California Community Colleges: Interim Evaluation of Baccalaureate Degree Pilot Program

California Community Colleges: Interim Evaluation of Baccalaureate Degree Pilot Program MAC TAYLOR LEGISLATIVE ANALYST DECEMBER 19, 2017 analysis full gutter AN LAO REPORT LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT Executive Summary Background Legislature Authorizes Community Colleges to Offer Bachelor’s Degrees on a Pilot Basis. Chapter 747 of 2014 (SB 850, Block) authorizes the California Community Colleges (CCC) to offer bachelor’s degrees on a pilot basis at 15 community college districts. Generally, community colleges are limited to offering associate degrees and certificates, with the awarding of bachelor’s degrees reserved for the state’s universities. Under Chapter 747, each pilot community college district may offer one bachelor’s program at one college site. Programs must be in a subject area with unmet bachelor’s level workforce needs. Additionally, the programs were to be selected in consultation with the California State University (CSU) and the University of California (UC) to ensure a district does not duplicate a bachelor’s degree already offered by one of the universities. Participating districts were required to begin enrolling students by fall 2017. Pilot to Be Evaluated in 2018 and 2022. Chapter 747 requires our office to conduct an interim evaluation of the pilot program in 2018 and a final evaluation in 2022. This report fulfills the interim evaluation requirement. Chapter 747 sunsets July 1, 2023 unless a later statute deletes or extends that date. Evaluation CCC Made Rapid Progress in Implementing Pilot. Within four months of Chapter 747’s enactment, the Chancellor’s Office selected 15 programs through a competitive process and received preliminary approval for the programs from the CCC Board of Governors. All programs received final approval within another four months. Ten of the pilot degree programs began enrolling students in fall 2016 and all 15 programs enrolled students in fall 2017. Accelerated Approval Process Resulted in Limited Review and Consultation. The rapid approval process required that CCC leaders make decisions about the proposed bachelor’s degrees with substantially less information than routinely provided for new community college programs. Moreover, consultation with the universities was very limited and CCC approved some degree programs over CSU’s objections. Only Some Approved Programs Have Strong Evidence of Need for Bachelor’s Degrees . . . A majority of the approved bachelor’s programs are in fields where the typical entry-level requirement is below a bachelor’s degree. Moreover, for most of the approved programs, state licensing and industry certification do not require a bachelor’s degree. Some of the approved programs in health careers, however, have stronger workforce justification due to increasing accreditation requirements in their fields. . . . But Local Employers and Students Are Positive About the Programs. Notwithstanding the lack of evidence supporting the need for some of the programs, the local employers and students we interviewed cited various reasons for liking them. They emphasized that the programs (1) were more convenient than other bachelor’s degree programs, (2) provided more nuanced job preparation tailored to local needs, (3) fostered close relationships with employers that were resulting in internship opportunities and early job offers for students, and (4) promoted better job retention due to hiring locally trained students. www.lao.ca.gov 1 analysis full gutter AN LAO REPORT Discontinuation of Some Associate Degree Programs a Concern. Most of the pilot colleges indicate that they plan to continue offering related associate degrees alongside their new bachelor’s degrees. Four colleges, however, are discontinuing their existing associate degrees in favor of offering only their new bachelor’s degrees. With one exception (occupational studies), we see no justification for discontinuing these programs. Concerns About Current Evaluation and Sunset Provisions. Under the current provisions, very little student outcome data will be available at the final evaluation date to help ascertain whether the program is effective. This is because colleges would stop admitting students several years ahead of the sunset date to ensure the students can complete their degrees while the program remains authorized. Extending the sunset date, however, would have a major drawback. A longer enrollment period would work to further engrain the program in the status quo, potentially making terminating the pilot more difficult even if the outcome data show that the pilot was ineffective. To allow for a more robust evaluation without entrenching the program for many years, the Legislature simultaneously could permit colleges to continue enrolling new students through the fall 2021 term and move up the final evaluation one year—to 2021 from 2022. Initial Student Cohorts Demographically Similar to CCC Students Who Transfer to Universities. This finding could imply either that the pilot is expanding access to bachelor’s degrees or shifting student demand away from the universities. Students we interviewed generally indicated they are place-bound and unable to move for a university program, thus suggesting that the program is expanding access. With respect to financial aid, the share of CCC pilot program students receiving need-based aid is similar to the shares for CSU and UC undergraduates. Financial Data Needs Significant Improvement. Although our office worked closely with the CCC Chancellor’s Office to identify financial data reporting requirements, the initial financial data reports that CCC submitted in September 2017 had a number of problems. The problems we encountered are common to the first round of data collection for a new program. Nonetheless, the data problems are such that we are unable to draw meaningful conclusions about institutional and student costs. The CCC Chancellor’s Office has committed to working closely with our office to improve data collection for the remainder of the implementation period. Issues for Legislative Consideration Interim Findings Suggest Caution in Extending Pilot. Since enactment of Chapter 747, the Legislature has faced pressure to expand the bachelor’s degree pilot program. Given numerous concerns about program selection and consultation, a lack of any graduation or workforce outcomes to date, and problems in financial reporting, the Legislature may wish to exercise caution in expanding the bachelor’s degree pilot program in advance of the final evaluation. Fundamental Questions Remain. As the Legislature thinks more about the future of the pilot, it continues to face five fundamental questions: (1) Are bachelor’s degrees detracting from CCC’s core mission? (2) Could improved collaboration between CCC and CSU yield better results than CCC independently offering more bachelor’s degrees? (3) Is a bachelor’s degree the best solution for addressing certain employers’ needs? (4) If more bachelor’s programs are warranted, to what extent should they include content that overlaps with university courses, especially if such overlap means students are trained for a broader range of jobs? (5) What should be the role of employers in training workers? 2 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT INTRODUCTION State law authorizes the California Community requirement. Below, we provide background on Colleges (CCC) to award associate degrees and CCC’s role in California’s higher education system certificates, generally limiting the awarding of more and describe the main components of the statewide advanced degrees to the state’s universities. As pilot program. We then (1) describe and evaluate the an exception to this rule, Chapter 747 of 2014 selection of the pilot bachelor’s degree programs, (SB 850, Block) authorizes CCC to offer baccalaureate (2) provide initial information about students (bachelor’s) degrees on a pilot basis at 15 community participating in the pilot programs, and (3) discuss college districts. Chapter 747 requires the Legislative the financing of these programs. We conclude by Analyst’s Office to conduct an interim evaluation of identifying issues for the Legislature to consider as the the pilot program. This report fulfills that statutory 15 colleges continue implementing the pilot program. BACKGROUND In this section, we provide background on In the ensuing years, the Legislature added remedial undergraduate education and then describe the (basic skills) instruction, adult noncredit instruction, main components of the pilot program created by community education, and economic development as Chapter 747. additional CCC statutory responsibilities. Recent Legislation Created Exception to Undergraduate Education Longstanding Mission Differentiation. In a departure Key Distinction Between Lower-Division and from the segments’ longstanding delineated missions, Upper-Division Courses. Introductory undergraduate Chapter 747 authorized the CCC bachelor’s degree courses, called lower-division courses, are designed pilot. Chapter 747 specified that the 15 districts primarily for freshmen and sophomores (though juniors selected for the pilot maintain their primary CCC and seniors also may take them). Completing a series mission as articulated in previous legislation while of these courses at a community college can lead adding another mission—to provide high-quality to workforce certificates, associate degrees, and/or bachelor’s degrees at an affordable price for students transfer to a university. Upper-division courses are and the state. (As discussed in the box on the next designed for juniors and seniors. These courses often page, community college bachelor’s degrees are build on students’ knowledge from lower-division becoming increasingly common in other states.) courses, providing more specialized and in-depth Main Components of Pilot Program study. Bachelor’s degrees include both lower- and upper-division courses, with the latter typically Objectives. Chapter 747 indicates a need to comprising at least one-third of degree requirements produce additional skilled workers with bachelor’s (40 out of 120 semester units). degrees to (1) maintain the state’s economic Aspects of Undergraduate Education Assigned competitiveness, (2) meet workplace demand for higher to Community Colleges and Universities. The levels of education in applied fields, and (3) address Donahoe Act—Chapter 49 of 1960 (SB 33, Miller)— unmet student demand for education beyond the directed CCC to offer instruction “through but not associate degree in certain disciplines. The legislation beyond” the first two years of college, including courses also states that community colleges could give designed for workforce training, associate degrees, place-bound local students and military veterans the and transfer to universities. By comparison, the act opportunity to earn a bachelor’s degree. assigned both lower- and upper-division coursework Programmatic Requirements. Chapter 747 requires to the two university systems—the California State the CCC Board of Governors to select no more University (CSU) and the University of California (UC). than 15 districts to each offer a single bachelor’s www.lao.ca.gov 3 analysis full gutter AN LAO REPORT program at one college within the district. Each pilot currently $46 per unit. Bachelor’s degree students degree program must (1) be in a subject area with taking upper-division courses pay the $46 per unit documented, unmet, bachelor’s-level workforce needs general course enrollment fee plus a supplemental in the region and (2) not duplicate a bachelor’s degree $84 per unit fee, bringing the total charge for or curriculum that one of the state’s public universities upper-division courses to $130 per unit. already offers. Moreover, the Board of Governors is to Financial Aid. Under Chapter 747, financially select the pilot degrees in consultation with CSU and needy students in CCC bachelor’s degree programs UC. The pilot degree programs are to begin no later can receive a California College Promise Grant than the 2017-18 academic year, and students who (previously called a Board of Governors Fee Waiver) enroll in the programs must complete their degrees by covering general course enrollment fees, but not the the end of the 2022-23 academic year, by which time supplemental upper-division course fee. Students freshmen entering in 2017-18 would have had six years who qualify for a Cal Grant can receive a tuition award to graduate. fully covering upper-division fees. Cal Grant-eligible Funding and Fees. Chapter 747 specifies that students also can receive up to $4,672 annually for state funding for the pilot programs is at the same nontuition costs through a combination of Cal Grants funding rate per full-time equivalent student as other and state-funded grants for full-time CCC students. CCC credit courses ($5,310 in 2017-18). Bachelor’s (Beyond state aid, students can apply for federal Pell degree students taking lower-division courses pay the Grants—up to $5,920 in 2017-18—and federal student same general course enrollment fee as other students, loans.) Community College Bachelor’s Degrees Community College Bachelor’s Degrees Are a Relatively Recent Phenomenon. A handful of community colleges in the country began offering bachelor’s degrees in a few selective disciplines in the 1970s and 1980s. The number of community colleges offering bachelor’s degrees grew slowly but steadily over the next couple of decades. In 2001, 21 community colleges in 11 states offered 128 bachelor’s degrees. Since 2001, the trend has gained steam. In 2017, 86 community colleges in 16 states offered more than 400 bachelor’s degrees. In addition to these 16 states, another state recently authorized community colleges to offer three bachelor’s degrees, currently under development. More Than Half of Community College Bachelor’s Degrees Are Applied. The most common types of community college bachelor’s degrees are bachelor of applied science, bachelor of applied technology, and career-specific degrees, such as bachelor of science in nursing or bachelor of social work. Applied degrees typically contain relatively more workforce courses and fewer general education courses (such as social sciences and humanities) than the standard bachelor of science or bachelor of arts degrees. Applied degrees are intended to prepare graduates to enter the workforce directly after completing the assigned course of study. Extent to Which Community Colleges Grant Bachelor’s Degrees Ranges Widely Among States. The majority of states still do not allow their community colleges to offer bachelor’s degrees. Among the 16 states currently offering community college bachelor’s degrees, most authorize three or fewer colleges to offer the degrees, and these colleges typically offer between 1 and 4 types of bachelor’s programs. A few of these states provide broader authority. Florida, for example, allows all its community colleges to offer bachelor’s degrees, resulting in a total of 222 programs at 24 colleges. Five States Have Stopped Offering Community College Bachelor’s Degrees. In these states, institutions that previously offered the degrees (1) no longer offer them, (2) offer them only jointly with a university, or (3) still offer them but have been institutionally reclassified and are no longer considered community colleges. 4 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT Application Requirements. Chapter 747 also funding the program. In addition, districts were to submit specifies the written information a district had to submit a written policy requiring all potential students who when applying to participate in the pilot program. The wish to apply for a fee waiver to complete and submit a district was required to document unmet workforce federal financial aid application (or a corresponding state needs and justify the need for the proposed four-year application for certain noncitizen students). degree; document its consultation with CSU and Evaluation and Sunset. In addition to the interim UC regarding collaborative approaches to meeting evaluation of the pilot program, Chapter 747 requires regional workforce needs; describe the pilot program’s our office to complete a final evaluation by July 1, 2022. curriculum, faculty, and facilities; provide enrollment Chapter 747 sunsets July 1, 2023 unless a later statute projections; and provide a plan for administering and deletes or extends that date. EVALUATION In this section, we describe and evaluate CCC’s Applications Included Labor Market Data and process for selecting the pilot degrees. We also Employer Testimonials. As part of the application describe characteristics of the students enrolled in process, the Chancellor’s Office assisted districts by the new programs. We conclude with a review of how obtaining standardized data from the state Employment colleges are financing the new degree programs. Development Department (EDD) on earnings and projected employment growth for occupations related PROGRAM SELECTION to each proposed bachelor’s degree. In addition, applicant districts were required to submit supplemental Below, we describe the CCC’s selection criteria information justifying the need for their proposed and application review for the new bachelor’s degrees, degrees. Most districts submitted summaries of discuss CCC’s consultation process with CSU and discussions with local employers and/or licensing UC, and detail CCC’s approval and initiation of the new requirements related to their proposed degrees. For degrees. some districts, however, the advent of bachelor’s degrees in the identified disciplines is new. As a Selection Criteria and result, traditional labor market data does not exist. Application Review To document workforce demand for these degrees, applicant districts instead relied on testimonials from Application Specified Selection Criteria. The employers and position statements from professional Chancellor’s Office released the application form to associations and accrediting bodies. districts in November of 2014, with applications due the following month. By the application deadline, nearly half Review Team Scored Applications and Made of districts had submitted applications. The first round, Recommendations to CCC Leadership. To select however, did not yield 15 approved pilot programs. The the pilot districts, the Chancellor’s Office assembled Chancellor’s Office, in turn, conducted a second round a review team of 29 members. Twenty reviewers of applications from March to April 2015, receiving were community college administrators and faculty 14 additional applications. The application form for both from districts that did not apply for the pilot and thus rounds listed the criteria and point values for selecting had no apparent conflict of interest. The remaining pilot programs, summarized in Figure 1 (see next nine team members consisted of three statewide page). Applications scoring fewer than 75 points (out of Academic Senate representatives, three Chancellor’s a possible 100) did not qualify for consideration. Among Office administrators, two California Department of those with qualifying scores, the Chancellor’s Office Education program consultants, and a UC campus indicated it would consider geographic distribution and articulation officer. Although CCC solicited reviewers diversity of the proposed programs. from the Intersegmental Committee of the Academic Senates (which includes representatives from all three higher education segments), no CSU representatives www.lao.ca.gov 5 analysis full gutter AN LAO REPORT Figure 1 Selection Criteria Criteria Main Considerations Points Need for Degree • Evaluation of student interest and community support. 25 • Statement supporting necessity of the proposed four-year degree. • Summary of labor market and employer demand for the proposed degree. Program Design • Outline of how the proposed degree will build on existing degrees 25 and provide access for prospective students in the community. • Five-year enrollment and graduate projections. • Evidence of lack of duplication with UC and CSU degrees. • Proposed curriculum, including examples of potential courses. Institutional Management • Track record of effective academic management. 20 and Commitment • Track record of effective fiscal management. • Identification of sufficient program administration and support staff to run pilot program. Identified Resources • Availability of funding, qualified instructional faculty, and facilities. 20 Overall Feasibility • Programmatic, administrative, and fiscal feasibility. 10 Total 100 participated. Each of the 29 reviewers completed a submitted the list of recommended programs. The web-based training to promote consistency in scoring CSU Chancellor promptly notified CCC that CSU had applications. Each reviewer then scored three or four concerns about all but three of the recommended applications, with each application scored by at least programs, pending further information and review. (CSU three reviewers. Based upon these scores, the review had no concerns about a mortuary science program team gave the Chancellor’s Office recommendations or two dental hygiene programs.) The CSU Chancellor regarding which programs to select for the pilot. also noted that the university would need through February to fully respond, given the timing of the Consultation With CSU and UC request between terms (when systemwide and campus CSU Chancellor’s Office Initiated Consultation Academic Senates are not in session). With CCC. To document nonduplication of university CSU Formally Objected to Three Degrees. programs, applicant districts generally looked at After securing additional information from CCC about university websites and catalogs and talked with the recommended degree programs, CSU formally faculty from nearby university campuses. No formal objected in March 2015 to two degrees—automotive consultation among the segments, however, was technology at Rio Hondo College and interaction design built into CCC’s initial selection process. CSU voiced at Santa Monica College—based on duplication of concern about the lack of consultation in December CSU curriculum. CSU also noted that four degrees— 2014 and, in response, CCC provided the universities in biomanufacturing, emergency services and allied a preliminary list of recommended degree programs in health, respiratory care, and occupational studies—had early January 2015. The material CCC submitted to the some duplication requiring additional collaboration to universities included brief descriptions of each of the mitigate. The second round of applications and related recommended programs. (See Figure 2 for a timeline consultation in April followed a similar pattern: CCC of associated application, consultation, and approval transmitted information about one new recommended steps.) program (biomanufacturing at Solano College) and CSU Requested Additional Information and Time. requested feedback within three business days. CSU CCC initially requested feedback from CSU regarding formally objected to the Solano College proposal based degree duplication within three business days of having on duplication of CSU curriculum. 6 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT Board of Governors Approval (2) completion of the consultation process with CSU and UC. At the March 16, 2015 Board of Governors Fifteen Bachelor’s Degrees Initially meeting, the Chancellor’s Office recommended and the Recommended, 12 Approved. Based primarily on board granted final approval for 12 of the 15 degrees. review scores (using the average of the top three scores Of the three applications not given final approval, for each application), the CCC Chancellor’s Office two involved CSU objections and the third (from recommended 15 applications for initial approval at the Crafton Hills College) was withdrawn due to a district January 20, 2015 Board of Governors meeting. The accreditation issue. board granted initial approval, pending (1) additional Second Round Yielded Three More Approved labor market information from the 15 colleges and Degrees. At the Board of Governors May 18 meeting, Figure 2 Timeline Application and Approval Process Date Consultation CCC Chancellor's Office released 11/21/2014 Application to Participate. 34 colleges submitted applications by deadline. 12/19/2014 Applications reviewed and scored. 1/7/15 Initial CCC Chancellor's Office consultation with CSU Chancellor's Office: list of recommended programs, each described in a few sentences. Feedback requested by Monday, 1/12/15. 1/9/15 CCC prioritized some of the proposals to review first. 1/13/15 CSU identified possible duplication with most of the proposals. CSU requested more information, asserted need to extend its review through February for faculty input, and asked about timing for feedback on the remaining proposals. 1/15/15 CSU Chancellor reiterated need for more time to provide feedback. Chancellor's Office recommended and Board of 1/20/15 Governors granted initial approval for 15 degrees. 3/2/15 Of the 15 proposals, CSU noted no objection to 9; some duplication that could be mitigated in 4; and serious objections to 2. CCC agreed to withhold Chancellor's Office recommended and Board of 3/16/15 recommendation on the 2 disputed proposals at Governors granted final approval for 12 degrees. March Board of Governors meeting. Chancellor's Office reissued Application to Participate. 3/19/15 14 colleges submitted applications by deadline. 4/16/15 4/22/15 CSU Academic Senate Chairs called on CCC and CSU Chancellor's Offices for meaningful and deliberate consultation on newly proposed degrees. 4/28/15 CCC forwarded 1 new application (from second round) to CSU, requested feedback within 3 business days. 5/13/15 CSU identified duplication in the new proposal and maintained its objections to the 2 previously disputed proposals. Chancellor's Office recommended and Board of 5/18/15 Governors granted final approval for 3 degrees. www.lao.ca.gov 7 analysis full gutter AN LAO REPORT the Chancellor’s Office recommended, and the Board of of the new bachelor’s degree programs. The Governors granted, final approval for the two degrees recommendations addressed student admission from the first round to which CSU objected and one criteria, curricular requirements, faculty qualifications, additional degree from the second round, to which and student support services. The Board of CSU also objected. Figure 3 summarizes the approved Governors adopted the recommended policies at its bachelor’s degree programs, and Figure 4 lists the March 2016 meeting in the form of a Baccalaureate programs not selected, along with the reasons given for Degree Pilot Program Handbook to be maintained by denying those applications. the Chancellor’s Office. Board of Governors Adopted Policies and First Students Admitted One Year Ahead of Regulations. Through an extensive series of Required Timeline. Ten of the 15 bachelor’s degree workshops, meetings, and conferences, the CCC programs enrolled their first students in fall 2016. The Academic Affairs division, the Academic Senate of the remaining five enrolled their first students the following CCC, and the 15 selected pilot colleges developed year, in fall 2017. policy recommendations to guide development Figure 3 Approved Bachelor’s Degree Programs Program Community College Associated Jobs Airframe Antelope Valley Lead technician for aerospace manufacturing or guided missile and space Manufacturing manufacturing, industrial production manager, or aerospace engineering or Technology operating technician. Automotive Rio Hondoa A range of management positions in the automotive industry, including jobs Technology in general operations, sales and marketing, training, technical writing, and purchasing. Biomanufacturing MiraCosta and Solanoa Technician, inspector, analyst, or coordinator in production and quality management for companies fabricating products through biological processes. Dental Hygiene Foothill and Registered dental hygienist. Also could work in research, education, management, West Los Angeles public health, and businesses related to dental health. Equine and Ranch Feather River Farmers, ranchers, agricultural managers, animal scientists, food science Management technicians, farm management advisors, veterinary assistants, animal breeders. Health Information San Diego Mesa and Shasta Registered health information (medical records) administrator or technician. Also Management could work in medical coding and reimbursement, professional education, information systems, data analysis, practice management, quality management, risk management, and compliance. Industrial Automation Bakersfield Technologist, technician, or managerial-track positions in production and logistics (warehousing and transportation) facilities. Interaction Design Santa Monicaa Designer, developer, or architect for products and systems (including software, processes, and physical spaces). Includes graphic designer, software developer or engineer, and web designer. Mortuary Science Cypress Licensed funeral director, embalmer, crematory manager, cemetery manager, or cemetery broker. Also could work in cemetery sales, insurance sales, or mortuary management. Occupational Studies Santa Ana Certified occupational therapy assistant. Also could work as a clinical educator, lifestyle coach, activities director, or behavioral aide. Respiratory Care Modesto and Skyline Certified or registered respiratory care therapist or technician. Also could work in health care management, clinical education, research, patient case management, home health, or health care sales. a Board of Governors approved in second round on May 18, 2015. All other programs approved March 16, 2015. 8 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT ASSESSMENT OF specify how CCC should measure and prioritize workforce demand. Two measures the state commonly PROGRAM SELECTION uses to prioritize workforce development spending Below, we evaluate the evidence of workforce are (1) average occupational wages and (2) projected demand for the approved CCC degree programs and employment growth. Wage data from EDD show discuss concerns about the CCC consultation and higher-than-average earnings in several occupations approval processes. related to the approved degrees. For example, the data show that industrial production managers, Workforce Demand dental hygienists, and health services managers earn higher-than-average wages. Additionally, EDD Some Approved Programs Might Be in High employment projections show higher-than-average Workforce Demand Areas. Chapter 747 does not Figure 4 Bachelor’s Degree Programs Denied Program Community College Reasons Given for Denial Agricultural Food Safety—Fresh Produce Hartnell Accreditation concerns Allied Health Educator Southwestern Geographic distribution Applied Research and Data Analytics Pasadena Citya Below minimum score and duplication Applied Technology in Viticulture Allan Hancock Duplication with CSU Automotive Technology Administration Evergreen Valleya Accreditation concerns Automotive Technology and Management San Jose Evergreen Accreditation concerns Biology Laboratory Science (Evening/Weekend) Berkeley Citya Duplication with CSU Biomanufacturing Solano Accreditation concerns Community Corrections Golden West Below minimum score/accreditation concerns Cybersecurity Technician Coastlinea Duplication with CSU Dental Hygiene Fresno City Below minimum score Dental Hygiene Oxnarda Disciplineb Dental Hygiene Fresno Citya Disciplineb Diagnostic Medical Sonography Merced Below minimum score Diagnostic Medical Sonography Merceda Below minimum score Educator for Allied Health Professionals Southwesterna Duplication with CSU Electron Microscopy San Joaquin Delta Fiscal management concerns Electron Microscopy San Joaquin Deltaa Below minimum score Emergency Services & Allied Health Systems Crafton Hills Accreditation concerns Histotechnology Mt. San Antonioa Geographic distribution Manufacturing Processing & Design Yuba Below minimum score/accreditation concerns Network Information Technology College of the Canyons Geographic distribution Network Technology College of the Canyonsa Below minimum score and duplication Public Safety Administration Lake Tahoe Duplication with CSU Real Estate Appraisal Glendale Geographic distribution Respiratory Therapy Ohlone Disciplinec Respiratory Therapy Napa Disciplinec Sustainable Environmental Design/Human Habitat Saddleback Geographic distribution Sustainable Human Habitat Saddlebacka Below minimum score and duplication Sustainable Facilities Management and Operations Laney College Below minimum score Technical Supervision and Management Ventura Geographic distribution Water Utilities Management Cuyamacaa Did not document strong student interest Workplace Safety and Environmental Management Cuyamaca Geographic distribution a Second-round application. b Two dental hygiene programs were selected in first round. c Another respiratory therapy program in same region scored higher. www.lao.ca.gov 9 analysis full gutter AN LAO REPORT employment growth for dental hygienists, software manufacturing and some of the other industrial and web developers, and occupational therapy technology areas. Moreover, the application did not assistants, among others. In several other pilot degree require information about supply of graduates to program areas, however, statewide average wages compare to projected demand. In at least one discipline or employment growth are not particularly high (see (dental hygiene), schools in the state already appear to Figure 5). Wages are not high in equine and ranch be producing sufficient numbers of graduates to meet management or funeral service, for example, and are or exceed employer demand. only average for several of the other degree program Most Approved Programs Are in Workforce areas. Employment growth is not high in airframe Areas Not Requiring Bachelor’s Degrees. Figure 6 Figure 5 Some Degrees Are in Areas With Relatively High Wages and Growtha Above Statewide Degree Related Occupations Median Wages Average Growth Airframe Manufacturing Technology Aerospace engineering and operations technicians Industrial production managers Automotive Technology Sales engineers General and operations managers Service technicians and mechanics Biomanufacturing Medical and clinical laboratory technologists Dental Hygiene Dental Hygienists Equine and Ranch Management Farmers, Ranchers, and Other Agricultural Managers Funeral Service Morticians, undertakers, and funeral directors Health Information Management Medical and health services managers Medical records and health information technicians Industrial Automation Industrial engineering technicians Industrial production managers Interaction Design Software application developers Web developers Graphic designers Occupational Studies Occupational therapy assistants Respiratory Therapy Respiratory therapists a Source: Employment Development Department. The figure shows median wages in first quarter 2014 and projected employment growth from 2012 to 2022. For comparison, median annual wage was $53,569 and projected employment growth was 15 percent for all occupations statewide. 10 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT summarizes education requirements for state licenses degree to qualify for licenses and certifications. The and industry certifications in the pilot bachelor’s figure also includes the typical entry-level education degree fields. As the figure shows, a majority of the requirement, as identified by the federal Bureau of fields do not require individuals to hold a bachelor’s Labor Statistics (BLS), for occupations associated with Figure 6 Most Approved Degrees Are in Fields That Do Not Require Bachelor’s Degree Bachelor’s Degree Required for Degreea State License or Industry Certification? Typical Education for Occupationsb Airframe No. Associate degree or certificate for technicians. Bachelor’s degree Manufacturing (usually in business or engineering) for managers. Technology Automotive No. Associate degree or certificate for service technicians and mechanics. Technology Bachelor’s or master’s degree in business for managers. Biomanufacturing Associate degree or certificate for lab Associate degree or certificate for lab technicians. Bachelor’s degree technicians. Bachelor’s degree for (typically in biomedical engineering or related field) for engineers, biological technologist or scientist license. biological technicians, technologists, and technical writers. Similar for optional industry certifications. Dental Hygiene No. Associate degree for practicing hygienists. Bachelor’s and master’s degrees for hygienists in education, research, public health, and administration. Equine and Ranch No. No degree for most occupations, but Bureau of Labor Statistics notes Management increasing need for associate or bachelor’s degree as farm and land management has grown more complex. Health Information Associate degree for certified health Associate degree or certificate for medical records technician, Management information technician. Bachelor’s Bachelor’s or master’s degree for management. degree for certified health information administrator. Industrial Automation More experience (ten years instead of five) Certificate for equipment installer/repairer. Associate degree or required for industry certification without certificate for technician. Bachelor’s degree for engineering and bachelor’s degree. management occupations. Interaction Design No. Associate degree for web developer. Bachelor’s degree for software developer and graphic designer. Funeral Service No. Associate degree for funeral service workers. Additional hands-on training (during or after associate degree program) under the direction of a licensed professional for morticians, undertakers, and funeral directors. Occupational Studies National accrediting agency will require all Associate degree for occupational therapy assistant. occupational therapy assistant education programs to offer a B.S. as the entry-level degree beginning in 2027. Respiratory Therapy National accrediting agency will require Associate degree for respiratory therapist. new respiratory therapist education programs to offer a B.S. as the entry-level degree beginning in 2018, but will permit existing programs to continue awarding the associate degree. a All are Bachelor of Science degrees (B.S.). b As defined by the federal Bureau of Labor Statistics based on a variety of qualitative and quantitative sources. www.lao.ca.gov 11 analysis full gutter AN LAO REPORT the approved CCC bachelor’s degrees. To determine Local Employers and Students Cite Liking the the entry-level education requirement, BLS considers Approved Programs for Various Reasons. Through a variety of factors for each occupation, including the site visits conducted as part of our analysis, we met minimum educational requirements in existing law and with local employers and students at six of the pilot employer survey data. According to BLS, the entry-level campuses. These stakeholders presented various education requirement is below the bachelor’s degree reasons for liking the approved community college level for all but one of the pilot-related occupational bachelor’s degree programs: areas. (In one area—automotive technology—the • Better Job Retention. Employers—especially figure reflects a higher education requirement because outside of major coastal and metropolitan areas— the pilot district maintains that its degree prepares cited their preference for hiring locally trained students expressly for management occupations.) residents instead of importing engineers and other The lack of a bachelor’s degree requirement for skilled workers who might be more likely to leave entry-level jobs in most areas is not surprising, given the area within a few years. Chapter 747 required CCC to select disciplines in • Convenience of Education Program. Similarly, which universities do not offer a comparable degree. In many of the students we interviewed told us they some occupational areas, however, BLS descriptions are unable or unwilling to relocate due to family indicate advancement opportunities for individuals with or other obligations. Many of these students a bachelor’s degree. indicated they never expected to pursue a Approved Programs in Health Careers Have bachelor’s degree until their local community Strongest Workforce Justification. Seven of the college began offering one. The availability of approved pilot programs are related to health careers. the degree at a familiar and local institution Though none of the health-related programs currently encouraged them to raise their educational requires a bachelor’s degree for entry-level positions, aspirations. some reasons exist for offering a bachelor’s degree • More Nuanced Job Preparation. Employers for three of the four careers (health information reported that the new degrees are giving students managers, respiratory therapists, and occupational the necessary skills for work requiring more than a therapy assistants). The reasons are rooted in the certificate or associate degree but less than some related health careers’ licensing, certification, or traditional bachelor’s degrees. “An engineering accreditation rules. For health information, graduates degree without calculus” is how an employer can become certified technicians with an associate characterized one of the degrees, noting that degree, but national certification as a health information the average student in the pilot program likely administrator (or manager) requires a bachelor’s degree. would not have sought a traditional engineering Similarly, beginning in 2018 for respiratory therapists degree from a university or returned to the local and 2027 for occupational therapy assistants, the community if he/she had. accreditor for clinical education programs no longer will approve schools that do not offer the bachelor’s • More Advanced Education. Nearly all the degree as the entry-level credential. Existing respiratory students we interviewed identified they were therapy schools will be grandfathered under the learning valuable communication, critical thinking, new rules, enabling them to continue awarding the and collaboration skills they had not learned in associate degree. The rate at which employers their associate degree programs. shift to hiring respiratory therapists with bachelor’s • Early Job Offers. Finally, numerous employers degrees will depend on the extent to which existing, and students noted that students in the new CCC associate-level education programs voluntarily convert programs had secured job commitments up to a to bachelor’s-level programs. We found no comparable year ahead of graduating, often after completing justification for offering bachelor’s degrees in dental a summer internship related to their degree. They hygiene. Employment openings overwhelmingly offered this as evidence that the CCC bachelor’s require only an associate degree, and employers degrees have workforce value. we interviewed offered no wage differential or hiring preference for candidates with a bachelor’s degree. 12 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT Discontinuation of Some Associate Degree Approval Process Programs a Concern. Most of the pilot colleges Abridged Program Approval Process. The CCC indicate that they plan to continue offering related Board of Governors granted initial approval for the pilot associate degrees alongside their new bachelor’s bachelor’s degrees within one month of CCC receiving degrees. Four colleges, however, are discontinuing proposals. This is in stark contrast to CCC’s regular their existing associate degrees in favor of offering program approval process. The standard approval only their new bachelor’s degrees. These are Foothill process for a new CCC workforce certificate or degree and West Los Angeles Colleges for dental hygiene, typically takes between 18 and 24 months to complete Modesto College for respiratory therapy, and Santa and involves many steps. The main reason cited for the Ana College for occupational studies. We found no expedited approval process was that not all colleges evidence of employer need, licensing, certification, could participate in the pilot and colleges did not want or accreditation requirements to justify discontinuing to invest substantial time in program design if they the dental hygiene or respiratory therapy associate were not likely to be selected for the pilot. Given these degree programs. These programs can help students issues, the Board of Governors conducted its selection gain initial employment, and often state licensing or process before colleges invested time and effort to certification, and can serve as feeders to bachelor’s fully develop the new programs and seek required degree programs. (Moreover, Skyline College, which local approvals. Only after being selected did colleges offers a respiratory therapy bachelor’s degree similar to complete curriculum development and secure local Modesto College, is maintaining its associate degree approvals and Chancellor’s Office classification. in this area.) We have somewhat less concern about Accelerated Timeline Resulted in Limited Review. Santa Ana converting its occupational studies program By shortening the review and approval process, CCC to the bachelor’s degree because its accreditor has leaders had to make decisions about the proposed announced that within ten years it will no longer bachelor’s degrees with substantially less information accredit associate degrees for occupational therapy than routinely provided for new certificates and assistants. associate degrees. Most notably, the pilot application Value of Providing Management and Technical did not require colleges to have completed the local Training Together Unclear. Several of the curriculum development and review process. Instead, approved bachelor’s degree programs (including the application required examples or illustrations of airframe manufacturing, automotive technology, upper-division coursework for the proposed degree. biomanufacturing, and industrial automation) The application also did not require colleges to submit documented demand for mid-level managers who also other information typically required for new programs, have technical skills. Historically, employers in these including program goals and objectives, information industries either have hired management graduates about similar programs (such as programs in other and provided them the necessary technical training or states), or endorsements from an advisory committee encouraged talented technical employees to return to and regional workforce consortium. Moreover, with a school for a management degree. The pilot colleges in one-month turnaround, the Chancellor’s Office and these disciplines believe that by providing the technical application review team did not have sufficient time and management training together, they can better to validate the information submitted and assess the meet the needs of these industries. It remains to be workforce value of the proposed degrees. Although seen how employers will view graduates with these colleges eventually received local curriculum approval degrees, compared with graduates from general as they further developed their programs, local review management programs. Perhaps more importantly, bodies likely would have found it awkward, at best, to it is unclear to what extent the preparation students delay or deny a program on curricular grounds following accrue from the industry-specific bachelor’s degrees Board of Governors approval for the program. are generalizable into other industries such that workers can be resilient in a dynamic economy, potentially transferring their management skills among industry sectors. www.lao.ca.gov 13 analysis full gutter AN LAO REPORT Consultation Process of a product of software application from a user’s perspective). This is a topic available in some CSU art, CCC Fell Short in Meeting Consultation industrial design, and computer science departments, Requirements. The absence of time allotted for but not as an organized concentration or major at the consultation in CCC’s approval timeline, the three-day undergraduate level. response time requested from the universities, and . . . But Process Damaged Relationship Between approval in January and May 2015 of degrees to Segments. Though CCC campuses ultimately worked which CSU had formally objected based on evidence to mitigate curricular duplication, the hurried approval of curricular duplication, indicate that CCC did not process resulted in significant tension between CCC give the required consideration to the consultation and CSU. This tension has complicated intersegmental process. Public statements from CCC suggest that, efforts the past two years. In his public remarks before while the system initially expected to have meaningful bringing final program approval to a vote in May consultation with the universities, it came to believe it 2015, the Board of Governors Chairman lamented needed only to notify the universities of its decisions. the truncated consultation process and noted that In a November 2014 board meeting, for example, the any future expansion of the pilot, if approved by the CCC Chancellor said Chapter 747 gives the universities Legislature, should build in more robust and meaningful a “de facto veto,” requiring that CCC work with the collaboration with the universities. universities to ensure nonduplication. By the time of the May 2015 meeting, however, CCC administration STUDENT PARTICIPATION and faculty leadership contended that only consultation rather than consensus with the universities was Below, we describe student applications, required. admissions, and enrollment in the pilot programs Final Program Development Mitigated Some and provide information on the characteristics of Duplication . . . Though CCC came to believe it did participating students. Student outcome data are not require CSU buy-in, it still pledged to work with not yet available. The first student outcome data will CSU to mitigate concerns about duplication. For become available following the spring 2018 term. example, in Rio Hondo College’s application to offer an Depending upon how colleges and the Legislature automotive management degree, the college had listed respond to the sunset provision in Chapter 747, a number of upper-division business courses similar CCC will have between two and five years of student to those CSU campuses offer, such as “Sales and graduation, employment, and earnings outcomes by Marketing Strategies and Techniques” and “Business the time of the 2022 final evaluation, as discussed in and Managerial Finances.” The final curriculum for the the nearby box. program, however, includes only courses tailored to Majority of Applicants Accepted for Admission. the automotive industry, such as “Digital Marketing for To date, 863 students have applied for admission to the Automotive Industry” and “Standard Accounting the 15 CCC bachelor’s degree programs. Figure 7 Systems of the Automotive Service Industry.” Similarly, shows 564 of these students have been admitted and the Santa Monica College interaction design degree 482 have enrolled. Admission rates for the first two differs from related graphic design degrees at CSU years of the pilot vary notably among programs, ranging by focusing more on “user experience” (design Figure 7 Program Admission and Enrollment Rates Academic Year Applicants Admitted Admission Rate Enrolled Enrollment Rate 2016-17a 381 235 62% 206 88% 2017-18b 481 329 68 273 83 Totals 862 564 65% 479 85% a Ten programs admitted students. b Fifteen programs admitted students, but totals exclude Solano College which did not provide data in time for publication. 14 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT from 28 percent to 100 percent. Enrollment rates also the new CCC bachelor’s degrees made some students vary among programs, ranging from 47 percent to ineligible for admission to the programs. Specifically, 100 percent of admitted students enrolling. the policies require that CCC bachelor’s degrees adopt Applications Relatively Low in Most Programs. the intersegmental lower-division general education Colleges reported two main reasons for suppressed requirements recognized by CSU and UC—typically demand in the first two years. Some colleges received 39 semester units of general education in specified final program approvals (including accreditation) shortly subject areas. One college reported that more than before the application cycle and thus had limited time 200 of its associate degree students expressed strong to publicize their new programs. Additionally, some interest in applying to the college’s bachelor’s degree colleges noted that systemwide policies and regulations program, but only 23 applied, with the vast majority regarding lower-division general education courses for of the students not qualifying to apply because they The Effect of the Sunset Provision on Program Evaluation Under the Existing Sunset Provision, Colleges Might Enroll No More Freshmen. Most California Community College transfer students and California State University students take five or six years to complete a bachelor’s degree. If community colleges participating in the pilot program believe they should allow up to six years for entering freshmen to complete the bachelor’s programs, the colleges would need to stop admitting freshmen now. In this case, the pilot program would have only two freshman cohorts (2016-17 and 2017-18), with the first of those cohorts reflecting only a partial class (as only 10 of the 15 pilot programs were operative that year). Moreover, these first two cohorts each had low enrollment levels. Drawbacks to Halting Enrollment at This Time. Halting admissions this early would result in very little student outcome data being available for the final evaluation to help ascertain whether the program is effective. Halting admissions early also could be problematic if the Legislature later decides to extend the pilot. When a program is paused, specialized faculty hired for the program might accept another assignment, creating a temporary staffing problem for the pilot program and necessitating new rounds of faculty recruitment once the program is extended. Often more troubling, a pause in enrollment can shake public confidence in the program’s stability, thereby suppressing future student enrollment and employer support. Extending Sunset Date Also Has a Major Drawback. To avoid problems associated with halting enrollment, the Legislature could extend the sunset date. A longer enrollment period, however, would further engrain a program in the status quo, potentially making terminating the pilot more difficult even if the outcome data show that the pilot did not meet the Legislature’s objectives. Consider Amending Sunset and Evaluation Provisions to Balance Competing Priorities. The Legislature could consider extending the sunset date, thereby allowing for more student cohorts to enter the pilot. This, in turn, would result in more years of student outcome data and a more rigorous final program evaluation. To reduce the likelihood of entrenching a potentially ineffective program, the Legislature simultaneously could move up the evaluation date. For example, the Legislature could permit colleges to continue enrolling new students through the fall 2021 term and move up the evaluation one year—to 2021 from 2022. Under this schedule, the final evaluation would include some graduation data for a few freshman cohorts (and more complete graduation data for several junior cohorts). We think this timing would yield sufficient information for the Legislature’s review of the pilot. Under this approach, the enrolling of new cohorts and the release of the final program evaluation are coordinated. Such coordination would allow bachelor’s programs to continue uninterrupted were the Legislature to extend the pilot. It also would limit the number of cohorts that would be affected were the Legislature to sunset the program. www.lao.ca.gov 15 analysis full gutter AN LAO REPORT did not satisfy all the associated general education might be serving students who otherwise would requirements. The college has since changed its have attended a university program. The students associate degree program so that its graduates will we interviewed, however, generally indicated they meet the bachelor’s degree entry requirements, and it are place-bound and unable to move for a university expects more applications in the future. program. Although they are similar demographically to Bachelor’s Degree Students More Like Transfer transfer students, they might differ in other ways that Students Overall Than Other Pilot College Students. limit their access to university programs. Figure 8 compares the race/ethnicity of students Bachelor’s Degree Students More Likely to Be who enrolled in the bachelor’s degree programs in Female. Whereas 53 percent of pilot college students 2017-18 (the center pie chart) with students at the pilot overall and successful CCC transfer students are colleges overall (the left pie chart). CCC’s bachelor’s female, 66 percent of CCC bachelor’s degree students degree students differ markedly from other pilot college are female. students. Compared to those students, the bachelor’s degree students are more likely to be Caucasian or FINANCING Asian and less likely to be Hispanic. As reflected in the right pie chart, the bachelor’s degree students more First Data Collection Highlights Need for closely resemble successful CCC transfer students. Standardization. Although our office worked closely with the CCC Chancellor’s Office to identify fiscal Unclear Whether Pilot Is Expanding or Shifting data reporting requirements, the initial fiscal data Access. Chapter 747 requires that we report on the reports CCC submitted in September 2017 had impact of the pilot degree programs on underserved inconsistencies, missing information, and other data students. In their initial cohorts, the pilot degree problems. These problems are common in the first programs do not appear to be primarily serving round of data collection for a new program and demographic groups that are underrepresented among generally can be remedied with refinements to data transfer students. That is, the CCC pilot programs Figure 8 CCC Bachelor’s Degree Students Similar to CCC Transfers Caucasian Other Hispanic African American Asian Mixed Race Overall Student Body at Bachelor's Degree Students CCC Transfers Within Colleges Offering Pilot Program in Pilot Programs 6 Years (2010-11 Cohort) 16 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT collection instruments and training for the personnel by substantial amounts—and the colleges gave no involved in data collection. Below, we report some indication as to how costs were covered. With all these information on programs’ startup costs but are unable data problems, we are unable to draw meaningful to draw any conclusions about ongoing program conclusions about ongoing program financing. financing due to the data limitations noted. Financial Aid Startup Costs Financial Aid Data Limited. Initial data reports State Provided $6 Million for Startup Costs. do not yield a full picture of individual students’ The 2015-16 Budget Act provided this funding for financial need and their use of aid. We can draw a equipment, library materials, curriculum development, few conclusions from the data, however, as described and faculty and staff professional development, below. among other one-time costs. From this amount, the Majority of Pilot-Program Students Receive Fee Chancellor’s Office allocated (1) $350,000 to each Waivers. Fee waivers are the most common form of of the 15 pilot colleges and (2) $750,000 for an need-based financial aid at CCC. As Figure 9 (see next implementation support grant awarded competitively page) shows, two-thirds of CCC’s 2016-17 bachelor’s to North Orange Community College District. The degree students had their general course enrollment implementation grant was to support meetings and fees waived. This share is slightly lower than the conferences for the pilot colleges, a website for the share of all full-time CCC students receiving fee colleges to share information, and evaluation activities. waivers (71 percent) but notably higher than the Colleges Used Two-Thirds of Startup Funds in share of all CCC students receiving such waivers First Two Years. The pilot colleges used their startup (50 percent). For further comparison, aid programs funds for outfitting new labs, purchasing equipment and cover full tuition for about 60 percent of UC and CSU materials, and—in one instance—purchasing property. undergraduate students, with another 10 percent of They also used funds for curriculum development university students receiving partial tuition coverage. (typically by paying for faculty release time or hiring In addition to receiving waivers for their general course consultants) and professional development, including enrollment fees, 5 percent of CCC’s 2016-17 bachelor’s conferences and travel. Some of the funds were used degree students received Cal Grants that covered for administration, student counseling and advising, supplemental upper-division fees and a portion of other outreach, and accreditation costs. As of June 30, 2017, student costs. two colleges reported that they had not yet used any Pilot-Program Students Receive Federal Grants of the funds. Four colleges reported receiving other and Loans Too. As Figure 9 also shows, 37 percent start-up funding from their districts or an unspecified of students received Pell Grants in 2016-17. For source, and one (Bakersfield College) reported a comparison, 22 percent of CCC students overall and $150,000 industry contribution toward startup costs. 49 percent of full-time CCC students received Pell Grants that year. Of students participating in the pilot Ongoing Costs programs, 20 percent received federal student loans. Not Able to Analyze. The greatest data reporting (This figure assumes all students receiving a subsidized problems were for ongoing program revenues and loan also received an unsubsidized loan. To the extent expenditures. Several colleges did not include state the overlap is smaller, the share of students with apportionment funds and/or fee revenue from their loans increases.) The 20 percent share is substantially upper-division courses. Some colleges attributed few higher than for CCC students overall (2 percent) but or no instructional costs to their bachelor’s degree substantially lower than for university undergraduates programs. For half of the colleges reporting, program (about half). expenditures exceeded program revenues—often www.lao.ca.gov 17 analysis full gutter AN LAO REPORT Figure 9 Many Students in Pilot Programs Received Need-Based Aid Percent of Students Receiving Aid, by Type of Aid, 2016-17a 70% 60 50 40 30 20 10 Fee Waivers Pell Grants Student Loans Other Grants Cal Grants Work-Study and Scholarships a A student receiving multiple types of aid is included in all applicable columns. ISSUES FOR LEGISLATIVE CONSIDERATION Since enactment of Chapter 747, the Legislature has the necessary information well in advance of the final faced pressure to expand the bachelor’s degree pilot evaluation. To that end, the CCC Chancellor’s Office program in advance of the 2022 evaluation and 2023 and our office are working together to improve and sunset. Findings from our interim evaluation, however, monitor data reporting. suggest the Legislature may wish to exercise caution Too Soon to Gauge Student Outcomes. in expanding the pilot before the final evaluation. As Chapter 747 also requires information on student the Legislature thinks more about the future of the graduation, employment, and earnings outcomes, all of pilot, fundamental questions about the mission of CCC which are important for evaluating the success of the also remain. In this section, we discuss each of these pilot. The extent to which outcomes for pilot students issues. are better, worse, or the same as students who transfer to CSU should influence the Legislature’s decision Interim Findings Suggest about whether to continue authorizing CCC bachelor’s Caution in Extending Pilot degrees. The first cohort of graduates, however, will not receive their degrees until spring 2018 at the earliest. Financial Reporting Needs Improvement. Some We expect generalizable outcomes will not emerge of the Legislature’s key questions for evaluation regard until four cohorts have at least some graduation data program financing and student financial aid. Specifically, (spring 2021). Chapter 747 requires information on program costs and funding sources as well as student costs, Numerous Concerns About Selection, financial aid, and debt. To date, CCC has not provided Consultation, and Approval Processes. Our findings reliable information on these subjects. With improved regarding abridged program development, selection, reporting, however, we believe colleges could provide and approval processes and lack of robust consultation 18 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT with the universities provide additional reasons for courses cited earlier) where more general ones likely caution. Were the Legislature to consider expanding would better prepare students for a broader range the pilot, significant improvements would be needed in of positions. The Legislature may wish to consider these processes. the trade-offs between avoiding all duplication with the universities (thereby preserving clearer mission Fundamental Questions Remain differentiation among the segments) and permitting How Are Bachelor’s Degrees Affecting CCC’s some duplication (thereby potentially better serving Core Mission? At many of the pilot colleges, the students but weakening mission differentiation). new bachelor’s degree programs are building on Defining how much overlap to allow, however, could existing certificate and associate degree programs prove difficult. For example, should the state permit and giving students an additional option to continue degree duplication in situations where similar university their education. At other pilot colleges, however, the programs exist but are not offered in a region where new degrees are replacing existing associate degree a community college has documented a significant programs, thereby limiting students’ educational workforce need? choices and substantially increasing their costs to enter Could Improved Collaboration Between CCC an occupation. The Legislature may wish to consider and CSU Better Meet Workforce Needs? Another whether colleges should avoid curtailing students’ question for the Legislature to consider is whether associate degree options. the universities are providing adequate opportunities Is a Bachelor’s Degree the Solution in All for CCC graduates to continue their education. Occupations? The employers we interviewed Numerous collaboration models exist in which expressed a need for workers with higher skills than universities work closely with community colleges they typically find in associate degree graduates. Based to expand opportunities for earning bachelor’s on these conversations, however, it appears possible degrees. A partnership between Hartnell College that graduates with associate degrees and some and CSU Monterey Bay provides an illustration. In additional education—not necessarily a bachelor’s this partnership, students take courses from both degree—might meet this need. For example, perhaps institutions year-round and earn a bachelor’s degree three-year certificates or degrees could provide the in computer science in three years. Other models also desired skills. To serve students and employers well, exist, such as transfer programs in which the university any new credentials would have to be approved by component is taught on a community college campus, accreditors and widely recognized by employers. online, or through any combination of delivery modes To date, few such credentials exist. The state could that accommodates working students. Similarly, some explore ways to facilitate colleges and employers states have “3+1” transfer programs in which students working together to develop programs that are more complete three years at a community college and the efficient in meeting industry needs. final year at a university. The Legislature may wish to explore ways it could encourage collaborations across To the Extent Bachelor’s Degrees Are Warranted, segments to help meet workforce needs more efficiently How Focused Should They Be? In our review, we and effectively. found universal agreement among policymakers, community college officials, and employers that—in What Should Be the Role of Employers in keeping with CCC’s workforce mission—any CCC Training Workers? We heard from employers that bachelor’s degrees should focus on career education. some of the pilot bachelor’s degree programs were We found less consensus, however, on how narrowly providing hands-on training previously offered by the these degrees should be tailored. Chapter 747 prohibits employers, thereby shifting the costs and risks of this duplication not only of CSU and UC degrees, but training to the colleges (and the state). The Legislature also their curricula. This prohibition has resulted in may wish to consider how these costs and risks should very specialized upper-division courses (such as be shared among the parties, and what role employers the automotive industry accounting and marketing should have in workforce training. www.lao.ca.gov 19 analysis full gutter AN LAO REPORT CONCLUSION Given the bachelor’s degree pilot has been underway maximize the value of the resulting information, the only a few years, our interim evaluation serves mainly to Legislature could consider amending the sunset assess CCC’s initial implementation efforts and identify provision in Chapter 747 to permit participating districts issues for the system and the Legislature to consider as to continue enrolling new students until the evaluation is implementation continues. We think numerous reasons completed, potentially as soon as 2021. With improved exist for the Legislature to exercise caution in expanding data collection and continued student enrollment, we the number of pilot programs before the final evaluation. believe the final evaluation will provide the Legislature These reasons include needed improvements in data better information with which to decide the future of collection, the absence of any student outcomes to CCC bachelor’s degree programs. Even with better date, and concerns raised in the pilot program selection information, however, the Legislature will continue process. The CCC Chancellor’s Office continues to facing fundamental issues about CCC’s mission and the work closely with our office to improve data collection best way to provide access to bachelor’s degrees. for the remainder of the implementation period. To 20 LEGISLATIVE ANALYST’S OFFICE analysis full gutter AN LAO REPORT www.lao.ca.gov 21 analysis full gutter AN LAO REPORT LAO PUBLICATIONS This report was prepared by Judy Heiman 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. 22 LEGISLATIVE ANALYST’S OFFICE