The 2022-23 Budget: CCC Chancellor's Office Staffing

The 2022-23 Budget: CCC Chancellor’s Office Staffing MARCH 2022 Summary. The Governor’s budget proposes The Chancellor continues to serve as long as he or a total of 19 new permanent Chancellor’s Office she remains in good standing with the board. Key positions and an associated $2.8 million ongoing responsibilities of the Chancellor’s Office include: non-Proposition 98 General Fund augmentation • Setting and enforcing minimum spread over the next two fiscal years. We find the standards for districts (such as student Governor’s proposal is a mixed bag. Specifically, graduation requirements). two of the proposed positions are justified, though • Allocating state funds to districts and not as permanent positions. An additional two monitoring district fiscal health. positions also are justified, though we recommend • Monitoring district compliance with state and funding them beginning in 2022-23 rather than federal law. waiting until 2023-24. The Governor’s other proposed positions either are not justified or to • Centrally collecting and reporting student data date have not been sufficiently justified to warrant (such as enrollment and graduation rates). legislative approval. Rather than rejecting the latter Chancellor’s Office Is Organized Into group of proposed positions, the Legislature could Units by Programmatic and Functional give the administration an opportunity to submit Areas. The Chancellor’s Office is organized into improved proposals before the May Revision. nine divisions, each of which is led by a vice Such proposals should include more details on the chancellor. The divisions are: (1) College Finance specific workload the proposed positions would and Facilities Planning, (2) Communications undertake and why current staffing levels in those and Marketing, (3) Digital Innovation and areas are insufficient. Infrastructure, (4) Educational Services and Support, (5) General Counsel, (6) Governmental Introduction Relations, (7) Institutional Effectiveness, In this post, we provide background on the (8) Internal Operations, and (9) Workforce and California Community Colleges (CCC) Chancellor’s Economic Development. Office, discuss the Governor’s proposal to add Non-Proposition 98 General Fund Is 19 new staffing positions and associated funding Chancellor’s Office’s Main Source of Support. over a two-year period, assess the proposal, and In 2021-22, the Chancellor’s Office is budgeted offer recommendations. $30 million (all funding sources) for personnel and Background other operational expenses (including its office lease and supplies). The Chancellor’s Office’s Chancellor’s Office Has Several Key largest single funding source for its operations Systemwide Responsibilities. Located in is non-Proposition 98 General Fund ($21 million Sacramento, the Chancellor’s Office is led by in 2021-22). (Historically, the Chancellor’s Office a Chancellor who has overall leadership and has not directly received Proposition 98 funds for responsibility for the office. The Chancellor its operations.) The Chancellor’s Office operating is appointed by the Board of Governors—the budget also relies on reimbursements from other governing body entrusted with overseeing the departments (such as a contract with the California CCC system. (The CCC system consists of 72 local Department of Education to provide technical districts and 115 local community colleges, assistance for the federal Perkins program) as well along with the state-level Calbright College.) 2022-23 Budget Series 1 as certain fee-for-service agreements with districts Figure 1 (totaling $6.8 million in 2021-22). In addition, the Chancellor’s Office Has Grown Chancellor’s Office received $2.5 million from bond funds and one-time funds for specified programs Somewhat in Recent Years in 2021-22. Authorized Filled Vacancy Positions Positions Rate Chancellor’s Office Staffing Has Increased Over Past Decade. Figure 1 shows that the 2012-13 146 136 7% Chancellor’s Office currently has 177 authorized 2013-14 151 139 8 2014-15 160 144 10 positions. Staffing increased by 31 positions 2015-16 166 140 16 (21 percent) over the past decade. During this 2016-17 166 141 15 period, the Chancellor’s Office’s vacancy rate has 2017-18 172 141 18 ranged between 7 percent to 22 percent. As of 2018-19 172 134 22 December 31, 2021, 154 of its authorized positions 2019-20 176 137 22 2020-21 177 146 18 were filled, reflecting a 13 percent vacancy rate. 2021-22 177 154a 13 Chancellor’s Office Workload Has Been a Through December 31, 2021. Increasing. The increase in workload is primarily due to the Chancellor’s Office having to administer In other cases, the state has created a new program the many new programs the state has established but not authorized any new positions at the for community colleges. For example, the state Chancellor’s Office. For example, in 2021-22, the has funded the Guided Pathways initiative, which state provided ongoing funding for the CCC basic creates a comprehensive framework for colleges needs program without authorizing any additional to improve student outcomes. The Chancellor’s positions at the Chancellor’s Office. Office assists colleges in implementing this initiative by running workshops and reviewing Proposal college improvement plans, among other Governor Proposes Two-Year Staffing Plan. activities. The state also approved a complex new As Figure 2 shows, the Governor proposes a general-purpose funding formula (known as the total of 19 new permanent Chancellor’s Office Student Centered Funding Formula) and many positions and an associated $2.8 million ongoing new categorical programs (including basic needs, non-Proposition 98 General Fund augmentation mental health, and various other student support spread over the next two fiscal years. Of the programs) that require administrative support from new positions, the Governor proposes adding the Chancellor’s Office. The Legislature also has nine in 2022-23 and ten in 2023-24. In 2023-24, passed policy legislation requiring the Chancellor’s Chancellor’s Office staffing would be 11 percent Office to participate in certain systemwide higher than in 2021-22. As the figure shows, the improvement efforts. For example, Chapter 566 of new positions would be added within several 2021 (AB 928, Berman) requires the Chancellor’s divisions of the Chancellor’s Office. The Governor’s Office to do certain things relating to improving the Budget Summary indicates that the administration transfer process for students. and Chancellor’s Office are considering requesting State Has Provided Chancellor’s Office further positions, with additional proposals With Some Additional Staff to Address Higher potentially made as part of the May Revision. Workload. To help with general office support, New Positions Are Associated With Various the state has provided the Chancellor’s Office Workload. According to the administration, the new attorney and accountant positions, among new positions are intended to accommodate others. The state also has provided the Chancellor’s new workload demands and enhance the office’s Office with additional programmatic support upon leadership so as to improve the functioning of the creating or expanding certain categorical programs. CCC system. Figure 3 on page 4 describes the For example, the Legislature authorized an main responsibilities for each proposed position. additional administrator position at the Chancellor’s Office to oversee the Guided Pathways initiative. 2022-23 Budget Series 2 Assessment and Figure 2 Recommendations Governor Proposes a Total of 19 New Proposal Has Some Merit Chancellor’s Office Positions Over Next Two Years and Some Shortcomings. As General Fund (In Thousands) described below, the Governor’s proposal to fund 19 new positions Division Proposed Positions Costa over the next two years is a mixed 2022-23 (Nine Positions) bag. We find a few of the proposed Digital Innovation and Information Technology Specialist II $170 positions to be justified, though Infrastructure Specialist 157 not as permanent positions or Specialist 157 in the fiscal year proposed by Research Data Specialist II 139 the Governor. The Governor’s Educational Services Specialist, Academic Affairs 157 other proposed positions either and Support Specialist, Academic Affairs 157 are not justified or to date have Specialist, Academic Affairs 157 Program Assistant II 136 not been sufficiently justified Program Assistant II 136 to warrant legislative approval. Subtotal ($1,366) Figure 4 on page 5 summarizes 2023-24 (Ten Positions) our recommendations. College Finance and Specialist $157 Two Positions Justified but Facilities Planning Specialist 157 Not as Permanent, Recommend Associate Governmental Program Analyst 116 Making Limited Term. We find Digital Innovation and Research Data Specialist II 139 that the two Specialist positions Infrastructure Research Data Specialist I 127 proposed in 2022-23 for supporting Educational Services Specialist, Student Services 157 implementation of certain and Support Specialist, Student Services 157 Staff Services Analyst 88 transfer reforms (as required by Chapter 566) are justified. General Counsel Attorney III 213 Figure 5 on page 5 highlights Governmental Relations Staff Services Manager I 136 the new workload stemming from Subtotal ($1,447) the legislation. In particular, the Total $2,813 new positions would support the a Reflects salary, benefits, and operating/equipment costs associated with each position. Chancellor’s Office in chairing the first two years of a statutorily Division. Specifically, the two Specialist positions required transfer-reform implementation committee, proposed for 2023-24 would help the Chancellor’s as well as provide assistance to colleges on Office administer the recently created ongoing complying with the legislation. Although we think basic needs program and other student service the positions are needed given the additional programs. Because these programs are already workload stemming from the legislation, we do authorized and currently being developed by not think permanent authority is justified. Statute community colleges, we are unclear as to why the requires the relevant activities be completed by administration postpones funding the associated July 2025, with Chapter 566 sunsetting at that time. staffing positions until 2023-24. We recommend For these reasons, we recommend the Legislature the Legislature modify the Governor’s proposal approve these positions and the associated by approving these positions and the associated funding but only on a three-year, limited-term basis funding beginning in 2022-23. (through 2024-25). Given Chancellor’s Office Existing Staff, Two Proposed 2023-24 Positions Are Recommend Rejecting Two Positions. The Justified, but Recommend Funding in Budget Governor’s budget proposes two other positions—a Year. We see merit for two of the proposed Program Assistant II and a Specialist—in the positions in the Educational Services and Support Educational Services and Support Division that 2022-23 Budget Series 3 Figure 3 New Chancellor’s Office Positions Would Be Charged With Various Responsibilities Division Proposed Position Key Responsibilities 2022-23 Digital Innovation and IT Specialist II Oversee upgrades to Chancellor’s Office’s data Infrastructure system and monitor quality of data submitted by districts. Research Data Specialist II Develop new data metrics, perform program evaluations, create and analyze student and college surveys, and manage data dashboards. Specialist (2) Support systemwide cybersecurity efforts. Oversee entity responsible for redesigning CCCApply. Serve as a point person for CCC on state’s Cradle to Career data system. Educational Services Program Assistant II Provide general support on systemwide implementation of common and Support course numbering and transfer reforms. Specialist (2) Coordinate systemwide transfer reform efforts in support of Chapter 566 of 2021 (AB 928, Berman). Program Assistant II and Provide support on new ethnic studies course requirement. Provide Specialist support for initiatives on developing competency-based education and credit for prior learning. 2023-24 College Finance and Specialist (2) Monitor fiscal health of districts. Review accuracy of fiscal and Facilities Planning attendance data provided by districts. Develop alternative attendance accounting methodology for competency-based education programs. Associate Governmental Program Provide support on Student Centered Funding Formula (SCFF), Analyst including the hold harmless transition and updating SCFF dashboards. Digital Innovation and Research Data Specialist II and Develop new data metrics, perform program evaluations, create Infrastructure Research Data Specialist I and analyze student and college surveys, and manage data dashboards. Educational Services Specialist (2) Provide continued support for Guided Pathways initiative as well as and Support new state-funded programs, such as basic needs, mental health services, and the Rising Scholars Network. Staff Services Analyst Provide general support for entire division’s workload. General Counsel Attorney III Draft regulations. Aid in contract procurement and review. Monitor districts’ implementation of equal employment opportunity plans. Governmental Relations Staff Services Manager I Manage staff that perform bill analysis and write legislative reports. IT = information technology. would work on ethnic studies curriculum and determination. For example, a proposed Information competency-based education. Chancellor’s Office Technology Specialist II position would support documentation provided to our office shows that “critical upgrades” to CCC’s centralized data the agency already assigns two staff to overseeing system. The administration, however, has provided those issues. Given the Governor’s proposal no information on what the critical upgrades are, appears to duplicate already authorized and how long they will take, and how often they need assigned positions, we recommend the Legislature to occur. Similarly, a proposed Staff Services reject these proposed positions. Analyst position in the Educational Services and Insufficient Detail on Remaining Positions, Support Division would “provide administrative Withhold Recommendation. The Chancellor’s and staff support services associated with the Office may need some of the remaining requested entire division’s workload.” No detail, however, is positions but without better back-up and provided on current unmet workload needs in the justification, the Legislature is unable to make this division and what workload the proposed position 2022-23 Budget Series 4 would cover. In the case of the attorney position, give the administration an opportunity to submit the administration identifies the general nature of improved proposals before the May Revision. the work the attorney is to undertake but provides Such proposals should include more details on no backup information suggesting that the current the specific workload the proposed positions number of attorneys in the Chancellor’s Office is would undertake and why current staffing levels insufficient given workload. Rather than rejecting in those areas is insufficient. Until such proposals the remaining positions at this time given this lack are provided, we withhold recommendation on the of specificity and justification, the Legislature could associated positions. Figure 4 Summary of LAO Recommendations Division Proposed Position LAO Recommendation 2022-23 Digital Innovation and Infrastructure IT Specialist II Withhold recommendation. Research Data Specialist II Withhold recommendation. Specialist (2) Withhold recommendation. Educational Services and Support Program Assistant II Withhold recommendation. Specialist (2) Convert to limited-term positions (through 2024-25). Program Assistant II and Specialist Reject. 2023-24 College Finance and Facilities Specialist (2) Withhold recommendation. Planning Associate Governmental Program Analyst Withhold recommendation. Digital Innovation and Infrastructure Research Data Specialist II and Research Withhold recommendation. Data Specialist I Educational Services and Support Specialist (2) Fund positions one year sooner (in 2022-23). Staff Services Analyst Withhold recommendation. General Counsel Attorney III Withhold recommendation. Governmental Relations Staff Services Manager I Withhold recommendation. IT = information technology. Figure 5 Chapter 566 Contains Several Requirements Over Next Few Years Requirement Time Frame CCC Chancellor’s Office and other specified educational entities designate representatives to serve March 1, 2022 on Associate Degree for Transfer (ADT) Intersegmental Implementation Committee (“implementation committee”). Chancellor’s Office representative chairs implementation committee. First two years of convening Implementation committee submits report to Legislature setting annual transfer goals and goals for closing December 31, 2023 equity gaps, among others. Committee also is tasked with making recommendations in various areas, including how to re-engage ADT earners who do not transfer. If designated faculty organizations cannot decide on single general education course pattern, Chancellor’s December 31, 2023 Office and other administrators from public higher education segments set the course pattern. Default placement for CCC transfer students becomes the ADT pathway. August 1, 2024 Implementation committee to develop statewide communications and outreach plan on student transfer, December 31, 2024 along with meeting certain other requirements. Implementation committee sunsets. July 1, 2025 2022-23 Budget Series 5 2022-23 Budget Series 6 2022-23 Budget Series 7 LAO PUBLICATIONS This post was prepared by Paul Steenhausen, and reviewed by Jennifer Pacella and Anthony Simbol. The Legislative Analyst’s Office (LAO) is a nonpartisan office that provides fiscal and policy information and advice to the Legislature. 2022-23 Budget Series 8