Copyright© 2007 by School Services of California, Inc.

                                      Volume 20                   For Publication Date: February 16, 2007             No. 4

Access Without Completion Plagues
California Community Colleges 

With 2.5 million students, the California Community Colleges (CCC) is the largest higher education system in the world, educating more people than the population of some states. Under the Master Plan for Education, the CCC has paved the road to true access to postsecondary education. 

Yet, according to a recent study released by the Institute for Higher Education Leadership and Policy titled Rules of the Game, written by Nancy Shulock and Colleen Moore, CCC gets an A+ for access, but a D- for completion. 

The report examined the CCC’s goals and missions, and articulated that low rates of degree completion and student success are threats to California’s future. Community colleges enroll close to three-fourths of California’s students, making the colleges the main link to the economic chain and upward mobility in the state. With many more students enrolling than those completing degrees, a weak link has developed in this chain of mobility and that, in turn, has threatened the economic future of the state. For example, Latino students make up the fastest growing population in the workforce and within community colleges, yet they have one of the lowest completion rates. According to the report, Black and Latino students have lower rates of completion than White and Asian students. The completion rates are as follows: 

• 15% for Black students
• 18% for Latino students
• 27% for White students
• 33% for Asian students

These disparities are critical since the report paints a picture of a system that is accessible to all, yet completion is limited to only a few groups, and if one of these groups is the fastest-growing in the workforce, this means the system needs to make it a top priority to focus on creating equity in reforming completion in order to protect the state’s workforce. 

The report identifies four critical threats to California’s future workforce: 

• Low rates of completion project a shortage of college-educated workers to meet the demands of the state’s growing knowledge-based economy
• About 40% of first-time students in the CCCC are not seeking a degree or certificate, but are pursuing basic skills, job skills, or personal enrichment
• Of the 60% seeking a degree or certificate, only about one-fourth succeed in transferring to a university and/or earning an associate’s degree or a certificate within six years
• Without big gains in educational attainment, especially among the growing Latino population, the state’s per capita income will soon fall below the national average, and the average education level of the California workforce will decline

The author’s define the “rules of the game,” as those “rules” by which colleges and students make choices that serve to impede student success. The report asserts that the community colleges have established policies that promote access, but some of these same policies are now barriers to completion. 

Historically, public policy has been focused on removing barriers to access. These policies have succeeded as California enjoys high rates of college enrollments. But these access-oriented policies have had the unintended consequences of inhibiting completion.” (page 3, Rules of the Game). 

The report lists the following recommendations: 

• Reform finance policy by incorporating incentives for completion instead of solely rewarding access
• Grant colleges more flexibility to use their funds to enhance student completion
• Grant colleges more flexibility to hire the faculty and staff they judge will best help students meet their academic goals so they can succeed in today’s workforce

• Modify student fee and financial aid policies to help students meet the high costs of college attendance—beyond fees—in order to encourage more students to attend full time and to give colleges more access to fee revenues
• Revise college policies on how students are advised and counseled to choose courses and make academic decisions

Recommendations 

Changing state policy can reduce the barriers to completion. For example, state law requires that 75% of instruction be taught by full-time faculty, creating limitations on hiring. While this was a well-intended policy to address the rights of faculty, it can also be viewed as impeding a college’s ability to offer courses and teach skills in areas that students and employers want. In addition, this policy also limits the college’s ability to adjust staffing to match enrollment needs. 

Community colleges should be funded with enrollment and completion in mind. Colleges need more flexibility in their expenditures to use toward desired outcomes. Restrictions to hiring should be removed to allow colleges the flexibility to hire in ways that will help student’s complete academic programs. Restrictions on campus-based fees should be removed to develop policy on the total cost of college attendance. Finally, assessment and placement policies should be revised so that they are standardized across the system in an effort to help students succeed. 

While the study has received a wide review, the response can be presented in a basic dichotomy: with researchers and some of the media identifying it as a snapshot into the problem of “completion” that hampers community colleges, and those in the education community expressing concern that the study does not tell the whole story, indicating that it is limited and does not look at the whole picture of the system. For example, the California Community College League viewed the report as “insulting to community colleges” and written “with an elitist view of education.”   

Dr. Mark Drummond, Chancellor of the Community College System, asserted that the “report sorely underreports our student success numbers and misses the mark relating to what works and what doesn’t. It further fails to acknowledge the work underway by the California Community College Board of Governors, faculty, and staff across the system on increasing student success.” 

However, what is unclear to the reader are areas in the study that warrant further clarification. For example, what is the definition of “low.” The author claims CCC outcome rates are “low.” Actually, the claim of “low” has no relative basis for comparison since no national comparison is made. Actually, a study done by the Consortium for Student Retention Data Exchange (CSRDE) shows that a national sample of 74 community colleges shows a graduation rate of 22.9% overall and 20.9% for institutions with 60% part-time students. The area of success also needs further clarification.  The author defines success only as earning an AA/AS, Certificate, or transfer to a four year institution. No other forms of student success (transfer-prepared, transfer-ready, reaching unit level thresholds that show a wage gain, etc.) are included. 

Finally, the report requests that eliminating the 75-25 law. While anecdotal, it is hard to see where greater increases in part-time faculty will increase overall student success. The authors claim colleges need to “strike a balance,” but the system has already stated that the desired balance is 75-25.  In addition, there is no real correlation between student course success and teacher type (FT or PT), only cost savings to the campus.  Clarity in these areas would make the report stronger and provide some much-needed insight into the complexity of community colleges.

The report is asserting that access and success need to be synonymous if community colleges are going to help shape the state’s workforce. Whether you agree or disagree with the Rules of the Game, the report has been successful in bringing the issue of student success to the forefront of higher education debate. While the jury is still out on the impact this study may have on the Legislature regarding policy changes, the California Community Colleges Board of Governors is moving forward in examining the issue closely. The Board will be holding a special session focusing on student success on March 4, 2007, at its board retreat. 

 If you have questions regarding this report, please contact Nancy Shulock or Colleen Moore at (916) 278-3888. A complete text of the report can be found at www.csus.edu/ihe. 

—Jamillah Moore, Ed.D.