SF Bay Guardian

City College fights back

July 17, 2012

By Joe Fitzgerald Rodriguez and Sara Bloomberg

When your options are bad, terrible, and unthinkable, how do you choose which way to go? And should that decision be graded on a curve that takes into account the dire fiscal circumstances facing most public colleges in California these days?

City College of San Francisco (CCSF), which serves more than 90,000 students a year, last year did what some consider unthinkable: laying off administrators and leaving a reserve fund at dangerously low levels in order to save classes and stave off faculty layoffs. The current $187 million operating budget has a reserve of only $2.2 million, or just over 1 percent compared to the state-recommended 5 percent.

Such decisions may cost the college its accreditation and threaten its very existence, but they also represent legitimate differences over what role educational institutions should play in their communities.

In June, the college came under fire for administrative and financial mismanagement by the Accrediting Commission for Community and Junior Colleges, a private organization that evaluates K-12 schools and higher education institutions every six years.

Although the commission applauded the school for its commitment to students, it placed the school under its most severe sanction before accreditation is terminated: “show cause.”

It identified eight problem areas that the college has failed to address since 2006, which include measuring student learning outcomes, attaining financial solvency, and revising the college’s mission statement to reflect current fiscal realities.

“The team finds that the current, ongoing funding for San Francisco City College appears insufficient to fully fund the mission of the college as it is currently conceived,” the commission wrote in its June report. “The team advises the college to assure the mission of the college is obtainable based on accurate short-term and long-term funding assumptions.”

Essentially, the commission is recommending a refocusing of the school’s mission to prioritize college transfer classes. The report went on to say that too many people making decisions through a highly decentralized governance system slowed down or halted altogether the college’s ability to make cuts where it needed to — or where the state and commission thought cuts should be made.

These competing visions of how community colleges should continue to exist have driven a wedge between local college officials and state-level decision makers — a clash made clear through City College’s accreditation woes.

“It’s not that City College isn’t doing a good job, it’s that these are emerging trends we have,” former Student Trustee Jeffrey Fang said. “In the long run, it might actually improve City College. The bad part is that it came at a time when we are so strapped and mired neck deep in political games.”

Those games have starved funding for public education statewide, in the process redefining the role of community colleges.

“City College has a very ambitious mission. Part of that mission is that it’s a true community college,” CCSF spokesperson Larry Kamer said. “Now, decisions are being made de facto by the budget and we need to re-evaluate that mission.”

PUTTING THE “COMMUNITY” IN COLLEGE

Adult education used to be integrated into K-12 districts. But over the years, two-year “junior” colleges took over that responsibility, transforming them into today’s “community” colleges.

The newly minted community colleges began serving thousands of immigrants learning English, job seekers needing new skills, and elderly citizens looking to continue their education. But when California’s budget crisis hit a critical point, that all began to change.

Three years ago, the California Legislature said when the community colleges cut courses, they shouldn’t cut courses involving transfer, career technical education, and basic skills, State Community College Chancellor Jack Scott said in a phone interview.

Scott is responsible for overseeing all 112 community colleges in California, a quarter of all community colleges in the country. He’s on the cusp of retirement, and the end of his tenure has been marked with the changing mission of the colleges he oversees.

“I want it clearly understood that I personally want to see the community colleges offer all the classes it wants to,” he said. “But with scarcity, you have to prioritize. If you offer the same classes you did before, you’ll go bankrupt. Something has to give.”

The state agreed and asked community colleges to prioritize enrollment, with a focus on recent high school graduates who plan to transfer to a university in two years and anyone else seeking a degree or certificate.

If community colleges can’t afford to offer classes sought by their broader communities, and K-12 schools are ill-equipped to plug back into that task, does the notion of continuing adult education just fade away?

David Plank, executive director of policy analysis for California Education, a Stanford University-based research center, says it just may: “I don’t think that responsibility will be reimposed on K-12 districts because it was always seen as a sort of add-on supplementary responsibility.”

BUDGET WOES TRICKLE DOWN

California’s Master Plan for Higher Education — which mandates that community colleges provide classes for everyone — only worked as long as there was money to fund it. But Plank says that money has been steadily shrinking since 1978 when voters passed Proposition 13, which capped property tax increases and raised the voting threshold for the Legislature to increase other taxes.

As funding from Sacramento has been slashed by more than $500 million in the past year alone, California’s 112 community colleges have turned away more than 300,000 students trying to enter the system. If Governor Jerry Brown’s tax proposal wins in November, community college funding will stay at about the same level, but if it fails, the system will see further cuts of more than $340 million.

“The system now is breaking down,” Plank said. “We’ve finally reached a point where the state’s share is too small to hold things together. We see tuition going up at very rapid rates and a substantial deterioration both in access and affordability.”

In flush times, community colleges could serve everyone — rich and poor, those seeking new skills and others working toward a new degree. Now, the community college system faces two choices if it’s unable to find new sources of revenue: continue on the path of deep cuts, or change its priorities altogether.

City College Board member Steve Ngo cites new statistics that show enrollment in English as Second Language (ESL) classes are trending down, a sign that those classes should be cut first. “The community should lead. If the demand is down, you’re not serving your community,” he said.

Yet others say community colleges should strive to serve everyone who needs them.

“Some [classes] are really valued by our Pacific Islander population, but their enrollment may not be as high. Should those classes go away? I don’t think so. It’s something I feel like the whole college community needs to come to grips with” CCSF math instructor Hal Hunstman said.

City College ESL instructor Susan Lopez said her classes have been cut about 29 percent over a decade, which she considers drastic.

“Despite that large and somewhat intentional reduction, we still serve 20,000 annually throughout the city. By comparison with our very large ESL Department, the English Department serves only 7,000,” Lopez said. “How could we abandon those who are most educationally needy and often desperately poor in favor of those who are less needy?

“We need to step up adult education across the board,” she said. “The problem is all the pressure to do less and to fund less of this type of education.”

SMOTHERED ON ALL SIDES

The accreditation commission is an independent body, but it’s been pressured too.

“In the current climate of increased accountability, our regional accrediting associations find that tight spot to be more like a vice,” a commission newsletter said in 2006. “On one side are forces at the national level ready to throw out regional accreditation in favor of a federal approach; while at the local level, they are faced with institutions resistant to rapid change and increased scrutiny.”

In the past year, private entities ponied up thousands of dollars to help usher in a new numbers-based approach to education. In 2011, a 20-member body comprised of public and private representatives was charged with evaluating the community college system.

Called the California Community College Student Success Task Force, its creation was mandated by the state, but to many people it reeked of privatization.

Several private organizations funded the task force’s work, including the Lumina Foundation, an educational research and grant-making institution with ties to the American Legislative Exchange Council (ALEC), a controversial lobbying group for private interests that authored the Stand Your Ground gun law.

By fall 2011, students, faculty, and administrators across the state began to question the task force’s methods and recommendations, which initially included proposals to cut many non-credit and enrichment courses, restrict financial aid, prioritize transfer students, and cap the number of units one person could take.

Under the veil of increasing so-called “student success,” the task force was asking schools to prioritize limited funds and change their missions to once again become “junior” colleges — a fate that City College has refused to accept.

City College’s Board of Trustees passed a resolution in November 2011 opposing the task force, nearly unanimously, with Ngo the sole dissenting vote. Then-Chancellor Don Griffin warned that the task force’s agenda was a transparent attack on open access that would disproportionately affect poor people and people of color, imploring the board to reject its recommendations.

“They’re talking about taking over the vehicle of community colleges and turning it into something else,” Griffin said. “We have to take a hard stand because everybody around the state is watching City College of San Francisco.”

Students and faculty at City College joined the fight. They spoke out at Board of Governors meetings in Sacramento. They wrote letters, emails, and scathing editorials. The school’s student-run school newspaper, The Guardsman, led a statewide campaign opposing the task force.

Despite the public’s concerns, the California Community Colleges Board of Governors adopted the task force’s final report in January.

“As wonderful as open admissions is, if it’s a false promise to an objective, it fails,” Peter MacDougall, Board of Governors member and task force chair, said at the January meeting.

“Our objective is to have that promise realized, that’s what the recommendations are intended to achieve.”

Ultimately, the initiative succeeded, shifting priority enrollment to students who are freshly in the college system. The Task Force report is now Senate Bill 1456, sponsored by Sen. Alan Lowenthal and commonly known as the Student Success Act of 2012.

AHEAD OF THE PACK

As everyone waits with crossed fingers hoping for a favorable outcome at the ballot in November, City College officials are fighting keep the school open.

“Do we alter our mission slightly, or fundamentally? It’s not clear yet what we’re going to do,” Ngo said.

The trustees have until October to present the commission with a plan and then until March to prove they can achieve it. In the meantime, the commission requires that preparations be made for potential closure, which Interim Chancellor Pamila Fisher and other CCSF officials say won’t happen.

Only two other community colleges received a “show cause” order this year: College of the Redwoods and Cuesta College. Yet as of January, 25 percent of California’s community colleges are under sanctions, according to the accreditation commission documents.

Federal funding hinges on the certification and other educational institutions, such as the University of California and the California State University systems, only accept transfer credits from other accredited institutions.

Everyone seems to agree that City College is too big to fail — with more than 90,000 students, it’s the largest community college in the nation — but how it will look and operate in the future remains unknown.

City College already cut dozens of classes this year — including many with students already enrolled after the spring semester began. But City College isn’t alone in its plight.

Santa Monica Community College caused an uproar earlier this year when it proposed charging more for popular classes. As of July 1, classes cost $46 per unit but under Santa Monica’s proposal students would pay $180 per unit for courses in high demand.

When students protested this two-tiered payment system in April, police pepper-sprayed them, just five months after UC Davis students received the same brutal treatment for holding a non-violent Occupy-style action against their own tuition hikes.

“What we see is a move towards privatization, in the sense that we are now expecting students to pay a larger share of the cost,” Plank said. “Over certainly the last 40 years, California has been steadily disinvesting in post secondary education.” Whether tuition increases at the CSUs and UCs in the near future depends on whether voters approve Brown’s tax proposal this November. City College’s financial future hinges not only on the governor’s tax proposal, but a local parcel tax initiative as well. City College needs both to pass in November just to break even. “A lot of San Francisco’s workforce is educated at City College,” City College board member Chris Jackson said, adding that for poor and working class people, it’s the only affordable option. In addition, as veterans return from foreign conflicts, ex-offenders are released from prison and enrollment capped at the state universities, Jackson said, “We need local investment in City College.”

Saving City College

August 7, 2012

By By Joe Fitzgerald Rodriguez and Sara Bloomberg

City College of San Francisco (CCSF) is fighting for its life, and that struggle has turned old enemies into new allies. Suddenly, past differences seem less important than the need to work together, bringing a new sense of unity and purpose to the troubled community college.

In June the school was sanctioned and ordered to “show cause” from the Accrediting Commission of Community and Junior Colleges, putting it on the brink of losing its accreditation — certification necessary for the college’s degrees to be worth anything and for the school to secure federal aid (see “City College fights back,” July 17).

Twelve workgroups comprised of faculty, staff, administrators, students, and college board members are working feverishly to prove by October that the school is making major progress. Otherwise, it could face dire consequences.

While few people with any education or political background believe the school will actually close, there are serious consequences if its accreditation is revoked. A special trustee assigned by the state chancellor’s office could assume the powers of the college’s board or the school could be merged with another community college district.

The only college in California to ever suffer both of those fates was Compton Community College in 2006. Though the two colleges serve wildly different communities, many speak of their fates in the same breath. Its shadow hangs over City College like a ghost of what is to come.

WORKING TOGETHER

The newfound sense of common purpose was displayed on Aug. 1 in CCSF conference rooms, where once-battling special interest groups and employees gathered to tackle problems that have plagued the school for years.

The feuds aren’t just of interest to political geeks and college insiders. Infighting and a dysfunctional governance structure had stalled the school from tackling urgent issues, according to the accrediting commission.

“During interviews, criticism regarding the efficiency of the institutional governance process was revealed. The criticism centered on the length of time to reach a recommendation. It was also noted that there may be misunderstanding regarding the role of a recommending body versus a decision-making body,” according to the commission’s report.

That snippet of the 66-page critical report represents years of strife at the school, not only among the school’s elected trustees but also between the board and other college groups on issues ranging from placement testing to school site closures.

The 12 newly formed workgroups — constituted by the Chancellor’s Office and comprised mostly of faculty, administrators, and trustees — met to discuss issues and make recommendations to the system’s decision-making authorities: the Chancellor’s Office and Board of Trustees. One of the workgroups is in charge of evaluating that very decision-making system, with 14 people from different college constituencies hashing out a new style of democracy for the school.

At their first meeting, the members brought in stacks of papers to hand out — research on best practices and policies in college governments around the state and the nation. This particular workgroup discussed how an ideal student government should run, and how to enact those changes at City College.

The workgroups are brainstorming sessions, and each one has a different task ahead of it, including how to measure student learning, leveraging technology to streamline the school, facilities planning, and fiscal planning. Each workgroup acts independently, although some themes and members overlap.

The Board of Trustees is scheduled to meet and report on the progress of the workgroups on August 14 — the day before fall semester classes begin.

A final, preliminary report based on the findings of the dozen workgroups is expected to be completed before the accrediting commission’s October 15 deadline. With everything on the table, from staff layoffs to campus closures, CCSF is an anxious institution facing an uncertain future.

THE GHOST OF COMPTON’S PAST

In Compton, faculty and staff lived in constant fear of losing their jobs between 2002 and 2006, while the school was at risk of losing accreditation. Its path offers some lessons for CCSF.

“From three or four years prior to the accreditation being revoked, every March everybody got a pink slip and then you found out, you know, whether or not you actually had a job to come back to the next year,” Ann Garten, the community relations director of El Camino Community College District, told the Guardian in a phone interview.

El Camino swooped in to save Compton from total closure when its accreditation was revoked in 2006. The fate of employees at City College is a mystery for now, but based on Compton’s experience, part-time faculty are most at risk.

During spring semester, City College had nearly 1,700 instructors, approximately half of which were part-timers, according to college payroll documents. The school’s faculty are represented by the American Federation of Teachers Local 2121.

Classified workers — those who perform services such as administrative support, technology services, and grounds maintenance — could also be at risk. Their numbers exceeded 800 during the last fiscal year, according to the school’s assistant director of research, Steve Spurling.

They are represented by the Service Employees International Union Local 1021, a large and active union that also represents most city workers. In recent years, both unions have already taken pay cuts and freezes on raises and accepted furlough days to help plug the college’s fiscal holes.

If a special trustee were to take over, these workers would become even more vulnerable. But even without a special trustee, will there be layoffs?

Though there is no definitive answer yet, “everything needs to be on the table,” Trustee Steve Ngo told us. Yet most indications are that part-timers are at the most risk.

“I’m not convinced [full time faculty] pay cuts are what is called for. Our part time is the highest paid in the country,” CCSF Chancellor Pamila Fisher told the Associated Student Presidents, made up of elected leaders from CCSF’s eight main campuses. “We pay them health care. That’s unheard of” and could be re-evaluated, she said.

Yet it’s also possible that more creative and aggressive fundraising could save the part-timers and other college functions. Alisa Messer, president of AFT local 2121, said statewide categorical funds exist expressly to help fund part time faculty health care costs, she said, although not all colleges follow through.

“AFT 2121 has been a leader in this state, and in fact in the nation, on increasing parity for part-time/contingent faculty,” Messer said. “We will not allow this crisis to be an excuse to roll back significant progress that has been made on the rights of our most vulnerable faculty.”

The commission’s June report dinged the school for spending higher than average levels on salaries and benefits, 92 percent of their funds to be exact, while other community colleges in the Bay Area have figures in the low to mid 80s.

Yet many of CCSF’s defenders say that comparison isn’t fair or accurate, noting San Francisco’s higher cost of living and the fact that the district provides health coverage to part-time faculty, which most other community colleges in the state do not provide.

SERVING STUDENTS

As the college unites, many conflicts that remain boil down to the question of open access. CCSF currently operates with what it sees as a true community college ethos, where the varied needs of a diverse student population are balanced.

Recent high school graduates preparing for transfer mingle with adult students continuing their education, while English as Second Language (ESL) learners work towards proficiency and others seek new technical skills or transition to a new career.

Many students also take so-called “personal enrichment” courses — one time classes in the arts or languages, for example — that state government has de-prioritized as the budget hole has gotten deeper.

“I think we have to spend money better,” Ngo said, concerning “non-credit” courses, which are primarily classes for adult learners. He pointed to the fact that ESL classes are a full semester long, despite a unique “hop in, hop out” structure to the lessons, which gives students flexibility in their attendance over the course of the semester.

Reducing the number of weeks in a semester that those classes meet could be one possible strategy for saving money, he said. He emphasized that the college needs to work with hard data, and that calculations from what could be saved by such moves aren’t finished.

The number of campuses within the district is also being re-evaluated. “Yes, one of things we’re looking at is whether we should have nine sites. Centers may be combined. We don’t know if that will pay out yet,” Chancellor Fisher told the student presidents, referring to complex funding formulas that could actually prevent CCSF from saving money by closing campuses.

Fisher said officials are researching the possibility of combining campuses in close proximity, which drew a mixed reaction from the presidents. Bouchra Simmons, the Downtown Campus student president, said that combining the Civic Center and Downtown campuses would be disastrous.

“[Downtown Campus] is already pushed to capacity in terms of class size,” Simmons said. And the reverse, moving Downtown Campus students into Civic Center, would make it difficult for her to drop her daughter off at child care and still be able to make it to school on time.

Emanuel Andreas, Southeast Campus president, disagreed when it came to his constituents. “We understand what is happening, and everything needs to be on the table,” he said.

The threat of campus closures and a reduction in non-credit classes are all part of the attack on open access, as some students have said. To combat that, they’ve formed a new student group aimed at educating the city about what they stand to lose.

Project Unity is comprised of Occupy CCSF students, former student trustee Jeffrey Fang, student body President Shanell Williams, and other students, led by the newly elected student Trustee William Walker. They’ve rallied for their school at City Hall, where Supervisors Eric Mar and John Avalos have sponsored a resolution to support City College.

Project Unity met at the Mission Campus shortly after supporting the resolution, and started to plan a grassroots campaign to educate the city and its residents about open access.

Bob Gorringe, a member of Occupy San Francisco, was on hand to help the fledgling group strategize. “[Trustee] Anita Grier came out to the Occupy action council, and she was very open,” Gorringe told the group on July 31, referring to the longtime board member who is not exactly known for her radical tendencies.

Students taking such a vested interest in their college should come as no surprise, considering what happened to Compton before it folded into El Camino.

Although Compton never actually closed, it hemorrhaged students as public fears of the college closing grew larger, and the student body dropped to around 2,000 when El Camino took over, Garten told the Guardian.

Some students went elsewhere, but many appear to have just abandoned the education system.

“We looked at two or three colleges around Compton and none of us had a significant increase in students from the Compton district” enrolling, Garten said.

In other words, it looked like many disillusioned students had simply dropped out, something that nobody wants to see in San Francisco.

MOVING FORWARD

Just over two months remain for CCSF and its supporters to hash out a preliminary plan. Aiding them is a team of experts that will create a detailed report on everything related to the college’s financial woes — possibly the most critical problem area.

The Fiscal Crisis and Management Assistance Team, or FCMAT, explained their process to the college on August 3.

Without revealing any specific details, Michelle Plumbtree, the chief management analyst of FCMAT, warned an audience of a couple dozen interested people that its report would seem negative, but only because that’s exactly what the report is supposed to be: a critical review of problem areas.

“You guys are doing incredible things…But that’s not what we talk about [in our reports],” Plumbtree said.

Mike Hill, another FCMAT team member, succinctly layed out the biggest obstacles to City College’s fiscal future. “This is not a one year problem…We’re looking at three years. What makes that complicated is the governor’s tax, and the parcel tax,” Hill said, referring to Prop. 30 and the San Francisco ballot measure City College sponsored. “There are four scenarios… It’s not predictable.” Prop. 30, the tax measure placed on the ballot by Governor Jerry Brown, wouldn’t raise new revenue for community colleges. If it passes, they simply break even, staving off more drastic cuts. But the parcel tax offers more hope for CCSF, if city voters approve it. It would free up $14 million in revenue for this fiscal year, restoring some of what was lost and prevent the deep cuts and scaled back mission that the school’s support most fear.