BILL ANALYSIS Ó
SB 850
Page 1
Date of Hearing: June 24, 2014
ASSEMBLY COMMITTEE ON HIGHER EDUCATION
Das Williams, Chair
SB 850 (Block) - As Amended: June 16, 2014
SENATE VOTE : 34-0
SUBJECT : Public postsecondary education: community college
districts: baccalaureate degree pilot program.
SUMMARY : Authorizes the California Community Colleges (CCC)
Board of Governors (BOG), in consultation with the California
State University (CSU) and the University of California (UC), to
establish a statewide baccalaureate degree pilot program at not
more than 15 community college districts, as specified.
Specifically, this bill :
1)Authorizes the BOG, commencing on January 1, 2015, in
consultation with the CSU and the UC, to establish a statewide
baccalaureate degree pilot program at not more than 15 CCC
districts with one baccalaureate degree program each, to be
determined by the CCC Chancellor and approved by the BOG; and,
specifies that the pilot shall commence no later than the
2017-18 Academic Year (AY) and that a participating student
shall complete his or her degree by the end of the 2022-23 AY.
2)Specifies that a CCC district shall seek approval to offer a
baccalaureate degree program through the appropriate
accreditation body; and when seeking approval from the BOG, a
district must maintain the mission of the CCC and, as part of
the pilot program have the additional mission to provide
high-quality undergraduate education at an affordable price
for students and the state.
3)Specifies that a CCC district shall not offer more than one
baccalaureate degree program, as determined by the governing
board of the district and approved by the BOG, and subject to
the following limitations:
a) A district shall identify and document unmet workforce
needs in the subject area of the baccalaureate degree to be
offered and offer a baccalaureate degree at a campus in a
subject area with unmet workforce needs in the local
community or region of the district;
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b) A baccalaureate degree pilot program shall not offer a
baccalaureate degree program or program curricula already
offered by the CSU or the UC;
c) A district shall have the expertise, resources, and
student interest to offer a quality baccalaureate degree in
the chosen field of study;
d) A district shall not offer more than one baccalaureate
degree program within the district, which shall be limited
to one campus within the district; and,
e) A district shall notify a student who applies to the
district's baccalaureate degree pilot program that the
student is required to complete his or her baccalaureate
degree by the end of the 2022-23 AY.
4)Specifies that a district shall maintain separate records for
students who are enrolled in courses in the pilot program; and
that a student shall be reported as a CCC student for
enrollment in a lower division course and as a baccalaureate
degree program student for enrollment in an upper division
course.
5)Requires a governing board of a district seeking authorization
to offer a baccalaureate degree pilot program shall submit all
of the following for review by the CCC Chancellor and approval
by the BOG:
a) The administrative plan for the baccalaureate degree
pilot program;
b) A description of the baccalaureate degree pilot
program's curriculum, faculty, and facilities;
c) The enrollment projections for the baccalaureate degree
pilot program;
d) Documentation regarding unmet workforce needs
specifically related to the proposed baccalaureate degree
pilot program; and,
e) Documentation of consultation with the CSU and the UC
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regarding collaborative approaches to meeting regional
workforce needs.
6)Requires the BOG to develop, and adopt by regulation, a
funding model, for the support of the pilot program that is
based on a calculation of the number of full-time equivalent
students (FTES) enrolled in all district pilot programs.
7)Specifies that funding for each FTES shall be at an agreed
upon marginal cost calculation that shall not exceed the CSU's
marginal cost calculation for a FTES; and that students in the
pilot program, shall not be charged fees higher than the
mandatory systemwide fees charged for baccalaureate degree
programs at the CSU.
8)Stipulates that fees for upper division coursework in a
baccalaureate degree pilot program shall be set and approved
by the Legislature in a manner consistent with the setting of
fees for lower division coursework at the CCC; and fees for
lower division coursework in a baccalaureate degree pilot
program shall not exceed the fees for other lower division
coursework offered by the CCC.
9)Requires the Department of Finance (DOF) and the Legislative
Analyst's Office (LAO) to jointly conduct a statewide
evaluation of the statewide baccalaureate degree pilot program
and issue a report of their findings to the Governor and the
Legislature, on or before July 1, 2021. Specifies that the
evaluation shall consider all of the following:
a) The number of new district baccalaureate degree pilot
programs implemented, including information identifying the
number of new programs, applicants, admissions,
enrollments, and degree recipients;
b) The extent to which the baccalaureate degree pilot
programs fulfill identified workforce needs for new
baccalaureate degree programs, including statewide supply
and demand data that considers capacity at the CSU, the UC,
and in California's independent colleges and universities;
c) Information on the place of employment of students and
the subsequent job placement of graduates;
d) Baccalaureate degree program costs and the funding
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sources that were used to finance these programs, including
a calculation of cost per degree awarded; and, the costs of
the baccalaureate degree programs to students, the amount
of financial aid offered, and student debt levels of
graduates of the programs;
e) Time-to-degree rates and completion rates for the
baccalaureate degree pilot programs; and,
f) The extent to which the programs established under this
measure are in compliance with the requirements of this
measure.
10)Requires a participating district to submit the information
necessary in order for the DOF and the LAO to conduct their
evaluation, as specified, to the CCC Chancellor, who shall
provide the information to the evaluators upon request.
11)Sunsets the pilot program on January 1, 2024.
EXISTING LAW differentiates the missions and functions of public
and independent institutions of higher education. Under these
provisions:
1)The UC is authorized to provide undergraduate and graduate
instruction and has exclusive jurisdiction in public higher
education over graduate instruction in the professions of law,
medicine, dentistry and veterinary medicine. The UC is also
the primary state-supported academic agency for research;
2)The primary mission of the CSU is required to offer
undergraduate and graduate instruction through the master's
degree. The CSU is authorized to establish two-year programs
only when mutually agreed upon by the Trustees and the CCC
BOG. The CSU is also authorized to jointly award the doctoral
degree with the UC and with one or more independent
institutions of higher education;
3)The independent institutions of higher education are required
to provide undergraduate and graduate instruction and research
in accordance with their respective missions; and,
4)The mission and function of the CCC is the offering of
academic and vocational instruction at the lower division
level and the CCC are authorized to grant the associate in
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arts and the associate in science degree. The community
colleges are also required to offer remedial instruction,
English as a Second Language instruction, and adult noncredit
instruction, and support services which help students succeed
at the postsecondary level (Education Code § 66010.4).
FISCAL EFFECT : According to the Senate Appropriations
Committee, the following cost factors are associated with this
measure:
1)Statewide administration: Significant one-time costs, likely
in the low hundreds of thousands of dollars, to develop
guidelines and create a baccalaureate degree pilot program,
and to select up to 15 CCC districts to participate. Ongoing
administrative costs of approximately $350,000 for a 15 CCC
district pilot program. Actual costs will depend on the
number of participating CCC districts, as well as the level of
guidance and oversight needed to ensure the program's success;
2)Local implementation: Significant local costs and potentially
significant revenue for CCC districts that elect to
participate, depending on the program structure and the type
of degree offered (relative to the expense of providing upper
division courses). To the extent that students who
participate in the program would otherwise have attended a CSU
campus, the state cost for the student's enrollment would
likely be similar; to the extent that this promoted enrollment
for students who would otherwise not take additional college
coursework, there will be additional state costs for increased
enrollment; and,
3)Evaluation: Minor costs to the DOF and LAO to conduct a
statewide evaluation of the program, as specified.
COMMENTS : Need for the bill . According to the author, the
state faces an urgent need to increase the number of
Californian's with four-year degrees by 2025, necessitating an
additional 60,000 baccalaureate degrees per year. The author
contends that this bill seeks to find new methods for addressing
this skills gap by authorizing the offering of baccalaureate
degrees at California's community colleges. According to the
author, this bill is patterned after the applied baccalaureate
degree model offered in community colleges of more than twenty
other states.
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Baccalaureate Degree Study . In 2013, the CCC Chancellor
appointed a study group to review the various aspects of
bachelor degrees at community colleges. The "Report from
California Community Colleges Baccalaureate Degree Study Group,"
acknowledges questions and reservations that community college
bachelor's degrees represent a further erosion of the Master
Plan, the potential for duplication of programs, and concerns
that broadening the CCC mission would diminish attention to
transfer, basic skills, and career technical education,
especially as the system moves towards restoring access levels
compromised by recent economic conditions. The study group
recommended that the CCC Chancellor's Office (CCCCO) and the BOG
conduct necessary research and policy analysis related to
offering CCC baccalaureates including; a cost study, CCCCO
workload projections for related reviewing, approving and
reporting, and a definition of the types of baccalaureates
appropriate for the CCC. The group also recommended that
further work proceed with ongoing dialog with the CSU and UC,
and that further study should consider the potential impact on
the current mission of the CCC as well as on existing programs
at local campuses.
Master Plan . Notwithstanding the differentiation of the mission
envisioned by the Master Plan and outlined in statute, the
Legislature has authorized the CSU to go beyond its original
mission to offer three doctoral degrees. These include:
1)Authority to offer the Ed.D, an applied doctorate in
education.
(EC § 66040 - § 66040.7). Thirteen CSU campuses offer an Ed.D.
under this authority.
2)Authority to offer the Doctor of Physical Therapy (DPT)
degree. This degree was to focus on preparation of physical
therapists to provide health care services and required to be
consistent with meeting professional accreditation
requirements (EC § 66042 - § 66042.3).
3)Authorization, until July 1, 2018, to offer a Doctor or
Nursing Practice (DNP) through a pilot program at three CSU
campuses. This degree was to focus on the preparation of
clinical faculty, and was prohibited from replacing or
supplanting CSU master's degree nursing programs. Enrollment
was capped at 90 FTES for all three campuses and enrollment of
new students is prohibited on or after July 1, 2018. In fall
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2012, the CSU launched two programs, a joint program with CSU
Fresno and CSU San Jose, and a CSU Fullerton-Long Beach-Los
Angeles joint program.
These programs were all subject to California Postsecondary
Education Commission (CPEC) review, evaluation and
recommendation. Fees were capped at the rate charged at the UC,
no additional funding was provided by the state, and these
programs were to be implemented without diminishing or reducing
enrollment in undergraduate programs. Statewide evaluations of
the new programs were to be jointly conducted by the CSU, the
LAO and the DOF.
Types of 4-year degrees envision ? This measure prohibits a
participating community college district to offer a
baccalaureate degree that is offered by a CSU or a UC; with that
in mind, the bill only allows for the awarding of what
translates to very specific 4-year degrees that are career
technical in nature. According to several community college
districts interested in participating in the pilot, the
following is a brief list (not exhaustive) of the types of
4-year degrees that would be offered in the pilot: a) dental
hygiene; b) industrial technology; c) allied health technology;
d) emergency medical technician; and e) data management for
health care.
Committee considerations and amendments . BOG fee waiver ?
Should participating students who currently qualify for a BOG
fee waiver be eligible to receive the BOG fee waiver for the
pilot program if they did not have their income verified when
submitting a BOG fee waiver form - which traditionally is the
case at community colleges? Students would have a much better
opportunity to qualify for additional federal dollars and
potentially be able to afford the program if they completed the
Free Application for Federal Aid (FAFSA) in lieu of the BOG fee
waiver form. Staff recommends that the bill be amended to
require as a condition of eligibility to be considered for
participation in the pilot, that community college districts
have a stated policy in place that potential students wishing to
receive the BOG fee waiver must complete and submit a FAFSA or
Cal Dream Act form.
Start-up date ? According to a few community college districts
interested in participating in the pilot, they could implement
this program as early as fall 2015; the measure currently
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specifies that the BOG shall develop and adopt regulations
regarding various facets of the pilot and that the pilot program
shall commence no later than the 2017-18 AY. If the measure is
chaptered and goes into effect on January 1, 2015; it is
uncertain as to the length of time the BOG will take before
developing and adopting regulations regarding the pilot. Staff
recommends that the bill be amended to stipulate that on or
before March 31, 2015, the BOG shall develop and adopt
regulations as specified.
Reporting requirements ? The measure requires the DOF and the
LAO to jointly conduct a statewide evaluation of the pilot
program and report to the Governor and the Legislature, on
before July 1, 2021, on a number of evaluation criteria, as
specified, including, but not limited to: a) the extent to
which the pilot programs fulfill identified workforce needs for
new baccalaureate degree programs, including statewide supply
and demand data that considers capacity at the CSU, UC, and in
California's independent colleges and universities; b)
information on the place of employment of students and the
subsequent job placement of graduates; and, c) the extent to
which the programs established are in compliance with the
requirements of this measure.
If the pilot is implemented as early as fall 2015, then on or
before July 1, 2021, the DOF and the LAO should have enough data
to evaluate the merits of the pilot; however, if the pilot does
not officially start up until subsequent years, they may not
have enough data to evaluate the pilot and subsequently report
on the specified criteria. Staff recommends that the bill be
amended to stipulate that the DOF and the LAO, on or before July
1, 2022, shall submit their final report to the Governor and the
Legislature. Staff also recommends that the bill be amended to
stipulate that on or before July 1, 2018, the DOF and the LAO
shall issue a progress report of the pilot to the Governor and
the Legislature; the progress report shall include, but not be
limited to, all of the following: a) how many community
colleges applied for the pilot; b) what were the potential
4-year degrees that were denied and why; c) baccalaureate degree
program costs and the funding sources that were used to finance
these programs; d) current trends in workforce demands requiring
4-year degrees for technical education related fields; e)
current completion rates for the first cohorts of participants;
and, f) recommendations on whether and how the pilot program can
be expanded.
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Funding the pilot ? The measure stipulates that funding for each
FTES shall be an agreed upon marginal cost calculation that
shall not exceed the CSU's marginal cost calculation for FTES.
It is unclear who needs to agree to the marginal cost
calculation. Staff recommends that the bill be amended to
specify that the BOG needs to agree to the marginal cost
calculation.
Submission of materials for approval ? The measure stipulates
that a governing board of a community college district seeking
authorization to offer the pilot shall submit various
information for review by the CCC Chancellor, including, but not
limited to: a) the proposed administrative plan for the pilot
program; and, b) documentation regarding unmet workforce needs
specifically related to the proposed pilot program.
Since the pilot will require a different funding model staff
recommends that the bill be amended to specify that the proposed
administrative plan shall include the governing board's funding
plan. Additionally, since a governing board shall provide
documentation regarding unmet workforce needs, as it relates to
its proposed pilot, staff recommends that the bill be amended to
specify that the documentation specifically address why a 4-year
degree is necessary in the degree it brings forward for
approval.
As stated in the "Master Plan" section of this analysis, the CSU
has been given authority to confer three different doctoral
degrees. These degrees are very narrow in scope and at the time
had CPEC online and able to review and evaluate its programs.
In the absence of CPEC, the Committee may wish to determine what
structure is necessary to review, evaluate and recommend new
baccalaureate degree programs at the CCC. Additionally, the
Committee may wish to consider whether or not there should be
provisions that ensure that funding for baccalaureate degree
programs does not occur at the expense of expansion of adult
education programs, basic skills, career technical education or
undergraduate transfer programs.
Prior legislation . AB 661 (Block) of 2011, which was moved to
the inactive file by the author on the Assembly Floor,
authorized the Grossmont-Cuyamaca and the San Mateo Community
College Districts to offer one baccalaureate degree pilot
program per campus.
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AB 2400 (Block) of 2010, which was held in this committee by
request of the author, authorized the San Diego,
Grossmont-Cuyamaca and San Mateo Community Colleges Districts to
establish baccalaureate degree pilot programs.
REGISTERED SUPPORT / OPPOSITION :
Support
American Legion, Department of California
American Nurses Association\California
AMVETS, Department of California
Barton Health
California Architects Board
California Association of County Veterans Service Officer
California Chamber of Commerce
California Community Colleges Chancellor's Office
California State Commanders Veterans Council
California State University
Citrus College
City of South Lake Tahoe
Coastline Community College
College of the Canyons
College of Marin
Community College League of California
Contra Costa Community College District
Cupertino Chamber of Commerce
Foothill-De Anza Community College District
Gavilan Joint Community College District
Golden West College
Grossmont-Cuyamaca Community College District
Heavenly Mountain Resort
Imperial Valley College
Kern Community College District
Los Altos Chamber of Commerce
Los Angeles Community College District
Mid-Peninsula Dental Society
Milpitas Chamber of Commerce
MiraCosta Community College District
Morgan Hill Chamber of Commerce
Mountain View Chamber of Commerce
Napa Valley Community College District
Oceanside Chamber of Commerce
Pasadena Community College District
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Peralta Community College District
Rancho Santiago Community College District
Respiratory Care Board of California
San Bernardino Community College District
San Diego City College
San Diego Community College District
San Diego Community College District, Continuing Education
San Diego and Imperial Valley Counties Community Colleges
Association
San Diego Regional Chamber of Commerce
San Diego Unified School District
San Jose-Evergreen Community College District
San Jose Silicon Valley Chamber of Commerce
Santa Clara Chamber of Commerce
Santa Clarita Valley Chamber of Commerce
Santa Monica Community College District
Shasta-Tehama-Trinity Joint Community College District
South County Economic Development Council
South Orange County Community College District
Southwestern Community College District
Tahoe South
Technology Credit Union
Tri-City Medical Center
Veterans Caucus of the California Democratic Party
Veterans of Foreign Wars, Department of California
Vietnam Veterans of America, California State Council
West Hills Community College District
West Kern Community College District
Yosemite Community College District
Yuba Community College District
25 Individuals
Opposition
Faculty Association of California Community Colleges
Analysis Prepared by : Jeanice Warden / HIGHER ED. / (916)
319-3960