must Admit SB 1440 Transfer Students more than the standard 120 units.) The statute also as Juniors Somewhere in the System. Beginning specifies that CSU cannot require students to repeat in fall 2011, students who earn an associate degree any courses that are similar to what they took as for transfer (which, like regular associate degrees, part of their coursework leading to an associate requires a minimum 2.0 GPA) are automatically degree for transfer. eligible to transfer to the CSU system as an upper- Veterans’ Priority Maintained. The Legislature division (junior) student in a bachelor’s degree subsequently adopted Chapter 349, Statutes of 2011 program. Because of impaction (discussed in the (SB 940, Committee on Education), to clarify its previous section), students are not guaranteed intent that priority for SB 1440 students be granted admission to a particular CSU campus or into a consistent with existing admission priority for particular program (major). However, CSU must recently released veterans of the armed forces of the grant SB 1440 students “priority admission” to United States, and other established priorities. (The (1) their local CSU campus and (2) a program or priority categories are listed in the “Background” section of this report.) imPLEmEnTATion of SB 1440 formation of implementation Offices of the respective segments and various and oversight committee other organizations (such as student groups and the Academic Senates of CCC and CSU). The Following enactment of SB 1440, CCC and IOC is designed to work through details on the CSU formed the SB 1440 Implementation and implementation of SB 1440 and ensure coordination Oversight Committee (IOC). The IOC comprises between the two segments. For example, as 18 members drawn from the Chancellor’s www.lao.ca.gov Legislative Analyst’s Office 11 An LAO RepORt discussed later, members of the committee Role of ccc and cSu faculty discussed and agreed on how to give priority Development of Transfer Model Curricula as admission to SB 1440 transfer students. They also Basis of New CCC Degrees. The legislation provides agreed on a marketing and communications plan individual CCC districts with the authority to to make students, counselors, campus admissions choose the courses that are included in the 18-unit directors, and others aware of the new degree and requirement for a major/area of emphasis. In transfer pathway. The IOC had its first meeting in theory, therefore, there could be considerable November 2010, and has generally met monthly variation across the CCC system with regard since that time. to the courses that students pursuing the same Building Statewide Pathways: The Role of the course identification number System (c-id) In response to Chapter 428, Statutes of 2010 (SB 1440, Padilla), the California Community College (CCC) and the California State University (CSU) Academic Senates decided to create statewide Transfer Model Curricula (TMC) for a number of the most commonly transferred majors. Each TMC includes lower-division courses that intersegmental faculty have determined would provide transfer students with the necessary content to be ready for coursework in their major at the upper-division level. To develop TMC, faculty have relied on infrastructure that was already in place to support the C-ID. The C-ID, which was created in 2007, is a system that simplifies the identification of comparable courses at different college and universities. Through C-ID, faculty representing their respective disciplines identify the courses that should be included in each TMC. Faculty groups then develop and review “C-ID descriptors” for each course in the TMC. (Often, faculty work off of course descriptors that were developed as part of the earlier cross-segmental articulation efforts, such as Lower Division Transfer Pattern.) Both the draft course descriptors and the draft TMC are vetted statewide for CCC and CSU faculty input before they are finalized. These descriptors include basic information about the course, such as the topics that are covered, the knowledge and skills that students should be able to demonstrate as a result of taking it (course objectives), how students are evaluated (such as through essay exams and research papers), and sample textbooks or other instructional materials that are commonly used. Once a descriptor is fully vetted by faculty, it is given a unique course identifier. (“College Algebra,” for example, is designated C-ID MATH 150.) At that point, community colleges are able to submit their course outlines of record to a team of CCC and CSU faculty, who review the submis- sions. Courses that match a particular descriptor are assigned that same C-ID course identifier. (So regardless of a local college’s course number, a math course at a community college that matches the College Algebra descriptor would also carry the additional designation of C-ID MATH 150.) The C-ID process facilitates the ability of faculty to build their own associate degrees for transfer that align with the approved TMC in that discipline. The C-ID also makes it easy for students, counselors, and others to identify courses that are comparable across campuses and segments (thus reducing uncertainty around whether transfer students at CSU are being required to repeat coursework they already took at CCC, which is prohibited by SB 1440). 12 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt associate degree for transfer are required to take. To process of creating these degrees is very similar ensure that all students who complete their lower- to that of regular associate degrees. First, CCC division major coursework at CCC have the proper department faculty must decide on the courses that foundation to succeed in upper-division major will make up the 18 units required for the major or coursework at CSU, the Academic Senates of CCC area of emphasis. The proposed degrees are then and CSU opted to promote a statewide, rather than vetted by the college’s interdisciplinary curriculum a local approach, to implementing SB 1440. Toward committee. After that, the district’s governing that end, intersegmental groups of faculty have board must approve the degree during a public developed TMC for the most commonly transferred hearing. Finally, the district submits the proposed majors. The TMC identify a set of courses that degree to the systemwide Chancellor’s Office for will prepare CCC students for the more-advanced review. Once approved, the degree program is courses they take as juniors and seniors at CSU. The added to the college catalog. TMC typically include at least six units of “core” CCC Chancellor’s Office Has Set Expectations coursework that are required of all students seeking for Local Compliance With Law. Though SB 1440 an associate degree for transfer in their major. In requires community colleges to develop associate addition, TMC include a list of other courses (in degrees for transfer, the legislation does not that major or a related discipline) that community specify the number of degrees that a college must colleges can select to design their local associate create. Absent an explicit statutory goal, the CCC degrees for transfer. (Faculty use a common course Chancellor’s Office determined that, by the end of numbering system to help them develop these TMC, 2011, a college must develop at least two associate as discussed in the nearby box.) degrees for transfer in order to be in compliance. Eighteen TMC Have Been Developed, With Some More in the Pipeline. As Figure 2 shows, Figure 2 the first four TMC—in communication studies, Approved Transfer Model Curricula mathematics, psychology, and sociology—were As of March 30, 2012 approved by faculty in early 2011. Faculty finalized Discipline Date Approved 12 other TMC in 2011, and recently approved 2 additional TMC (in elementary education and Communication Studies January 2011 Psychology January 2011 music). According to the CCC and CSU Academic Sociology January 2011 Senates, faculty expect to finalize at least eight more Mathematics March 2011 TMC in 2012. (As explained in the box on page 14, Administration of Justice May 2011 Early Childhood Education May 2011 intersegmental faculty and IOC members are also Geology May 2011 discussing ways of streamlining transfer pathways History May 2011 for the nursing major, which has unique curricular Physics May 2011 Theatre May 2011 requirements.) Art History June 2011 Business Administration June 2011 Rolling out Associate degrees for Transfer English June 2011 Kinesiology June 2011 Multistep Review and Approval Process for Political Science June 2011 Associate Degrees. Once a TMC is approved, Studio Arts June 2011 community colleges may use it to design an Music February 2012 Elementary Education March 2012 associate degree for transfer in that program. The www.lao.ca.gov Legislative Analyst’s Office 13 An LAO RepORt Segments considering different Approach for nursing The requirements for a nursing license in California, largely prescribed by the Board of Registered Nursing, include 36 units of nursing content—far exceeding the 18-unit major requirement in Chapter 428, Statutes of 2010 (SB 1440, Padilla). When combined with general- education requirements, associate degrees in nursing typically total more than 60 units, and thus fall outside of SB 1440. To facilitate transfer to Bachelor of Science in Nursing (BSN) programs, faculty in both systems are discussing the possibility of a 70-unit core associate degree curriculum that would transfer to the California State University (CSU) for full credit. The CSU nursing programs, in turn, would develop a 50-unit model curriculum or other mechanisms to permit associate degree for transfer students to complete a BSN degree within a total of 50 units after transfer. Going forward, the Chancellor’s Office has set the Initially, several CSU campuses determined that in goal that, by the end of 2014, community colleges will some majors, none of their degree programs were have an associate degree for transfer in all programs similar to the approved TMC. In other words, they in which (1) they currently offer a regular associate could not ensure baccalaureate completion within degree and (2) where a TMC exists. As an interim 60 additional units to students transferring with goal, the Chancellor’s Office expects that each college TMC-aligned associate degrees in those majors given offer an associate degree for transfer in at least the CSU program’s existing course requirements. 80 percent of such programs by the end of 2013. While CSU campuses based their initial reviews on their existing degree programs, the CSU designating Similar Programs Chancellor’s Office directed them to consider changes Each CSU Campus Determines Which to their degree programs with the goal of turning “not CCC Majors Are Similar to Its Own Majors. As similar” determinations to “similar.” To that end, the described above, SB 1440 gives a student with an Chancellor’s Office suggested a number of strategies associate degree for transfer priority admission for campuses to consider, including: to a CSU program that is similar to the student’s • Reducing the number of elective units. community college major or area of emphasis, as determined by the CSU campus to which the • Reducing the number of units required in the student is admitted. To implement this provision, major. CSU developed the following definition: • Moving required major courses from upper An associate degree for transfer is similar to lower division. to a CSU baccalaureate degree “when a specific CSU campus by its processes • Requiring double-counting of American Institutions with major course requirements, determines that a student so prepared can upper-division general education require- successfully complete the bachelor’s degree ments, or campus-specific requirements. within 60 additional units.” (See nearby box for an explanation of CSU American Institutions requirements.) The CSU Chancellor’s Office asked each campus to identify its similar degrees for each of • Reducing the number of units required in the first 16 approved TMC by September 15, 2011. American Institutions. 14 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt • Reducing the number of units required in students who complete an associate degree for general education (for campuses that require transfer, however, the IOC agreed that the only more than the systemwide minimum). permissible supplemental criteria will be GPA. As shown in Figure 3 (next page), students • Reducing the number of units required in from outside a campus’ local admission area campus-specific graduation requirements applying to an impacted campus (for programs (for example, technological proficiency, cross- that are not impacted) are awarded an additional cultural competence, or language other than two-tenths (0.2) of a GPA point on a four-point English). scale to make them more competitive for admission to the campus. (Local students are guaranteed • Requesting a waiver of the American admission to these programs.) Local and nonlocal Institutions requirements. students applying to impacted programs (at any The CSU Chancellor’s Office has set a goal campus) are awarded an additional 0.1 GPA point of offering at least one similar degree option in in programs admitting 20 or more students. No each TMC discipline in which a campus offers priority is awarded in impacted programs with a bachelor’s degree. A degree option can be a fewer than 20 slots. concentration, emphasis, or particular track within Highest Priority Granted for Spring 2013 a major (such as a teacher education focus within Admission. In response to budget concerns, CSU the history major) leading to a bachelor’s degree. will not accept applications for admission in the spring 2013 term, with very limited exceptions. defining Priority Admission The primary exception is for CCC graduates System Awards Modest GPA Bonus for with associate degrees for transfer applying to SB 1440 Applicants. As described earlier, CSU similar CSU programs. This CSU policy decision may impose supplemental criteria for admission highlights the extent to which the university to impacted programs and campuses, including system is prioritizing SB 1440 implementation. additional required courses and GPAs above the The policy provides a strong incentive for CCC systemwide eligibility requirement of 2.0. For california State university (cSu) American institutions Requirements The CSU’s regulations require campuses to provide instruction in United States history (including California history and local government), the Constitution, and American ideals; and require students to demonstrate competence in these areas. This requirement is sometimes referred to as the “American Institutions” or “AI” requirement. While some campuses allow students to demonstrate their knowledge through comprehensive examinations, other campuses require students to successfully complete up to two courses to meet this requirement. These additional courses could result in degree requirements exceeding 60 additional units, rendering the degree “not similar” to a Transfer Model Curriculum (TMC). On July 12, 2011, the CSU Board of Trustees amended its regulations to include a provision for granting—under specified conditions—exceptions to this requirement. This change allows more flexibility as campuses develop their TMC. To date, however, no campus has requested a waiver of American Institutions requirements. www.lao.ca.gov Legislative Analyst’s Office 15 An LAO RepORt Segments Agree on Figure 3 Student Identification Summary of CSU Admission Priority Policy and Verification Plan. Campus For the short-term, IOC Program Not Impacted Impacted members have agreed on Not impacted All eligible students Eligible local students guaranteed admission. a plan for CCC transfer guaranteed admission. Eligible nonlocal students must compete for limited slots. applicants to complete SB 1440 Bonus = 0.2 GPA points an “intent to earn an Impacted All eligible students (local and nonlocal) must compete for limited slots. associate degree for Campus may award bonus points to local students. transfer” form within a SB 1440 bonus = 0.1 GPA points certain timeframe (by GPA = grade point average. February 15, 2012 for fall 2012 applicants to campuses to offer associate degrees for transfer, CSU) and to submit it to both their community for students to complete them, and for CSU college and the CSU to which they applied. The campuses to identify similar majors to which community college is responsible for reviewing these students can transfer. students’ academic records and informing them identifying SB 1440 Applicants whether they are, in fact, on track to receive an associate degree for transfer. Students CSU Needs Student Information for then forward this notification to CSU. After Planning and Admissions Purposes. Given that admission but before enrolling at CSU, students CSU must reserve an enrollment slot and provide will request that their community college send priority admission for SB 1440 transfer students, a final transcript (typically by mailing a paper IOC has considered ways for the segments copy) to CSU. In the longer term, both segments to identify these students and their major— acknowledge the need for obtaining earlier preferably as early as possible. By accurately identification of SB 1440 students, as well as identifying which students are on a SB 1440 replacing CCC’s largely paper-based degree pathway, CSU can plan accordingly and make verification methods with electronic solutions informed admissions decisions. (such as e-transcripts). LAo ASSESSmEnT of imPLEmEnTATion To dATE S egmentS H ave m ade S ome emphasis to earn an associate degree for transfer. n otable P rogreSS . . . Immediately after the bill was passed, though, CCC and CSU agreed that it was in students’ best interest The Tmc Approach Has Been a key—and if department faculty from both segments could Highly collaborative—innovation agree on the general composition of requirements for the major. Doing so would provide greater As noted above, SB 1440 gives each community assurance that students with an associate degree college wide discretion with regard to the courses for transfer are adequately prepared for upper- students must take in their major or area of division coursework in that major—regardless of 16 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt which CSU campus they end up attending. At the colleges by the CCC Chancellor’s Office, about same time, there was a desire to provide a certain 15 community colleges have associate degrees level of flexibility so that CCC faculty could design for transfer either developed or in the process of a degree that took into account factors such as being developed for each academic program they local curricular preferences and existing course currently offer that has an approved TMC. offerings. Most CSU Campuses Accepting Most TMC as We find that over the past 18 months CCC and Similar. Six CSU campuses have identified at least CSU faculty have created a productive and strong one—and often several—similar degree option(s) in working relationship. Under the leadership of every TMC in which they offer a bachelor’s degree. the Academic Senates of CCC and CSU, between In some cases, this has required that the campus October 2010 and March 2012, over 1,000 CCC and adjust its degree requirements to accommodate CSU faculty have participated in meetings across the TMC. Another nine campuses have identified the state as part of the effort to develop TMC. at least one similar degree option in all but one or Thousands of additional faculty have provided their two TMC, and are working to resolve issues in the input (online or through another medium) on the remaining disciplines. By deeming their majors content and courses that should be included in the similar to TMC, these campuses are opening the TMC. The 18 TMC that have been approved thus door to priority admission and a 60-unit guarantee far are the product of tens of thousands of hours of for any community college graduate statewide with faculty time. a corresponding associate degree for transfer, as envisioned in SB 1440. many ccc and cSu campuses . . . b I F Are on Right Track ut mPlementatIon allIng S Sb 1440’ I Hort oF S ntent A Number of Community Colleges Are Off to a Fast Start in Developing New Degrees. The Roll-out Process for new Associate first associate degree for transfer (created by degrees Has a Ways to go College of the Desert) was approved by the CCC Chancellor’s Office in March 2011. Since that Most Community Colleges Have Developed time, community colleges have received approval Four or Fewer Degrees. While some community for a total of more than 300 associate degrees for colleges are rapidly developing new degrees (as transfer in 16 different disciplines. (Because two discussed above), overall progress systemwide is TMC, in music and elementary teacher education, mixed. As of March 30, 2012, three community were just recently approved, no community college colleges still offered fewer than two associate currently has an associate degree for transfer in degrees for transfer, which falls short of the CCC those programs.) As of March 30, 2012, Pasadena Chancellor’s Office’s expectations for 2011. (Two City College (Los Angeles County) had 13 associate of these colleges, however, had at least one degree degrees for transfer developed and either approved at the Chancellor’s Office for review—the final or under review by the CCC Chancellor’s Office— step in the approval process.) Figure 4 details the most in the CCC system. (Moorpark College the distribution of degrees by college. As the [Ventura County] is second among community figure shows, 37 of the system’s 112 colleges have colleges with 11 such degrees though March 20, two associate degrees for transfer that are either 2012.) According to a recent survey of community approved or under review at the Chancellor’s www.lao.ca.gov Legislative Analyst’s Office 17 An LAO RepORt Office. Another 30 colleges have three degrees • Faculty preference for the college’s current either approved or nearly approved. This means associate degree over a TMC-aligned that 60 percent of community colleges have four or degree. fewer associate degrees for transfer thus far. And Some community colleges also have indicated while collectively the system has over 400 associate that they do not intend to develop any additional degrees for transfer either approved or under TMC-aligned associate degrees until they can be review at the Chancellor’s Office, this represents assured that their local CSU campus will deem less than four degrees per college. them similar. The issue of similarity is discussed in Some Community Colleges Reluctant more detail below. to Embrace New Degrees. Despite the CCC Chancellor’s Office goal of 100 percent participation Associate degrees for Transfer not by fall 2014, about a dozen community colleges universally Accepted at cSu campuses have indicated they are planning to develop only While all CSU campuses have deemed at least a handful of associate degrees for transfer at this some of their degree options similar to certain time. Colleges have provided several reasons for TMC-aligned associate degrees, acceptance is their reluctance to create additional associate far fGrorma punhivicer sSali.g Rnes pOofnfses have varied across degree for transfer, including: campuses and majors, as illustrated in Figure 5 (see Secretary • Lack of sufficient faculty and staff to page 20). support the development of the new degree. Analyst • Variation Across Campuses. As of April Director • Lack of funding to offer courses in a new 2012, five campuses have identified no Deputy similar degree options in five or more TMC degree. disciplines in which they offer bachelor’s • Not enough students in the discipline to degrees. Together, these campuses offer justify offering the degree. more than 100 degree options in these disciplines, all of which they have deemed “not similar” to the corresponding TMC. Figure 4 Mixed Progress Among Community • Variation Across Disciplines. In sociology, Colleges in Rolling Out New Degreesa art history, and political science, every CSU campus offering bachelor’s degrees in the 40 discipline deemed at least one of its degree 35 options similar to the TMC. In contrast, 30 about one-third of campuses offering 25 Number geology and kinesiology degrees, and of Colleges 20 about one-fourth offering early childhood 15 education, business administration, and 10 math degrees deemed all of their degree 5 options in these disciplines not similar to 0 1 2 3 4 5 6+ the corresponding TMC. Degrees Developed a Associate degrees for transfer that are, as of March 30, 2012, either approved or in review at the systemwide Chancellor’s Office. 18 Legislative Analyst’s Office www.lao.ca.gov ARTWORK #110355 An LAO RepORt • Variation Within Major at a Campus. Some degree options are very specialized and can Many campuses have deemed one or reasonably require more than the standard more degree options similar to a TMC 60 units to complete. For example, some campuses while deeming other options within the offer a bachelor’s degree in mathematics with a same major not similar. This may not be computer science option, which requires students problematic if the similar option(s) includes to complete major coursework in mathematics as common concentrations or the general well as physics and computing. In addition, some concentration. In these cases, a student majors have two or more major strands leading could earn a general degree within 60 CSU to different careers. Degrees in kinesiology, for units or take a few more units for a more example, can lead to careers in sports and fitness specialized degree. In some cases, however, or physical therapy, among others. Kinesiology it appears the similar option in a major is a students planning to attend graduate school for less common, specialized one. For example, physical therapy may require a different curriculum one campus with 12 business degree (even at the lower-division level) that those entering options has deemed only a corporate various fitness fields, and it is unlikely a single management option similar to the TMC could accommodate the requirements of all TMC, limiting SB 1440 benefits (priority strands. admission to the major and the 60-unit Other reasons some campuses have deemed guarantee) to students who apply for that degrees not similar have more to do with specific business concentration. Another internal campus or departmental policies. Both campus has deemed two art-degree options departments and campuses have specific lower- (in design and history) as similar to the division and upper-division course requirements studio-arts TMC, but not its degree option students must satisfy to earn a bachelor’s degree. in studio arts. If these requirements are not well-aligned with the TMC, a transfer student could be required In all of these cases, this variation means that to complete more than 60 units at CSU to earn a students with associate degrees for transfer may not degree in the major. By definition, therefore, the be granted priority admission or a 60-unit cap on degree would be deemed not similar to the TMC. additional required courses. Other reasons campuses have given for Campuses continue to work toward turning not not accepting TMC-aligned degrees include similar designations to similar. Several campuses systemwide and campus graduation requirements have already identified solutions that will require that take up course units, and potential time to implement, such as developing a new degree accreditation issues for professional programs. option in a major that aligns with a TMC. Sixteen For example, accreditors may require that certain campuses, however, have reported that they cannot courses currently included in the TMC be taught yet honor the TMC in one or more majors in which at the upper-division level. (Not all programs they offer bachelor’s degrees, as shown in Figure 5 in a given discipline have the same professional (see page 20). accreditation. As a result, a TMC may be acceptable Reasons for Misalignment. There are several for some programs and not for others.) legitimate reasons some potentially similar degrees could be deemed not similar by CSU campuses. www.lao.ca.gov Legislative Analyst’s Office 19 An LAO RepORt Figure 5 Acceptance of TMC Varies by CSU Campus and Major  Indicates campus has deemed at least one degree option within the major similar to the Transfer Model Curriculum (TMC). - Indicates the campus does not offer the major, as determined by the CSU Chancellor’s Office.  Indicates campus has deemed all degree options within the major not similar to the TMC. CSU Campusa S o ci ol o g y Art Hi st or y P oliti c al S ci e n P c e h y si c s Hi st or y C o m m u ni c. St u d T i e h s e at er Art s A d mi n. of J u st E i c n e gli s h P s y c h ol o g y St u di o Art B u s. A d mi n. M u si b c El e m e nt ar y E d M b . at h E arl y C hil d h o o G d e E o d l o . g y Ki n e si ol o g y East Bay                   Fullerton                   Humboldt        -           San Francisco                   San Jose                   Sonoma            -    -  - Bakersfield                   Chico                   Long Beach                   Sacramento                   Channel Islands    -   - -   -  -    - - Fresno                   Monterey Bay    -   - -      -   -  Northridge        -           San Luis Obispo  -      -   -   -   -  Pomona     -   -        -  - Stanislaus                   San Marcos        -    -    - -  Dominguez Hills    -  -             Los Angeles                   San Bernardino             - -     San Diego                   a Data as of April 2012. Excludes Maritime Academy, which generally does not offer bachelor’s degrees in majors with a TMC. bResponses for recently developed elementary education and music TMC are still in process. Adopted Definition of Similar Programs Campus faculty would need to work within the Fails to Protect SB 1440 Guarantees. In our view, 60-unit limit, even if they preferred to maintain CSU’s definition of similar programs falls short requirements that could cause students to exceed of the intent behind SB 1440. As envisioned by the unit cap. However, CSU has reversed the the bill’s authors, campuses would (1) identify sequence: campuses are (1) determining which similar programs for purposes of granting priority TMC they can accommodate given the faculty’s admission, and (2) provide a pathway in those curricular choices, and (2) calling programs similar programs for SB 1440 students to earn bachelor’s or not similar based on this determination. This degrees within 60 additional semester units. logic runs counter to the intent of the legislation. 20 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt While many academic departments have made students’ lower-division preparation for a given adjustments to their degree programs to meet the major. This would still allow individual campuses intent of SB 1440, others are choosing to maintain to distinguish and specialize their programs in most of their existing programs intact. As a result, the junior and senior years. The development of many degrees students would reasonably perceive TMC is a commendable step toward common as similar are deemed not similar. understanding. The current process for We have several concerns about this approach. determining similar CSU programs, however, could It further complicates, rather than simplifies, frustrate efforts to achieve a broader consensus. the transfer process for some community college Students Could Be Denied Benefits. Based on students. It permits CSU campuses to maintain the progress to date in matching TMC developed campus-specific requirements for graduation of last year to CSU majors, it appears that a significant transfer students. More fundamentally, it raises number of community college graduates with questions about the meaning of majors when associate degrees for transfer could be denied many campuses are unable to agree on their content or of the benefits of SB 1440 at some CSU campuses. necessary preparation. These students could find that SB 1440’s guarantee Variation Could Be Reduced. Representatives of priority admission and a 60-unit cap at CSU from CSU contend that the richness and comes with a long line of asterisks and a short list complexity of academic disciplines requires a of degree options within their major to which it more nuanced definition of similar programs applies. Students will have to weigh the conditional than the Legislature may have anticipated. While guarantees of SB 1440 (as implemented at some we agree there may be some valid reasons for CSU campuses) against existing articulation and distinctions within majors, for the most part we transfer agreements and other transfer pathways. find this variation and the resulting complexity unclear Whether cSu’s Admission Policy could be reduced, especially in the first two years of Sufficiently Prioritizes SB 1440 Students instruction, without sacrificing academic breadth. Impedes Efforts to Develop Common Although the GPA bonuses of 0.1 and 0.2 Understanding. Numerous international provide some advantage to SB 1440 students, it is organizations and states are engaged in efforts to unclear to what extent they meet the requirement define what a degree in a given field means, on the of SB 1440 to grant students with associate degrees principle that degrees have more value when they for transfer “priority over all other community reflect a common understanding about graduates’ college transfer students.” Following three or knowledge and skills. They reason that this better four admission cycles, we will be able to evaluate serves students, colleges, graduate schools, and the effectiveness of this policy in ensuring these employers. Senate Bill 1440 could move California students access to the CSU system and to their toward greater consensus on the meaning of preferred campuses and majors. degrees by creating common expectations about LAo REcommEndATionS In 1960, California adopted a unique and promised universal access to a baccalaureate framework that sought to forge the state’s higher education. In adopting the Master Plan, the education segments into a coordinated system Legislature envisioned an efficient process www.lao.ca.gov Legislative Analyst’s Office 21 An LAO RepORt for students to transfer from the community intersegmental faculty have made considerable colleges to the state’s four-year institutions. progress in developing TMC. As a result of these Notwithstanding this core principle, however, collaborations, CCC students who successfully transfer course requirements for years have created complete their lower-division major requirements significant obstacles for students. as part of an associate degree for transfer should Since enactment of SB 1440 in 2010, both have confidence that they will be prepared for CCC and CSU have taken a number of positive more-advanced major coursework at CSU. Yet, steps toward creating streamlined transfer while the approximately 25 TMC that are either pathways between the segments. Looking forward, finalized or planned would cover a large share of our review finds that additional work needs to students, that does not help thousands of other be done—by both segments—to achieve the CCC-to-CSU transfer students. We recognize that Legislature’s intended goals. To help ensure that it may be neither feasible nor necessary to develop a happens, we recommend the Legislature provide TMC in every discipline. (In 2010-11, about 70 CSU additional guidance and clarification to CCC majors had ten or fewer CCC students transfer into and CSU on what is expected of them, as well them—8 majors had just one CCC transfer student.) as continued oversight to track their progress. Nevertheless, our review finds that there are still Figure 6 summarizes our recommendations. disciplines with fairly large enrollments without an existing or planned TMC. For example, majors clarify Segmental Responsibilities such as graphic design and public administration under SB 1440 each had more than 200 students transfer into Students Would Benefit From Development them from CCC in 2010-11 (a larger number than of Additional TMC. In less than two years, geology, physics, and art history, each of which has Figure 6 Summary of LAO Recommendations 9 Goal 1: Expand the Number of Majors Covered by Transfer Model Curricula (TMC) • Recommend the Legislature statutorily endorse the TMC approach as the preferred basis for associate degrees for transfer. Consider setting an expectation for the development of additional TMC (such as that TMC disciplines cover at least 90 percent of CCC transfer enrollments at CSU). 9 Goal 2: Increase the Number of TMC-Aligned Associate Degrees for Transfer • Recommend the Legislature clarify in statute that community colleges create an associate degree for transfer in every major they offer that has an approved TMC. Consider establishing a timeline for achievement of full compliance. 9 Goal 3: Maximize the Number of Degree Opportunities at CSU for Students With a TMC-Aligned Associate Degree for Transfer • Recommend the Legislature clarify in statute its expectation that—with limited exceptions—CSU campuses accept TMC-aligned associate degrees for transfer in each of the CSU degree options within a given major. 9 Begin Exploring Potential Next Steps if Legislature’s Goals Are Not Met • Recommend the Legislature begin identifying next steps if the segments fall short of meeting the above goals. Potential actions could include involving external entities to address areas of poor compliance and the loss of some state funding (or increases if goals are exceeded). 22 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt a TMC). We recommend the Legislature statutorily which a campus offers a bachelor’s degree. As our endorse the TMC approach as the preferred basis analysis has shown, thus far the CSU system is for associate degrees for transfer, and perhaps even falling short of realizing that goal. Even if CSU set an expectation for future TMC development— campuses were to achieve one degree option for such as that TMC cover at least 90 percent of every TMC, however, this still could be problematic CCC-to-CSU transfer students. for students. This is because the degree option In cases where there are justified differences might not be one a student is interested in (such within a major based on distinct strands within as corporate management in a business major). a discipline, we believe that developing separate In addition, a degree option that is honored at TMC would be reasonable. These should be very one campus might not be honored at another limited in number, however, to avoid unnecessarily campus with the same concentration—resulting complicating transfer pathways for students, and in confusion and limiting flexibility for students. CCC campuses should clearly identify the strand in We recommend the Legislature clarify its own the resulting TMC. expectation that not just one but—except in limited Define Legislature’s Expectations of instances—every degree option within a major Community Colleges for Degree Creation. While should fit to a TMC. Under this approach, CSU some community colleges are rapidly developing campuses still would have two full academic years associate degrees for transfer, the CCC system still of coursework at the upper-division level to provide has a considerable amount of work to do before students with more-specialized instruction in a the degrees become a widely available option for given discipline. students. Earlier this year, the CCC Chancellor’s Begin Exploring Potential Next Steps if Office expressed its goal that, by the end of 2014, Legislature’s Goals Not Met. We believe that by every community college have an associate clarifying its intent and establishing goals, the degree for transfer in each major it offers where Legislature could help the segments fully realize a TMC exists. We believe that this is consistent what SB 1440 sought to accomplish. In the event with legislative expectations for SB 1440 and that either or both segments fail to stay on track, recommend the Legislature clarify in statute its however, we recommend the Legislature consider intent that community colleges achieve this goal. potential next steps or consequences. This might The Legislature also might consider expressing include commissioning an external academic additional interim goals (such as 90 percent of review of program requirements in areas with majors having an associate degree for transfer by poor compliance and/or limiting state funding mid-2014), so that colleges’ progress can be tracked for campuses or departments that fall short of more closely along the way. expectations. In addition, the Legislature could Establish Expectations for Determination identify potential ways of rewarding colleges for of Similar CSU Degrees. As discussed earlier, the exceeding goals, such as providing additional CSU Chancellor’s Office has set a goal to have at program funding. least one similar degree option in each TMC in www.lao.ca.gov Legislative Analyst’s Office 23 An LAO RepORt 24 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt APPEndix Senate Bill No. 1440 CHAPTER 428 An act to add Article 3 (commencing with Section 66745) to Chapter 9.2 of Part 40 of Division 5 of Title 3 of the Education Code, relating to public postsecondary education. [Approved by Governor September 29, 2010. Filed with Secretary of State September 29, 2010.] LEGISLATIVE COUNSEL’S DIGEST SB 1440, Padilla. California Community Colleges: student transfer. Existing law establishes the 3 segments of public postsecondary education in this state. These segments include the California State University, the campuses of which are adminis- tered by the Trustees of the California State University, the University of California, which is administered by the Regents of the University of California, and the California Community Colleges, which are administered by the Board of Governors of the California Community Colleges. Existing law establishes community college districts throughout the state, and autho- rizes them to provide instruction to students at community college campuses. Existing law, known as the Donahoe Higher Education Act, authorizes the community colleges to grant associate in arts and associate in science degrees. The act also requires the regents, the trustees, and the board of governors to have as a fundamental policy the maintenance of a healthy and expanded program to increase the number of transfer students from community colleges. This bill would enact the Student Transfer Achievement Reform Act, which, commencing with the 2011–12 academic year, would require a student that receives an associate degree for transfer to be deemed eligible for transfer into a California State University baccalaureate program when the student meets prescribed requirements. The bill would condition a community college district’s receipt of state apportionment funds on its development and granting of associate degrees for transfer, unless each of the state’s community college districts waives reimbursement for specified state- mandated costs of implementing the bill in accordance with a prescribed procedure. This bill would prohibit a community college district from imposing any requirements, in addition to these requirements, for a student to be eligible for the associate degree for transfer, and would prohibit remedial noncollegiate level coursework from being counted towards the units required for the associate degree for transfer. 89 www.lao.ca.gov Legislative Analyst’s Office 25 An LAO RepORt This bill would require the California State University to guarantee admission with junior status to any community college student who meets the requirements for the associate degree for transfer. This bill would not guarantee a student admission for specified majors or campuses, but would require the California State University to grant a student priority admission to his or her local California State University campus and to a program or major that is similar to his or her community college major or area of emphasis, as determined by the California State University campus to which the student is admitted. This bill would authorize the California State University to require a transferring student to take additional coursework at the California State University in specified circumstances, and would prohibit the California State University from requiring a transferring student to repeat courses that are similar to those taken at the community college that counted towards the units required for the associate degree for transfer. This bill would also require the Legislative Analyst’s Office to review and report to specified legislative committees and subcommittees, within a prescribed time period, on specified outcomes and recommendations related to this act. By requiring a community college district to grant the associate degree for transfer in exchange for receipt of state apportionment funds, this bill would impose a state- mandated local program. The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish proce- dures for making that reimbursement. This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to these statutory provisions. The people of the State of California do enact as follows: SECTION 1. The Legislature finds and declares all of the following: (a) Since the enactment of the Master Plan for Higher Education in 1960, preparing students to transfer to a four-year university has been a core function of the California Community Colleges. (b) Successful progression from lower division coursework to degree completion is a basic principle of California higher education and is critical to the future of the state’s economy. (c) Currently, the coursework necessary to transfer to a campus of the California State University or the University of California differs from the coursework needed to earn an associate degree. As a result, many transfer students leave the community 89 26 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt college system having completed transfer requirements, but are unable to participate in community college graduation ceremonies, do not have a degree to show for their work, and are ineligible for some awards and scholarships because they did not fulfill current requirements for an associate degree. (d) Today, one in every four jobs requires an associate degree or higher. In the near future, one in every three jobs will require an associate degree or higher. (e) The Public Policy Institute of California projects that California will have one million fewer graduates than it needs in 2025, and that increasing transfer rates from community colleges to four-year postsecondary educational institutions would dramatically reduce the education skills gap. (f) The community college system allows the state to address the serious projected shortage of educated workers. (g) To meet workforce demands in a cost-effective way, incentivizing students to earn an associate degree while preparing for transfer to a four-year college or university, and recognizing that they have completed a transfer preparation course pattern, provides students encouragement and support to complete their overall educational pursuits. SEC. 2. Article 3 (commencing with Section 66745) is added to Chapter 9.2 of Part 40 of Division 5 of Title 3 of the Education Code, to read: Article 3. Student Transfer Achievement Reform Act 66745. This article shall be known, and may be cited as the Student Transfer Achievement Reform Act. 66746. (a) Commencing with the fall term of the 2011–12 academic year, a student who earns an associate degree for transfer granted pursuant to subdivision (b) shall be deemed eligible for transfer into a California State University baccalaureate program when the student meets both of the following requirements: (1) Completion of 60 semester units or 90 quarter units that are eligible for transfer to the California State University, including both of the following: (A) The Intersegmental General Education Transfer Curriculum (IGETC) or the California State University General Education-Breadth Requirements. (B) A minimum of 18 semester units or 27 quarter units in a major or area of emphasis, as determined by the community college district. (2) Obtainment of a minimum grade point average of 2.0. (b) (1) As a condition of receipt of state apportionment funds, a community college district shall develop and grant associate degrees for transfer that meet the require- ments of subdivision (a). A community college district shall not impose any require- ments in addition to the requirements of this section, including any local college or district requirements, for a student to be eligible for the associate degree for transfer 89 www.lao.ca.gov Legislative Analyst’s Office 27 An LAO RepORt and subsequent admission to the California State University pursuant to Section 66747. (2) The condition of receipt of state apportionment funding contained in paragraph (1) shall become inoperative if, by December 31, 2010, each of the state’s 72 community college districts has submitted to the Chancellor of the California Community Colleges, for transmission to the Director of Finance, signed certifi- cation waiving, as a local agency request within the meaning of paragraph (1) of subdivision (a) of Section 6 of Article XIII B of the California Constitution, any claim of reimbursement related to the implementation of this article. (c) A community college district is encouraged to consider the local articulation agreements and other work between the respective faculties from the affected community college and California State University campuses in implementing the requirements of this section. (d) Community colleges are encouraged to facilitate the acceptance of credits earned at other community colleges toward the associate degree for transfer pursuant to this section. (e) This section shall not preclude students who are assessed below collegiate level from acquiring remedial noncollegiate level coursework in preparation for obtaining the associate degree. Remedial noncollegiate level coursework shall not be counted as part of the transferable units required pursuant to paragraph (1) of subdivision (a). 66747. Notwithstanding Chapter 4 (commencing with Section 66201), the California State University shall guarantee admission with junior status to any community college student who meets all of the requirements of Section 66746. Admission to the California State University, as provided under this article, does not guarantee admission for specific majors or campuses. Notwithstanding Chapter 4 (commencing with Section 66201), the California State University shall grant a student priority admission to his or her local California State University campus and to a program or major that is similar to his or her community college major or area of emphasis, as determined by the California State University campus to which the student is admitted. A student admitted under this article shall receive priority over all other community college transfer students, excluding community college students who have entered into a transfer agreement between a community college and the California State University prior to the fall term of the 2012–13 academic year. 66748. (a) The California State University may require a student transferring pursuant to this article to take additional courses at the California State University so long as the student is not required to take any more than 60 additional semester units or 90 quarter units at the California State University for majors requiring 120 89 28 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt semester units or 180 quarter units. Specified high unit majors shall be exempt from this subdivision upon agreement by the Chancellors of the California State University and the California Community Colleges and their respective academic senates. (b) Community college transfer units shall not be applicable to upper division require- ments at the California State University, unless agreed upon by the local Academic Senates of the California State University and the California Community Colleges and the transferred units do not exceed the required 60 semester units or 90 quarter units required pursuant to paragraph (1) of subdivision (a) of Section 66746. (c) The California State University shall not require students transferring pursuant to this article to repeat courses that are similar to those taken at the community college that counted toward the associate degree for transfer granted pursuant to Section 66746. 66749. (a) The Legislative Analyst’s Office shall review and report to the Assembly Committee on Higher Education, the Senate Committee on Education, and the respective education finance budget subcommittees of the Assembly and the Senate in the spring of 2012, an update on the implementation of this article. (b) The Legislative Analyst’s Office shall also review and report to the Assembly Committee on Higher Education, the Senate Committee on Education, and the respective education finance budget subcommittees of the Assembly and the Senate, within four years of implementation of this article, on both of the following: (1) The outcomes of implementation of this article, including, but not limited to, all of the following: (A) The number and percentage of community college students who transferred to the California State University and earned an associate degree for transfer pursuant to this article. (B) The average amount of time and units it takes a community college student earning an associate degree for transfer pursuant to this article to transfer to and graduate from the California State University, as compared to the average amount of time and units it took community college transfer students prior to enactment of this article, and compared to students using other transfer processes available. (C) Student progression and completion rates. (D) Other relevant indicators of student success. (E) The degree to which the requirements for an associate degree for transfer take into account existing articulation agreements and the degree to which community colleges facilitate the acceptance of credits between community college districts, as outlined in subdivisions (c) and (d) of Section 66746. (F) It is the intent of the Legislature that student outcome data provided under this subdivision include the degree to which the California State University was able to 89 www.lao.ca.gov Legislative Analyst’s Office 29 An LAO RepORt accommodate students admitted under this article to a campus of their choice and a major that is similar to their community college major. (2) Recommendations for statutory changes necessary to facilitate the goal of a clear and transparent transfer process, including whether this article should be made applicable to students transferring from community colleges to the University of California. SEC. 3. It is the intent of the Legislature that the requirements placed on community college districts pursuant to this act shall be carried out in the normal course of program development and approval, course scheduling, and degree issuance and shall not represent any new activities or a higher level of service on the part of community college districts. SEC. 4. If the Commission on State Mandates determines that this act contains costs mandated by the state, reimbursement to local agencies and school districts for those costs shall be made pursuant to Part 7 (commencing with Section 17500) of Division 4 of Title 2 of the Government Code. 89 30 Legislative Analyst’s Office www.lao.ca.gov An LAO RepORt www.lao.ca.gov Legislative Analyst’s Office 31 An LAO RepORt LAo Publications This report was prepared by Judy Heiman and Paul steenhausen, and reviewed by steve Boilard. The legislative Analyst’s office (lAo) is a nonpartisan office that provides fiscal and policy information and advice to the legislature. To request publications call (916) 445-4656. This report and others, as well as an e-mail subscription service, are available on the lAo’s website at www.lao.ca.gov. The lAo is located at 925 l street, suite 1000, sacramento, CA 95814. 32 Legislative Analyst’s Office www.lao.ca.gov