Building a Strong, Independent DC Community College

Transcription

1 Building a Strng, Independent DC Cmmunity Cllege By JBL Assciates Cmmissined by Greater Washingtn Research at Brkings and DC Appleseed Nvember 2009

2 Letter t the Readers: In 2008, ur rganizatins each published papers calling fr the District t increase its cmmunity cllege capacity. At that time, Washingtn, DC was the nly majr American city withut a full-service cmmunity cllege. We cncluded that DC needed a cmmunity cllege t prepare residents fr gd jbs and further cllege educatin, build its middle class, and grw its tax base. Accrdingly, we held a wrking sessin in June f that year fr higher educatin leaders, gvernment fficials, emplyers, and ther cmmunity stakehlders t discuss practical ways fr the city t enhance and grw its cmmunity cllege capabilities. At that meeting, DC Cuncil Chairman Vincent C. Gray called fr a study t assess the feasibility f the ptins fr starting a cmmunity cllege, as utlined in the Brkings Institutin reprt, Envisining Opprtunity: Three Optins fr a Cmmunity Cllege in Washingtn, D.C. Fllwing strng endrsement f this suggestin by ther gvernment and cmmunity leaders, DC Appleseed and Greater Washingtn Research at Brkings undertk a cmpetitive bidding prcess and chse JBL Assciates t cnduct the study. Since then, the University f the District f Clumbia has mved frward vigrusly t establish a cmmunity cllege the Cmmunity Cllege f the District f Clumbia (CCDC), which pened its drs in fall CCDC is currently in a transitin year as its new CEO, Dr. Jnathan Gueverra, develps a visin and strategic plan fr the cllege. The changes at UDC/CCDC are taking place s quickly that we have n dubt that sme f the details cntained in this reprt will be ut f date by the time it is released. Nnetheless, we believe that the reprt ffers infrmatin, general guidance, and recmmendatins that can help District leaders and residents partner in determining the path that CCDC shuld take t becme a strng, independent, and full-service cmmunity cllege. Building a new cmmunity cllege presents an exceptinal pprtunity t take advantage f the best thinking n student success at a time when the President and the Natin are turning t cmmunity clleges t strengthen the fundatin fr ecnmic grwth. Thrugh thughtful planning and innvative partnerships, DC s cmmunity cllege can play a vital rle in the regin s ecnmy cnnecting DC residents t gd jbs and supplying emplyers with a knwledgeable and cmpetitive wrkfrce. We gratefully acknwledge the generus supprt f the Gvernment f the District f Clumbia, the Annie E. Casey Fundatin, Federal City Cuncil, Cnsumer Health Fundatin, and the Greater Washingtn Wrkfrce Develpment Cllabrative. We als thank the many individuals and rganizatins wh shared their insights with the JBL study team. We lk frward t cntinuing t supprt the District in develping a first-rate cmmunity cllege fr residents, emplyers, and members f the cmmunity. Sincerely, Alice M. Rivlin Directr and Senir Fellw, Greater Washingtn Research at Brkings Walter Smith Executive Directr DC Appleseed

3 Building a Strng, Independent DC Cmmunity Cllege By JBL Assciates ACKNOWLEDGEMENTS This reprt was a cllabrative effrt invlving individuals frm a variety f rganizatins dedicated t prmting educatinal pprtunities in the District f Clumbia. We wuld like t thank specifically the representatives frm thse rganizatins, whse expertise and dedicatin were essential t the final reprt. DC Appleseed Walter Smith, Executive Directr Judy Berman, Deputy Directr Brke DeRenzis, Prject Directr Greater Washingtn Research at Brkings Alice Rivlin, Senir Fellw Martha Rss, Deputy Directr JBL Assciates, Inc. Jhn B. Lee, President Lindsay Albert, Research Assciate Ellen Frishberg, Research Assciate Barry Christpher, Editr MDC, Inc. David Ddsn, President Carl Lincln, Prject Directr Steering Cmmittee Terese Lwery, Legislative Analyst Office f the Chairman, District f Clumbia Cuncil Sarah Oldmixn, Prgram Directr Greater Washingtn Wrkfrce Develpment Cllabrative Margaret Singletn, VP and Executive Directr DC Chamber f Cmmerce Fundatin Andrea Wilsn, Office f the Deputy Mayr fr Educatin District f Clumbia

4 EXECUTIVE SUMMARY Washingtn, DC needs a strng, independent cmmunity cllege t increase ecnmic pprtunity fr District residents and cnnect them t the Washingtn regin's well-paying jbs. Such a cmmunity cllege wuld significantly increase the city's educatin and skill-building capacity by accmplishing multiple gals: Prviding a clear, affrdable entry pint t pst-secndary educatin, including: Develpmental educatin t prepare residents fr cllege-level wrk The first tw years f curse wrk leading t a bachelr's degree Prviding career and technical educatin t help District residents btain skills t get a jb r advance n the jb, either thrugh shrt-term training r thrugh lnger-term certificate and degree prgrams Bsting the city's ecnmic develpment effrts by creating a mre cmpetitive labr frce fr the city and the regin: Assisting area emplyers with their educatin and training needs, enabling them t grw their lcal businesses and supprting a psitive business climate Helping District residents access gd jbs, imprving their persnal ecnmic frtunes as well as increasing the city's tax base Offering nn-credit cmmunity educatin curses fr persnal enrichment Aspiring t be a mdel f effective cmmunity cllege educatin by raising its cmpletin and graduatin rates abve thse typical f cmmunity clleges and ffering challenging, well-taught curses t a wide range f cmmunity residents. This study, undertaken by JBL Assciates, Inc. under cntract with Greater Washingtn Research at Brkings and DC Appleseed, and with guidance frm the DC Chamber f Cmmerce, the Greater Washingtn Wrkfrce Develpment Cllabrative, the Office f DC City Cuncil Chair Vincent Gray, and the Office f the Deputy Mayr fr Educatin, assesses varius ptins fr strengthening the District's cmmunity cllege capacity t achieve the abve gals. The study is intended t build n the fundatin f the new cmmunity cllege the Cmmunity Cllege f the District f Clumbia (CCDC) established by the University f the District f Clumbia (UDC) in fall In ding s, the study examines three paths that CCDC culd take given its current status as a divisin f the University: 1. CCDC remains a permanent branch r divisin f UDC, and permanently shares the University's gvernance, administratin, and accreditatin 2. CCDC temprarily shares UDC's gvernance and accreditatin as it explicitly wrks n its wn tward the gal f becming an autnmus, independently-accredited institutin 3. CCDC develps and leads partnerships with ne r mre f the area's suburban cmmunity clleges t augment its prgrams as it builds capacity t becme an autnmus, independently-accredited institutin i

5 While Optins 2 and 3 bth result in independence fr CCDC, they differ primarily in the strategy by which they reach scale. The prject team cnsidered plitical realities, financial limitatins, legal requirements, emplyer needs, cmmunity wishes, effects n UDC, and rganizatinal interests t determine the best way frward t achieve the stated gals. The prject team is als aware that, due t the rapid pace f change at UDC/CCDC, sme f the details in the reprt may be ut f date by the time the reprt is released but that the verall recmmendatins will remain valid. This reprt cncludes that the District shuld supprt CCDC's intentin t separate frm the flagship university, and encurage it t take the fast track t becming an independently-accredited, autnmus cmmunity cllege with its wn Bard f Trustees and budget. The reprt als cncludes that CCDC's mve tward independence wuld be significantly advanced by develping apprpriate partnerships with ne r mre f the DC area's three suburban cmmunity clleges (Nrthern Virginia Cmmunity Cllege, Mntgmery Cllege, and Prince Gerge's Cmmunity Cllege) t take advantage f these institutins' resurces and reputatins and quickly expand CCDC's capacity. Such partnerships culd be the start f a reginal cnsrtium f cmmunity clleges in the DC area. Accrdingly, the reprt recmmends that CCDC pursue Optin 3, which we call the "Independence Plus Partnership Optin." CCDC's mve t independent status is critical t the success and sustainability f the institutin. Right nw, CCDC's status as a divisin f UDC takes advantage f the University's academic accreditatin s that students are eligible fr federal financial aid, are able t transfer credits t ther accredited schls, and are able t have their credentials recgnized thrughut the United States. Hwever, a cmmunity cllege and a state university have different missins, prgrams, faculty, and services, and they shuld nt be hused within the same institutinal structure where they will cmpete fr resurces and attentin. In such a situatin, the cmmunity cllege is likely t suffer, since the academic cmmunity typically cnsiders universities mre prestigius than cmmunity clleges. Mrever, CCDC must disengage frm the high cst structure f UDC if it is t becme ecnmically viable. The District is frtunate t have the leadership f UDC President Dr. Allen Sessms and f CCDC CEO Dr. Jnathan Gueverra bth f whm supprt the gal f achieving an independently-accredited cmmunity cllege separate frm UDC. Brkering strategic partnerships with ne r mre f the suburban cmmunity clleges can help CCDC develp a rbust set f prgrams mre quickly. By cntracting with ther institutins t prvide specific prgrams in high-demand ccupatins, CCDC can increase its capacity mre rapidly than if it built its wn prgrams frm scratch. Such cntracts with ther schls wuld cntinue while CCDC gained sufficient capacity t run these prgrams n its wn. At that pint, the cperating clleges culd step back accrding t a prcess defined in the cntracts. In the interim, the participatin f the ther cmmunity clleges wuld bring supplementary expertise int the CCDC and cntribute additinal credibility amng area stakehlders and emplyers. CCDC shuld draw n the best aspects f the ther cmmunity clleges and imprve n their achievements where apprpriate, including in the imprtant area f graduatin and transfer rates. Managing the suggested cntracts wuld require clse crdinatin and cperatin amng CCDC and the participating cllege(s), which adds a layer f administrative cmplexity; hwever, we believe the benefits utweigh the csts. Mrever, Dr. Gueverra's experience as a cmmunity cllege administratr will prvide the leadership necessary t develp and lead such partnerships. Partnerships with ne r mre f the suburban cmmunity clleges culd als be the first step in creating a reginal cnsrtium in which each jurisdictin is hme t strng prgrams which students thrughut the area can access. Training fr sme ccupatins (fr example, in the cnstructin and allied health fields) requires expensive facilities and equipment and specialized instructin skills. Since the labr market is reginal and nt limited by jurisdictinal bundaries and, in fact, many emplyers have sites in multiple jurisdictins in the DC metrplitan area it may be beneficial fr educatin institutins t specialize in certain prgrams, assuming reciprcal arrangements are develped with institutins in the ther jurisdictins. Such a cnsrtium will prvide an easy pint f entry fr emplyers wh wuld access a crdinated reginal netwrk designed t help meet their wrkfrce needs. It will als prduce cstsavings t the extent that nt all the clleges reprduce the same expensive equipment and training capacity. ii

6 T ensure that CCDC is n the fast track t independence, the strategic plan being develped by Dr. Gueverra shuld guide the cllege's develpment and serve as a perfrmance measurement tl. The strategic plan shuld include the fllwing: Prgrams that CCDC aspires t ffer, and an implementatin plan fr prviding thse prgrams Annual estimates f enrllment, csts per student, and cmpletin rates that will guide the grwth prcess fr bth the cmmunity cllege and the flagship university Student success strategies and the metrics by which student success will be measured, such as secnd-term and secnd-year retentin, successful cmpletin f develpmental educatin and use f student supprt services A timeline fr acquiring a new site fr the cmmunity cllege and the cst f develping new facilities A strategy and timeline fr achieving independent accreditatin The strategic plan shuld be develped in cnsultatin with an advisry panel that will be the frerunner f a separate Bard f Trustees fr the cmmunity cllege. The advisry panel shuld include UDC bard members, emplyers, and representatives frm lcal gvernment, the public educatin sectr, cmmunity rganizatins, and ther stakehlder grups. Building n the wrk that he has already begun in his rle as CEO f CCDC, Dr. Gueverra will need t take the fllwing steps t build apprpriate and timely partnerships with ne r mre f the suburban cmmunity clleges: Inventry and assess existing prgrams cmpared t resident and labr market demand and emplyer expectatins, and determine which nes t cntinue, enhance, r pssibly drp Discuss with ne r mre suburban cmmunity clleges their interest and capacity in prviding specific prgrams, such as cmmunity educatin, n-line educatin, shrt-term wrkfrce training, and lnger-term certificate and degree prgrams Identify the administrative, financial and cntractual arrangements necessary t implement the partnerships, and develp the terms under which the CCDC will eventually take ver the prgrams as it mves tward independence These determinatins shuld be incrprated int the strategic plan, and shuld be made by Dr. Gueverra in a way that gives him maximum flexibility and authrity t develp partnerships that will assist CCDC's grwth and independence. The strategic plan and partnerships with ther clleges shuld prvide the basis fr a multi-year budget that is develped and maintained thrugh a transparent budget management system. If CCDC aimed t perate at scale with an enrllment level and cst structure similar t ther high-achieving cmmunity clleges, it wuld have a target enrllment f 5,000 full-time equivalent (FTE) students and an perating budget f abut $60 millin ($12,000 per FTE n average). If its revenues are structured similarly t ther cmmunity clleges, half f this budget $30 millin wuld be cvered by public funds, while the remainder wuld cme frm tuitin, federal supprt, and grants. T maximize the District's return n its investment, CCDC must help students achieve a degree r certificate that is relevant t the reginal marketplace, r cmplete enugh curses t upgrade specific skills, get a jb, r transfer t a fur-year cllege. An assciate degree graduate, fr example, wuld pay rughly $23,000 mre in lcal taxes ver a 30-year wrking life than wuld a high schl graduate. iii

7 We d nt prvide estimates f hw much CCDC will cst during its start-up years because thse csts depend n decisins that CCDC makes abut hw t grw. Csts shuld be driven by the strategic plan: target enrllment numbers fr each year, the types f prgrams and services that CCDC chses t ffer, and hw they chse t prvide thse prgrams (n their wn, brrwing frm UDC, r thrugh partnerships with suburban clleges), CCDC shuld aim t have an efficient cst structure frm the utset. The level f lcal gvernment funding required by CCDC as it mves tward its target capacity will depend n these same variables. While CCDC will require increased resurces, ttal perating revenue need nt entirely be raised frm new surces. Rather, sme f the cmmunity cllege's csts can be funded using existing revenue that CCDC receives frm UDC. Determining hw t carve ut CCDC's budget frm UDC will require clear gals fr enrllment, per-pupil expenditures, and prgramming at the flagship university and the cmmunity cllege, as well as a cmmitment t cst cntainment at bth schls. The District shuld wrk t ensure that CCDC des nt inherit UDC's high cst structure. UDC's csts per full-time equivalent (FTE) student are abut $31,000, cmpared t an average f abut $9,500 per FTE amng ther cmmunity clleges and $17,000 amng peer universities. These high csts reflect several histrical events, such as the creatin f UDC thrugh the merger f three separate institutins in the 1970s, declining enrllment, and a faculty that is lder and at the higher end f the salary scale cmpared with ther clleges. Since CCDC is starting ut as an embedded unit within UDC, these high csts will be built int the cmmunity cllege unless CCDC has the authrity t take steps t reduce csts, and des s. Cntracting with utside institutins fr selected prgrams may help t intrduce new, lwer cst structures. While the suburban cmmunity clleges have relatively efficient cst structures that culd benefit CCDC, the develpment and maintenance f reginal partnerships will carry additinal csts assciated with administratin and implementatin. The District gvernment will have t underwrite these additinal csts, as CCDC's current revenue streams are likely t fall shrt f cvering them. The executive and legislative branches f the District f Clumbia gvernment shuld take active rles in develping, supprting, and verseeing UDC, CCDC, and the emerging public pst-secndary educatin system created by the separatin f the university and the cmmunity cllege. The Deputy Mayr fr Educatin and the Office f the State Superintendent fr Educatin (OSSE) shuld actively supprt CCDC's strategic planning prcess. In a related activity, the OSSE shuld ensure that state financial aid plicies and pst-secndary funding plicies align with the needs f cmmunity cllege students. The Cuncil f the District f Clumbia shuld prvide rigrus versight, especially in regard t splitting CCDC's budget frm the flagship university and develping an independent cmmunity cllege. This feasibility analysis pints t the imprtance f building n the wrk that UDC has already dne t lay the fundatin fr a cmmunity cllege, while drawing n resurces frm the well-established, highlyregarded cmmunity clleges in the neighbring suburbs. This ptin shuld give the District and its residents an pprtunity t build what is needed an independent, credible cmmunity cllege that prvides a wide range f educatin and wrkfrce develpment ptins. In additin t assessing the feasibility f the ptins available t CCDC and making the recmmendatins discussed, the study examines the current capacity f cmmunity cllege prgrams in DC, prjects student, emplyer, and cmmunity demand fr a full-service cmmunity cllege, defines the attributes f an effective DC cmmunity cllege, prvides cst estimates, and suggests the benefits a cmmunity cllege wuld prvide t the District. This reprt, alng with the wrk currently underway at CCDC, are steps in a prcess that will take several years t cmplete. Decisins that are made in these early years will shape and limit the chices that are available t CCDC in the future. A well-planned and well-executed strategy that takes advantage f the best current thinking n cmmunity clleges and the experience f lcal experts will pay tremendus dividends: increasing numbers f District residents will be prepared t take their place in a vital reginal ecnmy, and emplyers will have a strnger, mre cmpetitive wrkfrce in the District frm which t draw. iv