Education Interim Committee
Thursday, July 9, 1998, 9:00 a.m.
Education Interim Committee Members Present:
Sen. David H. Steele, Chair
Rep. Lloyd Frandsen, Chair
Sen. Lyle W. Hillyard
Sen. Joseph L. Hull
Sen. Howard C. Nielson
Sen. Howard A. Stephenson
Rep. Sheryl L. Allen
Rep. Ron Bigelow
Rep. Judy Ann Buffmire
Rep. David L. Hogue
Rep. Susan J. Koehn
Rep. Patricia B. Larson
Rep. Evan L. Olsen
Rep. Tammy J. Rowan
Rep. Richard M. Siddoway
Rep. A. Lamont Tyler
Members Absent:
Rep. Duane Bourdeaux
Sen. Scott N. Howell
Rep. Keele Johnson
Rep. Bill Wright
Staff Present:
Mr. J. Wayne Lewis, Research Analyst
Mr. James L. Wilson, Associate General Counsel
Ms. Wendy L. Bangerter, Secretary
State Board of Education Members Present:
Katharine B. Garff, Chairman
Linnea S. Barney, Member
Neola Brown, Member
Janet A. Cannon, Member
Chery Ferrin, Member
Susan Henshaw, Member
C. Grant Hurst, Member
Jill G. Kennedy, Member
Joyce W. Richards, Member
Excused:
Members Lynn Haslem, Boyd Jensen, Marilyn Shields, Waynette Steel and Vice Chairman
John Watson. {Kay McDonough resigned from the Board effective 7/1/98}
Staff Present:
Scott W. Bean, State Superintendent
Laurie A. Chivers, Deputy Superintendent
Robert, O. Brems, Associate Superintendent
Steven O. Laing, Associate Superintendent
Jerry P. Peterson, Associate Superintendent
Blaine Petersen, Executive Director, USOR
Eileen Rencher, Public Affairs Coordinator
Twila B. Affleck, Secretary to the Board
Note: A list of others present and a copy of materials distributed in the meeting are on file in the Office of Legislative Research and General Counsel.
1. Call to Order - Rep. Frandsen called the meeting to order at 9:10 a.m.
a. Approval of Minutes
MOTION: Rep. Judy Ann Buffmire moved to approve the minutes of the June 17, 1998 Education Interim Committee meeting. The motion passed unanimously.
b. Committee Business
Mr. J. Wayne Lewis reviewed the calendar of events scheduled for the next two days.
Members of the Education Interim Committee, the State Board of Education Members and their respective staff members introduced themselves.
2. Presentation of Issues for Discussion
State School Superintendent Scott Bean expressed appreciation for the committee's desire to meet with the state board in Cedar City. Supt. Bean said he had just returned from an Education Commission of the States (ECS) meeting in Portland, Oregon where Senator David Steel received an Outstanding Service Award. He congratulated Senator Steel for this recognition not only to himself, but to the state. Supt. Bean said Sen.Steel was chairman of the ECS annual meeting in Portland and its theme this year was educational technology .
Superintendent Bean summarized one of the topics for discussion,"Extended School Day", noting that the proposal is not about time in school but about Utah students achieving academic excellence. He felt public schools should strengthen most core curriculum requirements to reflect the technological emphasis that has developed in the American economy.
He said the opportunity for academic excellence can be strengthened through teacher preparation. Teachers need at least one speciality endorsement, plus training in reading instruction and special education teaching techniques. Instruction in computer technology, international languages and fine arts needs to be offered in the elementary grades.
Supt. Bean believes elementary education instruction should be increased ½ hour each day to promote reading readiness in Kindergarten, and reading, writing, and numeric instruction in the first through third grades. Children in the fourth, fifth, and sixth grades need computer instruction and an introduction to health.
The superintendent recommended increasing instructional time in middle school by 45 minutes, and directing that time towards acquiring study skills and career exploration. Middle school students should be allowed to earn secondary graduation credit for approved classes and high
schools should pursue academic improvement by requiring students to earn four additional units in
either math, science, language arts, fine arts, applied technology or a foreign language. The concept
of a fifth term should be broadly tested to determine if an alternate calendar for attendance would be
useful to high school students and their parents.
Supt. Bean suggested that career ladder funding should continue to be appropriated for
teacher compensation and professional development. Ten non-teaching days should be allocated to
every teacher, with five of those days used for professional development and use of the balance
determined by each local board.
After presenting his proposals, Supt. Bean noted the total cost for additional time in class,
funding the career ladder, and a 5th term for high school will be approximately $98 million. He felt these proposals could be the most effective investment the state could make to enhance its public
education system. He requested the focus not be on cost, but on productivity and advantages for the
children of the state.
Robert Brems
, Associate Superintendent, presented a proposal for applied technology education. Two applied technology centers are proposed for Salt Lake County and a satellite campus
in Tooele County to meet the needs primarily of secondary students living in those counties. Similar
training facilities for post-secondary students on a space-available basis would be provided through
Salt Lake Community College. Students at both levels of education could be serviced by public
transportation.
New facility construction and equipment would cost approximately $118,537,000 and annual
operation and maintenance would cost $13,773,000.
Mr. Brems described a school to careers programs designed to meet a demand for skilled
workers by connecting school-based and work-based learning programs. Worked based learning
includes co-op education, theme based career academies, job-sharing, internships, and
apprenticeships. Success depends on connecting the work experience to school learning.
At the conclusion of these presentations, Rep. Frandsen announced the discussion groups
would not reconvene at the conclusion of their session. He said notes from the discussion groups
would be distributed at a later time.
Sen David Steele invited Ms. Betty Ann Rember, Coordinator of the Southwest Applied Technology Center (SWATC) Service Region, Ms. Tonya Jenkowski, Department of Workforce Services, and Ms. Roberta Jorgenson from Dixie High School to present ways school-to-careers objectives can be achieved. School-to-careers programs and work-based learning activities which have been implemented include job shadowing, short term internships, clinics, job sampling and career practicum. School-to-careers goals include providing students with an opportunity to experience the real world of work and allowing each student to raise his expectations through experiencing natural consequences and rewards.
The discussion group reviewed school-to-career options and recommended the State Board of Education consider these options to strengthen and expand those programs: 1) consider the possibility of shifting funding to strengthen school-to-careers programs; 2) increase coordination of efforts already made in school-to-careers programs; 3) hire additional counselors to inform and guide students headed for employment to consider school-to-careers programs; 4) develop public information programs to elicit support from the schools, businesses, peers and families; 5) require schools to integrate school-to-careers courseware with the regular curriculum; and 6) strive to make better connections between Applied Technology Centers (ATC's), high schools, colleges and the business community.
The discussion group concluded that collecting data is problematic and the Department of Workforce Services can be a partner in this process. It also felt that the teachers must be committed to the school-to-careers concept and be willing to go beyond the call of normal classroom duty.
Extended Day
Supt. Bean made a proposal to extend the number of hours students spend in school each day. If adopted, that proposal would include increasing high school graduation requirements and accepting selected middle school credits toward high school graduation.
Extending the school day allows students to take more advanced and specialized courses
resulting in better academic achievement. The discussion group felt extended days
could promote the unification of public and higher education and spark more interest from parents through SEOP planning. Additional pay for teachers would also be a benefit.
Discussion group members listed several concerns with implementing the extended day concept, including altering the school sports programs, and a possible detriment to at-risk students.
They also felt, schools and students might struggle with a transition period and increased costs.
The State Board of Education is proposing a state-wide plan to increase time spent in school by one-half hour for elementary teachers and three-fourths hour for secondary teachers. An additional $89.5 million would be needed for additional instructional time and/or new teachers. Five days of professional development would be required and five days will be left to the discretion of each local board of education. Remaining funds will be used in other areas of teacher compensation. Professional development could be taught by individual school districts, the State Office of Education, the Utah Employees Association (UEA), or private organizations.
The discussion group felt inservice teacher training is the most effective way to improve public education and receive the greatest impact for each dollar spent. Schools benefit by tailoring
their professional development programs to meet specific training needs. Consequently, schools are
encouraged to create a vision or plan for the future but permit district oversight to ensure that quality
indicators are part of all training programs.
Career Ladders
Career Ladders were established to entice the best students to enter teaching and remain in
the profession. Merit pay directives were proposed by policy when career ladders legislation was
first enacted into law. Legislators and policy makers were encouraged by merit pay systems that
seemed to be working in other states. Utah school districts experienced difficulties implementing
merit-type pay programs and it was learned that other states were not doing well either. Other
innovative proposals were developed in other states including a national board certification program
which was first endorsed by Pennsylvania.
MOTION: Board Member Neola Brown made a motion for the State Board of Education and the Education Interim Committee to reaffirm the career ladder concept and follow through with
ways to implement the original intent of the career ladder. The motion carried unanimously
Some group members were concerned with the evolution of the career ladder program and
the way it has strayed from its original intent of rewarding teachers for performance. It was noted
that the career ladder program has never been fully funded.
Rep. Frandsen recommended the Strategic Planning for Public and Higher Education Task
Force become the vehicle to organize the ideas discussed.
MOTION: Rep. Bigelow moved to send these ideas to the Strategic Planning Task Force without recommendation, for their consideration, so they can begin a dialogue with the Education
Interim Committee and the public. Also, that the Education Executive Appropriations
Subcommittee be informed of the direction the Strategic Planning Task Force is going with these
issues. The motion was seconded by Rep. Buffmire and passed unanimously.
Mr. Grant Hurst, board member, asked he be given an opportunity to address the Education
Interim Committee with his concerns over the career ladder program. Mr. Jim Wilson agreed to
gather information about the way each district is using its career ladder funds.
The discussion groups adjourned for a luncheon meeting with the Governor at 12:12 p.m..
MINUTES OF THE JOINT
Thursday, July 9, 1998, 1:30 p.m.
Education Interim Committee Members Present:
Sen. David H. Steele, Chair
Rep. Lloyd Frandsen, Chair
Sen. Lyle W. Hillyard
Sen. Joseph L. Hull
Sen. Howard C. Nielson
Sen. Howard A. Stephenson
Rep. Sheryl L. Allen
Rep. Ron Bigelow
Rep. Judy Ann Buffmire
Rep. David L. Hogue
Rep. Susan J. Koehn
Rep. Patricia B. Larson
Rep. Evan L. Olsen
Rep. Tammy J. Rowan
Rep. Richard M. Siddoway
Rep. A. Lamont Tyler
Board of Regents
Kenneth G. Anderton
Pamela J. Atkinson
Charles E. Johnson, Chair
Aileen H. Clyde, Vice Chair
Andrew Croshaw
David J. Grant
Larzette G. Hale
L. Brent Hoggan
Karen H. Huntsman
David J. Jordan
Evelyn B. Lee
Paul S. Rogers
Dale O Zabriskie
Members Absent:
Rep. Duane Bourdeaux
Sen. Scott N. Howell
Rep. Keele Johnson
Rep. Bill Wright
Staff Present:
Mr. J. Wayne Lewis, Research Analyst
Mr. James L. Wilson, Associate General Counsel
Ms. Wendy L. Bangerter, Legislative Secretary
Office of the Commissioner
Cecelia H. Foxley, Commissioner
Fred R. Hunsaker, Associate Commissioner for Finance and Facilities
Chalmers Gail Norris, Associate Commissioner for Student Financial Aid (Friday)
Michael A. Petersen, Associate Commissioner for Academic Affairs
Joyce Cottrell CPS, Executive Secretary
Linda Fife, Academic Affairs Program Officer
Jerry H. Fullmer, Director of Information Systems
Max S. Lowe, Assistant Commissioner for Applied Technology Education
Norman C. Tarbox, Assistant Commissioner for
Finance and Facilities
Bradley A. Winn, Assistant Commissioner for
Academic Affairs
Board of Regents
Kenneth G. Anderton
Pamela J. Atkinson
Charles E. Johnson, Chair
Aileen H. Clyde, Vice Chair
Andrew Croshaw
David J. Grant
Larzette G. Hale
L. Brent Hoggan
Karen H. Huntsman
Evelyn B. Lee
Victor L. Lund
Dale O Zabriskie
Office of the Commissioner
Cecelia H. Foxley, Commissioner
Fred R. Hunsaker, Associate Commissioner for Finance and Facilities
Chalmers Gail Norris, Associate Commissioner for Student Financial Aid (Friday)
Michael A. Petersen, Associate Commissioner for Academic Affairs
Joyce Cottrell CPS, Executive Secretary
Linda Fife, Academic Affairs Program Officer
Jerry H. Fullmer, Director of Information Systems
Max S. Lowe, Assistant Commissioner for Applied Technology Education
Norman C. Tarbox, Assistant Commissioner for Finance and Facilities
Bradley A. Winn, Assistant Commissioner for Academic Affairs
Representatives from the nine universities and colleges were present
State Board of Education
Katharine B. Garff, Chair
Linnea S. Barney
Neola Brown
Janet A. Cannon
Cheryl Ferrin
Susan C. Henshaw
C. Grant Hurst
Jill Kennedy
Joyce W. Richards
Office of the Superintendent of Public Instruction
Scott W. Bean, Superintendent
Twila B. Affleck, Secretary to the State Board of Education
Laurie A. Chivers, Deputy Superintendent
Robert O. Brems, Associate Superintendent for Applied Technology Education Services
Jerry P. Peterson, Associate Superintendent for Instructional Services
Steven O. Laing, Associate Superintendent for Planning and Project Services
Blaine Petersen, Executive Director, Utah State Office of Rehabilitation
Eileen Rencher, Public Relations Director
The joint meeting convened at 1:30 p.m. Senator Steele remarked that it was a great opportunity for the Legislators and Regents to meet together.
Chair Charlie Johnson announced that every year the Education Commission of the States (ECS) presented its Chairman's Award to an ECS Commissioner who has provided outstanding service and leadership to the organization, furthering ECS work in their state and nationally. This year's recipient was Senator David Steele. The award was presented by Iowa Governor Terry Branstad, 1997-98 ECS Chairman at the 1998 ECS National Forum and Annual Meeting in Portland, Oregon earlier in the week. Chair Johnson read Governor Branstad's remarks and introduced Katharine B. Garff, chair of the State Board of Education, who asked everyone around the table to introduce themselves. Sen. Steele asked the USHE Presidents and ATC Superintendents to stand and be recognized.
Associate Supt. Robert O. Brems and Assistant Commissioner Max S. Lowe introduced the topic of Applied Technology Education (ATE) and explained the need for ATE in Utah. They asked the discussion groups to consider the following questions: How can public education, higher education and the Legislature cooperate to address ATE needs in Utah? What should be done to help meet this need?
Associate Supt. Steven O. Laing and Associate Commissioner Michael A. Petersen introduced the topic of teacher development needs and programs. They explained that the Joint Liaison Committee (JLC) had created a task force to focus on teacher development issues in five areas. The task force made specific recommendations to the JLC on September 9, 1997. Mr. Petersen and Mr. Brems asked that discussion in the discussion groups center around preservice and inservice issues. As background for the discussion to follow, they identified the task force's five areas of concern, the recommendations made to the JLC, and subsequent actions:
1. Continuum of preservice and professional development of teachers.
Recommendation: A funding plan supporting school/university partnerships strengthening teacher preparation and professional development. A combined effort is being made in contracts issued between public education and higher education. The Legislature has appropriated $1,474,127 for professional development during FY1999.
2. Technology during preservice and inservice.
Recommendation: Increase appropriation for Education Technology Initiative (ETI) allowing expansion of professional development and specific allocation for teacher preparation programs. The Legislature increased the ETI allocation for FY1999 to $8.5 million ongoing funds, with an additional $5.5 million in one-time funding. HB7 provided for a technology pilot program, and HB184 included intent language to provide ETI allocations to colleges of education. Specific funding will be requested in the next Legislative session.
3. Diverse student learners.
Recommendation: Funding for university/school partnerships for professional development addressing diverse student learners. Alternative Languages Services Funding has been increased to $2.8 million for language services. The State Board of Education has addressed Principles of Equity in Utah's public schools to show the importance of dealing with diversity for all of Utah's citizens.
4. Teaching and administration in middle schools.
Recommendations: The State Advisory Council on Teacher Education (SACTE) study middle school credentials and make recommendations. To date, USU has incorporated a middle level endorsement, a subcommittee on standards has been formed, and the Governor appointed a Task Force on Middle School Education. The 1998 Legislature allocated $9 million to reduce class size in middle schools.
5. Continuing professional development.
Recommendations: Adopt policy requiring continued professional growth and funding for joint school/university partnerships for educator professional growth. The Utah Education Association (UEA) formed a Professional Development Task Force. They have made considerable progress in identifying areas of professional growth which should be approved. They have also outlined a professional development plan for professional growth and recertification.
Ms. Garff thanked the Legislature for creating the Joint Liaison Committee where issues can be addressed that are of concern to both levels of education. The entire committee feels that
communication is better in areas which relate to public education and higher education. She
expressed her desire for continued participation by this extremely important group in the future. Ms.
Garff explained that the discussion questions which had been developed for the afternoon session
were a result of the work of the JLC. Sen. Steele suggested that the meeting be adjourned directly
from the discussion groups, rather than reconvening as an entire group.
The meeting adjourned to discussion groups.
Pre-service Training for teachers
Teachers admit they are not fully prepared at graduation to teach in the classroom. The discussion group considered the possibility of conducting a survey to learn what first-year teachers felt is the most valuable training they received during college. Requiring student teachers to spend time in a classroom early in their training could help them develop basic ideas for classroom management. The discussion group felt it would be useful to offer specialized teacher training during the first two years of college. Some felt that college programs should be required to be NCADE (National Council of Accreditation for Teacher Education) accredited.
The discussion group felt it would be important to help teacher candidates understand the diverse student backgrounds found in Utah public schools. Some felt elementary teacher training should be subject specific, and Utah should offer uniform certification so teachers can be interchangeable at a variety of grade levels. Every teacher should receive an incentive to participate in inservice programs and participate in a balance of education subjects and technology training that is updated annually. Most importantly, the discussion group felt it was critical that basic classroom management skills be taught.
Rep. Frandsen chaired a discussion on shortages of skilled workers along the Wasatch Front and the accompanying need for more training centers. Since the largest population base in Utah is along the Wasatch Front, it has been proposed that additional Applied Technology Centers (ATC's) be established in the area known as the Wasatch Front South region in Salt Lake and Tooele Counties.
The proposed ATCs in the Wasatch Front South region would be governed by the State Board of Education and administered by Wasatch Front South school districts. Those local districts would administer Applied Technology Education (ATE) programs for secondary students and Salt Lake Community College would train ATE post-secondary students in the region and be under the
governance of the Board of Regents.
Difficulties with the ATE program generally were discussed. High school counselors
typically do not have adequate information on training programs at existing ATC's, which adds to
the difficulties facing students choosing careers. Parents usually aren't knowledgeable about ATC
offerings and often have a negative mind set about applied technology education. They usually
assert their desires for their children to attend colleges and universities.
The Wasatch Front South regional model will work best if funding policies between public
and higher education can be reconciled. Since funding sources are different at the two levels of
education, legislation may need to be introduced to provide greater fiscal equity.
Mr. Brems, Associate Superintendent of Public Instruction and Mr. Lowe, Associate
Commissioner of Higher Education, visited Las Vegas, Nevada to observe the dual use system of
ATE high tech facilities located adjacent to one another. In Las Vegas, a community college campus
is located across the street from a high school campus and both units share programs and technical
facilities and students from both levels of education share in a cooperative educational program.
Before the Wasatch Region South concept can move forward, data demonstrating the need
for an ATE center must be collected. There is a major concern in higher education for coordination
which avoids duplication. Requested further development of the concept is based on strict criteria
and actual need. Substantial differences exist between the community college enviornment and the
campus of an ATC. The Board of Regents feels significant attention must be given to establishing
an equitable funding formula.
MOTION: George Emeret, President of USU made a motion recommending the following
ideas to the Joint Liaison Committee: 1)search for and gather the right kind of data to develop an
equitable funding formula for ATE; 2) implement a holistic approach to solving the need for skilled
workers and assign a specific responsibility to individual ATC's and colleges to meet the need; 3)
research marketing service program; 4) use a variety of ways to assess needs; 5) collaborate to
expand resources; 6) work with the presidents of post-secondary institutions and district
superintendents; and 7) listen carefully to Wasatch Front South requests and consider the options
available. The motion passed unanimously with all present voting favorably.
Teacher Development
The teacher development discussion focused on the benefits of issuing one teaching
certificate and then offering an endorsement in a specialized topic after one year of teaching. It was
noted that one way to improve teacher quality may be to impose tougher entrance requirements to
teacher education programs. However, it was also pointed out that fewer of the brighter students
may apply since they often select a career where there is opportunity for a substantially larger
income. It was suggested that the education community gather data that can be used to make
recommendations for greater teacher compensation
The discussion group suggested several options for stronger teacher development programs
including a requirement that student teachers spend more time in the classroom, perhaps through an
internship program, prior to beginning their careers. It was also suggested that an extensive
program be initiated where school districts receive feedback from first year teachers about their
training programs and what they were taught in college and what they should have been taught.
MOTION: Sen. Joseph Hull made a motion requesting the Joint Liaison Committee gather data and develop a proposal on how to attract, retain, and reward effective educators. The
motion passed unanimously with all present voting in favor.
MOTION: Regent Atkinson made a motion for the colleges of education to implement a longer period for the student teacher to spend in his or her student practicum, and then provide
feedback within the next year to the Board of Regents on changes or improvements in the teaching
process. The motion carried unanimously.
The discussion group suggested that professors who teach student teacher candidates counsel
those who would not be good teachers to leave teacher education to pursue another field of study.
Rep. Judy Ann Buffmire led discussion group 3. Following a vigorous discussion, the group came up with the following responses to the questions outlined in the agenda materials:
Applied Technology Education
1. How can public education, higher education and the Legislature cooperate to address the skilled worker shortage in Utah through Applied Technology Education?
* Continued funding for the SOAR campaign from public education and higher education
* Comprehensive counseling program in high schools, community colleges and universities, with an emphasis on vocational programs
* Preservice and inservice counseling
* Counselors trained in SEOPs (Students' Educational Opportunity Plans)
* Recruit employers to advertise their success of hiring ATE students
* Follow the Las Vegas model of sharing resources and facilities, with high tech centers at high schools, and high schools on community college campuses
* Articulation with high schools that image is everything
2. What input can this discussion group provide the Joint Liaison Committee regarding this proposal?
* Up-to-date, accurate data on what is being done and what should be done
* Coordinate with Job Service on ATE opportunities
* On-site training with business and industry
* Focus on availability of programs
* Enhance counseling
3. What indicators of success should public education, higher education and the Legislature be looking for to ensure that these resources are properly and effectively utilized?
* Placement and retention data from job market
* Evaluate programs and fund accordingly, based on effectiveness
* Overall educational level of the community
* Flexibility to meet needs of individual areas across the state
* Broad scale articulation with high schools, ATCs and USHE institutions
Teacher Development
1. What should be the entrance requirements for students desiring admittance to the colleges of education?
* Refer this issue to the Joint Liaison Committee: What are the requirements for success in the field of education?
2. Should all four years of college be focused on teacher preparation for future educators, i.e., should the first two years of general education/liberal education be modified and focused specifically for future teachers?
* It is critical for college students to get experience early in their college career to find out whether or not they have an aptitude for teaching. They recommended exposure to teaching in the freshman year.
* General education courses should be taken throughout the college career, rather than only in the freshman and sophomore years.
* Should/could a pre-education core be taught at the community college level?
3. Should there be one license for all educators with endorsements added for level and subject specialization?
* A straw poll favored this proposal with some concern. The group recommended that this be referred to the Joint Liaison Committee.
4. What knowledge, skills, and abilities should educators possess at the conclusion of their preservice training?
* Minimum: Understanding of subject and a degree earned in the subject area.
* There was a general consensus that every teacher should be able to teach reading, no matter the subject area.
* A straw poll indicated unanimous agreement that professional development requirements be linked to recertification at a specific time interval.
Rep. Buffmire thanked the group for their meaningful input and adjourned the meeting at 4:30 p.m.
MINUTES OF THE JOINT
Friday, July 10, 1998, 9:00 a.m.
Education Interim Committee Members Present:
Sen. David H. Steele, Chair
Rep. Lloyd Frandsen, Chair
Sen. Lyle W. Hillyard
Sen. Joseph L. Hull
Sen. Howard A.Stephenson
Rep. Ron Bigelow
Rep. Judy Ann Buffmire
Rep. David L. Hogue
Rep. Susan J. Koehn
Rep. Patricia B. Larson
Rep. Evan L. Olsen
Rep. Tammy J. Rowan
Rep. Richard M. Siddoway
Rep. A. Lamont Tyler
Board of Regents
Kenneth G. Anderton
Pamela J. Atkinson
Charles E. Johnson, Chair
Aileen H. Clyde, Vice Chair
Andrew Croshaw
David J. Grant
Larzette G. Hale
L. Brent Hoggan
Karen H. Huntsman
David J. Jordan
Evelyn B. Lee
Paul S. Rogers
Dale O Zabriskie
Members Absent:
Sen. Scott N. Howell
Sen. Howard C. Nielson
Rep. Sheryl L. Allen
Rep. Duane Bourdeaux
Rep. Keele Johnson
Rep. Bill Wright
Staff Present:
Mr. J. Wayne Lewis, Research Analyst
Mr. James L. Wilson, Associate General Counsel
Ms. Wendy L. Bangerter, Secretary
Office of the Commissioner
Cecelia H. Foxley, Commissioner
Fred R. Hunsaker, Associate Commissioner for Finance and Facilities
Chalmers Gail Norris, Associate Commissioner for Student Financial Aid
Michael A. Petersen, Associate Commissioner for Academic Affairs
Joyce Cottrell CPS, Executive Secretary
Linda Fife, Academic Affairs Program Officer
Jerry H. Fullmer, Director of Information Systems
Max S. Lowe, Assistant Commissioner for Applied Technology Education
Norman C. Tarbox, Assistant Commissioner for Finance and Facilities
Bradley A. Winn, Assistant Commissioner for Academic Affairs
Representatives from the State's Nine Universities and Colleges Were Present
Note: A list of others present and a copy of materials distributed in the meeting are on file in the Office of Legislative Research and General Counsel.
1. Rep. Frandsen called the meeting to order at 9:10 a.m. Members of the Education Interim Committee and Utah State Board of Regents introduced themselves.
Expressions of appreciation were given to President Bennion and his staff for hosting these meetings and for their help prior to and during the meetings. Rep. Frandsen noted that a recommendation had been received that the Education Interim Committee and the Board of Regents meet at other times during the interim, giving the board members better access to the legislature. Sen. Steele emphasized the need to continue the dialogue between the Education Committee and the Board of Regents to discuss solutions to problems.
2. Master Planning in Higher Education
Regent Charles Johnson, Board Chair, stated that the Board of Regents has undertaken master planning in higher education through a task force. The task force has been subdivided into four groups to study specific areas and report to the task force. The four areas are: 1) funding mechanisms, 2) technology; 3) accountability; and 4) institutional missions/roles and system configuration. He noted that all four areas are related and cannot be considered in isolation. Several have both short and long term considerations. He identified mechanisms for better funding higher education programs including tuition, appropriations, cooperation between institutions, and more efficient operations. He reported that the current tuition system has been studied, including other potential methods for generating additional income.
Regent Dale Zabriskie, a member of the Technology Work Group, stated his group will be studying: the short term need to consolidate a common and consistent source of data for the state's higher education system; the desire for a long term project for data and technology; and how the institutions will be impacted by and can integrate with the Western Governors University and other technology programs.
Regent David Jordan, Chair of the Accountability Work Group, reported its study resulted in a recommendation to the Board of Regents, which has been referred to the Legislature's Executive Appropriations Committee. The recommendation includes the use of performance indicators as a
part of a funding formula for higher education. He reviewed four possible performance indicators:
1) instructional quality and student learning, 2) graduation efficiency, 3) transfer efficiency, and 4)
faculty workload.
Regent Aileen Clyde, Chair of the Mission/Roles and Systems Configuration Work Group,
stated it was broadly reviewing the entire system and will consider all proposals as reports are
prepared by the other three work groups. She said they have considered many of the philosophical
aspect of costs and public funding and addressed the basic principle that institutions of higher
education in Utah are open to every citizen. Both issues support the theme of making education
possible and convenient to every citizen as they try to meet their education needs. The four charges
given to this work group were: 1) to determine if there is the right number and configuration of
public higher education institutions in the state; 2) to account for the long-range planning for capital
facilities; 3) a reconsideration of the institutional geographical service areas; and 4) strengthening the
cooperation and partnership with public education.
Rep. Frandsen dismissed the committee to their assigned breakout groups for further
discussion.
The discussion group reviewed the question of board flexibility to establish tuition rates at the graduate or professional school level. They concluded that lower division tuition requires oversight from the regents and the legislature and is often not cost-based, but politically driven. Other points discussed regarding tuition flexibility included:
. the difference between the cost of administrating an undergraduate program compared to graduate level programs;
. the market for a program must be considered.
. return on the investment is critical;
. flexibility to reallocate state funds into some low demand and low return programs to enhance the enrollment in those programs;
. the University of Utah will limit their participation in state-funded growth allocation, but will increase their budget from tuition increases;
. the Legislature only controls 20-30% of the higher education budget, but the public perceives it is much more;
. the state's limited education budget is spread so thin at times that each allocation is not enough to really affect a program;
. if universities had the flexibility to raise tuition and did so, there would be extra funds to give to schools that cannot afford to raise tuition;
. some schools have reputations that draw students away from schools in Utah. As programs improve, the quality of education offered could keep students in the state;
and
.
because of previous legislation, a guarantee for tuition increase exists.
Raising entrance standards at the universities has caused some students to first seek lower
division credit at a community college, and then transfer to a university. Transfers may be
desirable, since community colleges typically have lower tuition because they often use large
numbers of adjunct professors. Using the transfer idea, students typically don't incur as much debt
during the early years of college. On-going cooperation to articulate classes between universities and
colleges is essential.
The discussion group noted that Applied Technology Centers (ATC's) are funded by public
education and community colleges are funded through the higher education budget. There is a
concern that ATC students are already more highly subsidized than community college students for
identical training.
The regents previously discussed using performance indicator tests which are tied to funding
as an incentive. Performance indicators need to be measured over a long-term period so they don't
become a punishment to the institution.
Sen. Steele asked the regents about the kinds of things they need to communicate to the
legislature. Those present said they desire to do long range planning that provides for positive
changes, but they have no incentive to plan without flexibility in setting tuition rates. They asked
legislators to consider the broad picture of educational needs and their desires to work closely with
one another. The point that seemed to be emphasized most is that the Board of Regents is in charge.
Legislators present were supportive of their requests.
Legislators were asked what they felt the Board of Regents need to hear. Legislators
expressed a desire to share common data and a reporting system. They emphasized that large
amounts of complicated information are not needed. Legislators are aware that the regents deal with
many problems and they requested that the Legislature be informed about what is being done to
resolve those issues. They asked the regents to understand that legislators are under extreme
pressure from the demands of multiple agencies and requested they not dwell on negative issues, but
recognize the good things accomplished by the Legislature.
Group 2 was chaired by Rep. Frandsen and was assigned to discuss Accountability and Institutional Missions/Roles and System Configuration.
Regent Jordan, chair of the Work Group on Accountability, referred to the four discussion
questions in the agenda material and asked Legislators if they felt these questions were
comprehensive, and if they had any suggestions for other areas. Rep.Frandsen expressed his concern
about internal data integrity. He suggested the work group move beyond higher education as far as
indicators of internal data are concerned. These reports need to be consistent throughout the entire
education system, including public education. He recommended the creation of a mechanism to
bring public education to the table and jointly address the issue. Regent Jordan said the Joint Liaison
Committee(JLC) would be involved.
President Budd pointed out that the JLC had formed a Common Definitions Work Group a
few years ago, which he chaired. This group submitted a list to the JLC, which was accepted. The
list was submitted to the Legislature in 1997. Everyone agreed to and welcomed those common
definitions. Salt Lake Community College received funding to conduct a pilot program to use those
common definitions, particularly in the field of Applied Technology Education (ATE). However,
available data is insufficient to provide information requested by policy-making bodies. Until the
necessary data is available, this effort will not be effective.
MOTION: Regent Anderton moved to recommend to the Joint Liaison Committee to continue to
work on common definitions. Regent Atkinson seconded the motion, which carried unanimously.
Rep. Frandsen said legislators are concerned with faculty workload and with receiving
reliable, consistent information on short-term and long-term accountability. He referred to
legislative funding of the freeways and asked, if funding can be provided for a road, why not for an
educational system? What are higher education's long-term indicators? How are they being
measured? What are higher education's short-term indicators to suggest how to get there?
Rep. Frandsen said the problem with the policy-making process is staying on course. This
problem is due to the two-year terms of Representatives and the turnover of Legislators and
administrators. He suggested recommendations to stabilize that process. One long-term indicator
body might be to strengthen the JLC. Another might be to create more opportunities for interaction
between legislators and the Board of Regents. He challenged the regents to develop a model to solve
this problem.
Rep.Bigelow said the legislature has always been concerned about graduation efficiencies
and faculty workload. The Executive Appropriations Committee needs better reports to educate
some legislators who have a difficult time understanding higher education workload. Sen.
Stephensen said he sponsored legislation to review faculty workloads and graduation efficiencies in
an attempt to answer these concerns. He was excited to see the higher education community
assuming this responsibility and said the regents deserved an "A" for their attempts to find
meaningful indicators. Referring to Rep. Frandsen's request for the regents to stabilize the funding
process, he preferred not to require stabilization in everything. The institutions and regents need
flexibility to improve. He endorsed the idea of a liberal arts education, stating that it enhances
society and the qualify of life.
Regent Jordan asked President Huddleston to comment on the Utah Electronic Community
College (UECC) and distance learning. President Huddleston said many students want a particular
class and have an opportunity through the UECC to take classes via distance education. President
Romesburg said distant learning means students can take classes from any of the five community
colleges in the state. All UECC classes are transferable.
Rep. Rowan asked what percentage of budget allocation should be based on performance
funding. Regent Jordan said the regents did not want to exceed five percent, at least not initially.
They would prefer to retain the base budget and then receive what the Legislature feels they can
allocate to performance funding.
President Emert said the Work Group on Funding Mechanisms is reviewing long-term
enrollment projections, missions and roles. Funding mechanisms will accommodate the fact that
some institutions will continue to grow and others will not, and all will be funded accordingly.
Regent Jordan said the state's heaviest funding has been on enrollment growth. The regents and
presidents would like to see this practice changed. They want to encourage growth where there is
capital space to handle that growth. Commissioner Foxley noted the same discussion is taking place
in the other breakout group, and there is strong consensus that performance funding ought not to be
punitive.
Rep. Frandsen suggested the Auditor General be asked what kind of information should be
gathered. He asked the regents to consider ways of stabilizing this process.
Discussion shifted to institutional missions and roles and system governance. Regent Clyde,
chair of this work group, said the processes of the two work groups are different. The Work Group
on Missions and Roles did not have the compelling deadline which the Work Group on
Accountability faced. The Missions and Roles Work Group was particularly interested in hearing
from the Legislators about the work group's charge and work.
Rep. Frandsen said during the interim process, legislators spoke with consultants about
master planning for higher education. Their recommendations were to determine the needs of the
educational system, then make sure the institutions can change to meet those needs. The institutions
need to take into account the functions and objectives of the Western Governors University (WGU).
President Emert said the work group is requesting the most current data on marketplace
profiles from the Department on Workforce Services and the Tax Commission. It is also attempting
to predict, based on marketplace tradition, job profiles in the next 5-10 years, as well as population
growth by county and by age segment.
Rep. Frandsen complimented the regents and challenged them to develop a process that is
more needs-driven than politically-driven. President Romesburg stated that the regents' process does
not violate the master planning process. Last year the regents went through an exhaustive review
and sent its priorities to the State Building Board, who, arbitrarily made their own list and
completely ignored higher education's recommendations and priorities.
Rep. Rowan referred to the previous day's discussion regarding ATCs and higher education.
She said placing ATE facilities for college use on high school campuses might circumvent the State
Building Board's discrimination, but may not be the best, or most efficient approach to this problem.
She asked if the colleges could be given the same authority as public education to bond. Associate
Commissioner Petersen said many states have access to property tax and bonding ability, but in
Utah, it would require a statutory change. Commissioner Foxley said the regents have bonding
authority, but they must balance the statewide needs of nine institutions, whereas school districts are
local entities. There is a backlog of needs for new buildings, replacement buildings, and
maintenance. The state's ability to provide these funds must be considered with other large projects.
Associate Commissioner Petersen added the regents' authority to bond draws on institutional
revenues. President Emert pointed out that other states have the authority for a local institution to
use tuition-based bonds to build new buildings. Utah does not have that capability.
President Romesburg said when the work groups look at the needs of the state, it is very
likely that substantial needs will be identified for expanding or adding institutions. Higher education
will soon have a crisis in Utah since it cannot accommodate students in existing facilities in the
numbers who want to attend. Utah will need additional institutions or branches. The State Board of
Education has announced their desire for 11 new ATCs across the state. Higher education is in the
process of identifying similar needs.
Rep. Bigelow said there was a crisis in many programs _ prisons, for example. Many of
these other programs take precedence over higher education. He challenged the higher education
community to discuss what will happen if the crisis arrives and there is not money to educate Utah's
students. President Romesburg pointed out that the legislature capped funding seven years ago.
Quality diminishes when funding is limited. Rep. Bigelow asked the work groups to identify the key
issues with data to clearly note that the crisis is here. President Emert pointed out that planning
ahead and making proper investments now would be less expensive than getting into a crisis
situation.
Regent Anderton said the institutions are already limiting enrollment because of students
inability to pay. President Romesburg said UVSC turned away 2,300 students last fall. Regent
Anderton said higher education cannot continue to raise tuition. Rep. Rowan suggested making
higher education a part of the discussion process with "Envision Utah," a planning system for Utah's
future. Regent Atkinson said she is on the executive committee, and education was discussed in the
beginning, but it had not been a priority. She promised to bring it up at the next executive committee
meeting.
Rep. Bigelow said he would like the work groups to address state government's role in
providing subsidized education for everyone who wants it. At what point does the state decide
"enough is enough?" Many people return to college for a career change. Should the state subsidize
that training? He suggested that not everyone needs a college education.
Rep. Rowan pointed out that the 2,300 students who were turned away from UVSC were
qualified and admitted but could not find a class. She asked how Utah can attract the "best and
brightest" students if there is no classroom space available. Associate Commissioner Petersen said
community colleges are open-access institutions. If a student has completed high school, there
should be room for that student in our community colleges. We should not be pricing an education
beyond a student's ability to pay.
President Budd said there was a dilemma of confusion about who was providing training in
Utah. The regents' work group needs to deal with the appropriate roles and missions for higher
education. He suggested that this issue be referred to the Joint Liaison Committee to discuss
coordination and overlap issues with public education.
Rep. Rowan said this is a problem because the Joint Liaison Committee is only an advisory
committee. Regent Atkinson clarified that the Joint Liaison Committee is advisory to the Board of
Education and the Board of Regents. She suggested more continuity. The regents serve four-year
terms on the JLC and the State Board of Education members rotate annually.
Regent Lee said she had served on the JLC for a number of years. Four years ago the
committee was greatly strengthened through statutory recommendations, expanding membership,
more authority to study issues in depth, and additional authority to bring in consultants with special
expertise to help the JLC understand issues. The committee is set up to thoroughly examine issues
which are important to public education and higher education. She recommended leaving the JLC
with the same capacity and authority as it presently has. She asked that both boards accept more of
the recommendations submitted by the committee. Both boards should be more attentive to the
JLC's recommendations. Perhaps there should be a better reporting vehicle to the legislators.
Rep. Frandsen summarized by making the following recommendations to the regents and
presidents:
* Refine and improve the method of reporting JLC recommendations to the Legislature.
* Make a recommendation to the Legislature to depoliticize this process.
* Have sufficient reliable data to back up the urgency of need.
Rep. Rowan moved that higher education continue to develop the indicators proposed by the
Work Group on Accountability. The motion was seconded and carried.
The discussion groups adjourned their meetings at 12:00 noon
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