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COMMUNITY COLLEGE
BACCALAUREATE DEGREES
A review of issues, policies and other states' programs
by Karen Glennon
Prepared for University of Phoenix
November 2005
Table of Contents
Introduction .......................................................................................................................................1
Primary Issues and Concerns ...........................................................................................................2
States with Community College Baccalaureates...............................................................................8
Florida ..................................................................................................................................8
Hawaii ................................................................................................................................10
Indiana ...............................................................................................................................11
Nevada...............................................................................................................................11
New Mexico .......................................................................................................................12
New York ...........................................................................................................................12
Texas .................................................................................................................................12
Vermont .............................................................................................................................13
Washington ........................................................................................................................13
States without Community College Baccalaureates........................................................................14
Florida Analysis...............................................................................................................................16
Evaluation of Community College Baccalaureate Program................................................16
Community College Baccalaureate Program Costs ...........................................................19
Start-Up Costs ...................................................................................................................21
Chipola College Probation .................................................................................................21
Conclusion ......................................................................................................................................24
Resources.......................................................................................................................................27
Exhibits ...........................................................................................................................................33
1 - JLBC Cost Comparison: Community College vs. University Lower Division Costs.......34
2 - Community College Baccalaureate Programs, by State ...............................................35
3 - Not Community College Baccalaureate Programs........................................................43
4 - Florida Evaluation Criteria.............................................................................................45
5 - Nevada Evaluation Criteria ...........................................................................................49
6 - Texas Reporting Requirements ....................................................................................52
7 - Illinois Board of Higher Education Resolution ...............................................................53
Introduction
The mission of community colleges has changed understanding of the many complex, and often competing,
considerably since the first public junior college was concerns.
founded in 1901 in Joliet, Illinois. Its purpose was to
provide a "postgraduate high school program" for students Whether education is sought for the purpose of entering a
not ready for or qualified to attend a university. Students profession or trade, for job training or for remedial
intending to transfer to a four-year school were awarded purposes, the seeker should find a place to turn. Equally
Associate of Arts (AA) degrees, also known as transfer important is access to continuing education needed simply
degrees. Later other degrees were developed, including to keep pace with technological and socio-economic
the Associate of Science (AS) and Associate of Applied changes in the world -- basic computer skills or Spanish
Science (AAS). The AAS was considered a terminal language skills are examples. The continuum of
degree, meaning students earning this degree were not educational services ranges from remedial to
expected to transfer to a four-year institution. postgraduate, and ideally, any solutions developed will
preserve, promote and expand access to each.
One hundred years later, community colleges continue to Addressing the need for greater access and options in
award these degrees. However, community colleges higher education requires "all hands on deck," including
have evolved into institutions that also provide vocational public and private providers. All are integral parts of the
and technical education, workforce development, and continuum of education, and the impact of policy decisions
remedial education. The makeup of the student on each part should to be carefully considered. Proposals
population has also changed dramatically. Once to authorize community colleges to award baccalaureate
dominated by young high school graduates, community degrees should be evaluated in this light.
college campuses now include a broad mix of young and
old, full-time and part-time students, employed, The information provided in the following pages is
unemployed, degree-oriented and recreational learners. intended to help policymakers evaluate the concerns of
individuals and institutions opposed to allowing community
The methods of providing education are changing. colleges to award baccalaureate degrees. The various
Extensive course offerings are now available online approaches used in other states to approve community
through many institutions, both public and private. college baccalaureate programs and key elements of their
Distance learning, Internet courses and other computer- programs are also discussed. Because it is a relatively
based delivery options are emerging as popular methods recent development in higher education, information is
of teaching. Institutional models are also changing as available for only the handful of programs in existence.
proprietary colleges, charter colleges and E-colleges that However, the broad range of approaches to authorizing
provide 100 percent of coursework online enter the these programs is informative, and the arguments posed
marketplace in significant numbers. The problem that in the debate are helpful in understanding the multiple
community college baccalaureates are intended to solve facets of this issue.
should be viewed in this broader context of contemporary
baccalaureate education.
As states look for ways to respond to demands for higher
education, debates over issues such as cost, demand,
duplication of efforts, access and mission are inevitable.
Yet overriding these disagreements are the realities of
limited resources and rising costs. At a time when higher
education is becoming increasingly necessary for success
in the workplace, limited resources cannot be misspent.
Thus policy decisions must be based on a thorough
1
Primary Issues
Among community colleges, a few are venturing beyond A related concern is that a baccalaureate-awarding
the normal scope of community college education and into community college is likely to eventually transform into a
the traditional territory of four-year colleges and four-year institution and, in the process, abandon its
universities. They are community colleges that have primary mission. Influenced by perceptions of prestige,
begun offering four-year degrees. Students attending the school and local community may seek this
these schools are staying at their community college to transformation. Former two-year colleges in Arkansas,
obtain bachelor's degrees instead of transferring to a Georgia, Louisiana and Utah have become four-year
university or college. The practice is not widespread -- institutions, although they continue to offer associate-level
only sixteen community colleges in the country are and technical and vocational programs. Some community
currently authorized to award baccalaureate degrees -- colleges currently awarding baccalaureates have made
and the choice of degree programs is very limited. clear their preference to be four-year institutions, such as
However, it is an issue that has piqued interest, and raised Maui Community College in Hawaii and Northern New
concerns, as Arizona's community colleges seek to Mexico Community College.
venture into this realm.
In 2003, the then-president of the American Association of
The issue is controversial and there are strong views on Community Colleges noted that "some people liken the
either side. The following is a summary of the principal idea (of community college baccalaureates) to treason."
concerns raised by those who question the He expressed his own objection to the idea, saying "It's
appropriateness of allowing community colleges to award definitely not something I'm thrilled about because there's
baccalaureate degrees. always the possibility that we'll lose sight of our mission."1
MISSION CREEP Like universities, community colleges are facing a surge in
enrollment growth as high school graduates and working
One of the most frequently stated concerns is that the adults who are unable to get into universities seek access
purpose and philosophy of community colleges will to higher education. As community colleges begin to
change dramatically. They will move away from their reach enrollment capacity, these students are likely to
traditional functions of providing vocational and technical displace the socio-economically disadvantaged who may
education, workforce development, continuing education be less academically, financially or socially equipped to
and remedial education. Without strong leadership and fight for access to education. Community colleges will be
commitment, this shift is inevitable because the better faced with choosing which populations they will continue
resources, faculty and prestige associated with to serve. By adding baccalaureate programs to their
baccalaureate programs will lead administrators and already broad array of services, community colleges may
community leaders to favor these programs. ultimately find themselves departing from their traditional
mission, deliberately or perhaps unintentionally.
The traditional open door policy will be challenged,
especially as more baccalaureate degrees are offered. POSTSECONDARY CONTINUUM GAP
Admissions policies will likely be enacted to ensure that
limited resources and space are allotted to the most One of the primary functions of community colleges is to
qualified candidates. Once recognized as institutions provide remedial and tutorial programs to prepare
providing opportunity to people of all ages, ethnicities and students for higher levels of education. Estimates indicate
levels of preparedness, community colleges will be forced that nearly 50 percent of all students enrolling in
to make choices. In pursuing authority to grant community colleges are not prepared for college level
baccalaureate degrees, community colleges would be work in reading, writing or math, and must take remedial
betraying a legacy of commitment to accessible higher
education which traditionally has been available to anyone
with the motivation to learn. 1 Quoting George R. Boggs, president of the American Association of
Community Colleges, in "Making Waves in Miami."
2
classes before enrolling in college level classes.2 found between community colleges and a broad range of
Universities are unwilling to dedicate limited resources to public and private institutions. The baccalaureate degrees
this vital function. As community colleges face the awarded through these partnerships are awarded by the
realities of limited funding, it is likely that they, too, will four-year institution, conferring a conventional
move away from an emphasis on remedial education to baccalaureate degree from a recognized institution.
baccalaureate programs, if given baccalaureate authority.
The 2+2 partnership model creates a seamless transition
A shift away from other traditional programs such as from a student's first two years of community college
vocational, technical and continuing education could also coursework to a four-year university program. Upper
occur. The same financial pressures will exist since division courses are offered on the community college
student funding formulas are likely to award more money campus. The existing partnership between Arizona
for baccalaureate students than associate's or non-degree Western College in Yuma and Northern Arizona University
students. (NAU) is a national model, cited in numerous reports and
articles. Arizona State University and the University of
If the community college mission shifts away from its Arizona are also involved in partnership agreements with
original functions to an emphasis on baccalaureate community colleges, primarily within their service areas.
education, a gap will be created in the continuum of
postsecondary programs. This will have a significant Under the multi-institutional consortia model, two and
negative impact on the State's goals to provide and/or four year systems are located on same campus; however
improve educational opportunities for underserved, each has its own curricula, faculty and administrations.
minority and disadvantaged populations. They work together in order to serve students and use
facilities in more efficient ways, but are not as seamless
DUPLICATION OF EFFORT as the 2+2 model.
Four-year institutions are already providing the Under the university center model, university facilities
baccalaureate programs being sought by community are placed on community college campuses to provide
colleges. Distance learning, online courses and other baccalaureate degrees locally. The university center is
curriculum delivery options offer proven and cost-effective usually staffed by university faculty and governed by the
means of providing baccalaureate degrees throughout the university. The university confers the baccalaureate
State, in partnership with community colleges. degrees. In some states, a number of universities offer
programs at the same university center, giving community
Faced with scarce resources, avoiding duplication should college students a range of institutions to choose from for
be a primary policy objective. Allowing community their baccalaureate education. Central Arizona College is
colleges to award baccalaureate degrees without a careful developing this type of university center at its Signal Peak
assessment of need will result in unnecessary and costly campus in Coolidge.
duplication. For this reason, most states that allow
community colleges to award baccalaureate degrees have Variations on the university center model include co-
approached the issue with caution. location model (shared space), enterprise model
wherein a consortium develops and operates the higher
EXISTING PARTNERSHIP MODELS education center, integrated model wherein student
ARE EFFECTIVE affairs, library and other support services are integrated,
and the sponsorship model wherein the community
Four-year baccalaureate degrees are available at college takes the leadership role in determining offerings.
community college campuses through partnerships and
other cooperative models, whereby a community college In the virtual model upper division courses are taken
partners with a four-year institution to provide the second online. Across the country, four-year degree programs
two years of a student's education. These arrangements are being offered entirely online by both public and private
are widely used across the country to address local institutions. They address student preferences for easy
demand for baccalaureate education. Partnerships are access and flexible scheduling, and avoid the need for
costly classroom facilities.
2 Florida Department of Education. Access to Baccalaureate Degree
Instruction in Florida - Options and Opportunities.
3
Distance education programs utilize technological public comment phase, submitted its final
resources such as the Internet, interactive video and recommendations to the Illinois Community College Board
educational television to provide upper division classes on on November 18, 2005. The Board accepted the final
community college campuses. Often, the classes are recommendations without changes.
independent and flexible, allowing students to take
courses when they wish. NAU operates an extensive The recommendations do not support community college
distance learning program in partnership with community baccalaureates, but instead call for more collaboration
colleges throughout Arizona. between Illinois' community colleges and baccalaureate-
awarding institutions. The task force recommends
The articulation model involves formal articulation strengthening and expanding existing articulation efforts
agreements between the community college and four-year and dual admission initiatives; expanding joint partnership
institutions to facilitate a seamless transfer of its students agreements; providing financial incentives that promote
without any loss of credit. These agreements are partnership agreements; developing a process to quickly
especially valuable in states with a history of poor transfer identify baccalaureate access needs and a new program
policies between their community colleges and approval system that allows for rapid program delivery;
universities. In Arizona, public and private universities developing an extended-credit cooperative articulation
have articulation agreements in place with most model for selected programs that allows more credits of
community colleges. community college work (e.g., 80 credits) to apply toward
baccalaureate degrees; and establishing a website or
Before consuming scarce financial resources on creating brochure to provide information to students and advisors
new programs that they may not be best qualified to about online degrees and institutions. Finally, the
provide, community colleges should exhaust all efforts to establishment of a Baccalaureate Completion Grant
enter into partnerships with existing institutions of higher program is recommended to provide funds for Illinois
education, both public and private. In light of projections universities to work with community colleges to establish
of growing demand, it is important to nurture all successful off-campus baccalaureate completion programs, to be
models and to supplement them where necessary, rather delivered through on-site and online methods.
than develop ways to compete with or replace them.
The Illinois situation sheds light on the divisions that can
PARTNERSHIP MODELS PREFERRED develop over the issue of community college
BY COMMUNITY COLLEGE OFFICIALS baccalaureates. Two members of the Harper Community
College Board have been firmly opposed to the
The issue of community college baccalaureate degrees is President's efforts to obtain baccalaureate authority
not universally supported among community colleges. legislatively. Additionally, community college and other
According to a 2003 survey by the Community College higher education officials, who are participants in a
Baccalaureate Association, community college presidents Community College Executive Leadership doctoral
preferred partnership models over conferring degrees program at the University of Illinois, submitted a strong
within their colleges. public comment opposing community college
baccalaureate programs: "Having considered the merits
In Illinois, the Community College Board and Board of of the report, we want to express our shared belief that it
Higher Education have been publicly opposing an would be a serious mistake for the Illinois community
independent attempt by William Rainey Harper College to colleges to be granted the authority to award
obtain baccalaureate degree-awarding authority through baccalaureate degrees. We believe this would forever
the Legislature during the past two years. The Chairman change the mission of these important higher education
of the Illinois Community College Board issued a press institutions." 3
release in opposition to Harper's efforts, expressing
concerns of mission creep and cost. He argued that
partnership arrangements are the appropriate solution for
location-bound students. A joint task force was formed to
evaluate the issue and the Legislature tabled the 2005
legislation pending its review. The task force issued its 3 Illinois Community College Board. "Baccalaureate Access Task
draft recommendations in September 2005, and after a Force Draft Report - Comments as of October 28, 2005." Comment
No. 32.
4
ACCREDITATION ISSUES thorough assessment of the cost and resource
implications of meeting accreditation standards should be
Arizona's colleges and universities fall under the made before allowing community colleges to award
governance of The Higher Learning Commission (HLC) of baccalaureate degrees.
the North Central Association of Colleges and Schools
(NCA). Any baccalaureate degree program proposed by a POTENTIAL FOR HIGHER COSTS
community college would require the approval of this
accrediting body. The accreditation process requires Community colleges may not be able to offer
submittal of a comprehensive written analysis, site visit baccalaureate degrees at costs comparable to established
and peer review. It is a time-consuming process which four-year institutions. As noted, there may be significant
can take six months to a year to complete. costs associated with upgrading faculty and library
holdings. Upgrading labs and equipment to meet
In order to meet accreditation standards, changes are standards for a baccalaureate program also may require
likely to be required in the make-up of faculty. Although substantial investments. If these costs are borne entirely
the Higher Learning Commission does not prescribe by baccalaureate-seeking students in the form of high
specific degree requirements for faculty,4 it expects tuitions, their tuition rates are unlikely to be competitive
institutions to follow "good practices." In general, this with the rates charged by established four-year
means that faculty members who teach general education institutions. On the other hand, these costs could be
courses should hold a master's degree and have spread across the entire community college population in
completed "substantial graduate coursework in the the form of higher tuitions or fees, which would unfairly
discipline" being taught. Faculty teaching undergraduate impact non-baccalaureate students.
courses should hold a master's degree in the discipline
being taught. In practice, however, most baccalaureate Some states have provided appropriations to cover the
courses are taught by PhDs, although exceptions are start-up costs that community colleges incur. For
common in certain fields such as voc/tech, where example, the Florida Legislature appropriated $1 million to
professional certifications or experience carry more weight St. Petersburg College for this purpose. It subsequently
than academic degrees. In evaluating a proposed appropriated another $5 million for a second group of
program, peer reviewers, who are experts in the subject community colleges seeking baccalaureate-granting
area, assess the curriculum, faculty qualifications, authority, which was allocated by the Florida Board of
implementation plan and other criteria, to determine Education upon its approval of additional degree
whether they meet accreditation standards. programs. Subsequent state budgets have contained on-
going funding for community college baccalaureate
Without knowing the degree status of Arizona's community programs. Additionally, Great Basin College in Nevada
college faculty, it is difficult to determine whether cost received a $1.5 million appropriation for start-up costs,
increases for faculty upgrades will be significant or not. and monies were disbursed by the Hawaii Board of
An indication of whether an institution has qualified faculty Regents for Maui Community College’s implementation
may be evidenced by its primary mission. In general, a efforts.
school that focuses on transfer students is likely to have
higher degreed faculty than a school that focuses on Higher faculty salaries and workload issues are also
voc/tech programs or other fields which require little inevitable. In many communities, it may be necessary to
education beyond an associate's degree. To the extent offer incentives to attract qualified faculty. Financial
that existing faculty do not meet accreditation standards incentives such as higher salaries or lower teaching loads
for the proposed baccalaureate program, community will add to the cost of community college education,
colleges will find it necessary to add or change faculty, at further diminishing the arguments of cost-effectiveness.
increased cost.
As costs of providing community college education rise,
Library holdings, equipment and facilities may also have to higher education may be put out of reach for more and
be upgraded, depending on the degrees offered. A more students. Faced with limited resources community
colleges should resist offering baccalaureate degrees if
4 In some regions, faculty degree requirements are specified. For they are committed to fulfilling the mission of providing
example, in the southern region 25 percent of the baccalaureate accessible, affordable educational opportunities in their
degree program must be taught by faculty holding a PhD in the field. communities.
5
Proponents may counter that community colleges have simply lack the rigor and breadth of content of 'equivalent'
traditionally been able to offer lower division classes at a senior college courses." 5
lower cost than universities, thus they should be able to
offer upper division courses at a lower cost once initial A related problem may be that without proper oversight
start-up costs are borne. However, a 1992 study and accountability, there may be a proliferation of
conducted by the Joint Legislative Budget Committee of questionable baccalaureate degree programs offered by
Arizona found that the cost of lower division education community colleges that may further degrade the
was not lower at most of Arizona's community colleges baccalaureate degree. A recent analysis by Florida's
compared to its universities. The report, entitled Lower program evaluation agency, Office of Program Policy
Division Cost of Education at Arizona's Universities and Analysis and Government Accountability, recommended
Colleges, found that while the average system cost was the establishment of a process to coordinate degree
slightly higher for universities than community colleges, requirements for Bachelor of Applied Science programs
the majority of community colleges had higher costs per because there is inadequate coordination of degree
student than each of the three universities (see Exhibit 1). requirements of community college BAS programs. It
The study also found that "Arizona's community college warned that without better coordination, community
system received an average of $125 more tax support for colleges are likely to independently develop degree
the cost of each lower division full-time equivalent student programs for numerous specialty areas, creating a
than did the university system." An update of this study proliferation of narrowly defined degree programs, while
may be warranted to assess how community college costs causing articulation problems for transfer students.
compare today to university costs for lower division
courses. FACULTY ISSUES
LOWER QUALITY OF EDUCATION Community colleges may have difficulty attracting and
retaining qualified faculty, which also may contribute to
Community college baccalaureate degrees may be viewed misgivings about the quality of education. With or without
as second-rate. It is argued that the quality of education incentives, it will be difficult to convince the "best and
provided will not be equal to a university education brightest" to participate in a "second-rate" degree program
because community colleges are unlikely to deliver upper if other opportunities are available. In rural communities,
division courses that are as rigorous as university especially, attracting qualified professionals is inherently
curricula. As a result, community college graduates may difficult. There is no reason to believe that recruiting
lack the critical thinking skills expected to accompany a qualified faculty for community colleges would be any
baccalaureate degree. Because perceptions are often easier.
reality, it may be difficult to persuade employers that a
degree from a community college is as good as one from Issues of faculty morale may emerge due to inequities in
a university. In the long run, the prestige and value of a pay and teaching load among lower and upper division
baccalaureate degree will be diminished, hurting all faculty. Disputes concerning the mission of the institution
baccalaureate degree holders, not only those with may also develop, such as disagreements over academic
community college baccalaureates. research versus applied and technical learning.
Whether valid or not, this perception exists. According to COMPETITION ISSUES
a joint membership survey by the American Association of
Community Colleges (AACC) and the American In the area of workforce development, private universities
Association of State Colleges and Universities (AASCU), have been posing a competitive threat to community
the most frequently cited barrier to baccalaureate colleges because the private sector has been quick to
education is "the perception that community college respond to the needs of business and industry. As more
graduates are simply less well-prepared academically companies create their own in-house colleges, they are
than students who began their studies at a four-year looking to private, for-profit institutions to provide the
institution. Where four-year college and university faculty faculty to train their employees. At the expense of public
attributed this obstacle to a lack of intellectual challenge at
two-year colleges, two-year college faculty attributed the
problem to a dismissive and unfounded attitude on the 5Executive summary of Access to the Baccalaureate Project Survey,
part of four-year faculty that community college courses May 2, 2003; http://www.pathtocollege.org/pdf/EXECSU.pdf.
6
colleges, private universities are stepping in with cutting-
edge programs that train students in a timely, efficient
manner.
With the proliferation of online and private institutions
offering degree programs, there is little doubt that
community colleges are facing stiff competition for
students. In determining whether community colleges
should be given authority to award baccalaureate
degrees, a central issue should be whether they will
simply compete for students who would otherwise go to a
four-year institution, or whether they will provide
opportunities for new students who otherwise would not
continue their education.
7
States with Community College Baccalaureates
INTRODUCTION United States.6 Of these, 979 are public institutions, 148
are private institutions and 30 are tribal institutions. Given
It is important to note at the outset that the following is a that only 1.6 percent of public community colleges award
summary of community colleges that have obtained baccalaureates, it is evident that it is a relatively
specific authority to award baccalaureate degrees. It is uncommon practice. When compared to total community
not a survey of community colleges that award colleges, this percentage drops to 1.4 percent.
baccalaureate degrees through other institutional models
such as 2+2 partnerships, university centers, articulation In all nine states, community colleges are limited in the
agreements or distance learning. In those cases, the degrees they can award. Teaching, nursing and
baccalaureate degree is conferred by the partnering four- information technology are the most common subject
year institution, not the community college. The focus of areas. Exhibit 2 lists the current degree offerings of each
this survey is to identify and discuss two-year institutions of the sixteen community colleges, including the number
that award baccalaureate degrees. of campuses involved in offering the program. Exhibit 3
summarizes the states and schools which have been
Community college baccalaureates are a relatively recent erroneously identified in various sources as awarding
and limited development. There are only nine states that community college baccalaureate degrees. This
allow community colleges to award baccalaureate information is provided to aid in assessing claims that
degrees. And within each state, only a few schools are community college baccalaureates are widespread. A
authorized to award them. The states and number of brief review of the situation in each state follows.
community colleges involved are: Florida (6), Hawaii (1),
Indiana (1), Nevada (2), New Mexico (1), New York (1), FLORIDA
Texas (3), Vermont (1) and Washington (4).
The Florida postsecondary education system consists of
In total, only sixteen community colleges in the country eleven public universities, 28 independent colleges and
currently award baccalaureate degrees. Four Washington universities, and 28 community colleges. Six community
community colleges will begin offering baccalaureate colleges have the authority to award baccalaureate
degrees in the fall of 2007 but have not yet been selected degrees: Chipola College, Daytona Beach Community
for the pilot program. Over half of the programs are newer College, Edison College, Miami-Dade College, Okaloosa-
than twelve months old: Walton College and St. Petersburg College. Most of the
baccalaureate degrees are in the area of teacher
No. Started State education, followed by the health and technology areas.
1 1970s New York
1 1999 Nevada • Background
1 1993 Vermont In 1999, the Florida Legislature passed legislation
1 2001-2002 Florida establishing a Site-Determined Baccalaureate Degree
2 2002-2003 Florida Program through which community colleges could seek
1 2003-2004 Florida approval from the Legislature to grant baccalaureate
1 Fall 2004 New Mexico degrees in areas of high demand, but only as a last resort
1 Spring 2005 Hawaii when partnerships with public or private universities could
6 Fall 2005 Florida (1), Indiana (1), not be established. A Concurrent-Use Task Force was
Texas (3), Nevada (1) established consisting of members from the Community
1 Spring 2006 Florida College System, State University System, and
4 Fall 2007 Washington Independent Colleges and Universities (ICUF) to identify
According to the American Association of Community 6 American Association of Community Colleges. Community College
Colleges, there are 1,157 community colleges in the Fact Sheet. (http://www.aacc.nche.edu/Content/NavigationMenu/About
CommunityColleges/Fast_Facts1/Fast_Facts.htm) 8/2/05.
8
needs and potential partnerships for additional Florida's higher education system has discussed
baccalaureate programs. The task force surveyed community colleges offering master's degrees. Mediation
community colleges to identify needs; and it surveyed over a lawsuit asking the courts to clarify the Board of
state universities and ICUF institutions to identify potential Governors' powers is set for November 2005, and four-
partnerships. These institutions were asked to: year degrees are among the issues under discussion.
• Identify baccalaureate programs they could offer on • Programs Approved
specific community college campuses; In 2001 the Legislature authorized the first community
• Make their feeder colleges a priority; college, St. Petersburg College, to award baccalaureate
• Give secondary consideration to other colleges degrees in nursing, education and information technology.
indicating a need, particularly in high demand areas; A $1 million appropriation was provided for this purpose.
• Identify reasons they were unable to partner with a Subsequently, the Legislature established a process for
feeder college (e.g., degree or program not offered, other community colleges to seek baccalaureate-granting
insufficient resources). authority through the Department of Education and
appropriated an additional $5 million for schools receiving
The information garnered through this process was approval. In 2002 two community colleges (Chipola
provided to community colleges to facilitate partnerships. College and Miami-Dade College) were granted authority
Private institutions were at the table throughout this to award baccalaureate degrees, and in 2003 a third
process and viewed as important players in expanding school (Okaloosa-Walton College) was granted authority.
access to baccalaureate degrees in Florida.7 An A fourth community college (Edison College) was denied
appropriation of $2 million was made for the Site- baccalaureate-granting authority in 2002 and urged to
Determined Baccalaureate Degree Program but vetoed by enter into a partnership agreement with Florida Gulf Coast
the Governor who cited inadequate process controls. University.
In 2000 the Florida Legislature created a new governing After two years of partnership, Edison College recently
authority to replace the Board of Regents and State Board requested approval for independent baccalaureate
of Community Colleges. The new Florida Board of degree-granting authority. Approval of its request was
Education was created to oversee the entire K-20 system. recommended by the Council for Education Policy
The Site-Determined Baccalaureate Degree Program was Research and Improvement (CEPRI), the agency charged
modified to allow community colleges to seek with reviewing community college requests for
baccalaureate authority from the new K-20 Board of baccalaureate programs. The request was also supported
Education rather than through the legislative process. By by Edison's partner, Florida Gulf Coast University, and in
creating an oversight board spanning the entire education April 2005, the Florida Board of Education approved the
continuum, the concerns of legislators who worried about request. Edison College will begin offering its Bachelor of
duplication of programs between the community college Science in Public Safety Management program in the fall
and university systems, were eased. of 2005.
Voters had a different idea, and two years later approved Also in April 2005, Daytona Beach Community College
a constitutional amendment that created a Board of was authorized to offer a Bachelor of Applied Science in
Governors to oversee the universities. As more Florida Supervision and Management. Approval was granted
community colleges seek baccalaureate authority and despite a recommendation from CEPRI to deny the
authorized ones expand into other degree areas, a turf request, and opposition from the University of Central
war is beginning to emerge between the Board of Florida.
Education, which oversees community colleges, and
Board of Governors. The community college system has In December 2004, one of the baccalaureate-awarding
established a goal to increase the number of community colleges, Chipola College, was placed on
baccalaureate degrees awarded by 5 percent per year, twelve months probation by the Commission on Colleges
and a task force charged with improving access to of the Southern Association of Colleges and Schools, the
accrediting institution for the southern region. The
7 Florida Department of Education. Access to Baccalaureate Degree probation is specifically associated with the baccalaureate
Instruction in Florida - Options and Opportunities. p 15. program but potentially affects the accreditation of the
9
entire institution, including its associate's degree college baccalaureate applications. Exhibit 4 outlines the
programs. The accrediting body found that Chipola criteria used in the Florida evaluation process.
College failed to demonstrate compliance in four areas:
integrity, sound fiscal policies, qualified administrative and Florida is the only state that has conducted an evaluation
academic officers, and accurate financial statements. For comparing community college baccalaureate degree
additional discussion of this issue, refer to the section programs to university programs. The first report was
entitled Florida Analysis. published in April 2005 by OPPAGA. A following section,
entitled Florida Analysis, discusses its findings and
In FY 2004-2005, the Florida Legislature appropriated recommendations.
over $7 million to four community colleges specifically for
baccalaureate degree programs. HAWAII
• Approval Process The University of Hawaii system consists of three
Until recently, the process for obtaining degree-granting universities and seven community colleges. Maui
authority has been fairly rigorous. Schools must provide Community College is the only community college that has
information about the demand for the degree; availability received authority to award a baccalaureate degree, a
of jobs for future graduates; enrollment estimates; Bachelor of Applied Science in Applied Business &
evaluation of the potential impact on faculty, students and Information Technology. The program became available
other institutions (public and private); implementation and beginning in the spring of 2005. Since 1993 a limited
accountability procedures. Cost estimates must be number of bachelor's degrees have been available at the
provided, including estimates of state funding, since Maui Community College campus through a university
approved programs are eligible for state funds. A center operated by the University of Hawaii, which will
description of the process for collecting enrollment, continue to operate for the time being. However,
expenditure, completion and performance data, which according to public remarks by its provost, the long term
must be collected for the purpose of evaluating the degree objective of Maui Community College is to become a four-
program, is also required. year institution itself.
Evaluations were performed by the Council for Education • Approval Process
Policy Research and Improvement (CEPRI). Based on a Authority for community colleges to offer baccalaureate
review of approval history, CEPRI was cautious in degree programs was granted in 1996 by the Hawaii
recommending baccalaureate authority. The agency did Legislature. Approval of specific programs rests with the
not recommend approval of the first applications Hawaii Board of Regents. The Regents have a policy
submitted. Subsequent requests were challenged and which allows any community college to seek
alternative approaches, such as partnership agreements, baccalaureate-awarding authority in one degree area.
were recommended in several instances. In April 2005, This limitation is the result of a pilot program between the
CEPRI staff recommended denial of a request by Daytona junior and senior commissions of the Western Association
Beach Community College. Despite their negative of Schools and Colleges (WASC), the Accrediting
recommendation, the Board of Education approved the Commission for Community and Junior Colleges
request. According to CEPRI staff, the Board of (ACCJC), and the Accrediting Commission for Senior
Education took this action because its members are Colleges and Universities (ACSCU). The pilot program
resigned to the fact that expansion of community college stipulates that a community college can remain under the
baccalaureate authority is inevitable. governance of the ACCJC if it offers only one
baccalaureate degree program but must transfer to
CEPRI has since been abolished. During the 2005 ACSCU governance if it offers any more.
session, no funding was appropriated to continue the
Council. Thus, the offices were closed and a few CEPRI The Board of Regents approval process for community
staff members were temporarily transferred to the Office of college baccalaureate programs is the same process used
Program Policy Analysis and Government Accountability for any new degree programs within the University of
(OPPAGA) to finish pending projects. The Florida Hawaii System. The degree area was selected based on
Department of Education has assumed some of CEPRI's a survey of Maui County residents which indicated high
responsibilities, including the evaluation of community
10
demand for degrees in the area of computer science and beginning in the fall of 2005: Health Care Management,
business. To minimize duplication with the University of Technology, Homeland Security and Public Safety. The
Hawaii offerings, the single business degree was four remaining programs will be offered beginning in the
developed, which emphasizes small to medium-sized fall of 2006: Nursing, Secondary Education (Mathematics),
business management with a strong information Secondary Education (Science), and Special Education.
technology component.
NEVADA
There is no process in place to specifically collect data
and/or conduct a cost or effectiveness comparison The Nevada System of Higher Education (NSHE) consists
between the baccalaureate degree programs at Maui of two University of Nevada campuses, one state college,
Community College and the University of Hawaii. The one research institute, and four community colleges. Two
evaluation process for the program is the same as for any community colleges, Great Basin College and Community
other program authorized by the Board of Regents and the College of Southern Nevada, have the authority to grant
western accrediting body. baccalaureate degrees. Great Basin has been offering
baccalaureates since 1999; Southern Nevada recently
INDIANA received authorization to offer a BS degree in dental
hygiene, beginning in the fall of 2005.
Until the fall of 2004, Indiana had two institutions engaged
in awarding associate's degrees -- Ivy Technical State • Approval Process
College and Vincennes University. Ivy Technical State There is a formal application process for requesting
College was a trade and technical school with 23 baccalaureate degree authority for Nevada community
campuses statewide. Vincennes University was Indiana's colleges. The application is reviewed by the State Higher
sole provider of two-year liberal arts degrees, with only Education Board and state universities. It requires an
two campuses of its own. A community college system assessment of need and demand; discussion of
did not exist. The two institutions operated under a form institutional readiness (available faculty, facilities and
of joint use partnership since the 1990s, with Vincennes equipment); budget projections; cost-benefit analysis of
providing two-year liberal arts programs at Ivy Tech's 23 other alternatives (to State and student); assessments of
campuses, and Ivy Tech awarding its own two-year available programs and capacity at nearby institutions;
technical degrees. However, last fall, the partnership discussion of partnership efforts, library and information
between the two institutions dissolved, and during the resources, accreditation issues and costs; and
2005 session, the Legislature enacted a bill formalizing assessments of the impact of the proposed program on
the dissolution. The mission of Ivy Technical Community other programs, faculty, facilities and students. Exhibit 5
College was expanded to include serving as the State's is the section from the NSHE Procedures and Guidelines
community college system. Vincennes University was left Manual outlining the evaluation criteria.
without a statewide presence or official designation as a
community college. The process for monitoring and evaluating community
college baccalaureate programs at the State level is the
• Approval Process same as for any other degree program. Data is not
Seeing the handwriting on the wall, Vincennes University available to analyze their cost-effectiveness or
last fall sought approval from the Indiana Commission for performance in comparison to the universities because no
Higher Education to award seven baccalaureate degrees. mechanism was implemented to collect such data when
Approval was granted in November 2004 with little debate, the first programs were authorized in 1999. According to
largely in consolation to the school which was left without Nevada System of Higher Education staff, the primary
portfolio. According to the Indiana Commission for Higher purpose for authorizing community college baccalaureate
Education staff, this was a reasonable solution to degrees has been to provide access to education. Thus
Vincennes University's situation under the circumstances. comparative cost analyses have not been considered an
However, any future requests for baccalaureate programs important component of their evaluation process.
are likely to face much greater scrutiny.
Vincennes University is in the process of developing the NEW MEXICO
approved programs. Three programs will be offered
11
The New Mexico higher education system consists of five NEW YORK
public universities, eleven private colleges and
universities, 20 community colleges and technical schools, One community college in New York awards
and four branch campuses of the University of New baccalaureate degrees, the Fashion Institute of
Mexico that award associate's degrees only. One Technology. The institute is part of the State University of
community college, Northern New Mexico Community New York (SUNY) system and is identified as one of the
College, has been granted authority to award 30 community colleges in the New York community
baccalaureate degrees. It began offering baccalaureate college system. However, it has been awarding
programs in five teacher education areas in the fall of baccalaureate degrees since the 1970s and offers more
2004. In April 2005, the limitation to teacher education baccalaureate (21) and graduate (5) degree programs
degrees was removed so that baccalaureate degree than associate's programs (16). The programs are
programs can now be offered in any area, subject to the exclusively in the fields of fashion and design.
normal Board of Regents and accreditor approval
processes. TEXAS
• Approval Process The Texas public higher education system consists of 44
The New Mexico Legislature authorized Northern New universities, nine health-related institutions, and 76
Mexico Community College to award baccalaureate community colleges. Three community colleges, Midland
degrees in teacher education in 2004. The community College, Brazosport College and South Texas College,
college was originally a normal school, which was not have received the authority to offer baccalaureate degree
converted to a regional university when the State's other programs beginning in the fall of 2005. Each school will
normal schools were converted. Instead, it was given be offering a Bachelor of Applied Technology in
community college status in 1977, with statutory Technology Management.
restrictions preventing it from offering upper division
classes. In 2004 the Legislature lifted the restriction for • Approval Process
teacher education degrees only, thus allowing the The Texas Higher Education Coordinating Board
community college to begin offering baccalaureate authorized baccalaureate degree programs at the three
programs for teachers in the fall of 2004. community colleges pursuant to a pilot project established
by the Texas Legislature in 2003. The schools were
During the 2005 session, the Legislature passed selected based on legislative intent, communicated by the
legislation to allow New Mexico Community College to Speaker of the House, that these three schools be the
award baccalaureate degrees in all subject areas. The pilot institutions.
stated goal of the school, expressed through its president,
has been to become a four-year institution. The In determining what degree programs to authorize, the
legislation, combined with approval of a change in Board was required to consider regional need, articulation
institutional classification by the accrediting body, is with other college programs, avoidance of unnecessary
expected to sanction the conversion. duplication with programs at other institutions, and the
ability of the college to support a quality program.
Northern New Mexico Community College is the only Although only one degree has been approved to date, the
community college in New Mexico with baccalaureate pilot project authorizes each school to offer up to five
degree-granting authority. According to Legislative baccalaureate degrees in applied science and applied
Council staff, there was no consideration given to granting technology fields, subject to Board approval. The project
baccalaureate degree authority to New Mexico's other is scheduled to end in 2015.
community colleges. The situation at Northern New
Mexico Community College was viewed as unique, and According to Texas Higher Education Coordinating Board
granting baccalaureate authority was intended to restore staff, future expansion of the pilot program would be up to
the institution to its rightful status as a regional university. the Legislature. However, there are no other community
Thus, there is no process in place for approval of other colleges actively seeking baccalaureate authority at this
community college baccalaureate programs, nor for cost- time, although several others expressed interest during
effectiveness or performance evaluations. development of the pilot project. Several reasons given
for the current lack of interest are that the politics involved
12
in the selection process was taxing; the accreditation The Washington Legislature enacted a pilot program
process endured by the three pilot institutions was during its 2005 session to allow four community colleges
lengthier and more complex than expected; and the other to begin offering baccalaureate degree programs in the fall
community colleges have decided to take a "wait and see" of 2007. The degrees will be in applied areas, and
approach as the pilot institutions implement their classes will be offered in the evenings and on weekends.
programs. The program is designed for people already in the
workforce who need baccalaureate opportunities to
Some literature erroneously indicates that El Centro advance their careers. It was developed in response to a
College applied for and was granted authority to offer a study which identified a need for applied baccalaureate
baccalaureate degree in Interior Design. According to degrees because they were only offered in limited fields
Texas Higher Education Coordinating Board staff, despite and only by some universities in some locations. The
indications that El Centro might seek Board approval for a legislation also authorized three pilot contracts between
baccalaureate program, they never officially applied. community/technical colleges and universities to provide
baccalaureate degrees for location bound students.
Evaluations will be conducted of the three community Washington universities already operate university
colleges in the pilot program. Each institution is required centers, and the pilot contracts are intended to explore
to collect and submit data based on criteria developed by alternatives to the university center models already in
a committee of the Texas Higher Education Coordinating place.
Commission. The first reports from the community
colleges are due in 2006, followed by reports in 2008. In • Approval Process
2009, the Council will report to the Legislature on the
The Washington State Board for Community and
progress and preliminary results of the pilot program.
Technical Colleges was given the authority to select the
Exhibit 6 outlines the reporting requirements, showing the
pilot institutions, after a task force established objective
data that will be collected for evaluation.
selection criteria. The task force has recommended
stringent criteria to satisfy five main principles for applied
VERMONT degrees: (1) they should primarily serve students not
The Vermont State College system consists of three state otherwise served by existing public baccalaureate degree
colleges, one technical college and one community programs due to factors such as distance, cost, enrollment
college that operates at twelve locations across the State. limitations or major, (2) they should be an extension of the
The community college is not authorized to award workforce education mission of community and technical
baccalaureate degrees, however the technical college, colleges, (3) they should be offered by colleges that have
Vermont Technical College offers baccalaureate degrees a record of good use of human and financial resources to
in six areas. ensure the likelihood of a successful program, (4) they will
be an additional degree offered by predominantly lower
• Approval Process division institutions and should not be viewed as a first
step to a progressive conversion to a comprehensive
The Vermont State Colleges Board of Trustees approved
baccalaureate institution, and (5) maintaining the open
the first baccalaureate degree program in 1993. Approval
door mission of community and technical colleges is an
was granted by the Board under the normal review
important value and context for adding applied degree
process for new program offerings. Since then six
programs at some colleges.
additional programs have been approved. The only other
two-year institution in Vermont, Community College of The specific criteria recommended to ensure compliance
Vermont, does not have baccalaureate degree authority with the above principles include evaluation of student
and does not intend to seek it at this time. There is no demand, employer demand, community need, curriculum
evaluation process that compares the cost-effectiveness plan, teaching faculty, student services, program
of the community college baccalaureate program to the admissions and program evaluation. Similar criteria were
state college programs. recommended for university contracts. The State Board
approved the recommendations on October 19, 2005, and
WASHINGTON the pilot schools will to be selected next spring.
13
States without Community College Baccalaureates
A number of other states have been mentioned in various ILLINOIS
sources as having community colleges that award
baccalaureate degrees, but do not. These states and No community college in Illinois is authorized to award
institutions are discussed below for purposes of baccalaureate degrees. William Rainey Harper College
clarification. Based on discussions with school officials, it independently sought baccalaureate authority during the
is clear that each of the institutions views itself as a past two legislative sessions, over the objections of the
university, not a community college. State's community college board and higher education
board (see Exhibit 7 for the Illinois Higher Education
ARKANSAS Board resolution opposing Harper College's efforts). In
late 2004, the Illinois Board of Community Colleges and
In 2002, Westark Community College became a four-year the Board of Higher Education formed a joint task force to
institution, joining the University of Arkansas system as study the issue. The 2005 legislation was held pending
the University of Arkansas-Fort Smith. It continues to offer results of the task force study. Task force
a large number of associate's degree and certificate recommendations were adopted by the Illinois Community
programs. Prior to the change, Westark Community College Board in November 2005. The task force did not
College had been authorized to award ten baccalaureate recommend community college baccalaureates, but
degrees, however, only one, Manufacturing Technology instead proposed expansion and enhancement of
Management, was ever offered. The change to a four- partnership arrangements and additional funding to
year institution was subject to voter approval of a county support them.
sales tax, which became a primary funding source for the
new university. The public higher education system in Illinois consists of
12 universities and 40 community college districts
The public higher education system in Arkansas consists composed of 49 colleges. The first community college in
of 11 universities and 22 two-year institutions. The two- the nation, Joliet Junior College, was established in Illinois
year institutions include community colleges, technical in 1901.
colleges, branches of the University of Arkansas and LOUISIANA
Arkansas State University systems that offer two-year
technical and vocational programs, liberal arts programs Louisiana State University-Alexandria began as a two-
designed for university transfer and certificate programs. year institution in 1959 within the Louisiana State
None of these two-year institutions award baccalaureate University system. From 1976 through 2003, selected
degrees. baccalaureate degrees were awarded through a
partnership program. In 2001 legislation was enacted
GEORGIA authorizing LSUA to begin offering baccalaureate
degrees. It underwent reorganization and is now a four-
Dalton State College became a four-year institution in year institution, although it continues to offer associate's
1998. It is one of two state colleges in Georgia and degree programs.
continues to offer a large number of associate's degree
and certificate programs. The public higher education system in Louisiana consists
of eight University of Louisiana campuses, ten Louisiana
The public higher education system in Georgia consists of State University institutions, five Southern University
four research universities, two regional universities, 13 institutions, seven community colleges, two technical
state universities, two state colleges and 13 two-year community colleges and one technical college. The
institutions. The State's two-year institutions do not award community colleges and technical colleges do not offer
baccalaureate degrees. baccalaureate degree programs.
14
SOUTH CAROLINA
After a failed effort in 2003, followed by a gubernatorial
veto and successful override in 2004, Trident Technical
College was authorized to begin a baccalaureate degree
program in culinary arts in 2004. However, in January
2005, the South Carolina Supreme Court ruled that the
baccalaureate degree provisions were not germane to the
rest of the legislation, deeming them invalid. During the
2005 session, legislation was introduced in a third attempt
to establish the program; however, the effort was
abandoned due to lack of legislative support.
In lieu of a baccalaureate degree program, Trident
Technical College recently announced the establishment
of the Culinary Institute of Charleston, consisting of its
current culinary and hospitality programs as well as the
addition of new credit and continuing education offerings,
certificate programs, work experience and exchange
partnerships, and customized training programs for the
hospitality industry.
The public higher education system in South Carolina
consists of three research universities, nine four-year
institutions and 16 two-year technical colleges. None of
the technical colleges have baccalaureate degree-
awarding authority.
UTAH
Two institutions in Utah are regularly mentioned in
literature as community colleges: Utah Valley State
College and Dixie State College. Each of these
institutions began as a community college but converted
to four-year state colleges in 1991 and 1999, respectively.
However, both institutions continue to offer associate's
degree programs.
The public higher education system in Utah consists of
two major universities, two regional universities, two state
colleges, three community colleges and a technical
college. The community colleges and technical college
are two-year institutions and do not have the authority to
award baccalaureate degrees.
15
Florida Analysis
EVALUATION OF COMMUNITY COLLEGE • Low start-up costs to the State;
BACCALAUREATE DEGREE PROGRAM • Encourages sharing of resources such as computers,
lab equipment and library materials, thus saving
The Florida Legislature's program evaluation agency, the costs;
Office of Program Policy Analysis and Government • Investments by public and private universities at
Accountability (OPPAGA), performs program reviews of community college campuses benefit students in two-
proposed and existing programs. In April 2005 it year programs as well;
published an evaluation of the State's community college • Students are able to stay in their communities;
baccalaureate program entitled "Authorizing Community • Private colleges benefit both students and local
Colleges to Award Baccalaureate Degrees is One of employers because they often are more flexible and
Several Options to Expand Access to Higher Education." can more quickly adjust course offerings in response
Legislatively commissioned, the study examined (1) the to changing workforce needs or student demands.
need to increase access to baccalaureate degrees, (2) the
advantages and disadvantages of alternative methods of The partnership challenges identified in the report include:
delivering baccalaureate degrees at community college
campuses, and (3) options for strengthening the process • Communication breakdowns, personality conflicts and
for providing baccalaureate degrees on community college a lack of commitment to the sharing arrangement can
campuses. The following is a summary of the report. 8 prevent or destroy partnerships;
• Some state universities, particularly those aspiring to
Expanding Access Through Partnerships be highly rated research institutions, can be
Most of Florida's community colleges (22 of 28) partner uninterested in establishing partnerships because
with public and/or private colleges and universities to they are focused on investing in programs on their
provide upper division coursework leading to a established campuses, and unwilling to establish
baccalaureate degree. Approximately 90 degrees are programs in new locations;
available through partnerships with public universities. In • Community colleges may be reluctant to partner with
addition, 12 private universities have partnerships with private universities due to their higher tuition costs;
community colleges, offering 20 baccalaureate degree • Community colleges may be reluctant to partner with
programs at 18 community colleges. According to the either public or private universities if they are more
Independent Colleges and Universities of Florida, in 2004 interested in offering their own baccalaureate degree
their member institutions served approximately 3,000 programs and becoming colleges, for reasons of
students who were working on baccalaureate degrees on academic prestige.
community college campuses. Together, public and
private universities offer baccalaureate degree programs Benefits and Challenges of
at all but one Florida community college. Community College Baccalaureates
Community colleges that offer their own baccalaureate
Some of the benefits of partnerships cited in the report degrees can provide benefits to students, local
include: businesses, and the State, such as low tuition, ability to
meet workforce needs, and a potential for improved
• No need to undergo a separate accreditation process retention and graduation rates. In addition to tuition
for off-campus offerings by universities at community savings, students who stay at their community colleges to
colleges; complete their baccalaureate degrees avoid the cost of
relocating to a new institution.
8 The OPPAGA report is summarized using exact wording from the Local business and other employers benefit from
report to ensure the most accurate representation of its findings and community college baccalaureate programs because
conclusions.
these programs are designed to meet the unique
16
workforce needs of the area.
Table 1: EXPENDITURES PER UPPER DIVISION CREDIT HOUR
Community colleges are
experienced in working with local FY2003 FY2004 FY2005
INSTITUTION DEGREE PROGRAM
businesses to identify needs and (actual) (actual) (est)
design educational programs to
meet those needs. Their State University Average 244 243 259
governance structure is more Community College Average 339 373 290
flexible than universities so they
can often respond more quickly Chipola College Secondary Education 0 2706 805
Miami-Dade College Secondary Education 0 317 219
to workforce needs.
Okaloosa-Walton College Project/Acquisitions Mgmt 0 0 183
St. Petersburg College SUMMARY 339 345 286
Community college bacca- Allied Health 529 408 363
laureate programs benefit Education 266 357 253
students because they are Public Safety 0 0 253
offered in an environment Technology Management 371 285 267
adapted to the specific needs of
SOURCE: OPPAGA analysis of DOE expenditure data.
older, working, location-bound
students. They also help the
State increase production of college graduates, as Community college expenditures per credit hour are
research indicates that students are more likely to expected to decrease as enrollments increase. For
complete baccalaureate degrees if they do not transfer example, Chipola College costs are projected to fall to
between schools. However, there is insufficient data at $805 in 2004-2005, although this will still be substantially
this time to determine to what extent baccalaureate higher than the average university system per credit hour
programs have improved degree completion rates or cost. However, to avoid creating programs that carry high
increased the number of non-traditional students who long-term costs, it is important that community colleges
obtain baccalaureate degrees. carefully plan their degree programs to ensure that they
will attract enough students over time to bring their
The challenges of authorizing community colleges to expenditures down to the state university system credit
award baccalaureate degrees primarily relate to the hour average.
potential costs of becoming accredited and the possibility
of mission creep. To meet the accreditation requirements Community colleges with baccalaureate programs could
of the Southern Association of Colleges and Schools, a also be at risk for mission creep. This could occur if
community college may need to expand its library community colleges view creating baccalaureate
holdings, upgrade its facilities and increase the number of programs as a means of enhancing their academic
faculty with PhDs to teach the proposed programs. If the prestige. Local leaders can also encourage their
community college does not have enough resources to community colleges to take this step because they believe
meet accreditation requirements on an ongoing basis, it that having a local four-year college boosts community
puts at risk not only accreditation for its baccalaureate prestige and aids economic development. However,
degree program but also for its associate degree focusing on four-year degree programs can weaken the
programs. This is currently an issue at Chipola College. community colleges' statutorily mandated focus on
associate and certificate degree and adult education
Due to high start-up costs and low initial enrollment, programs.
community college expenditures per credit hour are
currently higher than those of state universities, especially While mission creep does not appear to be a major
in programs with low enrollments (see Table 1). For problem at this time, as the number of community college
example, the average expenditure per credit hour in baccalaureate programs and student enrollment in them
Chipola College was $2,706, eleven times more than the increases, the possibility of mission creep may become
average cost of a credit hour in the state university more likely.
system.
17
Options to Strengthen Process • Statutorily require community colleges to consider
While community college baccalaureates have helped to cost-effective alternatives such as distance learning
improve access to degree programs and meet local or partnership agreements before seeking authority to
workforce needs, the current system has some limitations: offer their own baccalaureate degrees, including
• The State provides little financial incentive for public documentation of their pursuit of these alternatives
and private universities and community colleges to and justification for not pursuing them.
establish partnerships; • Statutorily require community college proposals to
• The current review process does not ensure that include a detailed five-year financial plan, including
community college degree programs will be cost- detailed steps to ensure that per credit costs of the
effective in the long-term; programs will be no greater than the costs of similar
• There is inadequate coordination of degree state university programs at the end of the five-year
requirements of community college BAS programs. period. Approval of the proposal should be
contingent upon the State Board verifying that the
Unanticipated consequences, such as higher expenditures plans are based on realistic enrollment and cost
per student and weaker community college dedication to assumptions.
their traditional students, could result without careful • Statutorily create a sunset process that would review
implementation. Options to limit these problems include: community college baccalaureate degree programs
every five years. The reviews should evaluate cost-
• Strengthening the process for reviewing proposals for effectiveness, effectiveness in meeting local
new community college degree programs; workforce needs and impact on the community
• Empowering community colleges to provide college's primary mission of providing associate
baccalaureate degrees that meet workforce needs on degrees. Programs that have excessive per credit
their campuses by the most efficient means, which hour costs, no longer meet local workforce needs or
could include providing incentives for partnerships hinder the community colleges' primary mission would
with public and private institutions; be discontinued.
• Limiting community colleges' ability to offer • Statutorily require the State Board of Education to
baccalaureate degree programs; coordinate the strategic plans of the state university
• Slowly transforming some community colleges into and community college systems.
four-year colleges that focus on teaching rather than
research; Empower Community Colleges to Provide
• Establishing a process to coordinate degree Baccalaureate Degrees Most Efficiently
requirements for Bachelor of Applied Science Another way to strengthen the current process for
degrees. establishing baccalaureate degree programs at
community colleges would be to require community
Strengthening Review Process colleges to conduct a "make or buy" analysis to determine
The existing process of Council for Education Policy the most cost-effective approach to providing the degree.
Research and Improvement (CEPRI) recommendation Community colleges would identify workforce needs and
and State Board of Education approval has been specify the type of program required to meet these needs,
reasonably successful to date. However, it does not and then bid out the program to other institutions willing to
ensure that approved programs are coordinated with the provide it. Start-up costs would be avoided if other
independent strategic planning goals of the state institutions are able to provide the programs more
university and community college systems. Failure to economically.
consider the potential impact of community college
baccalaureate programs on the university system creates Financial assistance may be necessary to encourage
the long-term potential for both university and community partnerships. According to university officials interviewed,
college programs to have excess capacity. a significant barrier to establishing partnerships is that the
institutions often need to establish student support
To ensure that future baccalaureate degree programs at services such as counseling and financial aid at the
community colleges meet workforce needs and are cost- community college campus. Per FTE administrative and
effective, the following actions are recommended: support service costs are often higher at branch or
18
community college campuses due in part to smaller State have grown substantially since the current state
economies of scale. universities were sited, place-bound citizens have limited
ability to commute to public universities that offer a full
Similarly, community colleges are sometimes reluctant to range of baccalaureate degree programs. One option for
form partnerships with private colleges because of their addressing this issue would be to designate selected
higher tuition. As a result, community colleges may be community colleges in these areas to develop into four-
unwilling or unable to establish partnerships with public or year colleges that focus on teaching rather than research.
private universities, even though the state's cost of a
partnership may be lower than the cost of establishing a Criteria for selecting these community college candidates
new degree program administered by the community could include those that are located in densely populated
college. Providing financial incentives to encourage public urban centers whose geography and transportation issues
and private institutions to offer degree programs that meet make access to regional universities difficult, and those
workforce needs on community college campuses may be located in rapidly growing parts of the State with an
one way to address this problem. For public universities, increasing demand for baccalaureate-level education.
this could be done by providing funding to cover the
additional costs of offering baccalaureate degree Better Coordination of Degree
programs through partnerships. Requirements for BAS Programs
BAS degrees constitute most of the new degree programs
Limit Community Colleges' Ability to being established by community colleges. The State
Offer Baccalaureate Degree Programs should improve coordination of these degrees to ensure
In addition to providing financial assistance, the State the comparability of programs and the transferability of
could encourage partnerships by limiting community courses offered by community colleges and state
colleges' ability to offer baccalaureate degree programs. universities. Statewide guidance or coordination on what
This could be done by denying community colleges coursework should be included in a BAS degree is
authority to offer their own programs and requiring them to important to avoid the proliferation of narrowly defined
partner with public or private universities. Alternatively, it degree programs developed independently by community
could also be done by allowing them to offer only Bachelor colleges for numerous specialty areas. Not only does this
of Applied Science (BAS) degree programs.9 Only one create credit transfer issues, but results in increased costs
state university in Florida currently offers a BAS degree. and excess hours for students.
Other universities have show little interest in developing [End of OPPAGA report summary]
these programs.
COMMUNITY COLLEGE
Due to the workforce orientation of BAS degrees, the BACCALAUREATE PROGRAM COSTS
provision of these degrees fits the mission of community
colleges. Furthermore, most state universities do not offer The Florida Department of Education (FLDOE) collects
these degrees, so they cannot be offered through and evaluates budget information concerning the State's
partnerships. Therefore, the Legislature could consider community colleges, including a separate accounting of
allowing community colleges to offer BAS degree baccalaureate degree programs. The following summary
programs, but require them to partner with public or is based on spreadsheets provided by the FLDOE and
private universities for other baccalaureate degree discussions with FLDOE and OPPAGA staffs. These
programs. same spreadsheets were used by OPPAGA in its
evaluation of Florida's community college baccalaureate
Transform Some Community program.
Colleges into Four-Year Colleges
Over the long term, expanding access to baccalaureate The cost of providing a baccalaureate education through
degrees through community college campuses may not the community college system ranges from a high of
fully address the access issues. As some areas of the $81,171 per student at Chipola College in FY 2003-2004,
to a low of $5,481 per student at Okaloosa-Walton College
in FY 2004-2005, as shown in Table 2. The wide range is
9 This would not affect their ability to become educator preparation
largely attributable to Chipola College's program. Despite
institutes (OPPAGA footnote).
19
Table 2
FLORIDA COST PER BACCALAUREATE DEGREE STUDENT
Community College Expenditures for Baccalaureate Students
2001-2002 2002-2003 2003-2004 2004-2005
(actual) (actual) (actual) (estimate)
CHIPOLA COLLEGE
Total Expenditures 0 443,978 646,665 724,090
Total FTE Students1 0 0 8 30
2
Average Cost Per Student 0 0 81,171 24,136
MIAMI-DADE COLLEGE
Total Expenditures 0 344,798 1,559,258 1,975,320
Total FTE Students1 0 0 164 300
2
Average Cost Per Student 0 0 9,517 6,584
OKALOOSA-WALTON COLLEGE
Total Expenditures 0 0 42,120 389,180
Total FTE Students1 0 0 0 71
Average Cost Per Student 0 0 0 5,481
ST. PETERSBURG COLLEGE-Summary
Total Expenditures 774,132 3,456,875 5,624,315 7,105,157
Total FTE Students1 0 339 543 827
2
Average Cost Per Student 0 10,183 10,358 8,591
STATEWIDE SUMMARY3
Total Expenditures 774,132 4,245,651 7,872,358 10,193,747
Total FTE Students1 0 339 715 1,228
Average Cost Per Student 0 12,524 11,010 8,301
1
One FTE equals 30 credit hours
2
FLDOE amounts used; slight differences result from rounding.
3
Does not include Edison College's BAS-Public Services Management and Computer Technology program
and Okaloosa-Walton College's BS-Nursing program, which are offered in partnership with a university.
SOURCE: FLDOE, Community College System, 2005-2006 Operating Budget Requests, Baccalaureate
Degree Grants, Enrollment, Performance and Budget Plan; revised 2/21/05.
3/29/05
KG
20
Initial estimates of high demand for its BS-Secondary Commission's most serious sanction, short of loss of
Education program, Chipola College has in fact membership. According to SACS accrediting standards,
experienced very low enrollment. Compounding this outlined in its Principles of Accreditation, "imposition of
problem, the institution has recently been placed on Probation is an indication of the gravity of non-compliance
academic probation by the regional accrediting with the Principles." The probation status applies not only
organization due to shortcomings in its baccalaureate to Chipola's baccalaureate program but to the entire
program. institution.10 Should the college lose its accreditation, it
could result in the loss of eligibility for federal funds and
If Chipola College is removed from the analysis, the cost the ability to participate in student financial aid programs.
of providing a baccalaureate education has ranged from
$5,481 to $10,358 per student. From a statewide average Disclosure of details concerning the probationary status of
perspective (including Chipola College) the cost of a an institution is limited by the Commission's disclosure
baccalaureate education has ranged from $8.301 to policy. Based on publicly available information, the
$12,524 per student. following is known about the basis for probation.
Stated in terms of cost per credit hour, the cost of upper Chipola College was found to be in non-compliance in four
division courses at community colleges, to date, has been areas: (1) integrity, (2) sound fiscal policies, including a
higher than the state university average, although the gap current independent audit, (3) qualified administrative and
is closing (Table 1). This is partly due to start-up costs academic officers with the experience, competence, and
and low student enrollments in the first years of the capacity to lead the institution, and (4) financial
programs. However, in the long run, Florida community statements and related documents which accurately and
colleges may continue to experience higher per credit appropriately represent the total operation of the
costs if they continue to follow a tradition of smaller class institution. The probation is for one year, until December
sizes and lower enrollment levels. It is the economies of 2005.
scale associated with larger student populations that
enable universities to experience lower per credit costs for Based on news accounts, it appears that the primary
their upper division courses. reason for SACS' concern with integrity was school
officials' misrepresentation of a permanent funding source
START-UP COSTS for its baccalaureate degree program. In their April 2003
application for change to Level II status, officials indicated
Start-up costs, summarized in Table 3, are also worthy of that: "$1,200,000 shall be allocated to Chipola Junior
note. While costs associated with additional library College for the baccalaureate degree in education
resources, new equipment and new facilities would be program." In a follow-up letter, school officials indicated
expected to trend downward, there appears to be no such that: "The state has allocated $1,200,000 annually for
decline. In fact, expenditures for library resources at St. program operation." (emphasis added) In fact, there was
Petersburg College are increasing and they continue to no permanent funding source at that time, nor had one
remain relatively high at Miami-Dade College. Similarly, been established by the following year when the review
expenditures for Information Technology Equipment have committees reported to the Commission. The Florida
increased at three of the four institutions. There also is no Legislature has been funding the community college
apparent downward trend in expenditures for baccalaureate program through annual appropriations
Facilities/Renovations. since its inception in 2001.
CHIPOLA COLLEGE PROBATION Chipola College defended its actions, claiming that the
Legislature was still in session when they were preparing
In December 2004, Chipola College was placed on
probation by its accrediting institution, the Southern 10The Commission's document, "Questions Regarding the Status of
Association of Colleges and Schools (SACS) for non- Chipola College," dated December 17, 2004 states: "The Commission's
accreditation includes all components of the institution - all programs,
compliance with accreditation standards, specifically with branch campuses, off-campus sites, and distance learning programs as
respect to its baccalaureate program. Probation is the reported to the Commission; thus, the Probation status applies to the
entire institution."
21
the initial SACS application in the spring of 2003 and,
according to the President, "the college relied on the best
information available regarding funding."11 In a July 28,
2005 audit response, the President indicated that: "The
Florida Department of Education furnished a statement
that the Florida Legislature has established a policy for
funding community college baccalaureate degrees. For
those community colleges that began offering
baccalaureate degrees prior to 2005-2006, the Legislature
decided to continue funding at the 2004-2005
appropriation level...until the program full-time equivalent
count (FTE) necessitates an increase." This statement
was made in response to the Florida Auditor General's
operational audit recommendation that the accreditation
problem be addressed. The audit also indicates that
SACS found Chipola College to have insufficient library
reference resources, a key element in upgrading an
institution from Level I (associates) to Level II
(baccalaureate) accreditation status.12
11 Spencer, Anne. "Chipola College on Probation." Jackson County
Floridan. 5/10/05
12 Since public information on SACS reviews and decisions is limited,
this reference to insufficient library resources is based solely on the
Auditor General's report.
22
Table 3
FLORIDA SUMMARY OF START-UP EXPENDITURES
Community College Expenditures for Start-Up Items
2001-2002 2002-2003 2003-2004 2004-2005
(actual) (actual) (actual) (estimate)
CHIPOLA COLLEGE
Accreditation 0 0 2,014 0
Library Resources 0 2,337 90,366 40,000
Information Technology Equipment 0 7,088 7,241 10,000
Other Equipment 0 0 0 0
Facilities/Renovation 0 229,151 0 30,000
MIAMI-DADE COLLEGE
Accreditation 0 21,997 23,000 0
Library Resources 0 195,483 85,516 96,000
Information Technology Equipment 0 19,670 28,942 55,000
Other Equipment 0 0 232,491 135,000
Facilities/Renovation 0 35,572 326,944 332,643
OKALOOSA-WALTON COLLEGE
Accreditation 0 0 0 15,000
Library Resources 0 0 0 6,000
Information Technology Equipment 0 0 36,703 46,855
Other Equipment 0 0 0 12,000
Facilities/Renovation 0 0 0 3,691
ST. PETERSBURG COLLEGE-Summary
Accreditation 0 17,187 14,162 20,000
Library Resources 0 89,275 91,743 143,000
Information Technology Equipment 132,226 123,645 115,279 60,000
Other Equipment 0 124,320 89,763 175,000
Facilities/Renovation 17,539 141,667 275,000 137,000
STATEWIDE SUMMARY1
Accreditation 0 39,184 39,176 35,000
Library Resources 0 287,095 267,625 285,000
Information Technology Equipment 132,226 150,403 188,165 171,855
Other Equipment 0 124,320 322,254 322,000
Facilities/Renovation 17,539 406,390 601,944 503,334
1
Does not include Edison College's BAS-Public Services Management and Computer Technology
program and Okaloosa-Walton College's BS-Nursing program, which are offered in partnership with a
university.
SOURCE: FLDOE, Community College System, 2005-2006 Operating Budget Requests, Baccalaureate
Degree Grants, Enrollment, Performance and Budget Plan; revised 2/21/05.
3/29/05
KG
23
Conclusion
Based simply on population projections, there is no between ASU and MCCD is evidenced by representation
question that Arizona will be facing tremendous growth in on each others' curriculum committees.
the demand for higher education services during the next
decade and beyond. The challenge is likely to be Pima Community College (PCC) is also involved in
compounded by changing workforce demands and partnership agreements with four-year institutions in
student demographics. But should the solution to this Arizona. Together with the University of Arizona, PCC
dilemma be community college baccalaureate degrees? operates the Program for Joint Admission and Enrollment
The answer is no: the experience in other states is (PJAE), which allows top performing high school seniors
sketchy at best and there are sufficient concerns to merit to gain early admission to both institutions. PCC and NAU
caution, as discussed in this report. jointly operate a computer center for distance learning
programs at the PCC's Community Campus. Partnerships
There is no consensus among community college officials enable PCC students to obtain baccalaureate degrees in
about the wisdom, advantages or effectiveness of offering areas such as Elementary Education, Public Agency
baccalaureate degrees at their institutions. The issue is Service, Interior Design, Hotel & Restaurant Management
as debated within community college circles as it is and Business Administration. Articulation agreements
outside. If there were no alternatives, the debate would provide for the smooth transfer of PCC students to UA,
subside; the fact that it persists is evidence that there are ASU, NAU, Prescott College and the University of
other reasonable solutions many prefer. Phoenix.
In Arizona, alternatives for providing baccalaureate access Northern Arizona University is the state's foremost
to community college students abound. Existing provider of distance learning, operating 31 campuses
agreements between universities and community colleges throughout the state. It is involved in 2+2 partnership
represent nearly every type of partnership arrangement. agreements with community colleges, providing a wide
Every community college is involved in some form of range of baccalaureate degrees through online and
agreement with a public or private university in Arizona; interactive television classes after students complete their
most are parties to multiple agreements. A statewide first two years of lower division coursework. There are
articulation system ensures that Arizona community NAU Distance Learning campuses on many community
college credits will transfer to Arizona's public universities. college campuses, including Central Arizona, Coconino,
Articulation agreements are not exclusive to public Eastern Arizona, Mohave, Northland Pioneer and
universities -- the University of Phoenix, for example, has Scottsdale community colleges. Thirty-five baccalaureate
articulation agreements in place with 16 of the 20 degree programs are offered through NAU Distance
community colleges in Arizona. Learning, and an additional thirteen baccalaureate
degrees can be earned entirely online through web-based
On-site partnership arrangements include ASU-West's classes.
University Center, where Glendale Community College
(GCC) students have access to many of ASU's In addition, NAU offers baccalaureate degrees through
baccalaureate programs. A partnership between Workforce Development Partnerships with school districts,
Chandler-Gilbert Community College and ASU integrates municipalities and other public agencies, as well as private
the two institutions through co-enrollment, shared facilities businesses. Bachelor's and Master's of Education
and other cooperative arrangements to ease student degrees are offered at many public school districts for
transition to baccalaureate programs. ASU and Maricopa prospective teachers and educators seeking postgraduate
Community College District (MCCD) have 24 Associate in education; degrees are offered through cohort, open
Transfer Partnerships in place, with a curriculum-to- enrollment, on-site courses or online courses.
curriculum match in programs. In the area of teacher Baccalaureate degrees in Public Agency Service are
education, ASU is involved in one or more specific provided through partnership agreements with
partnerships with most of the MCCD colleges. Interest in government agencies such as city and county
continually improving and expanding collaboration governments, police departments and prisons; nursing
24
degrees are provided through partnerships with hospitals. Partnership agreements are cost-effective. Start-up costs
Private businesses such as Phelps Dodge, APS, SRP, are low and the accreditation process is avoided by
Wells Fargo Bank, Intel, Motorola and JP Morgan Chase community colleges. Sharing resources among
are also involved in partnership agreements with NAU for associate's level and baccalaureate level students saves
baccalaureate and master's level coursework and degrees on costs as the use of labs, common areas, library
for their employees. Distance education programs are materials, computers and other equipment is maximized.
also available through ASU and UA. Courses are On-campus investments made by public and private
delivered through the Internet, CD-ROM, television and universities benefit the entire community college
videotape. population. Partnership agreements are easier to change
than fixed investments such as classroom facilities.
Arizona also has a healthy private postsecondary Changing workforce needs require rapid response, and
education sector. There are as many students enrolled in private institutions, in particular, are especially flexible and
the state's private universities, colleges and trade schools timely in responding to such changes.
as there are in the state's three public universities. Many
are enrolled in online programs, which offer the Without thoughtful analysis of the entire postsecondary
advantages of direct access and flexible scheduling for education system, public and private, the community
working, location bound students. Private universities and colleges' entry into the baccalaureate degree-awarding
colleges are vital partners in the quest to expand arena could unravel the very partnerships that are
baccalaureate degree access. Through on-site and online currently serving students effectively. It could also harm
offerings, the number of baccalaureate degree programs Arizona’s private postsecondary education sector which is
available to community college students can be greatly helping to create unprecedented access for students,
expanded as 2+2 partnerships are developed between including a substantial minority population.
private institutions and community colleges. In Florida,
eighteen of its 28 community colleges are involved in Concerns about mission creep would be eliminated. The
partnership agreements with private universities. When full spectrum of postsecondary education services would
students enroll in private institutions for baccalaureate be maintained, from remedial education to associate's
education, the obligation of taxpayers is eliminated or degree programs. Employers could continue to rely on
substantially reduced. community colleges for workforce development and
vocational and technical education. Concerns about
The Gloria R. Sheldon University Center at Central community colleges evolving into universities would
Arizona Colleges' Coolidge campus is a partnership model dissolve, and the issue of whether another four-year
that should be duplicated throughout the State to expand institution is needed in Arizona could be considered on its
baccalaureate access into both urban and rural areas. At merits. Community colleges should not be allowed to
this facility, accredited universities will offer upper division become four-year institutions by default or encroachment.
and graduate degree programs to Pinal County residents
through an extensive interactive television network which Limited resources should not be expended on programs
is hooked up to nearly 20 sites across Pinal County. The that duplicate existing ones. Higher costs for faculty
participating universities will be able to offer programs salaries, expanded library holdings, and upgrades to
throughout the county, thus providing additional equipment, labs and other facilities, are inevitable. There
postsecondary options for Pinal County residents. ASU is is no clear evidence that offering baccalaureate degrees
expected to offer classes at the facility, NAU will transfer through community colleges will be cost-effective. In fact,
its Distance Learning campus there and UA will begin an there is evidence to the contrary. In Florida, after three
agriculture curriculum as soon as sufficient student years of operating a baccalaureate degree program, per
demand develops. Private universities will also be credit costs for upper division courses at community
participants -- the University of Phoenix is planning to offer colleges continue to exceed the state university average.
classes at the center, and Grand Canyon University has The 1992 JLBC study reached a similar conclusion -- at
expressed interest as well. By establishing similar six of nine community colleges studied, lower division
university centers at all community college campuses, costs were higher than the university average. A recent
educational choices and access for students statewide analysis of FY 2004 budgets shows that annual per
can be greatly multiplied without betraying the traditional student costs at two community colleges appear to be
community college mission. greater than or comparable to the per student costs at
25
ASU's east and west campuses, when all funding sources resources at students, rather than community colleges, is
are taken into account. Lower enrollment at community far more effective in meeting the needs of location bound
colleges, especially in rural areas, makes it difficult to students than expanding baccalaureate access to
achieve the economies of scale enjoyed by larger community college campuses. After all, some location
institutions. bound students may have limitations that prevent them
from attending a community college campus, just as they
Community colleges have enough challenges ahead are unable to attend a public university.
keeping up with enrollment growth and adapting to the
needs of a 21st century workplace. Rather than expend By bringing university services to communities, as well as
limited resources on developing a hybrid layer of higher offices and homes, students would truly be given access
education, a more prudent and cost-effective approach to the full range of public and private baccalaureate
would be to expand on existing, proven partnerships and opportunities available in Arizona.
collaborations. Directing a full array of options and
26
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<http://www.accbd.org/articleSearch.php> 2/19/05.
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30
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31
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32
Exhibits
1 JLBC Cost Comparison: Community College vs. University Lower Division Costs ............34
2 Community College Baccalaureate Programs, by State ....................................................35
3 Not Community College Baccalaureate Programs .............................................................43
4 Florida Evaluation Criteria..................................................................................................45
5 Nevada Evaluation Criteria ................................................................................................49
6 Texas Reporting Requirements..........................................................................................52
7 Illinois Board of Higher Education Resolution ....................................................................53
33
Exhibit 1
JLBC COST COMPARISON:
COMMUNITY COLLEGES VS. UNIVERSITY LOWER DIVISION COSTS
TABLE 5
FY 1991 LOWER DIVISION COST OF EDUCATION AT
ARIZONA'S UNIVERSITITES AND COMMUNITY COLLEGES
COST PER
COST PER SCH FTE STUDENT
Pinal $196 $5,887
Yavapai 176 5,278
Yuma/La Paz 172 5,153
Cochise 169 5,084
Mohave 155 4,658
Graham 144 4,325
UA 141 4,219
University System Avg. 134 4,024
ASU 133 3,987
Univ. & Comm. Coll. Avg. 132 3,966
Comm. Colleges System Avg. 129 3,875
NAU 124 3,709
Pima 123 3,691
Navajo 122 3,670
Maricopa 117 3,520
SOURCE: "Higher Education Report Series - Lower Division Cost of Education at Arizona's
Universities and Community Colleges." Arizona Joint Legislative Budget Committee, Higher
Education Research Section. August 1992. p 8.
34
Exhibit 2
COMMUNITY COLLEGE BACCALAUREATE PROGRAMS, BY STATE
Information Law & Law
Education Health Science Business Humanities Other
Technology Enforcement
FLORIDA
Chipola BS-Secondary
College Mathematics
Education
One Campus (sole campus)
Only
BS-Secondary
Biology
Education
(sole campus)
Daytona BAS-
Beach Supervision &
Management
Community To be offered
College initially at 1
Daytona Beach
Four Campuses
Daytona Beach,
DeLand,
Flagler/Palm
Coast,
New Smyrna
Two Centers
Advanced
Technology,
Deltona
Edison BAS-Public
Community Safety
Management1
College Unknown at
Three Campuses this time
Lee County, (will depend
Charlotte Co., on demand)
Collier County
One Center
Hendry County
35
Education Health Science Information Business Humanities Law & Law Other
Technology Enforcement
FLORIDA (continued)
Miami- Dade BS-
College Exceptional
Student
Six Campuses Education
Homestead, Can complete
Kendall, program at 3
InterAmerican, Kendall,
Medical, North,
North, Wolfson
Wolfson
Can take courses
at 5
Homestead,
InterAmerican,
Kendall,
North,
Wolfson
BS-Secondary
Mathematics
(same as above)
BS-Secondary
Science
(same as above)
Okaloosa- BS-Nursing2 BAS-
Offered at 1 Project &
Walton Niceville Acquisitions
College Management3
Note: Degree Offered at 1
Two Campuses is awarded by
Niceville, Niceville
University of
Ft. Walton Beach West Florida,
not OWC
Four Centers
Chautauqua,
Crestview,
Elgin (AFB),
Hulburt Field
(AFB)
36
Education Health Science Information Business Humanities Law & Law Other
Technology Enforcement
FLORIDA (continued)
St. BS- BS-Nursing BAS- BAS-Public BAS-
Elementary Offered at 1 Technology Safety Veterinary
Petersburg
Education Caruth Management4 Administration4 Technology4
College Offered at 2 Offered at 1 Offered at 1 Only available
St Pete/Gibbs, Also available Clearwater Allstate online
Four Campuses completely
Clearwater, Tarpon Springs
online Also available
St Pete/Gibbs,
Seminole, BS- completely
Tarpon Springs Exceptional BAS-Dental online
Student Hygiene
Five Centers Only available BAS-
Education
Allstate, online Technology
(same as above)
Caruth Health Education4
Education, BS-Secondary BAS- Offered at 1
Downtown,
Mathematics Orthotics & Clearwater
Midtown,
Education Prosthetics6
STAR Center Offered at 1
(same as above)
Caruth
BS-Secondary
Biology
Education
(same as above)
37
Information Law & Law
Education Health Science Business Humanities Other
Technology Enforcement
HAWAII
Maui BAS-Applied
Community Business &
Information
College Technology4
One Campus Offered at 1
Maui Maui
Three Satellite
Centers
Hana,
Lanai,
Molokai
INDIANA
Vincennes BA & BS- BS- BS- BS-
University Secondary Nursing5 Technology6 Homeland
Mathematics5 Offered at both Offered at 1 Security &
Offered at 1 Vincennes Public Safety6
Two Campuses Vincennes Offered at both
Jasper,
Vincennes BS- BS-
Secondary Health Care
Science5 Management6
Offered at 1 Offered at both
Vincennes
BS-
Special
Education5
Offered at both
38
Information Law & Law
Education Health Science Business Humanities Other
Technology Enforcement
NEVADA
4
Great Basin BA- BS-Nursing BAS- BSW-Social BA-Integrative
College Elementary Offered at 4 Technology Work10 & Professional
Education Elko, Ely, Management Offered at 4 Studies11
Three Campuses Offered at 4 Winnemucca, Offered at 4 Elko, Ely, Offered at 4
Elko, Ely, Elko, Ely, Battle Mountain Elko, Ely, Winnemucca, Elko, Ely,
Winnemucca Winnemucca, Winnemucca, Battle Mountain Winnemucca,
Battle Mountain Battle Mountain Battle Mountain
Seven Satellite Note: Degree
BA- BAS- is awarded by
Centers BAS-
Secondary Instrumentation University of
Battle Mountain,
Education Agricultural7
Eureka, Jackpot, (same as above) Nevada-Reno, not
McDermitt, Mathematics7 Great Basin
Owyhee, BAS- Land
BA-
Wells, Wendover Surveying /
Secondary
Geomatics
Education
(same as above)
-Social
Studies7 BAS-Digital
BA- Information
Secondary Technology9
Education
-Biological
Science7
BA-
Secondary
Education
-Career &
Technical
Education7/8
Community BS-Dental
College of Hygiene6
Offered at 1
Southern West Charleston
Nevada
Three Campuses
Cheyenne,
Henderson, West
Charleston
39
Information Law & Law
Education Health Science Business Humanities Other
Technology Enforcement
NEW MEXICO
Northern BA-
New Mexico Elementary
Education12
Community Offered at 1
College Espanola
Two Campuses BA-
El Rito, Secondary NOTE:
Espanola Education12 Northern New Mexico Community College
(same as above)
is in the process of becoming a four-year
BA-Early institution pursuant to legislation approved
Childhood by the Governor on 4/7/05. It is now
Education12 authorized to award baccalaureate
(same as above) degrees in any program area.
BA-Special
Education12
(same as above)
BA-Bilingual
Education12
(same as above)
NEW YORK
Fashion
Institute of 21 baccalaureate degree programs13
Technology (sole campus)
One Campus 16 associate degree programs
Only 5 master's degree programs
40
Information Law & Law
Education Health Science Business Humanities Other
Technology Enforcement
TEXAS
Midland BAT-
College Technology
Management6
Two Campuses Offered at 1
Midland, Midland
Williams
Regional Tech
Training
Two Centers
(academic)
Advanced
Technology,
Aviation
Maintenance
Brazosport BAT-
College Technology
Management6
One Campus (sole campus)
Only
South Texas BAT-
College Technology
Management6
Three Campuses Offered at 1
Mid-Valley, Pecan
Pecan, Starr
County
Two Centers
Nursing Allied
Health,
Technology
41
Information Law & Law
Education Health Science Business Humanities Other
Technology Enforcement
VERMONT
Vermont BA-General BS-Business BS-
Technical Education Technology & Architectural
Offered at 1 Management Engineering
College Randolph Offered at both Technology
Two Campuses Offered at 1
BS-Computer Randolph
Randolph
Center, Williston
Engineering
Technology BS-Electro-
Offered at 1 mechanical
Randolph
Engineering
BS-Information Technology
Technology Offered at 1
Randolph
Offered at 1
Randolph
BS-Software
Technology
Offered at 1
Randolph
SOURCE: Websites; communications with oversight board, governing board and school officials.
8/4/05 revise
Program to be offered beginning Summer or Fall 2006.
2
Joint program with University of West Florida.
3
Specialized program for major area employer, US Military.
4
Program began Spring 2005.
5
Program to be offered beginning Fall 2006.
6
Program to be offered beginning Fall 2005.
7
New programs recently approved and in development; expected to be offered beginning Fall 2006.
8
To be available in 5 areas of concentration: Automotive Service Technology, Industrial Arts, Manufacturing
Technology, Electronics Technology, Agricultural Education.
9
New program recently approved and in development; expected to be offered beginning Spring 2006.
10
3+1 collaborative program with University of Nevada-Reno.
11
Available in 3 areas of concentration: Arts & Humanities, Resource Management, Social Science.
12
Program began Fall 2004.
13
FIT has been offering baccalaureate degrees since the 1970s.
42
1
Program to be offered beginning Summer or Fall 2006.
2
Joint program with.
3
Specialized program for major area employer, US Military.
4
Program began Spring 2005.
5
Program to be offered beginning Fall 2006.
6
Program to be offered beginning Fall 2005.
7
New programs recently approved and in development; expected to be offered beginning Fall 2006.
8
To be available in 5 areas of concentration: Automotive Service Technology, Industrial Arts, Manufacturing
Technology, Electronics Technology, Agricultural Education.
9
New program recently approved and in development; expected to be offered beginning Spring 2006.
10
3+1 collaborative program with University of Nevada-Reno.
11
Available in 3 areas of concentration: Arts & Humanities, Resource Management, Social Science.
12
Program began Fall 2004.
13
has been offering baccalaureate degrees since the 1970s
Exhibit 3
NOT COMMUNITY COLLEGE BACCALAUREATE PROGRAMS
FOUR-YEAR INSTITUTIONS (no longer community colleges)1
ARKANSAS
University
of Formerly known as Westark Community College, UA-Fort Smith joined the University of Arkansas system as a four-year
Arkansas- institution after passage of a county sales tax in 2002. It continues to offer associate's degrees.
Fort Smith
GEORGIA
Dalton
Formerly a two-year institution, Dalton State College became a four-year institution in 1998.
State It continues to offer associate's degrees.
College
LOUISIANA
Louisiana
State Formerly a two-year university, LSU-Alexandria was granted baccalaureate degree-awarding authority in 2001
University- and reorganized as a four-year institution. It continues to offer associate's degrees.
Alexandria
UTAH
Dixie
Formerly a community college, Dixie State College became a state college in 1999.
State It continues to offer associate's degrees as well as baccalaureate degrees in 4 areas.
College
Utah Valley
Formerly a community college, Utah Valley State College became a state college in 1991.
State It continues to offer associate's degrees as well as baccalaureate degrees in a wide range of areas.
College
1
These schools are noted due to erroneous claims in literature that they are community colleges that offer baccalaureate degrees.
43
OTHER STATES MENTIONED IN LITERATURE (do not allow CC baccalaureates)2
ARIZONA
Legislation failed in 2004 and 2005.
CALIFORNIA
Does not allow community colleges to award baccalaureate degrees. Has recently considered legislation to authorize
community colleges to enter into 2+2 partnership agreements with four-year institutions.
ILLINOIS
William Rainey Harper College attempted to obtain baccalaureate-awarding authority through the Legislature.
The Illinois Community College Board and Illinois Board of Higher Education opposed their effort and adopted formal
resolutions in Oct 2004 against the legislation, urging a full evaluation of the issue. A joint task force has been formed
and is expected to complete its work and release findings and recommendations in October 2005.
PENNSYLVANIA
Does not allow community colleges to award baccalaureate degrees.
SOUTH CAROLINA
In 2004, after legislative approval, gubernatorial veto and veto override, Trident Technical College was authorized to award a
baccalaureate degree in culinary arts. In January 2005, the South Carolina Supreme Court ruled that the baccalaureate degree provisions
were not germane to the rest of the bill and deemed them invalid. Trident Technical College does not intend to pursue baccalaureate
authority at this time; it has expanded course and certificate offerings to meet community and hospitality industry needs.
2
These states are noted due to erroneous claims in literature that they have laws authorizing community colleges to award baccalaureate degre
44
Exhibit 4
FLORIDA EVALUATION CRITERIA
Evaluation Criteria
A. Description of Planning Process and Time Line for Implementation
Describe the planning process, to include faculty, staff, and stakeholder input, task force
meetings, and other activities related to planning the program.
Include a time line for proposed program implementation.
B. Analysis of Workforce Needs/Demands for Baccalaureate Program
Each community college must collaborate with its local workforce development board(s),
chamber(s) of commerce, and/or economic development councils as well as business and
industry partners to survey service district customers to determine workforce baccalaureate
degree needs and demands.
Provide information outlining the process used to identify workforce need and unmet
student demand, and any supporting documentation.
Community colleges must seek ways to provide access to identified workforce baccalaureate
degrees.
Contact public and private 4-year institutions to determine the viability of having
identified needs met via partnership agreements, and include community and other
institutional responses concerning partnership opportunities. These partnership
agreements may be stand-alone agreements or form a component of an existing university
center-type arrangement. This option is the preferred method of access.
If the college documents an inability to develop partnerships that will satisfactorily meet
the identified needs of the community, the college may develop a proposal for submission
to the State Board of Education (SBE) that will request authorization for the community
college to grant the baccalaureate degree on its own.
C. Alignment with K-20 Goals and Strategic Imperatives
Describe how the proposed program aligns with the appropriate K-20 Goals and Strategic
Imperatives .
D. Academic Content and Curriculum
Provide the complete program title, the department the program will be under, the type of
degree (BA, BS, BAS), and a brief program description.
45
Include academic content for each identified degree area to include:
• The total number of credit hours in the program
• The proposed program CIP code
• General education requirements
• Common course prerequisites, if applicable, and provide assurance they are the same
as the standardized prerequisites for other identical baccalaureate degree programs in
the Common Course Prerequisites Manual
• Sequenced course of study
• Expected specific learning outcomes for the program.
Provide additional information to include:
• Potential internships or clinical experiences, as applicable
• Plans to preserve current state level articulation agreements
• Plans to meet any additional state program approval requirements such as that for
teacher education and other requirements, as applicable.
Describe, briefly, the anticipated delivery system and scheduling for the proposed
program as it may relate to resources such as traditional delivery on the main campus,
traditional delivery at branches or centers, and/or nontraditional instruction such as
distance learning.
Describe the admission standards, including any licensure requirements, if appropriate,
and graduation requirements for the program.
Include a plan of action for program termination, including a “train out” provision for
students, in the event that continued funding or sufficient enrollment becomes
unavailable.
Indicate whether the total number of credit hours to earn a degree exceeds 120. If it does,
provide a justification for an exception to the policy of a 120 maximum number of
credits.
Indicate whether the college intends to seek limited access status for the proposed
program. If so, provide a detailed rationale for this decision. See attached Baccalaureate
Limited Access Program Request Form .
F. Assessment of Current and Anticipated Resources to Deliver the Program
For each of the following categories below, 1) assess and describe the current resources
available at the institution, and 2) identify and describe any new resources required.
• Library volumes
• Serials
• Classroom, teaching laboratory, office, and any other type of space that is
necessary for the proposed program
46
• Equipment, focusing primarily on instructional requirements
• Internship sites and/or clinical sites, if appropriate
• Other key resources, as applicable
G. Proposed Enrollment, Performance, and Budget Plans
Submit proposed budget details, including information on planned enrollments and
completers, start-up costs, needed faculty, library resources, facility
renovations/remodeling, and other anticipated operational costs to develop and maintain
the program over a five-year period. Note that the state appropriation must be at no more
than 85 percent of the state funds per FTE for enrollment growth in public universities.
For 2005-06, that amount is $3,779.
See attached Enrollment, Performance, and Budget Plan .
H. Accreditation Plan
Describe plans for applying for a change of accreditation status through SACS from
Level 1 to Level 2, if your institution has not already attained that status.
Describe plans for seeking any additional or specialized accreditation, as applicable.
I. Plan of Action in Case of Program Termination
Describe provisions the college will make, including student "train out," in the event a
program needs to be discontinued while students are still enrolled in the program.
Proposal Implementation
Based upon the outcome of the SBE vote on the Commissioner's recommendation, a
Memorandum of Agreement (MOA) will be developed for each approved partnership and
community college baccalaureate degree program listing the criteria for initial release of funds,
and for continuing program approval. The MOA will require a commitment for:
Service to non-traditional student populations
Service within local geographic boundaries, preferably on the community college campus
Offering flexible instruction during non-traditional hours, as appropriate
Reasonable costs to the state and students, as stated in a completed five-year budget
planning document outlining enrollment and operational, implementation, start-up costs,
etc.
47
Adherence to statutory “time-to-degree” program length, general education requirements,
prerequisite requirements, and foreign language requirements
Adherence to administrative rule requirements
Adherence to regional and specialized accreditation requirements
Determination and agreement as to the appropriateness of specialized accreditation.
The MOA will be signed by the respective institutional President and the Commissioner on
behalf of the SBE.
Funding, as determined by the Commissioner, approved by the SBE, and specified in the MOA,
will be released upon receipt of the signed MOA, all required budget forms, and an initial status
report to the Commissioner based upon the criteria provided.
Terms and Conditions of Program Continuation
The State Board of Education will monitor implementation of the program through annual
reviews. Institutions must submit a written status report to the Commissioner no later than July 1
of every year until the ending date of the Memorandum of Agreement. In addition, institutions
must present status information to the Commissioner and the SBE, as requested, at any time
during the life of the Memorandum of Agreement. The status and annual report must address, as
determined appropriate by the Commissioner, the following criteria:
Performance accountability requirements as identified by the Chancellor of Community
Colleges and Workforce Education and the Chancellor, Board of Governors
Current data reporting and cost accounting requirements as identified by the Chancellor
of Community Colleges and Workforce Education and the Chancellor, Board of
Governors
Revisions to budget information (such as FTE, faculty hires, etc.), as appropriate.
Continued developmental and operational funding will be based upon performance specified in
annual reports and dependent on Legislative funding. Once the program is established,
continued funding will be provided via the upper-division funding model approved by the
Legislature.
SOURCE: Florida Department of Education, Division of Community Colleges and Workforce Education. Oct 2005.
48
Exhibit 5
NEVADA EVALUATION CRITERIA
Section 4. Evaluation Criteria for Baccalaureate Degree Program
Proposals at NSHE Community Colleges
(formerly CM 03-01)
The NSHE Master Plan for Higher Education in Nevada provides for “selected niche baccalaureate
degrees” at community colleges. For purposes of this policy, such degrees can be defined as
baccalaureate degrees that meet one or more of the following criteria:
• promote the goals of the Master Plan for Higher Education in Nevada;
• address a unique educational need of an identifiable population; and
• enhance access to populations which otherwise would not be served due to geographic
isolation or other barriers.
The proposal development and review process for the offering of potential baccalaureate degrees
at NSHE community colleges is governed by Board of Regents’ policy that may be found in Title 4,
Chapter 14, of the Codification of Board Policy Statements (more commonly referred to as the
Board of Regents Handbook).
To determine which baccalaureate programs will best meet the needs of the students and the state,
proposed programs will be evaluated based on standard criteria as stated in this Chancellor’s
Memorandum.
Community colleges interested in implementing new four-year degree programs must provide
information on the feasibility of the program by submitting a written program proposal with
supporting data and evidence that responds to the following topics or questions.
Since, it is not the intention of the NSHE for community colleges to abandon their community
college mission, each proposal must address this issue in both a cultural and organizational
context.
Criteria for Proposals
NEED AND DEMAND
1. Describe the new program proposal and discuss its structure and content.
2. Is the program in an area of critical concern, and is there a significant shortage of similar
programs?
3. Workforce needs:
a. Is there proven student demand for the program?
b. Is there similar employer demand for the program?
c. Does the projected demand exceed supply for the foreseeable future?
4. Append a feasibility evaluation of the program proposal, to include its relationship to
current student and employer demand. This evaluation should be done by someone
from outside the institution who is a member of the field being proposed.
49
INSTITUTIONAL READINESS
5. Are there qualified faculty members currently on staff? List faculty names, degrees, and
areas of specialization. If other faculty need to be hired, include your plan for doing so.
6. Discuss how you will address faculty salary and workload policies.
7. Describe existing facilities and equipment, and provide a detailed plan, if applicable, on
how you will complete necessary renovations of facilities and equipment enhancements
to support the program.
8. Describe how you will continue to foster a cultural and organizational environment that
ensures adherence to the community college mission.
9. Will new services be required to support students in a four-year degree program (new
assessment procedures, career advisement and placement services, testing, etc.)?
a. Provide a plan that addresses how student services will be revised or enhanced to
support this proposed four-year program.
b. Provide the plan/policy on eligibility and awarding of financial aid.
c. Discuss how student recruitment will be handled. 10. Specifically, how will general
education requirements be addressed?
BUDGET REQUIREMENTS AND IMPACTS
11. Will additional state funding be required to implement the program? Include a five-year
projected budget, reflecting anticipated enrollments, staffing needs, revenues, and
expenditures.
12. Is the cost to the state less than other available options?
13. Is the cost to the student less than other available options?
OTHER RESOURCE ISSUES
14. Is there a similar existing program at a nearby institution which has unused capacity?
15. Can a cooperative program between the institution and a nearby four-year institution be
offered more efficiently? If not, explain.
16. Are there duplicate programs offered by other institutions through distance education?
17. How will library acquisitions and information resources be expanded and enhanced to
accommodate the four-year degree program? Please provide the proposed budget for all
enhancements.
IMPACT
18. What impact will this new program have on other programs at the institution?
19. What impact will this program have on the faculty, facilities, or other students?
20. Will this program have an adverse impact on other institutions?
21. Describe the impact of the accreditation process (the specialized program
accreditation, if applicable, and institutional accreditation). Please provide a proposed
budget for these processes.
22. Address other internal impacts that you anticipate of introducing a four-year program at
a two-year institution.
COMPLIANCE
23. Does the program comply with current statutory requirements of the institution?
24. Would the increase in program length require any change to current institutional
requirements?
25. Would any changes to admission requirements be needed?
IMPLEMENTATION
26. Is there an existing associate degree base for the degree?
27. Will policy require that admission into the baccalaureate track be dependent upon first
earning the associate degree? Please provide the policy.
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28. Will the new program be eligible for a specialized program accreditation (i.e., ABET or
NCATE)?
29. Will it need to be accredited either to interface with other programs within the NSHE or
for graduates to have optimal employment opportunities?
30. What is the plan for preparing and submitting a Substantive Change Proposal to the
Commission on Colleges of the Northwest Association of Schools and Colleges?
31. What is the timeline for implementing the program?
32. Is the implementation schedule dependent upon receiving additional funding, hiring
new faculty, remodeling facilities, or acquiring equipment? If so, are there alternative
plans if some or all of that funding is not forthcoming?
Original (06/05)
SOURCE: Nevada System of Higher Education Procedures and Guidelines Manual. August 2005.
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Exhibit 6
TEXAS REPORTING REQUIREMENTS
BAT Pilot Biennial Report Criteria
1. Process
1.1. Faculty employed and their credentials
1.2 Courses offered by semester
1.3 Learning resources acquired
1.4 Status with SACS
2. Admissions
2.1 Rate
2.2 Educational characteristics of students admitted to upper-level courses
3. Productivity
3.1 Student headcount enrollment
3.2 Student demographics, including ethnicity, gender, age, full- or part-time
status of students admitted to upper-level courses
3.3 Number of transfer students
3.4 Student retention data by semester and year
4. Student Success
4.1 Capstone course outcomes
4.2 Time to degree
4.3 Graduation rates
4.4 Post-graduation employment or career advancement
4.5 Graduate satisfaction data
4.6 Employer satisfaction data
5. Institutional Impact
5.1 Narrative description of changes in related curriculum, student services,
planning and assessment, and in AAS completion.
SOURCE: Texas Higher Education Coordinating Board. August 2005.
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Exhibit 7
ILLINOIS BOARD OF HIGHER EDUCATION RESOLUTION
Item #13
October 5, 2004
COMMUNITY COLLEGE BACCALAUREATE DEGREES
Submitted for: Action.
Summary: William Rainey Harper College has proposed seeking a change in
state statutes to allow it to award baccalaureate degrees in selected
discipline areas. Such a movement would present a major
philosophical and policy change in the way Illinois has chosen to
meet its higher education needs. The proposed resolution opposes
any such change to Illinois State Statutes and recommends that no
such changes be considered until the Board of Higher Education and
the Illinois Community College Board have jointly conducted an
evaluation of the issue and possible solutions to meeting the
educational needs of the citizens of Illinois.
Action Requested: That the Board of Higher Education approves the resolution to
collaborate with the Illinois Community College Board to investigate
the issue of providing baccalaureate degrees at selected community
colleges.
SOURCE: Illinois Board of Higher Education.
http://www.ibhe.state.il.us/Board/Agendas/2004/October/Item percent2013.pdf. March 2005.
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Item #13
October 5, 2004
STATE OF ILLINOIS
BOARD OF HIGHER EDUCATION
COMMUNITY COLLEGE BACCALAUREATE DEGREES
One of the major missions of community colleges is to assist in meeting the educational
needs of the communities they serve. In Illinois, this traditionally has been done through
a system of comprehensive community colleges that provide baccalaureate transfer (first
two-years of the baccalaureate degree) education, career and technical education
(including credit and non-credit preparation and upgrading for employment needs), adult
education and literacy, and personal enrichment through non-credit coursework. The
system serves nearly 1 million students a year providing access at times and locations
convenient to the nontraditional populations it serves. Students include those from teens
to senior citizens from all racial and ethnic backgrounds. For many, community colleges
provide the only access to higher education opportunities in the state. Because of these
factors, community colleges are being asked to expand their missions to assist students in
acquiring access to completion of baccalaureate degree education.
Numerous approaches have been offered as possible ways of meeting this expressed need
for greater access to baccalaureate education. Examples of these approaches include
baccalaureate degree granting institutions offering programs at more off campus locations
(including community college campuses), technology provided access, dual admission,
and expanded degree authority for institutions. This latter approach would allow
community colleges to award baccalaureate degrees at least in selected discipline areas.
William Rainey Harper College is currently proposing to seek a change in state statutes to
allow it to take this approach. While this approach has been taken in some states, such a
movement would present a major philosophical and policy change in the way Illinois has
chosen to meet its higher education needs. Public and private colleges and universities in
Illinois have a strong tradition of working together to address higher education needs. A
comprehensive study of the ways to meet the higher education needs of the state is
needed before the state grants permission for institutions to embark on such a course of
action. Factors such as the impact on state and local funding, programmatic needs, and
financial aid must be evaluated prior to determining how the educational needs of the
state should be met. Therefore, the following motion is offered for the Board’s
consideration.
RECOMMENDED ACTION
It is recommended that the following motion be adopted:
The Illinois Board of Higher Education, hereby, opposes any changes to Illinois
State Statutes allowing community colleges to offer baccalaureate degrees. No such
changes should be considered until a comprehensive evaluation of issues leading to such
proposals and solutions to those issues is conducted. It further directs the Executive
Director of the Illinois Board of Higher Education to work with the President/CEO of the
Illinois Community College Board in conducting such an evaluation.
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