California Community Colleges: a Progress Report on the Student Success Act of 2012

California Community Colleges: A Progress Report on the Student Success Act of 2012 MAC TAYLOR • L E G I S L A T I V E A N A L Y S T • JULY 1, 2014 AN LAO REPORT 2 Legislative Analyst’s Office www.lao.ca.gov AN LAO REPORT EXECUTIVE SUMMARY Legislature Requires Community College Improvement Plan. The California Community Colleges (CCC) serve more than 2 million students annually at 112 colleges operated by 72 districts throughout the state. For years, the Legislature has expressed concern about the low completion rates of CCC students. In an effort to promote better results, the Legislature passed legislation in 2010 requiring the Board of Governors (BOG)—the CCC’s state-level governing body—to adopt and implement a comprehensive plan for improving student success. To meet this requirement, the BOG formed a “Student Success Task Force” that ultimately produced a report containing 22 recommendations—all of which were adopted by the board in early 2012. Legislature Passes Student Success Act of 2012 to Support Systemwide Changes. To provide statutory authority for the CCC system to implement four key task force recommendations, the Legislature passed the Student Success Act of 2012—Chapter 624, Statutes of 2012 (SB 1456, Lowenthal). Chapter 624: (1) requires the BOG to establish policies around mandatory assessment, orientation, and education planning for incoming students; (2) permits the BOG to set a time or unit limit for students to declare a major or other specific educational goal; (3) authorizes the BOG to establish minimum academic standards for financially needy students who receive enrollment fee waivers; and (4) establishes the Student Success and Support Program (SSSP). Chapter 624 also includes intent language emphasizing that students not be “unfairly impacted” by the resulting policies adopted by the board. Legislation Has Reporting Requirement for Legislative Analyst’s Office (LAO). In addition, the legislation requires the LAO to provide a status report to the Legislature by July 1, 2014 (and July 1 of every even-numbered year thereafter) on CCC’s implementation of Chapter 624 as well as the overall progress on implementation of the other task force recommendations. This report fulfills the 2014 reporting requirement. Notable Progress Being Made on Implementing Chapter 624. . . Over the past two years, CCC and the state have engaged in a number of efforts to fulfill Chapter 624’s provisions, as highlighted below. • Priority for Classes Granted to Students Completing Assessment, Orientation, and Education Plans. Regulations adopted by the BOG stipulate that, beginning in fall 2014, first-time students receive enrollment (that is, registration) priority if they undergo assessment and orientation and develop an education plan. (First-time students who do not participate in these activities are not permitted to register for classes until open registration.) Colleges are using a number of strategies to accommodate increased student demand for these support services, such as hiring additional counseling staff and creating orientation sessions that students can access online. • Students Required to Declare an Educational Goal Early On. Recent board regulations also require students to identify a specific educational goal either after completing 15 degree-applicable semester units or before the end of their third semester. Beginning in www.lao.ca.gov Legislative Analyst’s Office 3 AN LAO REPORT fall 2015, districts may place a hold on registration for students who do not comply with this requirement. • Academic Standards Adopted for Students Receiving Fee Waivers. In addition, board regulations stipulate that, beginning in fall 2016, students lose their fee waiver if they are placed on college probation for two consecutive terms. (As of this writing, the board is awaiting approval of this regulation by the Department of Finance [DOF], as is required by state law.) • SSSP Augmented. Since Chapter 624 was enacted, the Legislature and Governor have provided substantial augmentations to SSSP—increasing annual funding from $49 million in 2012-13 to $269 million in 2014-15. In addition, the Chancellor’s Office—the administrative arm of the board—has developed a new district allocation formula for SSSP funds based in large part on actual services delivered to students. . . .But Implementation Timeframe for New Enrollment Priority Policy Is Problematic for Many Colleges. We generally find that the regulations adopted by the BOG are in alignment with Chapter 624’s provisions. Based on a recent CCC survey of districts, we are concerned, however, that many colleges will not be able to implement the new enrollment priority policy in a manner that is consistent with legislative intent. Specifically, a potentially large number of first-time students could be denied—through no fault of their own—the opportunity to gain enrollment priority in fall 2014 due to insufficient access to counseling and other support services. In light of this information, we recommend the Legislature direct the Chancellor’s Office to allow districts to delay implementation until they can fully comply with the new requirement. Given the substantial amount of new resources for SSSP in the 2014-15 budget, we believe all districts would be ready to implement the policy in time for the spring 2015 term. CCC System Making Great Strides on Several Other Task Force Recommendations. . . In addition to implementing Chapter 624, the CCC system and state have made notable progress on initial implementation of several other task force recommendations. For example, community colleges have formed regional consortia with school districts to improve delivery of adult education instruction and adopted a new accountability “scorecard.” In addition, the 2014-15 budget package creates a new Chancellor’s Office-led technical assistance program designed to improve system and student performance. . . .With Still Much More to Address and Accomplish. Though the system is well underway in implementing several aspects of the task force report, significant opportunities exist to address other important priorities identified by the task force. In particular, while some initial work has been done, much more progress in the areas of (1) course alignment, (2) basic skills instruction, and (3) professional development will be needed to complement and bolster CCC’s other efforts. 4 Legislative Analyst’s Office www.lao.ca.gov AN LAO REPORT INTRODUCTION Legislature Focuses Significant Attention • Analyze the impact of Chapter 624 on on Student Success at Community Colleges. student “participation, progress, and Community colleges serve more than 2 million completion,” disaggregated by various students annually, accounting for about 70 percent demographic groups. of undergraduate students in California’s • Assess the extent to which the provisions public higher education system. For years, the of Chapter 624 have been implemented Legislature has expressed concern about the low consistent with legislative intent. completion rates of CCC students. In an effort to address system and student performance, • Provide recommendations on whether and in 2010 the Legislature and Governor enacted how implementation of Chapter 624 can be legislation requiring the CCC system to develop improved. a comprehensive improvement plan. In response, the BOG created a Student Success Task Force • Assess the overall progress on that ultimately made 22 recommendations, implementation of the task force’s other all of which were subsequently adopted by the recommendations. board. Shortly thereafter, the Legislature passed Report Fulfills Statutory Requirement. This Chapter 624, which focused on four of the task report fulfills the 2014 reporting requirement. force recommendations—specifically ones relating Below, we provide background on the CCC to strengthening support services for entering system and Student Success Task Force, explain students and creating stronger incentives for Chapter 624’s requirements, and detail CCC’s positive student behaviors. efforts to date in implementing the legislation. (As Legislation Requires LAO to Report on we discuss later, because community colleges have Progress Meeting Chapter 624’s Objectives. not yet fully implemented any of Chapter 624’s Chapter 624 also includes a reporting requirement provisions, this report does not include an analysis for our office. By July 1, 2014 (and July 1 of every of Chapter 624’s impact on students.) We conclude even-numbered year thereafter), the LAO is to: with an assessment of the extent to which the • Provide an update to the Legislature CCC system appears to be (1) complying with on CCC’s implementation to date of Chapter 624 and (2) addressing and implementing Chapter 624, including a summary of other task force recommendations. campus implementation efforts. BACKGROUND This section provides an overview of the CCC governed districts throughout the state. The state system and the Student Success Task Force’s origins provides these governing boards with significant and recommendations. autonomy in matters such as determining course CCC System Components. The CCC system offerings, hiring and compensating campus is made up of 112 colleges operated by 72 locally staff, and managing district property. The BOG www.lao.ca.gov Legislative Analyst’s Office 5 AN LAO REPORT oversees the statewide system. Key functions of certificate had actually achieved such an outcome. the board include setting minimum standards for Subsequent reports from the Chancellor’s Office districts (such as student graduation requirements), found that only 60 percent of students successfully allocating funds, ensuring district compliance with complete their basic skills courses. In response to statutory and regulatory policies, and appointing a these and other concerns, the Legislature passed chancellor to run day-to-day statewide operations Chapter 409, Statutes of 2010 (SB 1143, Liu). at the Chancellor’s Office (located in Sacramento). The legislation required the BOG to adopt and In 2013-14, the CCC system received about implement a plan for improving student success. $7 billion in state operational support (which Chapter 409 also required the BOG to create a task includes state General Fund, local property taxes, force to help develop the improvement plan. and student fee revenues). Student Success Task Force Recommends State Law Establishes “Open Access” Comprehensive Set of Changes to System. To Policy, Identifies Key CCC Missions. Under the meet Chapter 409’s requirements, in January 2011 state’s Master Plan for Higher Education and the board formed the Student Success Task Force. state law, community colleges operate as open The task force was comprised of 21 members access institutions. That is, whereas only the top from inside and outside the CCC system. After one-third of high school graduates are eligible meeting for nearly one year, the task force for admission to the state’s public universities, released Advancing Student Success in California all persons 18 or older may attend a community Community Colleges in December 2011. The college. (While CCC does not deny admission to report acknowledged the need to improve student students, students have no guarantee of access to achievement and contained 22 recommendations a particular course.) Current law defines CCC’s designed to foster greater student success. A key core mission as providing academic and technical focus of the report was strengthening support (vocational) instruction at the lower-division services for students. In particular, the report (freshman and sophomore) level. Under this stressed the importance of getting students to mission, community colleges prepare students identify their specific educational goals (such as a for transfer to four-year institutions and grant program major) as early as possible and develop associate degrees and certificates. Other important a course-taking plan to reach those goals. To statutory missions include providing opportunities that end, the task force report highlighted the for workers to update their job skills and offering importance of CCC’s Matriculation program, precollegiate basic skills (remedial) instruction in which funds assessment, orientation, and English and mathematics. counseling (including education planning) Given Poor Student Outcomes, Legislature services. Other prominent themes in the report Requires CCC to Develop Improvement Plan. are (1) improving the system’s accountability Throughout the mid- and late-2000s, a number reporting system, (2) ensuring that CCC’s course of studies highlighted the relatively low success offerings are aligned with students’ education rates of CCC students. In 2007, for example, the goals, (3) piloting more effective ways of teaching Institute for Higher Education Leadership and math and English to underprepared students Policy found that only about one-quarter of CCC and implementing proven basic skills delivery students who first enrolled in 1999-00 seeking to models systemwide, and (4) providing focused transfer or graduate with an associate degree or and sustained professional development to faculty 6 Legislative Analyst’s Office www.lao.ca.gov AN LAO REPORT and staff. The task force report noted that the recommendations in January 2012 and presented recommendations could be implemented through its plan to the Legislature in February 2012. a variety of means, including statutory changes, To assist in the implementation process, state budget actions, new BOG regulations, and the Chancellor’s Office formed a number of dissemination and adoption of existing best systemwide work groups to provide input and practices by individual colleges. advice on implementation details. As part of The BOG Adopts Task Force this process, the CCC Chancellor’s Office also Recommendations, Turns to Implementation began working with the Legislature on statutory Phase. The board endorsed all 22 task force language, which culminated in Chapter 624 (discussed below). KEY PROVISIONS OF CHAPTER 624 Chapter 624 Addresses Four Student such “policies and processes be developed and Success Task Force Recommendations implemented only as resources are provided and utilized by community college campuses . . . to Chapter 624, which was signed by the ensure that students can successfully meet the Governor in September 2012, provides statutory [resulting] requirements.” authority for the CCC system to implement New Requirements for Declaring an four recommendations from the task force Educational Goal. In addition, Chapter 624 report. Figure 1 (see next page) lists all 22 task authorizes the board to set a time or unit limit force recommendations and identifies the four for students to declare a major or other specific recommendations addressed by Chapter 624. Below educational goal. As with the new Chapter 624 we describe Chapter 624’s four main elements. policies mentioned above, this policy must be New Policies Relating to Assessment, “phased in as resources are available” so that Orientation, and Education Plans. Chapter 624 students have an opportunity to comply with any requires the BOG to establish policies around resulting requirements. mandatory assessment, orientation, and education New Academic Standards for Students With planning for incoming students. These policies Fee Waivers. Chapter 624 also authorizes the must establish an appeals process for students BOG to adopt minimum academic standards for who fail to participate in these services as well as financially needy students who participate in the indicate whether certain students can be exempt BOG fee waiver program. (Please see The 2012-13 from these requirements (such as students who Budget: Analysis of the Governor’s Higher Education already hold a postsecondary degree). Though Proposals for background on BOG fee waivers.) Chapter 624 provides the BOG with considerable Under the new policy, students cannot lose their discretion in crafting specific approaches, the fee waiver unless they fail to meet the established legislation requires the new board policies to be standards for at least two consecutive academic “phased in over a reasonable period of time” and terms. Chapter 624 contains a number of additional take into account available resources “to ensure requirements for this policy, including: (1) a that students are not unfairly impacted.” In “reasonable implementation period” that begins addition, Chapter 624 states legislative intent that www.lao.ca.gov Legislative Analyst’s Office 7 AN LAO REPORT Figure 1 Student Success Task Force Recommendations 1.1. Collaborate with K-12 education agencies to develop common standards for college and career readiness. 2.1. Develop and implement a common assessment system for English and math. 2.2. Require incoming students to participate in assessment and orientation and develop an education plan.a 2.3. Develop and use systemwide technology (such as education planning tools) to better guide students. 2.4. Require students showing a lack of college readiness to participate in support activities. 2.5. Require students to declare a program of study early in their academic career.a 3.1. Adopt systemwide enrollment priorities. 3.2. Require students receiving Board of Governors fee waiver to meet various requirements.a 3.3. Provide students the opportunity to consider attending full time. 3.4. Require students to begin addressing their basic skills deficiencies in their first year. 4.1. Align course offerings with students’ educational goals in areas of transfer, basic skills, and workforce training. 5.1. Support the development of alternatives to traditional basic skills curriculum and take successful models to scale. 5.2. Develop a comprehensive strategy for addressing adult education in California. 6.1. Create a continuum of professional development opportunities for faculty and staff. 6.2. Direct professional development resources toward improving basic skills instruction and support services. 7.1. Develop and support a strong community college systemwide office. 7.2. Set local and statewide student success goals. 7.3. Implement a student success scorecard. 7.4. Develop a longitudinal student record system. 8.1. Encourage categorical program streamlining and cooperation. 8.2. Implement a Student Support initiative.a 8.3. Encourage innovation and flexibility in the delivery of basic skills instruction. a Addressed by Chapter 624, Statutes of 2012 (SB 1456, Lowenthal). no sooner than one year after board adoption other conditions to the fee waiver program (such as of the new standards, (2) adequate notification capping the number of units a student can earn on for students in danger of losing their waiver and a fee waiver). information on available campus support services New Conditions for SSSP. Chapter 624 also to help students maintain their eligibility, (3) a addresses the task force’s recommendation to process whereby students can regain eligibility for reframe and prioritize CCC’s categorical program a fee waiver, and (4) criteria for granting appeals to that funds assessment, orientation, and education students who fail to meet academic and progress planning. Specifically, Chapter 624: (1) renames standards due to “extenuating circumstances.” the Matriculation program the SSSP, (2) calls for Also, in order to “ensure no disproportionate additional funding for SSSP to acquire counselors impact” to students based on their ethnicity and other resources to help students, (3) conditions or other characteristics, Chapter 624 includes districts’ receipt of SSSP funds on both adopting intent language that colleges implement any new a common (systemwide) assessment test and policy only when they have sufficient support providing accountability data to the Chancellor’s and intervention services (such as tutoring) in Office for a new CCC scorecard, and (4) requires place to assist fee-waiver recipients. Other than each community college to create an SSSP plan minimum academic standards, Chapter 624 that contains information such as intervention explicitly prohibits the board from adding any strategies used to help students at risk of academic 8 Legislative Analyst’s Office www.lao.ca.gov AN LAO REPORT failure. (Chapter 624 also requires colleges’ SSSP related to specific task force recommendations, plans to be coordinated with their student equity Chapter 624 requires the board to develop a plans, which under current regulations identify new methodology for allocating SSSP funds to enrollment and achievement gaps among certain districts—from the current allocation model demographic groups as well as strategies for closing based solely on student enrollment to a new model the gaps.) In addition to the above provisions based in part on the number of students actually receiving support services (such as counseling). IMPLEMENTATION OF CHAPTER 624 This section describes actions to date in strong incentive for incoming students to complete implementing Chapter 624’s provisions by (1) the these core activities before they begin their CCC BOG and Chancellor’s Office, (2) campuses, and studies. In July 2013, the board adopted a second set (3) the Legislature and Governor through the state of regulations that goes a step further. Specifically, budget process. beginning in fall 2015, districts are permitted to disallow first-time students from enrolling until Implementation Efforts by BOG they complete required assessment, orientation, and Chancellor’s Office and education planning activities. Both sets of Since 2012, the BOG has adopted several regulations allow districts to exempt certain new regulations related to implementation of students from these requirements, such as students Chapter 624, as described below. who already hold an associate degree or higher, and Assessment, Orientation, and Education require districts to establish written procedures by Plans. Since passage of Chapter 624, the BOG has which nonexempt students can file an appeal for adopted two regulations pertaining to assessment, being denied enrollment priority or enrollment. (In orientation, and education planning for incoming addition to these new regulations, the BOG adopted students. First, in September 2012, the board new enrollment priority policies pertaining to adopted systemwide enrollment (registration) continuing students, as discussed in the box on the priorities for new students. (Please see The next page.) 2011-12 Budget: Prioritizing Course Enrollment Declaration of an Educational Goal. In at the Community Colleges for background July 2013, the board also passed regulations on CCC enrollment policies.) Beginning in requiring students to complete a comprehensive fall 2014, first-time CCC students are given education plan (which includes identifying a enrollment priority if they (1) undergo assessment, specific educational goal) either after completing (2) participate in orientation, and (3) develop an 15 degree-applicable semester units or before the initial education plan (which typically includes end of their third semester (whichever comes first). students’ broad educational objective, such as The regulations permit districts to establish a an associate degree or certificate). First-time shorter period for completion of this requirement. students who do not participate in these services Beginning in fall 2015, districts may place a hold on are not allowed to register for classes until open registration for students who do not comply with registration. The intent of this policy is to provide a the requirement. www.lao.ca.gov Legislative Analyst’s Office 9 AN LAO REPORT Enrollment Priority Policy for Continuing Students Task Force Recommends New Systemwide Enrollment Priority Policy for Continuing Students. As we discuss in The 2011-12 Budget: Prioritizing Course Enrollment at the Community Colleges, historically community colleges have decided for themselves the order in which students are permitted to register for classes. These local policies tended to give earliest registration privileges to continuing students with the most units—regardless of their academic performance and whether they were making progress toward their educational goals. To address this issue, the Student Success Task Force called for changing systemwide enrollment priorities to encourage more successful student behaviors. Adoption and Implementation of New Enrollment Priority Policy for Continuing Students. In response to the task force’s recommendation, in September 2012 the Board of Governors adopted a new enrollment priority policy affecting continuing students. Under the new systemwide regulations, which go into effect in fall 2014, continuing students get enrollment priority if they have fewer than 100 degree-applicable semester units and are in good academic standing. Students who accumulate 100 or more degree-applicable semester units or are placed on college probation for two consecutive terms lose their enrollment priority. The regulations permit districts to modify these systemwide requirements under certain circumstances and require districts to establish procedures by which students can appeal the loss of priority enrollment status. Academic Standards for Fee Waivers. In campus programs available to them to remain in January 2014, the board adopted regulations that good academic standing (such as counseling or require students to meet minimum academic referral to other support services). Districts also standards to retain a fee waiver. Specifically, must inform students that those who lose their beginning in fall 2016, students lose their fee fee waiver can regain eligibility when they are waiver if they have been on college probation for no longer on probation. The board regulations two consecutive semesters. (As we discuss in The further require districts to establish policies and 2013-14 Budget: Analysis of the Higher Education procedures for students who appeal the loss of Budget, community colleges are required to place their fee waiver due to extenuating circumstances students on probation who, after attempting at (such as an illness or evidence they were unable least 12 units, either have a grade point average to access needed campus support services). As of below 2.0 or receive a “withdrawal,” “incomplete,” this writing, the board is awaiting approval of this or “no pass” mark on 50 percent or more of regulation by the DOF (as is required by state law). total attempted units.) The regulations exclude SSSP Plans and New Funding Allocation foster youth and former foster youth from this Formula. In July 2013, the board adopted a set requirement. To provide adequate notification to of regulations relating to SSSP. Under these students, the regulations require districts to begin regulations, the Chancellor’s Office is authorized notifying students of the new policy following the to require colleges to provide “periodic updates” of spring 2015 term. As part of this and subsequent their SSSP plans. (The Chancellor’s Office has set an notifications, districts must inform students about October 2014 deadline for colleges to submit their 10 Legislative Analyst’s Office www.lao.ca.gov AN LAO REPORT initial SSSP plans.) In addition, the regulations students to identify the courses they need to fulfill charge the Chancellor’s Office with developing the requirements for a particular major or program. new methodology for allocating SSSP funds. In A few colleges report having hired classified staff mid-2013, the Chancellor’s Office finalized the new or student interns to train incoming students on allocation formula, which distributes 40 percent of how to use the education planning software. By funds based on student enrollment and 60 percent getting students to start thinking earlier about based on the number and type of services their educational goals and familiarizing them with (assessment, orientation, education planning, and online planning tools, these staff can help expedite other specified counseling activities) provided. To the process when students meet with an academic implement the new allocation formula and ensure counselor. In addition, a large number of colleges matriculation services are collected and tracked have developed online orientations to supplement consistently across districts, the Chancellor’s Office traditional face-to-face sessions. Colleges also created new data elements in its information system report expanding outreach activities to local high and has provided detailed instructions to districts schools, whereby graduating seniors have an on how such services are to be coded and reported. opportunity to undergo assessment, orientation, The new SSSP funding formula will go into effect and education planning on their high school beginning in 2015-16. campus. Heightened Attention to Reporting Data Implementation Efforts by Colleges Properly. For many years, colleges have been As described below, community colleges have required by the Chancellor’s Office to provide been engaged in a number of efforts to comply data on the number of support services provided with Chapter 624 and associated regulatory and to students. These data are publicly available on administrative requirements. the Chancellor’s Office’s website. Despite this Colleges Using Various Strategies to Expand requirement, historically many colleges have not Support Services to Students. Though advised to collected or provided accurate data (such as the do so by colleges, historically many incoming CCC number of counseling sessions provided). As noted students have not participated in matriculation earlier, Chapter 624 requires a new allocation services. The new regulatory policy that links formula that is based in part on the number and enrollment priority for first-time students to type of services actually delivered to students. The completion of assessment, orientation, and an new formula goes into effect in 2015-16 and will be education plan, however, has increased students’ based on services provided by colleges in 2014-15. demand for these support services. According To increase the likelihood they receive the amount to a May 2014 survey by the CCC Chief Student entitled to them, colleges used 2013-14 to check the Services Administrators Association (hereafter accuracy of the data they collect and report to the referred to as the “Student Services Association”), Chancellor’s Office’s information system. colleges are using a number of strategies to expand State Budget Actions in their support services. Colleges generally have Support of Chapter 624 hired more counselors to meet with students and develop education plans. In addition to hiring As noted earlier, Chapter 624 identified more counseling staff, a number of colleges have additional funding for SSSP as a high state priority. acquired online education planning tools that allow Since that time, the Legislature and Governor have www.lao.ca.gov Legislative Analyst’s Office 11 AN LAO REPORT augmented funding for SSSP as well as several 2014-15 Budget Further Augments SSSP other student support programs, as discussed Funding. The 2014-15 Budget Act provides a below. substantial amount of additional resources for 2013-14 Budget Augments Funding for SSSP. Specifically, the budget includes $170 million SSSP, Carves Out Funding for New Technology for SSSP, bringing total funding for the program Projects. The 2013-14 Budget Act provided a to $269 million. Of the $170 million, $100 million $50 million increase for SSSP—bringing annual is allocated to districts in support of all students, funding for the program to $99 million (back consistent with existing practice. The remaining up to about the 2008-09 peak level). Provisional $70 million is allocated to serve “high need” (such language permitted the Chancellor’s Office to use as low-income) CCC students. The Chancellor’s up to $14 million of this augmentation for new Office is tasked with developing a methodology for statewide technology projects, including an online allocating these monies to districts. The intent is common assessment system. The 2013-14 budget for districts to use these additional funds to provide also provided a total of $38 million (22 percent) supplemental services—beyond the base services in funding augmentations for three other CCC provided by regular SSSP dollars—to reduce any student support programs: Extended Opportunity achievement gaps identified by colleges in their Programs and Services, Disabled Students student equity plans. (The Chancellor’s Office has Programs and Services (DSPS), and the California required colleges to complete their equity plans Work Opportunity and Responsibility to Kids by November 2014.) The budget also provides an program. additional $30 million (36 percent) for DSPS. LAO ASSESSMENT OF IMPLEMENTATION TO DATE In this section, we assess (1) the extent to I mplementatIon of C hapter 624 which the CCC system is meeting the intent of Regulations Generally Reflect Chapter 624’s Chapter 624 as well as (2) the overall progress Provisions. . . Based on our review, we generally on implementation of the other Student Success find that associated regulations adopted by Task Force recommendations. As noted in the the board are in alignment with Chapter 624’s “Introduction,” Chapter 624 also includes a provisions. As discussed below, we are concerned, requirement for the LAO to analyze and assess however, that CCC will not be able to implement how the statute’s various provisions have affected the new enrollment priority policy in a manner that CCC students’ access and success, disaggregated is consistent with legislative intent. by various demographic groups. Because the . . .But Meeting Fall 2014 Requirement community colleges are still in the planning and Identified as a Problem by Many Colleges. The initial implementation phases, such data are not yet various new policies adopted by the BOG go into available and thus are not included in this report. effect at different times over the next few years. The first such implementation period is this fall, when first-time students must participate in assessment, orientation, and education planning services 12 Legislative Analyst’s Office www.lao.ca.gov AN LAO REPORT as a condition of receiving priority enrollment. and the overall system. Chapter 624 addressed In May 2014, the Student Services Association four of those recommendations. In addition to surveyed districts on their readiness to meet this working to implement those recommendations, the requirement. Of the approximately one-half of CCC system and state have made notable progress CCC’s 72 districts that responded to the survey, on initial implementation of several other task 56 percent indicated they anticipated being able to force recommendations, particularly as regards provide such services to all first-time students in adult education and accountability reporting. In the fall. The remaining 44 percent of respondents addition, the 2014-15 budget package creates a indicated that they anticipated they would be able new CCC technical assistance program, which to provide most—but not all—first-time students addresses another task force recommendation. with these services. A number of respondents cited (In recent years, the CCC system has adopted insufficient staffing levels as a barrier to complying and implemented some other notable changes not with this policy. part of the Student Success Task Force report, as Recommend Legislature Direct Chancellor’s described in the box on the next page.) Office to Delay Implementation for Some Districts Adult Education Until Spring 2015. As noted earlier, Chapter 624 gives the BOG considerable discretion to adopt Task Force Calls for Rethinking Adult policies around assessment, orientation, and Education System. Citing a “fractured system,” education plans. The statute does include intent the Student Success Task Force called for enhanced language, though, that any students affected coordination by adult education providers. Though by such policies be able to meet such new the task force did not recommend a specific requirements. Based on the May 2014 survey delivery model, it called on the community results, we are concerned that a potentially large colleges, school districts (through their adult number of first-time students could be denied— schools), and community-based organizations through no fault of their own—the opportunity to “develop a clear strategy to respond to the to gain enrollment priority due to insufficient continuum of need in order to move students access to counseling and other support services. from educational basic skills to career and college In light of this information, we recommend the readiness.” Legislature direct the Chancellor’s Office to allow CCCs Are Key Participants in Development districts to delay implementation until they can of New Adult Education Program. In an effort fully comply with the new requirements. Given the to create a more coordinated system, the 2013-14 2014-15 budget provides a substantial amount of budget package created the “Adult Education new resources for SSSP, we believe that all districts Consortium Program.” The 2013-14 Budget Act would be ready to implement the new policy in provided $25 million to regional consortia for time for the spring 2015 term. the purpose of creating integrated program plans. (These planning grants are available for n p C o otable rogress on ertaIn ther expenditure through 2014-15.) The 2013-14 budget t f r ask orCe eCommendatIons package also includes intent language for the As noted earlier, the Student Success Task Legislature to appropriate a significant amount Force report included a comprehensive set of of new funding to these consortia in 2015-16 to recommendations for improving student outcomes “expand and improve” adult education in the state. www.lao.ca.gov Legislative Analyst’s Office 13 AN LAO REPORT Other Recent Efforts to Improve Efficiency and Outcomes In addition to implementing several specific Student Success Task Force recommendations, the California Community College (CCC) system has undertaken other efforts consistent with the task force’s overall emphasis on improving statewide efficiencies and student outcomes. CCC Regulations on Retaking Classes. In recent years, the Board of Governors (BOG) has enacted changes designed to reduce excess course-taking by students, thereby encouraging students to focus on completing their courses and potentially freeing up space for other students. In July 2011, the BOG approved a regulation that reduces the number of times community colleges are eligible to receive state support for students who (1) fail to pass a course or (2) enroll but then drop the course. In July 2012, the BOG adopted another regulation that prohibits community colleges from receiving state support for re-enrollments in certain “activity” courses (such as physical education). Major Transfer Initiative. In 2010, the Legislature adopted Chapter 428, Statutes of 2010 (SB 1440, Padilla), to improve the efficiency of transfer from community colleges to California State University (CSU). The legislation requires community colleges to create two-year (60 unit) degrees (known as “associate degrees for transfer”) that are fully transferable to CSU. A student who earns such a degree is automatically eligible to transfer to the CSU system. Once admitted, these transfer students need only complete two additional years (60 units) of coursework to earn a bachelor’s degree. As of May 2014, community colleges have created a total of 1,300 associate degrees for transfer, an average of about 12 such degrees per college. According to a recent report by the Chancellor’s metrics were generally sound, it concluded that the Office and California Department of Education, system’s accountability reporting system could be CCC’s 72 districts and 281 school districts have refined. Specifically, the task force recommended a formed a total of 70 consortia. (Four CCC districts scorecard that (1) uses a reader-friendly, web-based combined into two consortia.) These consortia are format; (2) tracks outcomes for a broader set currently developing joint plans for serving adult of students; and (3) disaggregates outcomes by learners in their area. demographic groups, including race/ethnicity. The task force further recommended that the Scorecard and Performance Goals Chancellor’s Office set annual statewide targets for Task Force Recommends Revised the scorecard metrics, as well as assist community Accountability System. Chapter 581, Statutes of colleges with setting their own local targets. 2004 (AB 1417, Pacheco), requires the Chancellor’s CCC System Adopts New Scorecard, Looks Office to submit an annual report to the Legislature to Setting Performance Goals. To address these and Governor that includes system- and college- recommendations, the CCC Chancellor’s Office level performance data. The Chancellor’s Office convened a technical advisory group, which was released the first report, known as Accountability made up of members from inside and outside the Reporting for the Community Colleges (ARCC), in system. The Chancellor’s Office unveiled the new March 2007. While the Student Success Task Force scorecard in April 2013. The scorecard, which found that the ARCC report and performance is available on the Chancellor’s Office’s website, 14 Legislative Analyst’s Office www.lao.ca.gov AN LAO REPORT has six performance metrics (disaggregated by state’s other two public higher education segments, age, gender, and race/ethnicity). In addition, the the Chancellor’s Office exercises the least amount scorecard contains other system- and college-level of influence over campuses within its system. data, such as student-to-counselor ratios. (As While this focus on local decision-making has discussed in the nearby box, the Chancellor’s Office its advantages, the task force concluded that a has developed a companion information system key downside is that the system lacks a “robust that provides wage data of CCC graduates in an mechanism” for sharing best practices and assisting effort to guide students’ education and career colleges in need of help. To enhance state-level planning.) The 2014-15 budget package includes support for colleges, the task force recommended requirements for state and local goal-setting a stronger Chancellor’s Office that, among other related to the scorecard. Specifically, trailer duties, would provide technical assistance and legislation requires the Chancellor’s Office to disseminate best practices throughout the system. adopt prior to 2015-16, and annually thereafter, 2014-15 Budget Creates New Program for systemwide targets for the scorecard metrics. Chancellor’s Office. The 2014-15 budget package In addition, as a condition of receiving SSSP addresses the task force’s recommendation funds, community colleges must adopt their own by creating a new system of support for the targets prior to 2015-16 (and annually thereafter). community colleges. Specifically, the budget As part of a larger augmentation pertaining to provides $1.1 million for nine new positions technical assistance (discussed below), the budget (including the position mentioned above) at the also provides funding for a new position in the Chancellor’s Office. These positions are charged Chancellor’s Office to help develop and monitor with various functions, including identifying CCC progress toward and achievement of those and disseminating best practices in several areas targets. of operations (including academic affairs and student support services) and overseeing local New Technical Assistance Program technical assistance teams. The budget provides for Community Colleges an additional $2.5 million for these teams to Task Force Recommends More Active Role provide technical assistance to CCCs. Under the for Chancellor’s Office in Assisting Colleges. The new program, districts or colleges will be able task force report noted that, compared with the to request assistance directly or the Chancellor’s New California Community College (CCC) Wage Database In June 2013, the Chancellor’s Office introduced a new database called “Salary Surfer.” By linking with Employment Development Department wage records, Salary Surfer allows the public to view the aggregated median earnings of CCC students who earn a certificate or associate degree and then enter the workforce. (Community college graduates who continue their studies by transferring to a four-year institution are not included in the database.) Earnings can be disaggregated by college and educational program. The data show the annual earnings of CCC graduates two years prior to earning an award, then two and five years after graduating. The purpose of the new database is to help students make informed decisions about the program of study they choose. www.lao.ca.gov Legislative Analyst’s Office 15 AN LAO REPORT Office can initiate intervention. In either case, the programs. We believe that much greater progress in intent is for Chancellor’s Office staff to contract these areas is necessary to complement and bolster with teams of community college experts (such as the other efforts discussed in this report. leading faculty) that can help community colleges Aligning Course Offerings With requiring additional support. Beginning in 2015-16, Students’ Education Goals the Chancellor’s Office must provide an annual report to the Legislature and DOF on prior-year use Task Force Calls for a Strategic Approach. of these funds. Community colleges are given wide discretion to choose which courses and programs to offer n s : a a ext teps ddressIng ddItIonal to students each year. The Student Success Task t f p ask orCe rIorItIes Force acknowledged, however, that these decisions Much Progress Has Been Made to Date. . . are not always made in ways that optimize the Over the past few years, community colleges, with availability of courses that students require to the support of the Legislature and Governor, have meet their academic and career goals. Instead, the adopted a number of measures designed to increase task force report notes that colleges rely primarily student achievement. As this report has detailed, on “historical course scheduling patterns” and to date the CCC system has focused on key task continue to offer state-funded classes that are force principles such as expanding support services, recreational in nature and may not support creating stronger incentives for successful student student education plans. To address these issues, behaviors, increasing collaborations with other the task force called for community colleges to educational providers that serve adult learners, and “strategically focus the scheduling of classes” to establishing a new role for the Chancellor’s Office advance student goals in the system’s core missions of setting performance goals and overseeing local of transfer education, basic skills, and workforce assistance efforts. Overall, we believe the CCC training. The task force noted that improving system is off to a solid start. alignment of course offerings with student demand . . .With Still Much More to Address and is particularly important given the task force’s Accomplish. While the system has made notable emphasis on consequences for students failing progress in addressing several aspects of the task to meet certain requirements (such as declaring force report, significant opportunities exist in a program of study within a defined period of addressing other important priorities identified time). As part of this focus on reprioritizing by the task force. Below, we discuss three key courses, the task force recommended that the areas from the task force report in which, while Chancellor’s Office collaborate with CCC faculty some initial work has been done, much more and administrators to develop strategies and best focused and sustained efforts will be required in practices for aligning course offerings with student the near future to fully address the task force’s education plans. The task force also recommended associated recommendations. Specifically, we the Chancellor’s Office consider changing CCC highlight: (1) aligning course offerings with regulations to specify that courses not in support students’ education goals, (2) improving basic of student education plans should not be funded skills instruction, and (3) supporting CCC faculty with state monies. Instead, such noncore classes and staff with effective professional development should be moved to fully fee-based “community education” or other local programs. 16 Legislative Analyst’s Office www.lao.ca.gov AN LAO REPORT Limited Work Accomplished to Date, failed to work for them in high school.” Rather, the CCC Still Aims to Address Task Force task force called on community colleges to pilot Recommendations. In response to the task force’s innovative ways of teaching basic skills instruction recommendations, the Chancellor’s Office formed and “take to scale” successful models already an “Alignment of Course Offerings Committee” used by some colleges. These approaches include in 2012. The committee was made up of 25 CCC contextualized learning, whereby students are faculty, students, and administrators. The taught math or English in a way that references committee held a two-day meeting in November “real world” situations (such as students’ life 2012, with the purpose of reviewing CCC best experiences or interests in a vocational field) practices and strategies related to scheduling and the use of learning communities, in which courses to meet student demand (including using small groups of students are taught a common, data from student education plans to guide course coordinated set of courses for a semester. To offerings). The committee expressed the goal of foster innovation, the task force recommended eventually producing a report but did not meet the Chancellor’s Office develop an alternative after that initial meeting. Recently, the Chancellor’s funding model that provides districts with a lump Office has experienced several vacancies in its sum for designated cohorts of basic skills students Academic Affairs division (the division in charge based on what districts would have earned for of the committee). The Chancellor’s Office has the same students under the standard funding indicated, though, that it still hopes to issue a model (which is driven by the number of student report sometime during the coming year. instructional hours provided). The intent behind this proposed funding approach is to encourage Basic Skills Instruction colleges to devise new ways of teaching basic skills The Challenge of Educating Underprepared (such as compressing basic skills curricula into Students. The task force acknowledged that one fewer semesters and supplementing in-classroom of the major problems facing the CCC system instruction with intensive tutoring or other support concerns providing effective basic skills instruction services). Under the task force’s recommendation, to students. The task force noted that the vast districts’ continued participation in this alternative majority of students who enter the community funding arrangement would be conditioned on colleges arrive unprepared for college-level work demonstrating improved student success rates. The in reading, writing, or math. In addition, relatively task force also recommended that the Chancellor’s few of these students reach proficiency during their Office target a portion of funds from the Student time at CCC. Success for Basic Skills Students categorical Task Force Recommendations for Fostering program (hereafter referred to as the “basic skills Effective Practices. Research on basic skills initiative”) for faculty redesign of curriculum. (Any suggests that traditional teaching models—which changes to current funding models would require tend to rely heavily on lecture-based formats and statutory authority.) repetitive drills involving abstract concepts—are California Continues to Wrestle With Issue. generally ineffective. For that reason, the task Like other states, California’s community colleges force report emphasized that community colleges continue to struggle with ways of fundamentally “cannot simply place students into classes that improving success rates of underprepared use the same mode of instructional delivery that students. In an effort to help colleges identify best www.lao.ca.gov Legislative Analyst’s Office 17 AN LAO REPORT practices, the Chancellor’s Office published an program since the early 2000s.) The task force online resource, “Basic Skills Completion: The acknowledged, however, that “professional Key to Student Success in California Community development activities have tended to focus on Colleges,” in September 2013. The document short-term programs and one-time workshops describes various basic skills programs and projects rather than providing sustained engagement within the CCC system that have demonstrated with ideas and processes that . . . have a greater increased success rates. Though exemplary chance of bringing about real change.” To address cases such as these exist, the Chancellor’s Office these shortcomings, the task force recommended acknowledges that the traditional instructional that community colleges create a focused and approach is still the prevalent model offered ongoing system of professional development for to CCC students. As regards the task force’s all faculty, staff, and administrators. To implement recommendation on alternative funding models this overarching recommendation, the task force for basic skills, the Chancellor’s Office has not requested the Chancellor’s Office, in cooperation yet developed or considered any proposals. with the Academic Senate and other relevant Chancellor’s Office officials have expressed their CCC organizations, identify best practices for hope to begin studying the matter later this year. professional development—particularly around In the process of developing a 2014-15 budget, both basic skills education. The task force also called houses of the Legislature approved a $3 million on the Chancellor’s Office to recommend specific augmentation for the basic skills initiative along purposes for flex days to ensure that they are used with provisional language for colleges to use the effectively and to consider alternative ways that funds to “adopt and scale-up evidence-based professional development could be delivered (such models of remediation” that advance student as by encouraging regional collaboration and using progression through basic skills. The appropriation technology). and provisional language, however, were omitted Professional Development Committee from the final budget. Issues Report. In response to the task force recommendations, the Chancellor’s Office Professional Development formed a 30-member “Professional Development Task Force Recommends Greater State-Level Committee” in fall 2012. After meeting a number Leadership on Professional Development. The task of times, in September 2013 the committee released force report also stressed the importance of staff a report containing seven recommendations. The training in improving student outcomes. The task committee reiterated the desirability of offering force noted that colleges use a variety of sources professional development opportunities to all CCC to fund faculty and staff training. These include employees and recommended the establishment earmarked funding from the basic skills initiative, of a statewide “Community College Professional outside grants, and district general operating funds Development Program” that would be funded by a for faculty “flex days” (paid time for instructors set-aside from the system’s base budget. to engage in various professional development Committee Recommends Additional activities). (Statute establishes a “Community Study. The committee report did not include College Faculty and Staff Development Fund” specific guidelines and best practices for for professional development purposes, though professional development. Instead, the committee the budget has not provided funding for the recommended convening a “systemwide advisory 18 Legislative Analyst’s Office www.lao.ca.gov AN LAO REPORT committee” to develop guidelines and criteria to access professional development resources. for implementing and evaluating professional The committee presented its findings and development activities. The committee report recommendations to the BOG in September 2013. also recommended the formation of a “virtual To date, however, neither the systemwide advisory professional development resource center” at the committee nor the virtual center have been created. Chancellor’s Office that would be charged with (Assembly Bill 2558 [Williams], which is sponsored identifying and disseminating best practices by the Chancellor’s Office, would address one of (including what constitutes “acceptable” and “not the professional development’s recommendations acceptable” professional development practices). by changing the name of the Community College In addition, the committee report envisions Faculty and Staff Development Fund to the the virtual center as a “one-stop shopping Community College Professional Development environment” for colleges and their employees Program. The bill does not include any funding for the program.) CONCLUSION At the direction and with the support of the Office to allow districts to delay implementation of Legislature, the CCC system has made a number the new enrollment priority policy for incoming of changes over the past few years designed to students from fall 2014 to spring 2015. This would improve student achievement. Though these allow all campuses to be positioned to inform and student support policies and practices are support new students. In addition, while the system still in the early stages of development and is well underway in implementing several key task implementation, overall we believe the system is force recommendations, additional work needs on the right track. To ensure community colleges to be done to address other important priorities, comply with legislative intent, however, we particularly in the areas of course alignment, basic recommend the Legislature direct the Chancellor’s skills, and professional development. www.lao.ca.gov Legislative Analyst’s Office 19 AN LAO REPORT LAO Publications This report was prepared by Paul Steenhausen and reviewed by Jennifer Kuhn. 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. 20 Legislative Analyst’s Office www.lao.ca.gov