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Political Aspects Of State Coordination Of Higher Education: The Processof Influence

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Political Aspects Of State Coordination Of Higher Education: The Processof Influence

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Content This dissertation has been microfilmed exactly as received 69-645 SMART, John Marshall, 1934- POLITICAL ASPECTS OF STATE COORDINATION OF HIGHER EDUCATION: THE PROCESS OF INFLUENCE, University of Southern California, Ph.D., 1968 Political Science, general University Microfilms, Inc., Ann Arbor, Michigan POLITICAL ASPECTS OF STATE COORDINATION OF HIGHER EDUCATION: THE PROCESS OF INFLUENCE By J o h n M a r s h a ll S m art A D i s s e r t a t i o n P r e s e n t e d to th e FACULTY OF THE GRADUATE SCHOOL UNIVERSITY OF SOUTHERN CALIFORNIA I n P a r t i a l F u l f i l l m e n t o f t h e R e q u ire m e n ts f o r t h e D eg ree DOCTOR OF PHILOSOPHY ( P o l i t i c a l S c ie n c e ) June 1968 UNIVERSITY O F SOUTHERN CALIFORNIA TH E GRADUATE SCHOOL UNIVERSITY PARK LOS ANGELES. CALIFO RNIA 9 0 0 0 7 This dissertation, written by J M N . M R S M L L . S M H T ........................... under the direction of h..IS.. Dissertation Com mittee, and approved by all its members, has been presented to and accepted by the Graduate Schoolj in partial fulfillment of requirements for the degree of D O C TO R OF P H IL O S O P H Y Date £une_, 1968 DISSERTATION COMMITTEE .J : * TABLE OF CONTENTS C h a p te r P age PART I . THE PROBLEM X. INTRODUCTION. Need f o r t h e S tu d y P u rp o s e s o f t h e S tu d y H y p o th e se s to be C o n sid e re d S tu d y M eth o d o lo g y E x p la n a t i o n o f Terms U sed O r g a n iz a t i o n o f t h e S tu d y I I . THE RELATIONSHIP OF THE STUDY TO GENERAL SUB JECTS OF RESEARCH ......................... 16 The S tu d y as One o f t h e P o l i t i c a l P r o c e s s The S tu d y a s One o f t h e P o l i t i c s o f Edu c a t i o n The S tu d y a s One o f C o o r d in a tio n o f H ig h e r E d u c a tio n C o o r d in a tio n M echanism s a n d t h e i r G e n e ra l P ro b le m s P l a n n in g and C o o r d in a tio n S t u d i e s o f I n d i v i d u a l S t a t e H ig h e r Educa t i o n A g e n c ie s I I I . THE HIGHER EDUCATION AGENCY WITHIN STATE GOVERNMENTS.............................. ^9 A gency Forms Why C o o r d i n a t i o n o f H ig h e r E d u c a tio n ? What i s C o o r d in a tio n ? PART I I . THE CALIFORNIA AGENCY FOR HIGHER EDUCATION IV . ORIGINS OF THE CALIFORNIA AGENCY................................66 C oncept o f C o o r d in a tio n D ev elo p s S ta te w id e P l a n s and C o o r d i n a t i o n M echan is m s , 1899-19 59 The M a s te r P l a n and L e g i s l a t i v e I n t e r e s t i i i i i C hapter V. V I. V I I . P age The S u rv e y Team D e v e lo p s i t s Recommen d a t i o n s A u th o r iz in g t h e C o o r d in a tin g A gency THE RECORD FOR THE CALIFORNIA COORDINATING AGENCY 1 9 6 0 -1 9 6 7 ............................................................. 95 The T o o ls an d S t r a t e g i e s o f I n f l u e n c e F orm al E xchange B etw een t h e C o u n c il and L e g i s l a t i v e - E x e c u t i v e L e g i s l a t i v e S ta te m e n ts C o u n c il S ta te m e n ts The G o v e rn o r’ s S ta te m e n ts I n f o r m a l E xchanges B etw een C o u n c il and L e g i s l a t i v e - E x e c u t i v e A p p e a ra n c e s o f O f f i c i a l s O r g a n iz a t i o n s w i t h i n G overnm ent B oard Members C o n ta c ts an d I n f l u e n c e The C o u n c il M e e tin g I n t e r e s t G roups P a t t e r n s o f C o u n c il L i a i s o n w ith t h e L e g i s l a t i v e - E x e c u t i v e S t a f f i n g P r o c e d u r e s R e l a t i o n s h i p s i n B u dget-M ak ing L e g i s l a t i v e S t a f f s I n t e r e s t G roups G o v e rn o r’ s O f f ic e THE CALIFORNIA COUNCIL IN THE POLITICAL MILIEU: SIX ISSUES.................................................... 126 Need f o r A d d i t i o n a l C e n te rs Y ear-R ound O p e r a tio n s J u n i o r C o lle g e G o vern ance D e v e lo p in g a J u n i o r C o lle g e C a p i t a l O u tla y P ro g ram The C o u n c il and B udget Review The T u i t i o n I s s u e S ix I s s u e s Sum m arized An O v erv iew o f th e C a l i f o r n i a A gency: T ec h n iq u e s o f I n f l u e n c e PERCEPTIONS OF THE CALIFORNIA AGENCY: ROLES, FUNCTIONS AND CONTRIBUTIONS ............................... 179 A gency R o le s and F u n c t io n s : An I n t r o d u c t o r y N ote C hapter P age The Sam ple The I n t e r v i e w Q u e s t i o n n a i r e What H o le s Does t h e Agency P la y ? L o b b y is t R ole L e a d e r s h ip R ole The E x p e r t A r b i t r a t o r R o le The M e d ia to r R o le Spokesm an R o le Summary What F u n c tio n s a r e P e rfo rm e d ? The A gency a s I n n o v a t o r The A gency a s I n v e s t i g a t o r Image B u i ld i n g B udget R eview a n d C o n tro l The R e s e a r c h F u n c t io n P e r c e p t i o n s o f C o u n c il C o n t r ib u t i o n : S e l e c t e d I s s u e s S t a t e G overnm ent o r H ig h e r E d u c a tio n P e rfo rm a n c e A sse ssm e n t The C a l i f o r n i a A gency C h a r a c te r iz e d V I I I . EXPECTATIONS OF PERFORMANCE FOR THE CALIF ORNIA AGENCY.............................. 230 S u p p o rt f o r L e g i s l a t i o n : A p p r o p r ia te P e r fo rm an c es R e l a t i o n s h i p s w i t h t h e L o b b ie s f o r H ig h e r E d u c a tio n J o i n t C om m ittee o n H ig h e r E d u c a tio n R e l a t i o n s h i p s w i t h th e O f f i c e o f G o v e rn o r Changes i n S t r u c t u r e o r F u n c t io n IX. SUMMARY OF FINDINGS: THE CALIFORNIA AGENCY FOR HIGHER EDUCATION IN THE POLITICAL PROCESS........................................................................................249 PART I I I . PATTERNS OF LEGISLATIVE-EXECUTIVE AND HIGHER EDUCATION AGENCY RELATIONSHIPS AMONG THE STATES X. AN OVERVIEW OF COORDINATING AGENCY FORMS AND FUNCTIONS; A NATIONAL SURVEY................................ 258 C h ap ter P age X I . HIGHER EDUCATION AGENCIES AND STATE GOVERN MENTS: ROLES AND FUNCTIONS PERFORMED. . . 269 R o le s P e rfo rm e d F u n c t i o n s P e rf o rm e d A d v is o r y an d M a n a g e r ia l R e s p o n s i b i l i t i e s Summary X I I . HIGHER EDUCATION AGENCIES AND STATE GOVERN MENTS, PATTERNS AND CIRCUMSTANCES OF RELATIONSHIPS........................................................„ . . .2 8 E The B u d g et R eview P r o c e s s C ir c u m s ta n c e s o f B u d g e t R eview L e g i s l a t i v e - E x e c u t i v e R e l a t i o n s h i p s A gency an d L e g i s l a t i o n A gency B e f o re t h e L e g i s l a t u r e P ro b le m s o f L e g i s l a t i v e L i a i s o n A gency and G o v e rn o r A gency a n d O th e r H ig h e r E d u c a tio n I n t e r e s t s E le m e n ts o f S u c c e s s f u l L e g i s l a t i v e - E x e c u t i v e R e l a t i o n s h i p s Summary, P a t t e r n s a n d C irc u m s ta n c e o f L e g i s l a t i v e - E x e c u t i v e R e l a t i o n s h i p s X I I I . CONCLUSIONS...................................................................................3 1 6 F i n d i n g s and H y p o th e s e s A re a s f o r F u r t h e r I n v e s t i g a t i o n BIBLIOGRAPHY.........................................................................................................329 APPENDIXES „ .3 ^ 2 ACKNOW LEDGEM ENTS Two i n d i v i d u a l s h a v e c o n t r i b u t e d much to t h e sum an d s u b s ta n c e o f t h i s s tu d y a s w e l l a s t h e a u t h o r 's t o t a l d o c t o r a l p ro g ra m . P r o f e s s o r T o tto n J . A n d erso n h a s g iv e n e n co u rag e m en t and g u id a n c e beyond t h a t w h ich s h o u ld be a n t i c i p a t e d i n th e u s u a l c a n d l a t e - c h a i r m a n r e l a t i o n s h i p . D r. W il l a r d S p a l d in g , D i r e c t o r o f t h e C a l i f o r n i a C o o r d in a t in g C o u n c il f o r H ig h e r E d u c a tio n , i n e f f e c t h a s b e e n a u n o f f i c i a l d o c t o r a l c o m m ittee member o f f e r i n g v a l u a b l e a d v ic e an d s u g g e s t i o n s th r o u g h o u t t h e s t u d y 's c o n d u c t. H is i n t e r e s t e d c o o p e r a t i o n th r o u g h o u t t h e a u t h o r 's d o c t o r a l p ro g ram i s g r e a t l y a p p r e c i a t e d . D r. R o b e rt 0 . B e rd a h l o f S an F r a n c i s c o S t a t e C o lle g e a s s i s t e d im m e a su ra b ly i n a r r a n g i n g f o r t h e j o i n t , n a t i o n a l s u r v e y . The A m erican C o u n c il o n E d u c a tio n s h o u ld a l s o be r e c o g n iz e d f o r i t s a i d i n d i s t r i b u t i n g t h e q u e s t i o n n a i r e a s p a r t o f th e B e rd a h l i n v e s t i g a t i o n . I t i s n o t p o s s i b l e h e r e to l i s t a l l o f t h o s e p e r so n s who g av e a s s i s t a n c e th ro u g h i n t e r v i e w s o r o t h e r a d v ic e . I n t e r v i e w e e s a r e l i s t e d i n A ppendix B - - a l l w ere m ost h e l p f u l . K e ith S e x to n a n d L e la n d M yers o f t h e C a l i f o r n i a C o u n c il s t a f f a t a l l s t a g e s p r o v id e d i n f o r m a t i o n an d com m ent c o n c e r n in g t h e C o u n c i l 's l e g i s l a t i v e - e x e c u t i v e l i a i son® O th e r members o f th e s t a f f w ere a lw ay s a v a i l a b l e to a n sw e r t h e a u t h o r 's q u e s t i o n s . The r e v ie w an d comment o f d o c t o r a l c o m m ittee mem b e r s , P r o f e s s o r s G e ra ld R ig by and L e s l i e W ilb u r w ere m ost u s e f u l i n t h e c o m p le tio n o f t h e p r o j e c t . A lso t h e comments o f D r. E r n e s t P a l o l a , R e s e a rc h S o c i o l o g i s t , th e C e n te r f o r R e s e a rc h an d D evelopm ent i n H ig h e r E d u c a tio n , U n i v e r s i t y o f C a l i f o r n i a a t B e r k e le y , a s s i s t e d g r e a t l y i n f o c u s i n g th e s t u d y . W illia m H e a l, U n i v e r s i t y o f C a l i f o r n i a a t D a v is , t a b u l a t e d a num ber o f t h e s u rv e y q u e s t i o n s a c c u r a t e l y and w ith i n s i g h t . F i n a l l y , one w if e an d two s m a ll boys m ust be r e c o g n i z e d f o r t h e i r t o l e r a n c e and c o o p e r a t l o n l PART I THE PROBLEM CHAPTER I INTRODUCTION N eed f o r t h e S tu d y H ig h e r e d u c a ti o n o p p o r t u n i t i e s h a v e i n c r e a s i n g l y becom e t h e s u b j e c t o f c o n c e rn t o t h e m ak e rs o f p u b l i c p o l i c y i n t h e s e v e r a l s t a t e s o f t h e U n io n , The r e a s o n s f o r h e i g h t e n e d p u b l i c i n t e r e s t i n c o l l e g e a n d u n i v e r s i t y a f f a i r s , b o t h p u b l i c a n d p r i v a t e , a r e s e v e r a l . I m p o r ta n t among them i s t h e c o n t i n u i n g n e e d t o p r o v i d e h i g h l y t r a i n e d m anpow er i n a co m p lex , t e c h n i c a l s o c i e t y . F u r t h e r m o re , e x p a n s io n o f t h e c o l l e g e - a g e p o p u l a t i o n i n i t s e l f h a s n e c e s s i t a t e d r a p i d g ro w th i n t h e n u m b ers an d s i z e o f c o l l e g i a t e i n s t i t u t i o n s , and t h e i n c r e a s e i n e x p e c t a t i o n o f c o l l e g e a t t e n d a n c e on t h e p a r t o f p e r s o n s fro m s o c i o e co n o m ic g r o u p s h e r e t o f o r e n o t fo u n d i n s u b s t a n t i a l n um bers i n t h e n a t i o n ' s i n s t i t u t i o n s o f h i g h e r l e a r n i n g h a v e mag n i f i e d t h i s g ro w th r a t e . S t a t e and l o c a l g o v e rn m e n t j u r i s d i c t i o n s a r e n e c e s s a r i l y a s s u m in g e v e n g r e a t e r r o l e s i n r e s p e c t t o p r o v i d i n g h i g h e r e d u c a ti o n p r o g r a m s . T h is h a s b e e n e s p e c i a l l y t r u e in s t a t e s su ch a s C a l i f o r n i a w here to d a y some e i g h t y p e r c e n t o f f u l l - t i m e c o l l e g e a n d u n i v e r s i t y s t u d e n t s a r e 2 a t t e n d i n g t h e s t a t e - s u p p o r t e d U n i v e r s i t y o f C a l i f o r n i a , t h e C a l i f o r n i a S t a t e C o lle g e s o r t h e j o i n t s t a t e a n d l o c a l l y - f i n a n c e d j u n i o r c o ll e g e s * T h e re seems l i t t l e d o u b t, t h e r e f o r e , t h a t t h e p r o v i d i n g o f a h i g h e r e d u c a tio n to t h o s e who a r e c o l l e g e c a p a b le w i l l c o n ti n u e to be a s u b j e c t o f c o n s i d e r a t i o n i n t h e p o l i t i c a l a r e n a by p o l i t i c a l men* To m eet t h e c h a l l e n g e s o f h i g h e r e d u c a ti o n g ro w th a n d w ith c o n s e q u e n t i n c r e a s i n g p u b l i c a t t e n t i o n , many s t a t e s h av e t u r n e d t o s t a t u t o r i l y e s t a b l i s h e d s t a t e a g e n c ie s f o r h i g h e r e d u c a ti o n in te n d e d t o s u p e r v i s e an d c o o r d i n a t e t h e o p e r a t i o n o f t h e i r e x p a n d in g p u b l i c i n s t i t u t i o n s and s y s te m s d e v o te d to c o l l e g i a t e e d u c a tio n * T h e se a g e n c i e s , many o f w h ich have b een e s t a b l i s h e d in t h e l a s t two d e c a d e s , a r e s e r v in g l e g i s l a t o r s a n d o t h e r e l e c t e d o f f i c i a l s in t h e p e rfo rm a n c e o f t h e i r p o lic y - m a k in g f u n c t i o n s f o r h i g h e r e d u c a tio n * C e r t a i n o t h e r s t a t e s , w h ich in p r e v i o u s d e c a d e s h a d e s t a b l i s h e d s i n g l e g o v e rn in g b o a rd s f o r t h e i r h i g h e r e d u c a tio n i n s t i t u t i o n s , now lo o k t o t h e s e g o v e rn a n c e m echanism s and t h e i r s t a f f s t o p e rfo rm c o o r d i n a ti o n f u n c t i o n s a s w e ll a s c o n t i n u i n g s y s te m ad m in i s t r a t i v e r e s p o n s i b i l i t i e s * The s t a t e h i g h e r e d u c a tio n a g e n c y a p p e a r s t o h a v e d e v e lo p e d , a n d i s d e v e l o p i n g , in a s p e c i a l a tm o s p h e re betw een t h e l e g i s l a t i v e - e x e c u t i v e on t h e on e h a n d , a n d t h e i n d i v i d u a l h i g h e r e d u c a ti o n i n s t i t u t i o n s and t h e sy s te m o f w h ic h t h e y a r e c o n s t i t u e n t p a r t s ( i f a n y ) o n t h e o t h e r . B e c a u se o f t h e f u n c t i o n s p e r f o r m e d b y h i g h e r e d u c a t i o n , a n d t h e t a s k s o f t h e s t a t e h i g h e r e d u c a t i o n a g e n c i e s , i t may b e s u g g e s t e d t h a t t h e r e l a t i o n s h i p s o f s u c h a g e n c i e s w i t h i n t h e p o l i t i c a l a r e n a d e s e r v e s p e c i a l s t u d y and a t t e n t i o n . The a g e n c y r e s p o n s i b l e f o r t h e c o o r d i n a t i o n o f h i g h e r e d u c a t i o n may p e r f o r m a num ber o f r o l e s an d f u n c t i o n s i n t h e s t a t e p o l ic y - m a k i n g p r o c e s s . As l e g i s l a t o r s , e x e c u t i v e s , and t h e g e n e r a l p u b l i c becom e m ore c o n c e rn e d w i t h h i g h e r e d u c a t i o n , t h e n n e c e s s a r i l y s t a t e s u p e r v i s o r y a g e n c i e s becom e m ore p o l i t i c a l ; t h e y b e c o m e , a s w e l l , r e c i p i e n t s o f d e l e g a t e d ( d e f a c t o o r de j u r e ) p o l i c y m aking r e s p o n s i b i l i t i e s f o r s u b j e c t s o f s t a t e w i d e and g e n e r a l c o n c e r n . G le n n y i n i d e n t i f y i n g t r e n d s r e i n f o r c i n g t h e m ovem ent to w a rd c r e a t i o n o f c o o r d i n a t i n g b o a r d s f o r h i g h e r e d u c a t i o n f i n d s m o st i m p o r t a n t t h e f a c t t h a t : The C o o r d i n a t i n g A g e n c ie s a r e e x e r c i s i n g m ore and m ore p o l i t i c a l l e a d e r s h i p i n f o r m u l a t i n g and a d v o c a t i n g p o l i c i e s f o r d e v e lo p m e n t a n d e x p a n s io n o f h i g h e r e d u c a t i o n . 1 The n e e d f o r c l e a r d e f i n i t i o n o f a c t u a l and p o s s i b l e p o l i t i c a l l y - r e l e v a n t r o l e s an d f u n c t i o n s and t h e ^Lyman A. G le n n y , " P o l i t i c a l an d C u r r e n t P a t t e r n s i n C o o r d i n a t i n g H ig h e r i k l u c a t i o n , " i n W. J o h n M i n t e r , e d . , Campus an d C a p i t o l : H ig h e r E d u c a ti o n an d t h e S t a t e ( B o u l d e r , C o lo r a d o : W e s te rn I n t e r s t a t e C om m ission f o r H ig h e r E d u c a t i o n , Novem ber 1 9 6 6 ) , p . 29- p r o c e s s th r o u g h w h ic h t h e y a r e p e r f o r m e d b y s t a t e c o o r d i n a t i n g a g e n c i e s f o r h i g h e r e d u c a t i o n i s a p p a r e n t . A g a in , c i t i n g G le n n y : "W h ile b o t h c o l l e g i a t e a d m i n i s t r a t o r s a n d s t a t e g o v e rn m e n t p o l i c y m a k e rs f i n d a c c e p t a b l e m o st c o o r d i n a t i n g a g e n c y a c t i v i t i e s , t h e i r c o n c e p t i o n o f t h e p p o l i t i c a l r o l e o f t h e a g e n c y r e m a in s u n c l e a r . " S im i l a r l y L ogan W ils o n , P r e s i d e n t o f t h e A m e ric a n C o u n c il on E d u c a t i o n , i n c o n s i d e r i n g t h o s e q u e s t i o n s p e r t i n e n t t o t h e d e v e lo p m e n t o f new fo rm s o f p u b l i c a g e n c i e s t o f a c i l i t a t e d e c i s i o n - m a k i n g ^ - a s k s : " . . ./3 ?/o w h a t e x t e n t d o e s e n l a r g e d p u b l i c c o n t r o l o f h i g h e r e d u c a t i o n i n e v i t a b l y e n t a i l m ore p o l i t i c a l an d l e s s a c a d e m ic p a r t i c i p a t i o n i n p l a n n i n g and c o n d u c t in g t h e t o t a l e n t e r p r i s e / o f h i g h e r e d u c a t i o n / ? " ^ I n v e s t i g a t i o n o f t h e c o o r d i n a t i n g a g e n c y a s i t o p e r a t e s w i t h i n t h e p o l i t i c a l m i l i e u a p p e a r s t o b e much n e e d e d .^ 2I b i d . ^ " S t a t e C o o r d i n a t i o n o f H ig h e r E d u c a t i o n , " s p e e c h t o t h e A s s o c i a t i o n f o r H ig h e r E d u c a t i o n , W a s h in g to n E d u c a t i o n A s s o c i a t i o n , S e a t t l e , W a s h in g to n , D ecem ber 2 , 1 9 6 6 , r e p r o d u c e d b y t h e A m e ric a n C o u n c il o n E d u c a ti o n , p . 9- Z l A r e c e n t d i s s e r t a t i o n f o c u s i n g on t h e K e n tu c k y C o u n c il on P u b l i c H ig h e r E d u c a ti o n p u r p o r t e d t o " i n v e s t i g a t e t h e i n t e r f a c e w h e re t h e tw o w o r ld s o f p o l i t i c s a n d h i g h e r e d u c a t i o n m e e t an d c l a s h . " H ow ev er, t h e p o l i t i c a l seem s u n d e r - e m p h a s iz e d i n t h e w o rk . See C h a r l e s H. W h ite , "The K e n tu c k y C o u n c il o n P u b l i c H ig h e r E d u c a t i o n ; A n a l y s i s an d a C hange i n S t r u c t u r e , " (u n p u b l i s h e d d i s s e r t a t i o n , The O hio S t a t e U n i v e r s i t y , 1 9 6 7 ) . P u r p o s e s o f t h e S tu d y T h is i n v e s t i g a t i o n s e e k s t o e x p l o r e t h e p r o c e s s e s th r o u g h w h ic h a n a g e n c y o f s t a t e g o v e rn m e n t i n f l u e n c e s p u b l i c p o l ic y - m a k i n g . I n so d o i n g i t em ploy s a s a v e h i c l e f o r t h e e x a m in a tio n a c o n s i d e r a t i o n o f a s p e c i a l i z e d k in d o f g o v e rn m e n ta l i n s t r u m e n t a l i t y : one d e v o te d t o t h e c o o r d i n a t i o n o f h i g h e r e d u c a t i o n o n a s t a t e w i d e b a s i s . The s p e c i f i c p u r p o s e s o f t h e s t u d y may b e summar i z e d a s f o l l o w s : ( 1 ) To d e s c r i b e t h e w ays i n w h ic h a n a g e n c y o f s t a t e g o v e rn m e n t p a r t i c i p a t e s w i t h i n t h e p o l i t i c a l p r o c e s s a s i t a t t e m p t s to i n f l u e n c e o u tc o m e s o f p u b l i c p o l i c y d i s c u s s i o n s o n q u e s t i o n s r e l e v a n t t o t h e a g e n c y 's p u r p o s e s a n d r e s p o n s i b i l i t i e s . ( 2 ) To c o n s i d e r t h e s p e c i f i c c i r c u m s t a n c e s i n w h ic h t h e s t a t e h i g h e r e d u c a t i o n a g e n c y o p e r a t e s i n t h e c o n t e x t o f s t a t e g o v e rn m e n t. ( 3 ) To ex am in e c e r t a i n h y p o t h e s e s c o n c e r n i n g t h e h i g h e r e d u c a t i o n c o o r d i n a t i o n a g e n c y a s i t r e l a t e s t o t h e l e g i s l a t i v e - e x e c u t i v e . ( 4 ) To p r o v i d e a m ore c o m p le te d e s c r i p t i o n o f t h e r e l a t i o n s h i p s o f c o o r d i n a t i n g a g e n c i e s t o s t a t e g o v e rn m e n t t h u s a u g m e n tin g o t h e r s t u d i e s and r e s e a r c h c o n c e r n i n g c o o r d i n a t i o n w h ic h t o d a t e h a v e f o c u s e d p r i m a r i l y u p o n t h e a g e n c y a s a n a d m i n i s t r a t i v e m echanism o r h a v e s t r e s s e d t h e r e l a t i o n s h i p s b e tw e e n t h e a g e n c y a n d t h e a g e n c y 's c l i e n t e l e — t h e c o l l e g e s an d u n i v e r s i t i e s c o o r d i n a t e d . ( 5 ) L a s t l y , to s u g g e s t a r e a s f o r f u r t h e r i n v e s t i g a t i o n . Hypotheses to be Considered A nu m b er o f a n t i c i p a t e d f i n d i n g s may b e s e t f o r t h i n t h e fo rm o f h y p o t h e s e s c o n c e r n i n g a s p e c t s o f t h e r e l a t i o n s h i p s o f t h e h i g h e r e d u c a t i o n a g e n c y a n d s t a t e g o v e rn m e n t. They a r e s u g g e s t e d b y i n i t i a l r e v i e w o f t h e l i t e r a t u r e r e l a t i n g t o s t a t e a g e n c i e s f o r h i g h e r e d u c a t i o n , b y t h e a u t h o r 's e x p e r i e n c e w i t h i n on e s u c h a g e n c y , a n d b y t h e b o d y o f k n o w le d g e o f p o l i t i c a l s c i e n c e and p u b l i c a d m i n i s t r a t i o n . I t i s i n t e n d e d t h a t t h e s t u d y s h o u l d c o n t r i b u t e to w a r d a s s e s s i n g t h e v a l i d i t y o f t h e s t a t e m e n t s , i n w h o le o r i n p a r t , and fro m t h i s t o d e v e lo p s u b s e q u e n t c o n c l u s i o n s c o n c e r n i n g w h a t i n f a c t a p p e a r s t o b e t h e c a s e . I n i t i a l l y , t h e f o l l o w i n g a r e p r o p o s e d c o n c e r n i n g t h e h i g h e r e d u c a t i o n a g e n c y a s i t s e e k s t o make i t s e l f f e l t w i t h i n s t a t e g o v e rn m e n t an d t h e p o l i t i c a l a r e n a : HYPOTHESIS I The a g e n c y f o r h i g h e r e d u c a t i o n c o o r d i n a t i o n em ploys t o o l s a n d s t r a t e g i e s o f i n f l u e n c e v e r y muck s i m i l a r t o t h o s e u t i l i z e d b y a n y i n t e r e s t g ro u p i n s e e k i n g t o i n f l u e n c e p o l i c y - m a k i n g i n s t a t e g o v e rn m e n t. . A. The t o o l s o f i n f l u e n c e a r e m ore l i m i t e d t h a n t h o s e a v a i l a b l e t o o t h e r i n t e r e s t s . B. The s t a t e h i g h e r e d u c a t i o n a g e n c y may b e c o n s i d e r ed much a s w o u ld any l o b b y f o r a h i g h e r e d u c a t i o n i n t e r e s t . G. The m ore p a r t i s a n t h e a g e n c y b o a r d , t h e g r e a t e r t h e a b i l i t y t o i n f l u e n c e p u b l i c p o l i c y o u tc o m e s . D. The h i g h e r e d u c a t i o n a g e n c y w i l l t e n d t o i d e n t i f y a s m a ll g ro u p o f l e g i s l a t o r s (a n d o t h e r k e y o f f i c i a l s i n s t a t e g o v e rn m e n t) who a r e s y m p a t h e t i c t o t h e a g e n c y 's i n t e r e s t s a n d who w i l l b e c a l l e d u p o n t o c a r r y l e g i s l a t i o n o r o t h e r w i s e e s p o u s e t h e p r o g ram o f t h e a g e n c y . E . I n f o r m a l r e l a t i o n s h i p s a r e o f s i g n i f i c a n t im p o r t a n c e i n t h e p r o c e s s o f i n f l u e n c i n g t h e l e g i s l a t i v e - e x e c u t i v e . HYPOTHESIS I I The c o o r d i n a t i n g a g e n c y f o r h i g h e r e d u c a t i o n w i l l s t r e s s r o l e s a n d f u n c t i o n s d e s i g n e d t o e n h a n c e i t s im ag e a s an " e x p e r t " on h i g h e r e d u c a t i o n m a t t e r s i n t h e p o l i t i c a l m i l i e u , and c o n s e q u e n t l y w i l l n o t em pha s i z e a c t i o n s d i r e c t e d to w a rd a n im ag e o f t h e a g e n c y a s " l e a d e r ” o f h i g h e r e d u c a t i o n i n t h e s t a t e . A. P e rf o rm a n c e o f p o l i t i c a l l y - r e l e v a n t r o l e s and f u n c t i o n s i s r e l a t e d t o t h e fo rm o f t h e a g e n c y h o a r d , i t s o v e r a l l t a s k s ( a d v i s o r y o r m a n a g e r i a l ) and t h e m em b ersh ip o f t h e b o a r d i t s e l f . HYPOTHESIS I I I I f t h e r e i s d i s s a t i s f a c t i o n w i t h t h e p e r f o r m a n c e s o f t h e h i g h e r e d u c a t i o n a g e n c y i n r e s p e c t t o t h e l e g i s l a t i v e - e x e c u t i v e , t h e r e w i l l b e a t e n d e n c y f o r i n d i v i d u a l s t o s e e k im p ro v e m e n ts b y reco m m en d in g f o r m a l c h a n g e s i n s t r u c t u r e an d f u n c t i o n s f o r t h e a g e n c y . HYPOTHESIS IV The c o n d u c t o f h i g h e r e d u c a t i o n a f f a i r s i s b e c o m in g i n c r e a s i n g l y p o l i t i c i z e d ; t h i s may make t h e c o o r d i n a t i o n o f i n s t i t u t i o n s an d s y s te m s m ore d i f f i c u l t . HYPOTHESIS V The h i g h e r e d u c a t i o n a g e n c y i s c l e a r l y i d e n t i f i e d a s a c r e a t u r e o f s t a t e g o v e rn m e n t r a t h e r t h a n h i g h e r e d u c a t i o n a s s u c h . The ab o v e a r e n o t t h e o n l y p r o p o s i t i o n s w h ic h c o u ld b e s e t f o r t h . T h ey a r e , h o w e v e r, s u g g e s t i v e o f a n u m b er o f i m p o r t a n t q u e s t i o n s w h ic h may b e a s k e d c o n c e r n i n g t h e p o l i t i c a l a s p e c t s o f t h e c o o r d i n a t i o n o f h i g h e r e d u c a t i o n w i t h i n t h e s t a t e s . The h y p o t h e s e s c a n o n l y b e t e s t e d , o f 10 c o u r s e , t o t h e l i m i t s o f t h e d a t a a v a i l a b l e . I n many i n s t a n c e s t h e C a l i f o r n i a s i t u a t i o n w i l l p r o v i d e t h e e x t e n t o f t h e e v i d e n c e , i n o t h e r s d a t a c o n c e r n in g t h e o t h e r s t a t e a g e n c i e s may b e b r o u g h t t o b e a r a s w e l l . F u r t h e r r e s e a r c h i s n e e d e d t o v e r i f y and e x te n d t h i s p r e s e n t e f f o r t e s p e c i a l l y i n v ie w o f t h e many f o r c e s a t w o rk i n e a c h s t a t e w h ic h o f t e n make g e n e r a l i z a t i o n h a z a r d o u s i f n o t i m p o s s i b l e . S tu d y M e th o d o lo g y T h re e s o u r c e s o f d a t a h a v e b e e n em ployed i n t h e c o u r s e o f t h i s e x a m in a t io n . I n t h e i n v e s t i g a t i o n o f t h e C a l i f o r n i a e x a m p le , h i s t o r i c a l r e c o r d s h a v e b e e n u t i l i z e d t o d e s c r i b e t h e p o l i t i c a l r e l a t i o n s h i p s o f t h e C a l i f o r n i a C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a tio n fro m i t s o r i g i n t o t h e p r e s e n t . R e p o r ts o f t h e C o u n c il, m in u te s o f t h e b o a r d m e e tin g s an d i n t e r n a l s t a f f d o c u m e n ts h a v e p r o v i d e d t h e b a s i s f o r t h e p r e s e n t a t i o n i n g r e a t m e a s u r e . The a u t h o r 's own e x p e r i e n c e s a s a member o f t h e C a l i f o r n i a a g e n c y 's s t a f f s i n c e i t s e a r l y s t a g e s o f d e v e lo p m e n t h a v e h e l p e d t o f i l l o u t t h e d o c u m e n te d r e c o r d . I n d i v i d u a l p e r c e p t i o n s o f t h e C a l i f o r n i a C o u n c il a s i t e x i s t e d i n t h e c l o s i n g m o n th s o f 1967 w e re g a t h e r e d i n a d d i t i o n t o t h e h i s t o r i c a l , d e s c r i p t i v e m a t e r i a l . T h e se v ie w s w e re o b t a i n e d th r o u g h s e m i - s t r u c t u r e d i n t e r v ie w s c o n d u c te d b y t h e a u t h o r w i t h some f i f t y - f o u r 11 p e r s o n s who h a d b e e n i d e n t i f i e d a s in f o r m e d c o n c e r n i n g t h e p e r f o r m a n c e o f t h e C o u n c il i n t h e c o n t e x t o f i t s r e l a t i o n s h i p s w i t h s t a t e g o v e rn m e n t. I n f o r m a t i o n r e g a r d i n g t h e s t a t e h i g h e r e d u c a t i o n a g e n c i e s n a t i o n a l l y w as c o l l e c t e d u s i n g a q u e s t i o n n a i r e c o m p le te d b y c h i e f s t a f f m em bers o f t h e s e v e r a l s t a t e i n s t r u m e n t a l i t i e s f o r c o o r d i n a t i o n . The q u e s t i o n n a i r e w as p r e p a r e d b y t h e a u t h o r t o g e t h e r w i t h R o b e r t 0 . B e r d a h l an d w as d i s t r i b u t e d u n d e r t h e a u s p i c e s o f t h e A m e ric a n C o u n c il o n E d u c a t i o n a s a p o r t i o n o f D r. B e rd a h l's n a t i o n a l s u r v e y o f s t a t e w i d e s y s te m s o f h i g h e r e d u c a t i o n . R e s u l t s o f t h i s s u r v e y w i l l b e a n a l y z e d i n p a r t h e r e i n , a s w e l l a s su m m a riz e d i n D r. B e r d a h l ’ s f i n a l r e p o r t . I n b r i n g i n g t h e f i n d i n g s o f t h e C a l i f o r n i a ex am p le a n d t h e n a t i o n a l s u r v e y t o b e a r u p o n t h e h y p o t h e s e s s u g g e s t e d , i t m u st b e p o i n t e d o u t t h a t a s t u d y f o c u s i n g u p o n a n a s p e c t o f t h e p r o c e s s o f g o v e rn m e n t c a n n o t , a t l e a s t a t p r e s e n t , b e c o n s i d e r e d d e f i n i t i v e . M e th o d o lo g i c a l t o o l s t o accom m odate t h e many v a r i a b l e s a c t i n g u p o n t h e p u b l i c p o l i c y - m a k i n g p r o c e s s a r e l a c k i n g . The c o n c l u s i o n s o f t h i s s t u d y , t h e n , m u st b e c o n s i d e r e d a s b e i n g much i n t h e fo rm o f s u g g e s t e d " t e n d e n c i e s " r a t h e r t h a n e s t a b l i s h e d f a c t . E x p l a n a t i o n o f T erm s U sed 1 2 E f f o r t h a s b e e n m ade i n t h e p a g e s f o l l o w i n g t o a v o i d t h e u s e o f te r m s h a v i n g a s p e c i a l i z e d m e a n in g o n l y i n c e r t a i n c o n t e x t s . F o r e x a m p le , i n d i v i d u a l s e n g a g e d i n t h e a d m i n i s t r a t i o n a n d c o o r d i n a t i o n o f h i g h e r e d u c a t i o n o n a s t a t e w i d e b a s i s i n C a l i f o r n i a s p e a k o f t e n o f " e d u c a t i o n a l s e g m e n ts " o r t h e " s e g m e n ts " a s s h o r t h a n d f o r t h e sy ste m s o f p u b l i c h i g h e r e d u c a t i o n a n d t h e p r i v a t e c o l l e g e s and u n i v e r s i t i e s i n t h e s t a t e . " D i f f e r e n t i a t i o n o f f u n c t i o n s " , " d i v e r s i o n " ( e n c o u r a g i n g s t u d e n t s t o a t t e n d j u n i o r r a t h e r t h a n s e n i o r c o l l e g e s f o r t h e f i r s t tw o y e a r s ) , " r e d i r e c t i o n " ( r e - a s s i g n m e n t o f s t u d e n t s fro m o n e cam pus t o a n o t h e r ) , a n d so o n , a r e t e r m s w i t h m e a n in g i n o n l y one s i t u a t i o n . To m in im iz e s e m a n t ic c o n f u s i o n , " s t a t e a g e n c y f o r h i g h e r e d u c a t i o n " i s u s e d i n t h e i n t r o d u c t o r y c h a p t e r s i n l i e u o f a n y te r m i n c l u d i n g t h e w ord " c o o r d i n a t i o n " . I n C h a p te r I I I t h e d i f f e r i n g fo rm s o f " s t a t e a g e n c i e s f o r h i g h e r e d u c a t i o n " a r e o u t l i n e d w i t h d i s t i n c t i o n s made b e tw e e n t h e " c o o r d i n a t i n g b o a r d " fo r m and t h e " c o n s o l i d a t e d g o v e r n i n g b o a r d " o r s t a t e d e p a r t m e n t o f e d u c a t i o n w i t h c o o r d i n a t i o n f u n c t i o n s . F o l l o w i n g t h i s p o i n t i n t h e s t u d y " c o o r d i n a t i n g a g e n c y " o r s i m i l a r d e s i g n a t i o n s a r e m ore o f t e n u s e d . The t e r m " a g e n c y ” i n t h e r e p o r t i s u s e d t o r e f e r t o t h e b o a r d c h a r g e d w i t h t h e c o o r d i n a t i o n f u n c t i o n a n d 13 i t s s t a f f . ........ " H ig h e r e d u c a tio n " w hen c o u p le d w i t h t h e c o n c e p t o f c o o r d i n a t i o n a t th e s t a t e l e v e l o r d i n a r i l y i s u s e d t o a p p l y to p u b l i c c o l l e g e s a n d u n i v e r s i t i e s (a n d t h e s y s te m s o f w h ic h t h e y may b e a p a r t ) . When p r i v a t e i n s t i t u t i o n s a r e t o b e i n c l u d e d , t h e t e r m i n o l o g y u s e d i n c l u d e s r e f e r e n c e t o " p u b l i c and p r i v a t e " . Of a s p e c i a l i z e d n a t u r e o t h e r te rm s em plo yed a r e e i t h e r e x p r e s s l y d e f i n e d w hen t h e y a p p e a r o r a r e e x p l a i n e d b y t h e c o n t e x t i n w h ich t h e y o c c u r . O r g a n i z a t i o n o f t h e S tu d y The s t u d y i s o r g a n i z e d i n t o t h r e e m a jo r p a r t s w i t h a c o n c l u d i n g c h a p t e r su m m a riz in g f i n d i n g s and c o n c l u s i o n s . P a r t I s e t s f o r t h i n t r o d u c t o r y m a t e r i a l r e l a t i n g t o t h e g e n e r a l n e ed f o r t h e s t u d y , i t s p u r p o s e s , q u e s t i o n s t o b e i n v e s t i g a t e d and t h e m eth o d o f a p p r o a c h u s e d ( C h a p te r I ) . A lso i n c l u d e d w i t h i n t h i s i n i t i a l p o r t i o n o f t h e w ork i s a d i s c u s s i o n o f t h e s t u d y 's p l a c e i n t h e l i t e r a t u r e o f b o t h p o l i t i c a l s c i e n c e and h i g h e r e d u c a t i o n ( C h a p te r I I ) . The ways i n w h ic h g o v e rn m e n ta l a g e n c i e s a r e i n c l u d e d w i t h i n t h e p o l i t i c a l p r o c e s s and g e n e r a l c o n s i d e r a t i o n s o f t h e c o o r d i n a t i o n f u n c t i o n a r e d i s c u s s e d t o c o n c lu d e t h e i n t r o d u c t o r y m a t e r i a l ( C h a p te r I I I ) . P a r t I I o f t h e i n v e s t i g a t i o n i s d e v o te d t o t h e C a l i f o r n i a h i g h e r e d u c a t i o n a g e n c y and i t s r e l a t i o n s h i p s a n d p e r f o r m a n c e s i n r e s p e c t t o s t a t e g o v e rn m e n t. The o r i g i n s o f t h e C a l i f o r n i a C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a ti o n a r e r e v ie w e d ( C h a p te r IV ) an d n e x t t h e r e c o r d o f t h e C o u n c il th r o u g h 1967 i s su m m arize d w i t h e m p h a sis p l a c e d u p o n t h o s e t o o l s and s t r a t e g i e s em ployed f o r i n f l u e n c e ( C h a p te r V ). The d i s c u s s i o n o f t h e C o u n c il i s t h e n f o c u s e d i n te r m s o f s i x i s s u e s w h ic h h a v e b r o u g h t t h e a g e n c y i n t o t h e p u b l i c p o l ic y - m a k i n g p r o c e s s i n some m an n e r ( C h a p te r V I ) . I n d i v i d u a l p e r c e p t i o n s o f t h e p e r fo r m a n c e s o f t h e C o u n c il i n r e s p e c t t o i t s r e l a t i o n s h i p s w i t h t h e l e g i s l a t i v e - e x e c u t i v e a r e n e x t p r e s e n t e d b a s e d u p o n r e s u l t s o f i n t e r v i e w s ( C h a p te r V I I ) . E x p e c t a t i o n s o f C o u n c il p e r f o r m a n c e s a r e e x p l o r e d ( C h a p te r V I I I ) an d a sum m ary o f f i n d i n g s c o n c e r n in g t h e C a l i f o r n i a exam p le p r e s e n t e d t o c o n c lu d e t h i s p o r t i o n o f t h e i n v e s t i g a t i o n ( C h a p te r I X ) . The f i n a l seg m en t o f t h e s t u d y , P a r t I I I , i n c l u d e s a p r e s e n t a t i o n o f i n f o r m a t i o n g a t h e r e d fro m a n a t i o n a l s u r v e y o f s t a t e h i g h e r e d u c a t i o n a g e n c i e s a s w e l l a s a c o n c l u d in g c h a p t e r t o t h e t o t a l s t u d y . C o o r d i n a t i n g a g e n c y fo rm s and p u r p o s e s a r e c o n s i d e r e d a t t h e o u t s e t ( C h a p te r X) and t h e n r o l e s an d f u n c t i o n s p e r f o r m e d b y t h e m ec h an ism s d i s c u s s e d ( C h a p te r X I ) . The p a t t e r n s an d c i r c u m s t a n c e s o f r e l a t i o n s h i p s w i t h s t a t e g o v e rn m e n ts a r e n e x t su m m arized ( C h a p te r 2 1 1 ) . M a jo r f i n d i n g s o f t h e s t u d y an d t h e i r r e l e v a n c e t o t h e h y p o t h e s e s p r o p o s e d a t t h e o u t s e t a r e c o n s i d e r e d i n t h e c o n c l u d in g m a t e r i a l ( C h a p te r X I I I ) . The a p p e n d ic e s i n c l u d e t a b l e s su m m a riz in g t h e a c t i o n s and re c o m m e n d a tio n s o f t h e C o u n c il d i r e c t e d t o t h e o f f i c i a l s o f s t a t e g o v e rn m e n t a s w e l l a s t h o s e d i r e c t e d b y them t o t h e a g e n c y . A l i s t i n g o f p e r s o n s i n t e r v i e w e d i s a l s o shown a s w e l l a s c o p i e s o f t h e q u e s t i o n n a i r e s u s e d . CHAPTER I I THE RELATIONSHIP OF THE STUDY TO GENERAL SUBJECTS OF RESEARCH The S t u d y a s One o f t h e P o l i t i c a l P r o c e s s A s t u d y c o n c e n t r a t i n g u p o n t h e p o l i t i c a l a s p e c t s o f t h e c o o r d i n a t i o n o f h i g h e r e d u c a t i o n may b e p l a c e d w i t h i n a g e n e r a l b o d y o f l i t e r a t u r e d i s c u s s i n g , e x a m in in g a n d a n a l y z i n g w h a t i s g e n e r a l l y t e r m e d , " t h e p o l i t i c a l p ro c e s s '* o r , i n some i n s t a n c e s " t h e g o v e r n m e n ta l p r o c e s s . " The l i t e r a t u r e o f p o l i t i c a l s c i e n c e a s a r u l e i s s e ld o m d i v i d e d i n t o d i s c r e t e c a t e g o r i e s o n e o f w h ic h w o u ld b e " p o l i t i c a l p r o c e s s " . I n d e e d , many may v ie w a l l o r m o s t s t u d i e s o f p o l i t i c a l s c i e n c e a s i n v e s t i g a t i o n s o f p o l i t i c a l p r o c e s s e s . Y e t , p e r h a p s , d u e m ore t o t i t l e s o f p a r t i c u l a r w o rk s s u c h a s B e n t l e y 's and T r u m a n 's ,^ t h e r e a r e c e r t a i n k i n d s o f s t u d i e s w i t h w h ic h t h i s p a r t i c u l a r s t u d y c a n p e r h a p s b e s t b e a s s o c i a t e d w i t h a n d f o r w h ic h " p o l i t i c a l p r o c e s s " seem s t h e m o st a p p r o p r i a t e d e s i g n a t i o n . The " p r o c e s s " r u b r i c a p p e a r s t o b e on e 1 A r t h u r F . B e n t l e y , The P r o c e s s o f G o v e rn m e n t; A S tu d y o f S o c i a l P r e s s u r e s ( B lo o m in g to n , I n d i a n a ; The P r i n c i p i a P r e s s , 1 9 4 9 ) a n d D avid B . T ru m an , The G o v e rn m e n t a l P r o c e s s . P u b l i c I n t e r e s t s a n d P u b l i c O p in io n (New Y o rk : A lfre d T A . K n o p f , 1 9 5 1 ) • 16 u n d e r w h ic h a num ber o f s t u d i e s may b e g r o u p e d w ith , d i f f e r e n t e m p h a s e s , b u t y e t s h a r i n g a n um ber o f common c o n c e r n s . ' ' P o l i t i c a l p r o c e s s " i s s e ld o m s p e c i f i c a l l y d e f i n e d . V ie w in g e a c h w ord s e p a r a t e l y , E u l a u 's s t a t e m e n t i s a p p r o p r i a t e : "P o l i t i c a l se e m s t o b e a r e s i d u a l r a t h e r t h a n a g e n e r i c t e r m . T h is m akes i t f u t i l e t o s e a r c h f o r c h a r a c t e r i s t i c f e a t u r e s o f p o l i t i c a l b e h a v i o r a p a r t fro m a n i n s t i t u t i o n a l o r s i t u a t i o n a l e n v ir o n m e n t t h a t s h a p e s p an d p a t t e r n s c e r t a i n t y p e s o f i n t e r p e r s o n a l r e l a t i o n s . ” P r o c e s s seem s e q u a l l y e l u s i v e o f d e f i n i t i o n . An e x c e l l e n t d i s s e r t a t i o n h a s c o n s i d e r e d t h e c o n c e p t w i t h i n t h e c o n t e x t o f a d e t a i l e d e x a m i n a t i o n o f t h e p h i l o s o p h y a n d im p a c t o f A. P . B e n t l e y . I n h i s r e v i e w K r e s s d o e s n o t v e n t u r e a n y p r e c i s e d e f i n i t i o n o f " p r o c e s s " m o s t l i k e l y b e c a u s e o f t h e c h a n g in g u s e s o f t h e c o n c e p t . He o b s e r v e s : P r o c e s s i s a w ord t h a t h a s f o u n d i t s w ay u n o b t r u s i v e l y i n t o t h e a c c e p t e d v o c a b u l a r y o f p o l i t i c a l s c i e n c e , u n t i l we now s p e a k e a s i l y a n d c o n f i d e n t l y o f t h e l e g i s l a t i v e a n d j u d i c i a l p r o c e s s e s , t h e d e c i s i o n - m a k i n g p r o c e s s , a n d e v en o f t h e e n t i r e p o l i t i c a l p r o c e s s .A O H e in z E u l a u , The B e h a v i o r a l P e r s u a s i o n i n P o l i t i c s (New Y o rk : Random H o u se , 1 9 6 3 ) , p . 17- ^ S e e P a u l F r e d e r i c k K r e s s , "T he I d e a o f P r o c e s s i n A m e ric a n P o l i t i c a l and S o c i a l S c i e n c e " ( u n p u b l i s h e d d i s s e r t a t i o n , U n i v e r s i t y o f C a l i f o r n i a a t B e r k e l e y , 1 9 6 5 ) . 1L I b i d . , p . v . 18 I t s h o u ld be n o t e d t h a t t h e u s e o f t h e " p o l i t i c a l p r o c e s s " te r m in o l o g y may s u g g e s t a b e h a v i o r a l p o s t u r e i n v ie w in g a g i v e n p ro b le m f o r a n a l y s i s : "The p r o c e s s mode / o f a n a l y s i s / a v o id s t h e s t a t i c q u a l i t y o f s t r u c t u r a l a n a l y s i s , i t h a s a dynam ic d im e n s io n t h a t i s e x tr e m e l y v a l u a b l e i n a c c u r a t e l y c a p t u r i n g t h e m e c u r i a l q u a l i t y o f p o l i t i c a l l i f e . " ' ’ Though d i f f i c u l t t o s p e c i f i c a l l y d e f i n e , " p o l i t i c a l p r o c e s s " a p p e a r s t o b e s u g g e s t i v e o f s e v e r a l a p p r o a c h e s t o t h e s tu d y o f p o l i t i c s w h ic h may b e l i n k e d t o g e t h e r . T h e se a p p ro a c h e s i n c l u d e : ( 1 ) a s y s te m ic v ie w o f t h e p o l i t i c a l p r o c e s s , ( 2 ) s t u d i e s s t r e s s i n g p r e s s u r e g r o u p s , ( 3 ) e x a m in a tio n s o f i n d i v i d u a l p o l i t i c a l b e h a v i o r s , a n d , f i n a l l y , (4-) s t r u c t u r a l - f u n c t i o n a l c o n s i d e r a t i o n s . T h ese a p p r o a c h e s , o r d i s p o s i t i o n s , a r e b r i e f l y n o t e d b e lo w an d r e l e v a n t , sa m p le w r i t i n g s i n d i c a t e d . F r a n k S o r a u f s u g g e s t s t h a t t h e p o l i t i c a l s y s te m may b e s e e n a s " a s e r i e s o f c o n s e c u t i v e a c t i v i t i e s w h ic h c u l m i n a t e i n t h e m aking o f a u t h o r i t a t i v e , b i n d i n g d e c i - C L s i o n s ( ' p u b l i c p o l i c y ' ) . " T h e se c o n s e c u t i v e a c t i v i t i e s ^ C y r i l Rosem an, C h a r l e s G. Mayo, an d F . B. C o llir g e D im e n s io n s o f P o l i t i c a l A n a l y s i s : An I n t r o d u c t i o n t o t h e C o n te m p o ra ry S tu d y o f P o l i t i c s (E nglew oo d C l i f f s , Dew J e r s e y : P r e n t i s s H a l 1 , I n c . , 1 9 6 6 ) , p . 1 5 . ^ F r a n c i s J o s e p h S o r a u f , P e r s p e c t i v e s o n P o l i t i c a l S c i e n c e (C o lu m b u s, O h io : C h a r l e s E . M e r r i l l B o o k s, I n c . , 1 9 6 5 ) , P . 5 . 19 may b e . . . a p r o c e s s / e m p h a s is a d d e d / b y w h ic h i n d i v i d u a l s w hose p o l i t i c a l g o a l s and v a l u e s h a v e o n ly i n s i g n i f i c a n t p o l i t i c a l po w er a r e g ro u p e d t o g e t h e r w i t h o t h e r i n d i v i d u a l s i n t o i n c r e a s i n g l y p o w e r f u l a g g r e g a t e s i n o r d e r t o i n f l u e n c e / e m p h a s is a d d e d / t h e m ak in g and a p p l y i n g o f p u b l i c p o l i c y . On t h e m a k e rs o f p u b l i c p o l i c y a r e c o n c e n t r a t e d t h e i n f l u e n c e s o f h i s f r i e n d s an d a s s o c i a t e s , h i s c o n s t i t u e n t s o r c l i e n t e l e s , im p o r t a n t p o l i t i c a l p a r t i e s an d i n t e r e s t g r o u p s , p o w e r f u l e l i t e s a n d i n d i v i d u a l s , h i s f e l l o w d e c i s i o n m a k e r s , an d h i s own i n t e r n a l i z e d p o l i t i c a l v a l u e s and ju d g m e n ts . P o l i t i c a l i n f l u e n c e t a k e s a l l o f t h e s e f o r m s .7 T h u s, i n h i s v ie w , s y s te m s u g g e s t s g ro u p a c t i v i t i e s i n a p r o c e s s w i t h t h e i n t e n t t o i n f l u e n c e . I n a som ew hat s i m i l a r v e i n , J a c o b and V in e s s t a t e : The r e l a t i o n s h i p s w h ic h c h a r a c t e r i z e t h e p o l i t i c a l p r o c e s s c a n b e r e f e r r e d t o a s ' t h e p o l i t i c a l s y s t e m '. We u s e t h e w ord 's y s te m * b e c a u s e we w an t t o r e f e r t o n e tw o r k s o f r e l a t i o n s h i p s w h ic h e x i s t b e tw e e n b r a n c h e s o f g o v e rn m e n t, i n d i v i d u a l c i t i z e n s , p o l i t i c a l p a r t i e s , i n t e r e s t g r o u p s ( l o b b i e s ) , t h e p r e s s , an d o t h e r s o c i a l i n s t i t u t i o n s when t h e y s e e k t o i n f l u e n c e g o v e rn m e n ta l d e c i s i o n s . 8 The d e b t t o D a v id E a s t o n 's v ie w o f t h e s y s te m , so f a r a s p o l i t i c a l s c i e n c e i s c o n c e r n e d , m u st b e a ck n o w le d g e d i n 9 t h i s c o n n e c t i o n . The s y s te m ic v ie w s u g g e s t s n o t o n ly t h e n e e d t o v ie w " o u t - p u t s ” and ’’i n p u t s " i n t o s y s te m s , b u t s t r e s s e s t h e im p o r ta n c e an d r e s u l t s o f t h e p r o c e s s w h ic h f e e d s b a c k i n t o t h e s y s te m , an d w h ic h i n t u r n may ^ I b i d . , p p . 5 - 8 . Q H e r b e r t J a c o b an d K e n n e th A. V in e s , P o l i t i c s i n t h e A m e ric a n S t a t e s ( B o s to n : L i t t l e , Brown an d Company, 1 9 6 5 ) , P . 8 . 9 D av id E a s t o n , The P o l i t i c a l S y ste m (Hew Y o rk : A l f r e d A, K n o p f, 1 9 5 5 ) . 20 a f f e c t t h e s y s te m . The h i g h e r e d u c a t i o n a g e n c y n o t o n l y o p e r a t e s w i t h i n a g o v e rn m e n ta l s y s te m , h u t i t s e r v e s a s t h e l i n k b e tw e e n " s y s te m s " o f c o l l e g i a t e i n s t i t u t i o n s a n d t h e " s y s te m " o f s t a t e g o v e rn m e n t. T h is s t u d y i n i t s m o re i m p o r t a n t a s p e c t s s e e k s t o t r e a t t h e s t a t e w i d e h i g h e r e d u c a t i o n a g e n c y a s a g ro u p w i t h i n t h e p o l i t i c a l p r o c e s s . A g ro u p com posed o f a num ber o f d i f f e r i n g k i n d s o f i n d i v i d u a l s p l a y i n g a v a r i e t y o f p o l i t i c a l , a s w e l l a s o t h e r , r o l e s . Though c a l l e d t o g e t h e r i n m ost i n s t a n c e s b y l e g i s l a t i v e ( o r e x e c u t i v e ) a c t , t h e g ro u p f u n c t i o n s — i t i s p re s u m e d a t t h i s p o i n t — much a s an i n t e r e s t g ro u p i n t h e p o l i t i c a l a r e n a . The d e b t t o s c h o l a r s o f t h e g ro u p i n t h e p o l i t i c a l a r e n a m u st t h e r e f o r e b e a c k n o w le d g e d . The s e m in a l w ork o f A r t h u r F . B e n t l e y , The P r o c e s s o f G o v e rn m e n t; A S tu d y 11 o f S o c i a l P r e s s u r e s i s , o f c o u r s e , t h e m a jo r b e g i n n i n g J a c o b an d V in e s , o p . c i t . , p . 1 6 . I n t e r e s t i n g l y , f o r t h e c o n t e x t o f ftiis s t u d y , J a c o b s u g g e s t s a s an exam p l e t h a t t h e e s t a b l i s h m e n t o f u n i v e r s i t i e s an d s t a t e c o l l e g e s b y a s t a t e may l e a d t o new dem ands f o r j u n i o r c o l l e g e s a s t h e r e s u l t o f t h e f e e d b a c k o f i n i t i a l p o l i c i e s i n t o t h e p o l i t i c a l s y s te m , h o c , c i t . (C h ic a g o : The U n i v e r s i t y o f C h ic a g o , 1 9 0 8 ) . To a d e g r e e , t h i s may n o t b e a s B e n t l e y w o u ld h a v e l i k e d . A c c o r d in g t o K r e s s , B e n t l e y 's i n f l u e n c e on p o l i t i c a l s c i e n c e l e d f i r s t to t h e e m p h a s is o n t h e g r o u p , t h e n t o e q u i l i b r i u m t h e o r i e s on t h e one h a n d an d f u n c t i o n a l i s m o n t h e o t h e r . T h ese t r e n d s a r e l i k e l y i n c o m p a t i b l e w i t h B e n t l e y 's " m a tu re t r a n s a c t i o n a l i s m " . I b i d . , p p . 3 0 1 -5 0 2 . 21 o f m o st c i t a t i o n s . S i m i l a r l y D a v id B. T ru m a n 's The Gov e r n m e n ta l P r o c e s s ; P u b l i c I n t e r e s t s an d P u b l i c O p in io n c o m p re h e n s iv e v ie w o f i n t e r e s t g r o u p s a n d t h e f e d e r a l 12 g o v e rn m e n t i s t h e n e x t m a jo r la n d m a r k . A num ber o f c a s e s t u d i e s ( o r c a s e h i s t o r i e s ) o f g r o u p s a c t i n g i n t h e p o l i t i c a l a r e n a h a v e b e e n c o n d u c te d w h ic h h a v e e n a b le d a s y n t h e s i s s u c h a s T ru m a n 's t o be p r e p a r e d an d h a v e p r o v i d e d t h e e le m e n ts f o r t h e b u i l d i n g o f a s i g n i f i c a n t b o d y o f d e s c r i p t i v e m a t e r i a l o f g ro u p b e h a v i o r i n a p o l i t i c a l c o n t e x t — i f n o t t h e b e g i n n i n g s o f w h a t some w ould c o n s i d e r a t h e o r y . A v a l u a b l e ex am p le i s J . L e i p e r F re e m a n ’ s w ork on t h e r e l a t i o n s h i p s o f t h e B u re a u o f I n d i a n A f f a i r s w i t h C o n g r e s s . ^ ( F r e e m a n 's p l a c i n g o f h i s s t u d y w i t h t h e l i t e r a t u r e o f p o l i t i c a l s c i e n c e i s u s e f u l and h a s s u g - 14 g e s t e d t h e r e l a t i o n s h i p s n o te d w i t h i n t h i s s e c t i o n . ) A v e ry L e i s e r s o n 's A d m i n i s t r a t i v e R e g u l a t i o n : A S tu d y i n R e p r e s e n t a t i o n o f I n t e r e s t s o f some y e a r s ago m ay a l s o b e 1 5 n o t e d p a r t i c u l a r l y . ^ 1 2 (New Y o rk : A l f r e d A. K n o p f, 1 9 5 1 ) . 15 vThe P o l i t i c a l P r o c e s s : E x e c u ti v e B u r e a u - L e g i s l a t i v e C o m m ittee R e l a t i o n s , r e v , e d . , (New Y o rk : Random H o u s e , 1965"). 14 I b i d . , p p . 8 - 1 0 . " ^ ( C h ic a g o : The U n i v e r s i t y o f C h ica g o P r e s s , 1 9 4 2 ) . I n t h i s w ork L e i s e r s o n e x a m in e s econom ic i n t e r e s t g r o u p s an d t h e i r r e l a t i o n s h i p s t o f e d e r a l r e g u l a t o r y a g e n c ie s . 22 D a v id E a s to n i n w r i t i n g o f t h e s t u d i e s o f p o l i t i c a l s c i e n t i s t s c o n c e r n in g e d u c a t i o n a l i n s t i t u t i o n s , d e s c r i b e s much o f w h at i s h e r e a t t e m p t e d : . . . / l i / e t u s lo o k a t w h a t h a s h a p p e n e d t o t h e s t u d y o f i n s t i t u t i o n s i n t h a t l a r g e an d t y p i c a l a r e a o f p o l i t i c a l s c i e n c e t h a t c o n c e p t u a l i z e s i t s t a s k a s t h e s t u d y o f po w er r e l a t i o n s h i p s . I n t h i s c o n t e x t , s t u d e n t s o f p o l i t i c s h a v e b e e n p r o n e t o exam in e e d u c a t i o n a l i n s t i t u t i o n s a s o n e o f a v a s t n e tw o rk o f g ro u p s t h a t s e e k t o b r i n g t h e i r i n f l u e n c e t o b e a r u p o n t h o s e who a r e r e s p o n s i b l e f o r m ak in g and e x e c u t i n g p u b l i c p o l i c y . . . .T h e t a s k i s t o d i s c o v e r t h e way i n w h ic h e d u c a t i o n a l g r o u p s t r y t o c r e a t e a f a v o r a b l e e n v iro n m e n t f o r t h e i r own g r o w th an d d e v e lo p m e n t and t o m ax im ize t h e i r s h a r e o f t h e v a r i o u s g o v e rn m e n ta l b u d g e ts u p o n w h ic h t h e y d e p e n d .16 I n c e r t a i n r e s p e c t s t h e s t a t e a g e n c y f o r h i g h e r e d u c a t i o n may b e t r e a t e d a s t h e a g e n t o r b r o k e r f o r e d u c a t i o n a l g ro u p s a s t h e y s e e k a f a v o r a b l e e n v ir o n m e n t a n d a maximum s h a r e o f r e s o u r c e a l l o c a t i o n s . I n o t h e r a s p e c t s , t h e a g e n c y may b e t r e a t e d a s a g ro u p s e e k i n g t o c r e a t e f o r i t s e l f a f a v o r a b l e s i t u a t i o n i n w h ic h t o "The F u n c t i o n o f F o rm a l E d u c a ti o n i n a P o l i t i c a l S y s te m ," S c h o o l R e v ie w , LXV (Autum n 1 9 5 7 )? 5 0 5 . E a s t o n 's p u r p o s e i n t h i s a r t i c l e i s t o s t r e s s t h e n e e d f o r e x a m in a t i o n o f t h e ways i n w h ic h e d u c a t i o n may c o n t r i b u t e t o t h e p o l i t i c a l s y s te m . I n so d o i n g , h e i m p l i e s i n some m easure t h a t t h e r e l a t i o n s h i p s o f e d u c a t i o n a l i n s t i t u t i o n s w i t h t h e l e g i s l a t i v e - e x e c u t i v e h a d b e e n a d e q u a t e l y r e v ie w e d and d e s c r i b e d . T h is d o e s n 't a p p e a r t h e c a s e , th o u g h c e r t a i n l y t h e r e h a s b e e n a n e v e n g r e a t e r l a c k o f c o n c e r n f o r t h e f u n c t i o n o f e d u c a t i o n i n t h e p o l i t i c a l s y s te m a s h e p o i n t s o u t . T h is l a c u n a h a s b e e n som ew hat m o d if i e d i n w o rk s su c h a s Jam es S . C o lem an , e d . , E d u c a tio n ^ and P o l i t i c a l D ev elo p m en t ( P r i n c e t o n , New J e r s e y : P r i n c e t o n U n i v e r s i t y P r e s s , 1 9 ^ 5 ) . 23 o p e r a t e a n d , p e r h a p s , a s w e l l , m ax im iz e i t s own s h a r e o f f u n d s . I n d i v i d u a l "b e h a v io rs a r e k e y t o a n u n d e r s t a n d i n g o f p o l i t i c a l p r o c e s s e s . F o r t h i s r e a s o n , t h i s r e s e a r c h e f f o r t i s r e l a t e d , b o t h e x p l i c i t l y an d i m p l i c i t l y , t o i n v e s t i g a t i o n s t o l e g i s l a t i v e an d a d m i n i s t r a t i v e b e h a v i o r , a s w e l l a s t o a n a l y s e s s t r e s s i n g t h e r o l e s a n d p e r f o r m an c es o f a c t o r s w i t h i n t h e o r g a n i z a t i o n ( o r s i t u a t i o n ) . L i k e w i s e , s t u d y o f d e c i s i o n - m a k i n g i n a r e a s o f p u b l i c 17 p o l i c y may b e a s s o c i a t e d w i t h t h e p r e s e n t s t u d y . 1 'R e s e a r c h e f f o r t s c o n c e r n i n g t h e p a s s a g e o f s p e c i f i c p i e c e s o f l e g i s l a t i o n g i v e e x a m p le s o f b e h a v i o r s o f p o l i t i c a l a c t o r s . S e e , f o r e x a m p le , S te p h e n K. B a i l e y , C o n g r e s s H akes a Law (New Y o rk : C o lu m b ia U n i v e r s i t y t r e s s " , 1 9 5 9 /; i J a n i e l B erm an, A B i l l Becom es a Law; The C i v i l R i g h t s A c t o f i9 6 0 (Mew Y o rk : M a c m illa n Company, 1 9 6 2 ) , and o t h e r s . C o n c e r n in g d e c i s i o n - m a k i n g i n o r g a n i z a t i o n s and r e l a t e d a s p e c t s s e e : P e t e r M. B la u an d W. R i c h a r d S c o t t , F o rm a l O r g a n i z a t i o n s (S a n F r a n c i s c o : C h a n d le r P u b l i s h i n g Company, 1 9 6 2 ) ; P a u l L i e s i n g , R e a so n i n S o c i e t y ; F iv e T yp es o f D e c i s i o n s and T h e i r S o c i a l C o n d i t i o n s ( U r b a n a , I l l i n o i s : U n i v e r s i t y a t I l l i n o i s P r e s s , 1 9 6 2 ; ; Ja m e s G. M arch an d H e r b e r t A. S im on , O r g a n i z a t i o n s (Mew Y o rk : J o h n W ile y an d S o n s , 1 9 3 8 ); a n d W illia m S . S to rm and M a r g a r e t C. O s lu n d , The P o l i t i c s o f A d m i n i s t r a t i v e B e h a v io r ; A C ase Book (L os A n g e l e s : S c h o o l o f P u b l i c A d m i n i s t r a t i o n , U n i v e r s i t y o f S o u th e r n C a l i f o r n i a , I 9 6 0 ) . P e r s p e c t i v e c o n c e r n i n g t h e l e g i s l a t i v e a c t o r i s p r o v i d e d i n J o h n C. W a h lk e , H e in z E u la u , W illia m B u c h a n a n , and L e r o y C. F e r g u s o n , The L e g i s l a t i v e S y s te m : E x p l o r a t i o n s i n L e g i s l a t i v e B e h a v io r (Mew Y o rk : J o h n W ile y and S o n s , 1 9 6 2 ) . F i n a l l y , c o m m u n ity d e c i s i o n - m a k i n g c a s e s t u d i e s s h o u ld b e n o t e d : M a r t in M e y e rso n and E dw ard C. B a n f i e l d , P o l i t i c s , P l a n n i n g an d t h e P u b l i c I n t e r e s t ( G le n c o e , I l l i n o i s : F r e e P r e s s , 1 9 5 5 ); B a n f i e l d P o l i t i c a l I n f l u e n c e ( G le n c o e , I l l i n o i s : F r e e P r e s s , 1 9 6 1 ) ; and R o b e r t D a h l, Who G o v e rn s? D em ocracy and Pow er i n a n A m erican C i t y (Mew H a v en , C o n n e c t i c u t : Y a le U n i- ve'rsity Press, 1961). 24 F i n a l l y , i f p o l i t i c a l p r o c e s s i n p a r t s u g g e s t s tlie r e l a t i o n s h i p s o f g ro u p s w i t h i n a p o l i t i c a l c o n t e x t , t h e n b o t h t h e s t r u c t u r e and f u n c t i o n o f t h o s e g ro u p s a r e i m p o r t a n t i n a n y s t u d y o f p o l i t i c a l p r o c e s s . S t r u c t u r e h e r e may r e f e r t o t h e p a t t e r n e d s e t o f hum an a c t i o n s , an d f u n c t i o n s a s t h e o b s e r v e d c o n s e q u e n c e s o f t h a t p a t t e r n e d 18 s e t o f human a c t i o n s . W ith o u t s u g g e s t i n g t h a t t h i s p r e s e n t s t u d y i s i n t e n d e d t o b e a t r u e " s t r u c t u r a l - f u n c t i o n a l ” a n a l y s i s , i t i s s u g g e s t e d t h a t a s t u d y o f p o l i t i c a l p r o c e s s m ust b e a t t u n e d t o t h e s t r u c t u r e i n w h ic h t h e p r o c e s s o c c u r s a s w e l l a s t h e f u n c t i o n s p e r fo rm e d b y a c t o r s i n d i v i d u a l l y o r i n t h e a g g r e g a t e . To su m m a riz e , t h e p r o p o s i t i o n p l a c i n g e x a m in a t io n o f p o l i t i c a l p r o c e s s o f w h ic h t h i s s t u d y i s b e l i e v e d a p a r t , w i t h i n t h e g e n e r a l b e h a v i o r a l p o s t u r e o f s t u d y p r o s e c u t i o n seem s m o st a p p r o p r i a t e . S t u d i e s o f " p o l i t i c a l p r o c e s s " c a n p e r h a p s n e x t b e p l a c e d i n s u b - c l a s s i f i c a t i o n s a s r e f l e c t e d i n t h e b o d i e s o f l i t e r a t u r e men t i o n e d a b o v e . U n d er t h e h e a d in g “p o l i t i c a l p r o c e s s " m ig h t b e p l a c e d t h e c l a s s o f s t u d i e s w h ic h a r e l a r g e l y h i s t o r i c a l c a s e s t u d i e s o f a c t i o n s and i n t e n t i o n s o f i n t e r e s t TO See C o l in g e , Mayo a n d K osem an, o p . c i t . , p . 3 0 0 , and P e t e r M. B la u , The D ynam ics o f B u r e a u c r a c y ; A S tu d y o f I n t e r p e r s o n a l R e l a t i o n s i n Two G overnm en t A g e n c i e s , r e v . e d . , C C h ica g o : U n i v e r s i t y o f C h ic a g o , 1 9 6 3 )- g ro u p s c a n b e p r i v a t e , eco n o m ic i n t e r e s t s , q u a s i - p u b l i c a s s o c i a t i o n s o r p u r e l y p u b l i c g r o u p s s u c h a s g o v e rn m e n ta l a g e n c i e s ) . A lso u n d e r t h i s h e a d i n g m ig h t b e p l a c e d s t u d i e s o f t h e d y n a m ic s o f t h e l e g i s l a t i v e p r o c e s s s u c h a s t h e p r o c e s s o f t h e d e v e lo p m e n t a n d p a s s a g e o f l e g i s l a t i o n ; s t u d i e s o f a g e n c y r e l a t i o n s w i t h t h e l e g i s l a t i v e o r e x e c u t i v e b r a n c h e s o f g o v e rn m e n t; c e r t a i n j u d i c i a l p r o c e s s i n v e s t i g a t i o n s , and s t u d i e s s u c h a s t h e p r e s e n t o n e , e x p l o r i n g t h e p a t t e r n o f r e l a t i o n s h i p s o f a n a g e n c y to g o v e rn m e n t, i n t h i s c a s e a n a g e n c y w i t h a s p e c i a l i z e d f u n c t i o n an d p e r h a p s u n iq u e r e s p o n s i b i l i t i e s i n c o m p a ri s o n w i t h m o st g o v e rn m e n ta l a g e n c i e s i n r e g a r d t o i t s c o n s t i t u e n c y . The m eth o d o f e x a m in a t io n f o r a p a r t i c u l a r " p o l i t i c a l p r o c e s s " s t u d y m ig h t i n c l u d e s y s te m s a n a l y s i s , s t r u c t u r a l - f u n c t i o n a l a p p r o a c h e s , o b s e r v a t i o n s , a n d i n d i v i d u a l p e r c e p t i o n s and o p i n i o n s a s t h e y r e l a t e t o t h e p r o c e s s . A c o m b in a tio n o f t h e t o o l s may b e em ployed i n a n y one s t u d y , a s i s d o n e i n t h i s i n s t a n c e , th o u g h e m p h a sis i s p l a c e d u p o n t h e l a s t - m e n t i o n e d t o o l . K r e s s s u c c i n c t l y s t a t e s t h e m e t h o d o l o g i c a l d i f f i c u l t y i n a p p r o a c h in g a p o l i t i c a l p r o c e s s s t u d y : The c e n t r a l p ro b le m t h a t c o n te m p o r a r y s y s t e m a t i c t h e o r y seem s t o h a v e i g n o r e d , o r o n l y s u p e r f i c i a l l y t r e a t e d , i s how t h e f l u x o f e x p e r i e n c e c a n b e made t o y i e l d a m e a n in g f u l ' f i t 1.1 9 ■ ^ K re s s , o p . c i t . , p . 3 0 2 . 2 6 A s t u d y o f t h e p o l i t i c s o f c o o r d i n a t i o n o f h i g h e r e d u c a t i o n i s in d e e d o n e o f t h e “ f l u x o f e x p e r i e n c e " . The S tu d y As One o f t h e P o l i t i c s o f E d u c a tio n As t h e p r e s e n t s t u d y i s c o n c e r n e d w i t h p o l i t i c a l a s p e c t s o f c o o r d i n a t i o n o f h i g h e r e d u c a t i o n i t s h o u l d h e c o n s i d e r e d a p a r t o f t h e s m a l l , th o u g h g ro w in g b o d y o f l i t e r a t u r e r e l a t i n g t o t h e p o l i t i c s o f e d u c a t i o n . C l e a r l y p o l i t i c a l s c i e n t i s t s h a v e b e e n h e s i t a n t to c o n s i d e r a s p e c t s o f e d u c a t i o n a s w i t h i n t h e i r k e n o f c o n c e r n th o u g h P l a t o an d A r i s t o t l e c o u ld b e s a i d t o h a v e l a i d t h e b a s i s f o r e d u c a t i o n a s a l e g i t i m a t e c o n c e r n t o s t u d e n t s o f g o v e rn m e n t a n d p o l i t i c a l c o n c e r n s . A r e c e n t w ork e x a m in in g e d u c a t i o n a l i n t e r e s t g r o u p s w i t h i n t h e l e g i s l a t i v e p r o c e s s s t a t e s : D e s p i t e t h e o b v i o u s l y i n c r e a s i n g r o l e o f g o v e r n m ent i n e d u c a t i o n , r e l a t i v e l y l i t t l e s c h o l a r l y a t t e n t i o n h a s b e e n d e v o te d t o t h e m any p o l i t i c a l c o n s i d e r a t i o n s i n v o l v e d . 20 And one te a m o f p o l i t i c a l s c i e n t i s t s , a f t e r t a k i n g n o t e o f t h e f i s c a l i m p l i c a t i o n s o f e d u c a t i o n , c o n c l u d e s : ?0 N i c h o la s A. M a s t e r s , R o b e r t H. S a l i s b u r y , a n d Thomas H. E l i o t , S t a t e P o l i t i c s an d t h e P u b l i c S c h o o l s ; An E x p l o r a t o r y A n a l y s i s (New Y o rk : A l f r e d A. KnopT^ 1964-/, p . 4 . T h e re h a v e , o f c o u r s e , b e e n e x c e p t i o n s : f o r e x a m p le , J o h n A. V ie g , The G overnm ent o f E d u c a t i o n i n M e t r o p o l i t a n C h ic a g o ( C h ic a g o : U n i v e r s i t y o f C h ic a g o , 19 5 9 )» and R . B ru c e R au p , E d u c a ti o n a n d O r g a n iz e d I n t e r e s t i n A m e ric a (New Y o rk : G. P . P u tn a m , 1 9 5 6 )- 2? " P o l i t i c a l s c i e n t i s t s seem t o b e a t t r a c t e d t o s u b j e c t s f o r r e s e a r c h a n d a n a l y s i s i n i n v e r s e r e l a t i o n t o t h e i r 21 f i s c a l i m p o r t a n c e . ” Thomas H. E l i o t w r i t i n g i n t h e A m e ric a n P o l i t i c a l S c ie n c e R eview i n 1959,- s t a t e d t h e n e e d f o r r e s e a r c h i n t o t h e p o l i t i c s o f e d u c a t i o n p a r t i c u l a r l y i n r e s p e c t t o t h e 22 p u b l i c s c h o o l s . L i s t i n g a r e a s f o r n e e d e d s t u d y , he p r o p o s e d a t t h e l o c a l l e v e l s t u d i e s o f v o t e r r e s p o n s e s , s t r u c t u r a l a n a l y s e s , and b e h a v i o r a l l y o r i e n t e d ex am in a t i o n s o f g ro u p p r e s s u r e s i n d e c i s i o n - m a k i n g . A t t h e s t a t e l e v e l , h e s u g g e s t e d r e s e a r c h i n t o t h e o r g a n i z a t i o n an d f i n a n c i a l a d m i n i s t r a t i o n o f t h e s t a t e ' s e d u c a t i o n a l a c t i v i t i e s an d i n v e s t i g a t i o n i n t o t h e p r e s s u r e s on l e g i s l a t u r e s and t h e i r r e s p o n s e s t o t h o s e p r e s s u r e s . E l i o t w r o t e : The v ie w . . . i s t h a t s t a t e a c t i o n , e s p e c i a l l y i n t h e l e g i s l a t u r e s , i s now s i g n i f i c a n t an d w i l l s o o n h a v e a c r u c i a l im p a c t on e d u c a t i o n a l d e v e l o p m e n t, and t h a t u s e f u l f i n d i n g s c a n r e s u l t fro m a c o m p a r a tiv e s t u d y o f s t a t e i n f l u e n c e , m anagem ent o r c o n t r o l . 23 F i n a l l y h e n o t e d t h e n e e d t o c o n s i d e r f e d e r a l c o n t r o l and l e g i s l a t i o n h a v in g im p a c t on e d u c a t i o n . S te p h e n K. B a i l e y , R ic h a r d T . F r o s t , P a u l E. M a rsh , an d R o b e r t C. Wood, S ch o o lm en a n d P o l i t i c s : A S tu d y o f S t a t e A id t o E d u c a ti o n i n t h e N o r t h e a s t ( S y r a c u s e U n i v e r s i t y P r e s s , 1 9 6 2 ) , p . v i i i . "T ow ard a n d U n d e r s ta n d in g o f P u b l i c S c h o o l P o l i t i c s . " A m e ric an P o l i t i c a l S c ie n c e R e v ie w , L I I I (D ecem ber 1 9 5 9 ; , p p . 1 0 3 2 - 1 0 5 1 . 25I b i d . , p . 1 051. 28 I n many r e s p e c t s t h e p a t t e r n o f r e s e a r c h s u g g e s t e d b y E l i o t i s b e in g p u r s u e d . B a i l e y , P r o s t , M arsh an d Wood s t u d i e d n o r t h e a s t e r n e d u c a t i o n a l p o l i t i c s and i d e n t i f i e d l e a d e r s h i p r o l e s o f sc h o o lm e n p r i m a r i l y a t t h e l o c a l l e v e l . E l i o t i n a s s o c i a t i o n w i t h M a s t e r s and S a l i s b u r y c o n d u c te d a m a jo r s t u d y o f p o l i t i c s a n d p u b l i c s c h o o l e d u c a t i o n i n M i s s o u r i , I l l i n o i s and M ic h ig a n . I n t h i s e f f o r t c e r t a i n d e c i s i o n s w e re c o n s i d e r e d and t h e r o l e s o f e d u c a t i o n a l i n t e r e s t g ro u p s e x am in ed i n r e s p e c t t o t h o s e d e c i s i o n s . A num ber o f s i g n i f i c a n t h y p o t h e s e s f o r c o n t i n u e d e x a m in a t io n an d t e s t i n g w ere p r o p o s e d a s a r e s u l t o f t h e s t u d y . A t t h e l o c a l l e v e l , com m unity p o w er r e s e a r c h a p p r o a c h e s a r e b e i n g a p p l i e d t o e d u c a t i o n a l 24 m a t t e r s a n d i n s t i t u t i o n s . E d u c a t i o n a l i n t e r e s t g r o u p s i n C a l i f o r n i a h a v e b e e n t h e s u b j e c t o f r e c e n t d i s s e r t a - 25 t i o n s . ^ S i m i l a r l y d i s s e r t a t i o n s h a v e b e e n p r e p a r e d on t h e d e c i s i o n - m a k i n g p r o c e s s o n e d u c a t i o n q u e s t i o n s i n t h e 24 S e e , E o b e r t S . C a h i l l and S te p h e n P . H e n c le y , e d s . , (The P o l i t i c s o f E d u c a ti o n ( D a n v i l l e , I l l i n o i s : The I n t e r s t a t e P r i n t e r s and P u b l i s h e r s , I n c . , 1 9 6 4 ) . The b o o k i s t h e r e s u l t o f a sym posium . ^ B . Dean B o w le s, " E d u c a t i o n a l P r e s s u r e G ro u p s and t h e L e g i s l a t i v e P r o c e s s i n C a l i f o r n i a , 1 9 4 5 -1 9 6 6 " (u n p u b l i s h e d d i s s e r t a t i o n , t h e C la re m o n t G r a d u a te S c h o o l , 1 9 6 6 ) and J o h n D a v id P h i l l i p s , "T h e P o l i t i c s o f S t a t e S c h o o l S u p p o r t: C a l i f o r n i a , A C a se S tu d y " ( u n p u b l is h e d d i s s e r t a t i o n , S t a n f o r d U n i v e r s i t y , 1 9 6 5 ). 29 L e g i s l a t u r e . S t i l l o t h e r r e s e a r c h p r o j e c t s h a v e t a k e n a p a r t i c u l a r l e g i s l a t i v e p r o p o s a l c o n c e r n i n g e d u c a t i o n and ex am in ed t h e p r o c e s s b y w h ic h i t was b r o u g h t t o 27 p a s s a g e . 1 F e d e r a l i n t e r e s t i n e d u c a t i o n h a s r e c e i v e d a t t e n t i o n i n M unger an d F e n n o 's s t u d y , N a t i o n a l P o l i t i c s po an d F e d e r a l A id t o E d u c a t i o n . U n d o u b te d ly new r e s e a r c h e f f o r t s c a n b e e x p e c te d i n t o t h e i n c r e a s i n g f e d e r a l c o n c e r n w i t h e d u c a t i o n i n s u c h r e s p e c t s a s i m p l e m e n ta t io n o f s c h o o l d e s e g r e g a t i o n , an d t h e s e v e r a l i m p a c ts o f t h e 29 E le m e n ta r y - S e c o n d a r y A c t o f 1965 a s i t d e a l s w i t h i n c r e a s i n g o p p o r t u n i t i e s f o r d i s a d v a n t a g e d s t u d e n t s and s e e k s t o s t r e n g t h e n s t a t e e d u c a t i o n a g e n c i e s . The n e w ly d e v e lo p e d C om pact f o r E d u c a ti o n w i t h i t s c o n s c i o u s a t t e m p t t o l i n k s t a t e h o u s e and e d u c a t i o n a l e s t a b l i s h m e n t n a t i o n a l l y may s e r v e a s t h e s u b j e c t o f a s t u d y a n d b e i n i t s e l f a s t i m u l u s f o r i n v e s t i g a t i o n s i n t o q u e s t i o n s o f p u b l i c A l b e r t E d is o n S t a r k e y , " S t a t e L e v e l E d u c a t i o n a l D e c is io n - M a k in g i n T e x a s" ( u n p u b l is h e d d i s s e r t a t i o n , The U n i v e r s i t y o f T e x a s , 1 9 6 6 ) . The S t a r k e y w ork a p p e a r s t o h a v e t e s t e d some o f t h e h y p o t h e s i s p r o p o s e d f o r s t u d y i n M a s t e r , e t a l , o p . c i t . 29S e e J o h n F . G a l l a g h e r , The P o l i t i c s o f S c h o o l D i s t r i c t R e o r g a n i z a t i o n ; The C a l i f o r n i a E x p e r i m e n t . C a l i f o r n i a G overnm ent S e r i e s , N o. 15 ( D a v is , C a l i f o r n i a : U n i v e r s i t y o f C a l i f o r n i a , H i s t o r y and G ov ern m en t A f f a i r s , J u n e 1 9 6 6 ; a n d Jam es E dw ard J e n s e n "A S tu d y o f I n f l u e n c e i n E d u c a tio n C o m m itte e s o f t h e C a l i f o r n i a S t a t e L e g i s l a t u r e ” ( u n p u b l is h e d d i s s e r t a t i o n , U n i v e r s i t y o f C a l i f o r n i a a t B e r k e l e y , 1 9 6 5 ). PR ( S y r a c u s e , New Y o rk : S y r a c u s e U n i v e r s i t y P r e s s , 29P . L . 8 9 -1 0 ; 20 U .S .C . 2 4 1 . 30 30 p o l i c y f o r e d u c a t i o n . The r e a s o n s f o r t h e c o m p a r a t i v e l y l i m i t e d i n v e s t i g a t i o n t o d a t e i n t o q u e s t i o n s o f p o l i t i c s and e d u c a t i o n n e e d n o t b e d i s c u s s e d i n f u l l h e r e . C e r t a i n l y t h e s c h o o l men h a v e d i s c o u r a g e d l i n k s b e tw e e n t h e p o l i t i c a l a n d t h e e d u c a t i o n a l . An im age h a s b e e n s o u g h t t o p e r m i t t h e " f r e e " f u n c t i o n i n g o f s c h o o l s a p a r t fro m " p o l i t i c a l 31 i n f l u e n c e . " On t h e o t h e r s i d e , p o l i t i c a l s c i e n t i s t s h a v e b e e n r e l a t i v e l y d i s i n t e r e s t e d i n many i s s u e s o f p u b l i c p o l i c y , i n c l u d i n g e d u c a t i o n . " . . .A p a r t fro m t h e f i e l d o f f o r e i g n a f f a i r s , t h e p o l i t i c a l s c i e n t i s t h a s o f t e n b e e n n e g l i g e n t i n p r e p a r i n g h i m s e l f a d e q u a t e l y to d e a l w i t h i n t r i c a c i e s o f g o v e rn m e n t e c o n o m ic s , u r b a n l a n d u s e , p u b l i c - h e a l t h m e d i c i n e , o r e v e n e d u c a t i o n a l p h i l o s o p h y . . I n a d d i t i o n , t h e s e p a r a t i o n o f t h e s t u d y o f " e d u c a t i o n a l a d m i n i s t r a t i o n " fro m " p u b l i c a d m i n i s t r a t i o n " c o u p le d w i t h t h e f u r t h e r e s tr a n g e m e n t o f p o l i t i c s fro m 30 One o f t h e C o m p a c t's r e c e n t p r o j e c t s h a s b e e n t o r e v i e w s t u d i e s r e c e n t l y c o m p le te d o r now u n d e rw a y r e g a r d i n g s t a t e w i d e s y s te m s o f h i g h e r e d u c a t i o n an d r e l a t e d m a t t e r s . S ee Sam uel K. G ove, " S t a t e w i d e S y ste m s o f H ig h e r E d u c a ti o n S t u d i e s : A Summary" (D e n v e r, C o lo r a d o : The E d u c a t i o n a l C om m ission o f t h e S t a t e s , O c to b e r 3 0 , 1 9 6 7 ) . (m im e o g ra p h e d ) ^ S e e B a i l e y , e t a l , o p . c i t . , p p . i x - x . ^ J o h n D. M i l l e t , M anagem ent i n t h e P u b l i c S e r v i c e (New Y o rk : M c G ra w -H ill, 195^-)j P - v i i i . 31 a d m i n i s t r a t i o n o n l y now b e i n g c o r r e c t e d , ^ h a v e l i k e l y c o n t r i b u t e d t o a g e n e r a l f a i l u r e o f p o l i t i c a l s c i e n t i s t s o r s t u d e n t s o f e d u c a t i o n a l i n s t i t u t i o n s t o f i n d an d e m p h a s iz e p o l i t i c s w i t h i n o r g a n i z a t i o n an d f u n c t i o n s o f e d u c a t i o n . M o st o f t h e w o rk s c i t e d c o n c e n t r a t e u p o n p u b l i c s c h o o l s a s o p p o s e d t o h i g h e r e d u c a t i o n o r t h e c o o r d i n a t i o n an d g o v e rn a n c e o f h i g h e r e d u c a t i o n . S e v e r a l o f t h e w o rk s , o f c o u r s e , a r e s u g g e s t i v e . B u t o n t h e w h o le i t m ay b e s a i d t h e l i t e r a t u r e i n s o f a r a s t h e p o l i t i c s o f h i g h e r e d u c a t i o n i s c o n c e r n e d , i s r a t h e r l i m i t e d . " T h e re i s s t i l l a c o n s i d e r a b l e d e a r t h o f r e s e a r c h c o n c e r n i n g t h e m u l t i - p o l i t i c a l r o l e s o f e d u c a t i o n b e y o n d t h e h i g h s c h o o l l e v e l . " ^ T hough w o rk s on h i g h e r e d u c a t i o n a r e r e a d i l y a v a i l a b l e , m any w i t h p a s s i n g m e n tio n o f h i g h e r e d u c a t i o n and s t a t e o r n a t i o n a l g o v e rn m e n t p o l i t i c s , few a t t e m p t s h a v e b e e n m ade t o l o o k c l o s e l y a t p o l i t i c a l - c o l l e g i a t e i n t e r r e l a t i o n s h i p s . Moos and R o u r k e 's The Campus a n d t h e S t a t e ^ p r e s e n t s p e r h a p s t h e b e s t e f f o r t t o d a t e t o e x a - ^ S e e f o r e x a m p le , P a u l A p p le b y , P o l i c y a n d Adm in i s t r a t i o n ( U n i v e r s i t y , A la b am a: U n i v e r s i t y o f A labam a P r e s s , 194-9). ^ O t t o F e i n s t e i n , e t a l , "E c o n o m ic s o f H ig h e r E d u c a t i o n : Q u a l i t y and P e r s o n a l i s m , " d r a f t m a n u s c r i p t o f s t u d y f o r t h e D a n f o r th F o u n d a t i o n , 1 9 6 7 , p . V I - 1 . ^ ( B a l t i m o r e , M a r y la n d : J o h n s H o p k in s U n i v e r s i t y P r e s s , 1 9 5 9 )* 32 m ine t h e ways i n w h ic h s t a t e h i g h e r e d u c a t i o n i n s t i t u t i o n s r e l a t e t o t h e i r g o v e rn m e n ts , e s p e c i a l l y i n r e s p e c t t o b u d g e t a r y m a t t e r s . The f e d e r a l in v o lv e m e n t i n h i g h e r e d u c a t i o n i s e x p lo r e d i n w orks s u c h a s t h a t o f B a b b id g e 36 a n d R o s e n z w e ig . H o w ev er, new d e v e lo p m e n ts su c h a s t h e H ig h e r E d u c a ti o n F a c i l i t i e s A ct o f 1963 a n d t h e H ig h e r 37 E d u c a t i o n A c t o f 1963 e n a c te d s i n c e p r e p a r a t i o n o f t h a t w o rk h a v e ch an g ed , t h e f e d e r a l in v o lv e m e n t c o n s i d e r a b l y , an d p r e s u m a b ly s u g g e s t new i m p l i c a t i o n s f o r p u b l i c p o l i c y . C o n fe re n c e p r o c e e d i n g s h a v e on o c c a s i o n p ro d u c e d s i g n i f i c a n t c o n t r i b u t i o n s to t h e u n d e r s t a n d i n g o f h i g h e r e d u c a t i o n r e l a t i o n s h i p s w ith s t a t e g o v e rn m e n t. The W e s te r n I n t e r s t a t e Commis s i o n f o r E d u c a t i o n 's c o n f e r e n c e o f summer 1 9 6 6 i n c l u d e d s e v e r a l p a p e r s o f n o t e i n t h i s 38 c o n n e c t i o n . S i m i l a r l y t h e A m e ric a n C o u n c il on E d u ca t i o n m e e tin g o f 1964- r e s u l t e d i n a u s e f u l w o rk h o l d i n g some r e l e v a n c e t o t h e s u b j e c t o f p o l i t i c s a n d h i g h e r ^ H o rn e r D. B a b b id g e , J r . , a n d R o b e r t M. R o se n z w eig , The F e d e r a l I n t e r n s t i n H ig h e r E d u c a ti o n (New Y ork : M cG raw -H ill C o ., I n c . , 1 9 6 2 ). 57P .L . 88-204-, 20 U .S .C . 7 0 1 ; P .L . 8 9 ~ 3 2 9 , 20 U .S .C . 1 00 1. ^®See W. Jo h n W in t e r , e d . , Campus a n d C a p i t o l ; H ig h e r E d u c a ti o n and t h e S t a t e ( B o u l d e r , C o lo r a d o : The noTnmi a a i o n , November l 9 6 6 ). C)f p a r t i c u l a r v a l u e a r e t h e p r e s e n t a t i o n s o f Lyman A. G le n n y , S a m u el B. G ould a n d T .R . M cC o n n ell. 33 39 e d u c a t i o n . ' A w ork s p e c i f i c a l l y w i t h i n t h e d i s c i p l i n e o f p o l i t i c a l s c i e n c e and a l s o o f r e l e v a n c e t o t h e p r e s e n t s t u d y i s R o b e r t B e r d a h l 's s t u d y , B r i t i s h U n i v e r s i t i e s and 40 t h e S t a t e . The c o l l e g i a t e c o n t e x t h a s b e e n em ployed t o a l i m i t e d e x t e n t i n c a s e s t u d i e s p r e p a r e d b y p o l i t i c a l s c i e n t i s t s . H a l p e r i n , f o r e x a m p le , h a s d e s c r i b e d e v e n t s r e l a t i n g t o Wayne S t a t e U n i v e r s i t y 's p o s s i b l e m e rg e r w i t h t h e U n i v e r s i t y o f M ic h ig a n i n 1 9 5 9 -1 9 6 0 a n d t h e im p a c t t h a t t h i s p r o p o s a l h a d u p o n M ic h ig a n p o l i t i c s . The f a c t t h a t t h e g o v e r n in g b o a r d s c o n c e rn e d w e re e l e c t i v e o n a p a r t i s a n b a s i s made t h i s c a s e a n i n t e r e s t i n g 4 1 one* I n sum m ary, t h e l i t e r a t u r e o f t h e " p o l i t i c s o f h i g h e r e d u c a t i o n " i s m o st l i m i t e d . H ow ever, t h e l i t e r a t u r e s p e c i f i c a l l y c o n c e r n in g t h e c o o r d i n a t i o n a n d g o v e rn a n c e a s p e c t s o f h i g h e r e d u c a t i o n w h ic h h a v e v a r y i n g e m p h a se s u p o n p o l i t i c a l r e l a t i o n s h i p s i s r a t h e r m ore 39 ^ L og an W ils o n , e d . , E m erg in g P a t t e r n s i n A m e ric a n H ig h e r E d u c a ti o n (W a s h in g to n , B .C . : A m erican C o u n c il- i n E d u c a t i o n , 19& 5). 40 U n i v e r s i t y o f C a l i f o r n i a P u b l i c a t i o n s i n P o l i t i c a l S c i e n c e , V o l. V I I , ( B e r k e l e y an d L os A n g e le s : U n i v e r s i t y o f C a l i f o r n i a P r e s s , 1 9 5 9 ). 41 Sam ual H a l p e r i n , The S t a t e U n i v e r s i t y i n t h e Web o f P o l i t i c s . E a g l e t o n I n s t i t u t e C ase S t u d i e s i n P r a c t i c a l . P o l i t i c s (New Y o rk : H o l t , R i n e h a r t , W in s to n , I960). 54 e x t e n s i v e a t t h e p r e s e n t t i m e . T h is p r e s e n t s t u d y i s , o f c o u r s e , m o st i n t i m a t e l y a p a r t o f t h i s b o d y o f r e s e a r c h . The S tu d y As One Of C o o r d i n a t i o n Of H ig h e r E d u c a ti o n The c o n c e r n s o f t h e s t u d e n t o f p o l i t i c s an d p u b l i c a d m i n i s t r a t i o n a r e m erg ed w i t h t h o s e o f t h e e d u c a t i o n a l a d m i n i s t r a t o r w i t h i n m o st o f t h e l i t e r a t u r e c o n c e r n i n g 4. p t h e c o o r d i n a t i o n an d g o v e rn a n c e o f h i g h e r e d u c a t i o n . As t h i s i n v e s t i g a t i o n e x a m in e s t h e p o l i t i c a l p r o c e s s e s an d p r o c e d u r e s o f c o o r d i n a t i o n o f h i g h e r e d u c a t i o n i n t h e s t a t e s , i t m u st h e c o n s i d e r e d a s p a r t o f t h o s e s t u d i e s c o n c e r n i n g p r o b le m s o f c o o r d i n a t i o n , c a s e s t u d i e s o f s t a t e w i d e c o o r d i n a t i n g a g e n c i e s , an d s u r v e y s o f c o o r d i n a t i o n f o r m s . B u t a s t h i s s t u d y e m p h a s iz e s t h e r e l a t i o n s h i p s w i t h s t a t e g o v e rn m e n t, i t m u st l i k e w i s e d e -e m p h a s iz e c o n c e r n w i t h i n t e r n a l a d m i n i s t r a t i v e c o n c e r n s o f t h e c o o r d i n a t i n g a g e n c i e s and t h e g e n e r a l s u b j e c t o f t h e c o o r d i n a t i n g a g e n c y v i s - a - v i s t h e e d u c a t i o n a l i n s t i t u t i o n s g o v e rn e d an d c o o r d i n a t e d . The b r i e f d i s c u s s i o n o f t h e l i t e r a t u r e b e lo w r e f l e c t s t h i s o r i e n t a t i o n . G o v e rn a n c e i n t h i s c o n t e x t i s n o t m ean t t o i n c l u d e c o n c e r n s a b o u t t h e d a y - t o - d a y o p e r a t i o n an d a d m i n i s t r a t i o n o f s p e c i f i c i n s t i t u t i o n s o f h i g h e r e d u c a t i o n b u t r a t h e r s t a t e w i d e (a n d s y s te m w id e ) c o n c e r n s . T h u s, t h e e x t e n s i v e l i t e r a t u r e o f h i g h e r e d u c a t i o n a d m i n i s t r a t i o n a s su c h i s n o t t r e a t e d h e r e i n . 35 The l i t e r a t u r e i n r e s p e c t t o t h e c o o r d i n a t i o n a n d g o v e rn a n c e o f h i g h e r e d u c a t i o n may h e g e n e r a l l y d i v i d e d i n t o t h r e e c a t e g o r i e s : s t u d i e s w h ic h i n v e n t o r y and c a t a l o g u e t h e fo rm s o f c o o r d i n a t i o n ( a n d g o v e r n a n c e ) i n t h e s t a t e s ; i n v e s t i g a t i o n s o f v a r y i n g s c o p e f o c u s i n g u p o n t h e p r o c e s s o f p l a n n i n g f o r t h e d e v e lo p m e n t o f h i g h e r e d u c a t i o n w h ic h may i n c l u d e c o n s i d e r a t i o n o f t h e f u n c t i o n s p l a y e d b y t h e c o o r d i n a t i n g a g e n c y i n t h a t p r o c e s s , a n d f i n a l l y , p r o j e c t s , g e n e r a l l y i n d i s s e r t a t i o n f o rm , w h ic h e x am in e t h e w o r k in g s an d p r o b le m s o f s p e c i f i c s t a t e a g e n c i e s o r m e c h a n ism s d e d i c a t e d t o c o o r d i n a t i o n f u n c t i o n s f o r h i g h e r e d u c a t i o n . (A f o u r t h g r o u p in g m ig h t a l s o b e p r o p o s e d : t h o s e s t u d i e s c o n d u c t e d i n t h e s t a t e s w h ic h h a v e l e d t o t h e e s t a b l i s h m e n t o f t h e c o o r d i n a t i n g a g e n c y o r r e d i f i n i t i o n s o f e x i s t i n g a g e n c y f u n c t i o n s . T h e se a r e g e n e r a l l y t h e s t a t e s ' " m a s t e r p l a n s " f o r h i g h e r 4 - -5 \ e d u c a t i o n . ■') C o o r d i n a t i o n M echanism s a n d T h e i r G e n e r a l P r o b l e m s . Lyman G l e n n y 's w o rk , A utonom y o f P u b l i c C o l l e g e s : The 4 4 C h a ll e n g e o f C o o r d i n a t i o n r e m a in s t h e b e s t b a s i c w o rk 4-3 ^ F o r a r e c e n t l i s t i n g o f s u c h s t u d i e s s e e M yron F r a n k P o l l a c k , " S t a t e S u r v e y s o f H ig h e r E d u c a t i o n a n d R e s u l t a n t A c t i o n : D i s c e r n i b l e P a t t e r n s a n d R e l a t i o n s h i p s " . ( U n p u b lis h e d d i s s e r t a t i o n , S t a n f o r d U n i v e r s i t y , 1 9 6 5 ) . ^ ( H e w Y o rk : M c G ra w -H ill Book Com pany, I n c . , 1959). 36 d i s c u s s i n g t h e d i f f e r e n t fo rm s a n d a p p r o a c h e s t o c o o r d i n a t i o n . As w e ll a s i n v e n t o r y i n g c o o r d i n a t i o n e x p e r i e n c e , i t s u g g e s t s a n um ber o f p ro b le m s i n c o o r d i n a t i o n an d m akes r e c o m m e n d a tio n s . The 1966 s u r v e y o f t h e P u b l i c A f f a i r s R e s e a r c h C o u n c il o f L o u i s i a n a , I n c . , i s a u s e f u l s u p p l e m en t t o t h e G le n n y b o o k i n t h a t i t p r o v i d e s r e c e n t d a t a o n h i g h e r e d u c a t i o n a g e n c y o p e r a t i o n s , f u n c t i o n s , b o a r d 4 6 c o m p o s i t i o n , s t a f f i n g a n d b u d g e t s . S t i l l a n o t h e r u s e f u l a d j u n c t t o t h e G le n n y b o o k i s Jam es G. P a l t r i d g e ' s m onograph w h ic h s e e k s to c l a s s i f y i n g r e a t e r d e t a i l t h a n i s done e l s e w h e r e , t h e o r g a n i z a - 47 t i o n a l fo rm s f o r s t a t e w i d e c o o r d i n a t i n g b o d i e s . 1 The f o r th c o m in g r e p o r t o f t h e A m erican C o u n c il on E d u c a t i o n 's s t u d y o f S t a te w i d e S y s te m s o f H ig h e r E d u c a - 48 t i o n p r e p a r e d b y R o b e rt 0 . B e r d a h l w i l l l i k e l y b e t h e 4 5 ■^Two o t h e r m a jo r s u r v e y s h a v e b e e n c o n d u c te d w h ic h s h o u ld b e n o t e d : C o u n c il o f S t a t e G o v e rn m e n ts, H ig h e r E d u c a ti o n i n t h e F o r t y - E i g h t S t a t e s (C h ic a g o , I l l i n o i s : The C o u n c il , 1 9 $ £ ) and S . v . M a r to r a n a , and E r n e s t V. H o l l i s , S t a t e B o a rd s R e s p o n s ib le f o r H ig h e r E d u c a t i o n , U .S . O f f i c e o f E d u c a tio n C i r c u l a r , F o . 619 (W a s h in g to n , D .C .: G overnm ent P r i n t i n g O f f i c e , 1 9 6 2 ). 4 6 C o o r d i n a t i o n a n d P l a n n i n g . L o u i s i a n a H ig h e r E du- (B a to n R ou ge, L a . : The C o u n c i l , S e p te m b e r i s s t u d y i s o f t e n m e n tio n e d a s t h e " P l i n e r S t u d y " . P e r i o d i c u p - d a t i n g s o f n a t i o n a l d a t a may b e e x p e c t e d fro m o t h e r g r o u p s , p o s s i b l y i n c l u d i n g t h e U .S . O f f i c e o f E d u c a ti o n . O r g a n i z a t i o n a l Form s W hich C h a r a c t e r i z e S t a t e w id e C o o r d i n a t i o n o f P u b l i c H ig h e r E d u c a tio jf ( B e r k e l e y , C a l i f o r n i a : U n i v e r s i t y o f C a l i f o r n i a , C e n te r f o r R e s e a r c h an d D e v elo p m en t -i n H ig h e r E d u c a t i o n ) , J u n e 1 9 6 9 . (M imeo) 37 m o st e x t e n s i v e e f f o r t s i n c e G l e n n y 's i n v e s t i g a t i o n . I n a d d i t i o n t o G le n n y , a n u m b er o f p e r s o n s h a v e p r o v i d e d i n s i g h t s i n t o t h e g e n e r a l c o n c e p t o f c o o r d i n a t i o n o f h i g h e r e d u c a t i o n th o u g h g e n e r a l l y w i t h l i m i t e d e m p h a s is u p o n c o o r d i n a t i o n i n t h e p o l i t i c a l m i l i e u . T .R . M cC o n n ell h a s b e e n p e r h a p s t h e m o st i n f l u e n t i a l among s t u d e n t s o f h i g h e r e d u c a t i o n . H is t h o u g h t i n r e c e n t y e a r s h a s te n d e d aw ay fro m a f a v o r i n g o f v o l u n t a r y c o o r d i n a t i o n fo rm s t o a r e c o g n i t i o n o f t h e n e c e s s i t y f o r 4 .9 f o r m a l , s t a t u t o r y a g e n c i e s . ' H is p o s i t i o n i s now s i m i l a r t o G l e n n y 's c o n c e r n i n g t h e c e n t r a l r e s p o n s i b i l i t i e s t o b e a s s i g n e d t h e c o o r d i n a t i n g a g e n c y . ( I n M c C o n n e ll's v ie w t h e c o o r d i n a t i n g a g e n c y w i t h l a r g e l y a d v i s o r y f u n c t i o n s — a s i n t h e c a s e o f C a l i f o r n i a — w o u ld b e c l a s s i f i e d a s " v o l u n t a r y " . ^ 0 The m ore common v ie w o f t h e " v o l u n t a r y " 48 " G u i d e l i n e s f o r R e s e a r c h o n S t a t e w i d e S y s te m s o f H i g h e r E d u c a t i o n ( W a s h in g to n ? D . C . : A m e ric a n C o u n c il on E d u c a t i o n , J a n u a r y 1 9 6 7 ) . (M im eo) The r e p o r t i s p l a n n e d f o r p u b l i c a t i o n i n Summer 1 9 6 8 . 49 S ee e s p e c i a l l y , A G e n e r a l P a t t e r n f o r A m e ric a n P u b l i c H ig h e r E d u c a ti o n (New Y o rk : M c G ra w -H ill B ook Co. , 1 9 6 2 ) . I n h i s p r e s e n t a t i o n a t t h e A m e ric a n C o u n c il o n E d u c a t i o n 's a n n u a l m e e tin g i n 1 9 6 4 , M c C o n n e ll a n n o u n c e d h i s c o n c l u s i o n t h a t v o l u n t a r y m e th o d s o f c o o r d i n a t i o n w e re l i k e l y t o b e i n e f f e c t i v e . T h is m a rk e d a r e v e r s a l o f p o s i t i o n fro m t h a t s t a t e d i n h i s 1 9 6 2 b o o k . S e e , "T he C o o r d i n a t i o n o f S t a t e S y s te m s o f H ig h e r E d u c a t i o n , " i n L o g an W ils o n , e d . , A utonom y an d I n t e r d e p e n d e n c e —-E m e rg in g S y s te m s i n H ig h e r E d u c a ti o n ( W a s h in g to n . D .C .; A m e ric a n C o u n c il on E d u c a t i o n , 1 9 6 4 J , p p . 1 2 9 - 4 1 . ^ M c C o n n e l l , A G e n e r a l P a t t e r n . . . , p p . 1 4 4 - 6 2 . 38 a g e n c y , h o w e v e r, i s t h e n o n - s t a t u t o r y a s s o c i a t i o n o f c o l l e g e s b r o u g h t a b o u t b y t h e i r own i n i t i a t i v e . M.M. C ham bers i s g e n e r a l l y r e c o g n i z e d a s t h e p r i m a r y e x p o n e n t 51 o f t h e v a l u e s o f v o l u n t a r y a c t i o n . Moos and E o u rk e i n t h e i r g e n e r a l c o n s i d e r a t i o n o f t h e r e l a t i o n s h i p s o f h i g h e r e d u c a t i o n and s t a t e g o v e rn m e n t r e v i e w t h e m e r i t s o f c o o r d i n a t i o n i n r e s p e c t t o t h e 52 i l l s i t i s s u p p o s e d t o c u r e . A num ber o f o t h e r a r t i c l e s a r e u s e f u l f o r p e r s p e c t i v e , th o u g h few add s i g n i f i c a n t i n f o r m a t i o n c o n c e r n i n g t h e p o l i t i c a l a s p e c t s o f c o o r d i n a t i o n . ^ P l a n n i n g an d C o o r d i n a t i o n . C o n s i d e r a t i o n o f t h e s u b j e c t o f s t a t e w i d e p l a n n i n g f o r h i g h e r e d u c a t i o n n e c e s s a r i l y h a s i n v o l v e d s t a t e w i d e a g e n c i e s f o r h i g h e r e d u c a t i o n and t h e i r r e s p o n s i b i l i t i e s , f u n c t i o n s and e f f e c t i v e n e s s i n r e s p e c t t o t h a t p l a n n i n g . S t u d i e s e x a m in in g v a r i o u s a s p e c t s o f t h e p l a n n i n g f u n c t i o n , t h e r e f o r e , sh e d some l i g h t u p o n t h e modus o p e r a n d i o f t h e h i g h e r e d u c a t i o n a g e n c y b o t h i n r e s p e c t t o t h e ^ S e e , V o l u n t a r y S t a te w i d e C o o r d i n a t i o n i n P u b l i c H ig h e r E d u c a ti o n (Ann A r b o r , M ic h ig a n : U n i v e r s i t y o f M ic h ig a n , 1 9 6 1 ) . ^ M o o s a n d E o u r k e , o p . c i t . , p p . 2 0 3 -2 2 6 . ^^T he a n n o t a t e d b i b l i o g r a p h y i n c l u d e d w i t h i n M i n t e r , o p . c i t . , p p . 1 2 1 -1 9 1 , i s a u s e f u l s o u r c e f o r r e v i e w i n g t h e m a jo r a r t i c l e s , b o o k s and r e p o r t s w h ic h b e a r u p o n c o o r d i n a t i o n , s t a t e w i d e p l a n n i n g and c o o r d i n a t i o n an d t h e f e d e r a l i n t e r e s t i n h i g h e r e d u c a t i o n . 39 c o l l e g e s and u n i v e r s i t i e s and i n r e s p e c t t o s t a t e g o v e r n m e n t. A s t u d y c o n d u c te d f o r t h e D a n f o r th F o u n d a tio n h a s c o n s i d e r e d w i t h i n t h e c o n t e x t o f t h e e c o n o m ic s o f h i g h e r e d u c a t i o n t h e p l a n n i n g s t r u c t u r e , t y p e s o f p l a n s d e v e lo p e d an d t h e p o l i t i c a l p r o c e s s e s w i t h i n w h ic h t h e p l a n i s a p p ro v e d . The p r o j e c t u n d e r t h e d i r e c t i o n o f E r n e s t G. P a l o l a o f t h e C e n te r f o r R e s e a r c h an d D e v elo p m en t i n H ig h e r E d u c a t i o n , U n i v e r s i t y o f C a l i f o r n i a a t B e r k e l e y , s h o u l d p r o v e u s e f u l i n c o n s i d e r i n g t h e im p a c t o f s t a t e w i d e p l a n n i n g on i n s t i t u t i o n s an d i n s u g g e s t i n g t h e r e s u l t i n g im ag e h e l d b y c o l l e g e p e r s o n n e l o f t h e s t a t e a g e n c y f o r 55 h i g h e r e d u c a t i o n b e c a u s e o f t h e p l a n s p r o p o s e d . x C l o s e l y l i n k e d t o t h e g e n e r a l s u b j e c t o f s t a t e w i d e p l a n n i n g a n d i t s c o n d u c t a r e c o n s i d e r a t i o n s to w a r d d e v e l opm ent o f c o m p re h e n s iv e i n f o r m a t i o n s y s te m s an d b u d g e t m ak in g f o r h i g h e r e d u c a t i o n , i n p a r t t o s e r v e t h e n e e d s o f s o p h i s t i c a t e d p ro g ra m and p e r f o r m a n c e b u d g e t i n g s y s - 54 ^ F e i n s t e i n , o p . c i t . -^ T h e s t u d y s e e k s t o d e t e r m i n e , i n p a r t , "W hat a r e t h e c o n s e q u e n c e s o f s t a t e w i d e p l a n n i n g f o r i n d i v i d u a l i n s t i t u t i o n s , an d how do t h e s e c o n s e q u e n c e s v a r y b y t h e t y p e o f i n s t i t u t i o n . . . ? A l s o , w h a t a p p e a r s t o b e t h e c o n s e q u e n c e s f o r i n d i v i d u a l i n s t i t u t i o n s o n t h e o t h e r ? " " S t a t e w i d e P l a n n i n g i n H ig h e r E d u c a ti o n : A S tu d y o f P la n n e d O r g a n i z a t i o n a l C hange" ( B e r k e l e y , C a l i f o r n i a : U n i v e r s i t y o f C a l i f o r n i a C e n te r f o r r e s e a r c h an d D e v e lo p m en t i n H ig h e r E d u c a ti o n , J a n u a r y 1 0 , 1 9 6 7 ) , p . 2 . (M im eo g rap h ed ) 40 tem s (P P B S ). The p e r f o r m a n c e s o f t h e h i g h e r e d u c a t i o n a g e n c y i n t h e b u d g e t-m a k in g p r o c e s s s h o u ld b e n o t e d . P i n a l l y , i n d i v i d u a l s t a t e " m a s t e r p l a n s " a r e s u g g e s t i v e i n te r m s o f c o n s i d e r a t i o n g i v e n t o h i g h e r e d u c a t i o n a g e n c i e s , and t h e w ays i n w h ic h t h e y a r e to o p e r a t e . S t u d i e s o f I n d i v i d u a l S t a t e H ig h e r E d u c a tio n A g e n c i e s . To d a t e , s e v e r a l s t u d i e s h a v e b e e n p e rfo r m e d c o n c e r n i n g t h e h i s t o r y an d p e r f o r m a n c e o f i n d i v i d u a l s t a t e h i g h e r e d u c a t i o n a g e n c i e s o r c o o r d i n a t i o n m echan is m s . S t u d i e s h a v e b e e n c o n d u c te d o n c e r t a i n a s p e c t s o f t h e C a l i f o r n i a C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a ti o n , t h e K e n tu c k y C o u n c il on P u b l i c H ig h e r E d u c a t i o n , t h e I l l i n o i s B o ard o f H ig h e r E d u c a t i o n , t h e New M exico B o a rd o f E d u c a t i o n a l F i n a n c e , v o l u n t a r y c o o r d i n a t i o n i n 56 C o lo r a d o , and t h e P e n n s y l v a n i a C o u n c il on E d u c a ti o n . A l l o f t h e above i n v e s t i g a t i o n s h a v e s t r e s s e d a s p e c t s o f a n i n t e r n a l , a d m i n i s t r a t i v e n a t u r e a n d / o r t h e r e l a t i o n s h i p s o f t h e a g e n c y o r m ech an ism i n r e s p e c t t o ^ ^ F ra n k C. A b b o tt, G overnm ent P o l i c y a n d H ig h e r E d u c a t i o n , A S tu d y o f t h e R e g e n ts o f t h e S t a t e o f New Y o rk , 1 7 6 4 -1 9 4 9 ( i t h 'a c a , New Y o rk : C o r n e l l U n i v e r s i t y t r e s s 1 9 5 8 } , i n some r e s p e c t s c o u ld b e c i t e d a s a New Y ork s t u d y . The b o o k p o i n t s up r e a s o n s why t h e New Y o rk B o a rd o f R e g e n ts t o 1949 h a d f a i l e d t o a c t a s a p l a n n i n g a g e n c y f o r New Y o rk h i g h e r e d u c a t i o n . 41 higher education institutions coordinated and governed. Little emphasis is placed upon relationships, problems or procedures within the political milieu of state government, though some include passing mention of legislative or exe cutive reactions toward the agencies under study. Each study is descriptive in nature, drawing upon historical records such as board minutes, and upon discussions with "panels of experts", including in some instances political leaders. Some mention of certain of these studies is warrant ed in order to point up their significant findings which may be validated within this study, as well as to provide background for the specific questions to which this study is addressed. New Mexico: The experience of the New Mexico Board of Educational Finance (BEF) from 1951-65 was reviewed by Lavender.^ Within this history the author sought to inquire into the actions of the New Mexico agency as it "encroached upon the traditional prerogative of boards of regents and institutional officials, and to make judgment concerning a desirable balance between the powers of both groups."-*® The study thus stresses relationships between -^Harold Wade Lavender, "The New Mexico Board of Educational Finance: A Study in the Control of Higher Edu cation" (unpublished dissertation, The University of New Mexico, 1965). 58Ibld.. p. 5. 4 2 the agency and the higher education constituency. With its power over funds for higher education, the New Mexico Board, Lavender found, generally experienced better relationships with the legislative-executive than with the institutions. Not since 1953 has there been a serious proposal in the legislature to eliminate the agency, and in spite of occasional memorials to the BEF on specific subjects, legislators have mostly shown approval of its actions. Governors, on occasion, have raised embarrassing questions; but they, too, have mostly appreciated the coordinating efforts of the Board and have given it outstanding support.59 A reading of the study would suggest that the favorable relationships are the result of the functions assigned the board by Governor and Legislature. The extent to which the New Mexico Board and its staff may work toward encouraging those favorable relationships or the ways in which they operate within the political arena are not detailed. Colorado: A recent examination of the voluntary Association of State Institutions of Higher Education in Colorado, disclosed that the group was not generally recog nized as a policy-making and decision-making force.The author found that the Colorado coordination system as it then existed was operating almost entirely on the basis of pressures and forces exerted by the Colorado legislature via 59ibid.. p. 129. 6°Keith Lyle Scott, ’ ’ Voluntary Coordination of State Higher Education in Colorado: A Case Study" (unpublished dissertation. University of Colorado, 1964). legislative committees. Also noted was the emergence of the Office of Governor as a force in Colorado higher edu cation. Colorado has since adopted a coordinating board on higher education with substantial authority. Kentucky: One investigator has recently completed a consideration of the Kentucky Council on Public Higher Education seen as the point or "interface where the two worlds of politics and higher education meet, mesh, and clash."^1 The study hypothesized that the Kentucky Coun cil, before it was changed in structure in 1966, had not developed a two-way street of political responsiveness. The conclusion was that rather, the agency was too poli tical*^2 While the study reviews a number of problems between higher education institutions and Kentucky state government, it does not develop the specific reasons for the conclusion reached. Probably the reason is that the author viewed some institutional representatives on the board as political powers In that their appointments had political overtones.^ Elsewhere White stated: ^Charles H. White, "The Kentucky Council on Public Higher Education: Analysis of a Change in Structure" (dissertation published by The Ohio state University, 1967). 62Ibld. . pp. 2-3. 63Ibid., p. 170. The Council of Public Higher Education was changed from a board dominated by college presi dents to a board of laymen, because the Governor desired that it be changed. With a strong Gover nor state such as Kentucky, the Governor is much more exposed and more subject to pressures through a raw system of bargaining. Such pressures and bargaining are beneath the dignity of higher edu cation, and the public is entitled to more pro fessional ism.64 Illinois: The Illinois Board of Higher Education has been reviewed by Marsh in a dissertation only recently completed.^ The Illinois board is assigned a number of control responsibilities in the general areas of finance and program approval and is recognized by McConnell as representative of perhaps the most desirable statewide 66 coordinating arrangement. The organization and functions of the Illinois Board are also much as those preferred by 6 7 Glenny. r Marsh’s consideration of the Illinois Board takes a largely historical-descriptive approach, drawing infer ences and conclusions as indicated. Among his conclusions is one stating that the Illinois agency has enjoyed the Ah. Ibid., pp. 171-172, The observation seems rather overstated. ^^Owen Robert Marsh, "Coordination of State Higher Education In Illinois: A Case Study" (unpublished disser tation, Illinois State University., 1967) • ^McConnell, "The Coordination of State Systems...", in Wilson, 0P0 cit.. p. 139. ^Glenny, Autonomy. . .. pp. 263-267. Glenny is now director of the Illinois agency though he Joined it following its reconstitution in its present form. ^5 good will of the Governor and the Illinois General Assem- bly* The reasons for the apparent good will are not expressly considered within the Marsh study* Marsh does report that two persons Interviewed by him noted that the Illinois Board has been of value to the Governor in that it was an agency which could provide advice on budgetary matters other than his own budget office. He also states that one of his interviewees reported that the General Assembly members place their reliance on some six members on higher education matters* "If these half dozen legis ts lators believe a bill should be passed it will be passed.'^7 From this it may be suggested that if the Board performs to the satisfaction of the legislators who have taken on the "expert" role in respect to higher education matters, then the good will of which Marsh speaks will be maintained# California: Important to this present study is the recent investigation of James G. Paltridge which consider ed certain aspects of the California Coordinating Council 70 for Higher Education*f His study, first prepared as a dissertation, sought to analyze the major changes in the 6 8I b i d *. p . 2 0 9 o 6 9I b l d * . p . 1 8 8 . ^California's Coordinating Council for Higher Education. A Study of Organizational Growth and Change (Berkeley, California: University of California, Center for Research and Development in Higher Education, 1 9 6 6 ) • organizational form and operating procedures of the Cali fornia agency from the time of its establishment in order to identify the reasons for the changes and the forces 71 causing them. The study therefore concentrates on inter nal organization in order to suggest guidelines for other coordinating agencies. In contrast, this present effort seeks to look externally toward the political milieu in which the agency operates. In some respects the material following supplements that presented by Paltrldge and serves to contribute toward presenting a more complete view of the California Coordinating agency In all of Its aspects. (The remaining area for detailed study concern ing the California agency is a consideration of the ways in which the agency relates to the educational segments coordinated. In part, the Palola study will be contribu tory.) Of particular Interest are Paltridge's identifica tion of the events which produced the most visible changes in the relationships of the Council and the legislative- executive. He found significant: (a) The legislature's reaffirmation of its intent to authorize new campuses only upon the advice of the Council; (b) the move of the Council office to Sacra mento; (c) the new orientation of staff work, and to some extent Council committee work, to relationships 71Ibld., p. 5. 47 with state government. Implications of possible changed relationships in this area are seen in (d) the addition of more public representation on the Council and (e) the administration of federal programs, which gives the institutions a major funding source large independent of legislative direction.72 In part, certain of the questions asked by this writer in the course of interviews for this study were designed to assess the importance of these "events" to the activi ties and relationships of the California agency and State 73 government • ' Examination of state higher education agencies from a number of different perspectives may be anticipated to continue. If, however, the studies are similar to those prepared In the past they will emphasize aspects of the agency's functions and purposes in relation to the higher education community. The process through which the agency Is able to perform those functions will be considered again primarily in respect to the impacts upon higher education. 7 2Ibid.. p. 143. ^Additional perspective on the California agency may be found from Glenny, Autonomy. . .. passim and Mc Connell, A General Pattern# . .. p p. 14-7-162; two articles by T. C. Holy former consultant to the California Council, "California's Master Plan for Higher Education, 1960-1975," Journal of Higher Education. XXXII (January 1961), 9-16. and "The Coordinating Council for Higher Education in Cali fornia," Journal of Higher Education. XXXV (June 1964-), pp. 313-321; and from A Master Plan for Higher Education in California. 1960-1975. (Sacramento; State Department of Education, i960), pp. 27-44. The need to consider the political context within which the agency operates and the processes by which it secures the support of state government seems in need of examination. The remarks of Harold Enarson, some years ago, in his review of the Glenny work and that of Abbott concerning the New York Regents seems to continue to apply to the approach of much of the existing literature: One wonders what evidence there is for the notion that august men, far removed from popular control and safely detached from the reach of Governor and legis lature, can provide the bold and responsible leader ship needed to meet growing educational demands. Both Glenny and Abbott are unduly preoccupied with the mechanics of government in higher education. The •politics' of campus-state relationships live only in the shadows in both books. Yet in politics is precisely where substance dwells.7^ ^"The Campus, The State and The Nation," Public Administration Review XX (Spring i960), p. 108. : Glenny's recent articles and speeches have given considerable em phasis to the political and thus the criticism of Glenny would not apply so much today. CHAPTER I I I THE HIGHER EDUCATION AGENCY WITHIN STATE GOVERNMENT A c o n s i d e r a t i o n o f t h e p o l i t i c a l a s p e c t s o f c o o r d i n a t i o n o f h i g h e r e d u c a t i o n i s e s s e n t i a l l y f o c u s e d u p o n t h e a g e n c y f o r t h a t c o o r d i n a t i o n a n d t h e p r o c e s s e s h y w h ic h t h e a g e n c y o p e r a t e s w i t h i n g o v e rn m e n t, s p e c i f i c a l l y t h a t o f t h e i n d i v i d u a l s t a t e s . To d e v e lo p a p e r s p e c t i v e i t i s f i r s t n e c e s s a r y t o c o n s i d e r t h e fo rm o f t h a t a g e n c y : t h i s fo rm i s t o a g r e a t e x t e n t r o o t e d w i t h i n t h e r e a s o n s n e c e s s i t a t i n g t h e p e rf o r m a n c e o f t h e c o o r d i n a t i o n f u n c t i o n . A gency Eorms The a s s u m p tio n t h a t " a n i d e a l a d m i n i s t r a t i v e m odel f o r s t a t e c o o r d i n a t i o n o f h i g h e r e d u c a t i o n i s n o t now know n"'1 ' seem s a s v a l i d t o d a y a s i t was t e n y e a r s ago when G le n n y p r e p a r e d h i s b a s i c s u r v e y w o rk . T r a d i t i o n a l l y l e g i s l a t u r e s h a v e d e l e g a t e d t h e o p e r a t i o n o f p u b l i c s c h o o ls t o b o a r d s o r p a n e l s o f i n d i v i d u a l s — g e n e r a l l y l a y p e r s o n s . T h is p a t t e r n i s a l s o ^"Lyman A. G le n n y , Autonom y o f P u b l i c C o l l e g e s : The C h a lle n g e o f C o o r d i n a t i o n (New "York: M cG raw -H ill Book Company, I n c . , 1 9 5 9 ) , p . 6 . ^9 50 t y p i c a l l y found, f o r p u b l i c c o l l e g e s an d u n i v e r s i t i e s . The b o a r d c o n c e p t h a s a l s o b e e n e x te n d e d t o o v e r s e e i n g t h e i n t e r a c t i o n among o r c o o r d i n a t i o n o f i n s t i t u t i o n s o f h i g h e r e d u c a t i o n e s p e c i a l l y t h o s e s u p p o r t e d b y t h e p u b l i c f i s c , b u t w i t h a num ber o f o r g a n i z a t i o n a l fo rm s a n d f u n c t i o n s b e i n g e m p lo y e d . T h ese fo r m s and f u n c t i o n s h a v e n e c e s s i t a t e d t h a t t y p o l o g i e s b e d e v e lo p e d t o c l a s s i f y t h e v a r i o u s k i n d s o f 2 s t a t e h i g h e r e d u c a t i o n a g e n c i e s . The s i m p l e s t a n d m o st r e c e n t i s t h a t d e v e lo p e d b y B e r d a h l f o r h i s s u r v e y s p o n s o r e d b y t h e A m e ric a n C o u n c il on E d u c a t i o n . H is c l a s s i f i c a t i o n , som ew hat a m p l i f i e d , i s a s f o l l o w s : I . C o n s o l i d a t e d G o v e rn in g B o a rd ( i m p l i c i t o r e x p l i c i t c o o r d i n a t i o n f u n c t i o n s ) S t a t e s : A l a s k a , A r i z o n a , F l o r i d a , I d a h o , K a n s a s , G e o r g ia , Io w a , M i s s i s s i p p i , M o n ta n a , N e v a d a , N o r th D a k o ta , O re g o n , Rhode I s l a n d , a n d S o u th D a k o ta ( F o u r t e e n S t a t e s ) O S e e , f o r e x a m p le , Ja m es P a l t r i d g e , " O r g a n i z a t i o n a l F orm s W hich C h a r a c t e r i z e S t a t e w i d e C o o r d i n a t i o n o f P u b l i c H ig h e r E d u c a tio n " ( B e r k e l e y : U n i v e r s i t y o f C a l i f o r n i a , C e n t e r f o r R e s e a r c h an d D e v e lo p m e n t i n H ig h e r E d u c a t i o n , J u n e 1 9 6 5 ) . ( m im e o .) ; a n d P u b l i c A f f a i r s R e s e a r c h C o u n c il f o r L o u i s i a n a , I n c . , C o o r d i n a t i o n and. P l a n n i n g L o u i s i a n a H ig h e r E d u c a t i o n , 5 ( B a to n R o u g e , L a . : The C o u n c i l , S e p te m b e r 1 9 6 6 ) , p p . 7 - 5 0 . E ach c l a s s i f i c a t i o n v a r i e s i n some r e s p e c t l e a d i n g t o p o t e n t i a l c o n f u s i o n . 51 I I . C o o r d i n a t i n g B o a rd ( a d v i s o r y , r e g u l a t o r y o r m ix e d 3 ) S t a t e s : A r k a n s a s , C a l i f o r n i a , C o lo r a d o , C o n n e c t i c u t , I l l i n o i s , K e n tu c k y , M a r y la n d , M a s s a c h u s e t t s , M in n e s o ta , M i s s o u r i , Hew H a m p s h ire , Hew J e r s e y , Hew M e x ic o , N o r t h C a r o l i n a , O h io , O klahom a, S o u t h C a r o l i n a , T e n n e s s e e , T e x a s , U ta h , V i r g i n i a , and W is c o n s in (T w e n ty -tw o S t a t e s ) I I I . S t a t e B o ard o f E d u c a t i o n ( P e r f o r m in g some c o o r d i n a t i o n f u n c t i o n s ) S t a t e s : M ic h ig a n , Hew Y o rk , a n d P e n n s y l v a n i a (T h re e S t a t e s ) IV . V o l u n t a r y ( n o n - s t a t u t o r y a s s o c i a t i o n ) S t a t e s : I n d i a n a , H e h r a s k a , a n d W a s h in g to n ( T h r e e S t a t e s ) Ho S t a t e H i g h e r E d u c a t i o n A g en cy S t a t e s : A la b a m a , D e la w a r e , H a w a ii, L o u i s i a n a , M a in e , V e rm o n t, W est V i r g i n i a , a n d Wyoming ( E i g h t S t a t e s ) Of p r i m a r y im p o r ta n c e i n t h i s s t u d y a r e t y p e s one a n d tw o , m o st p a r t i c u l a r l y t h e s e c o n d , t h e " c o o r d i n a t i n g b o a r d " fo rm . The e m p h a s is on t h e se c o n d fo rm i s d u e ^ F o r e x a m p le , t h e C a l i f o r n i a C o u n c il i s p r o p e r l y c l a s s e d a s a n " a d v i s o r y " b o a r d , h o w e v e r, i t i s a l s o a s s i g n e d t h e a d m i n i s t r a t i o n o f c e r t a i n f e d e r a l p r o g r a m s 52 f i r s t t o t h e f a c t t h a t t h i s s t u d y c o n c e n t r a t e s u p o n t h e e x p e r i e n c e o f t h e C a l i f o r n i a a g e n c y f o r h i g h e r e d u c a t i o n w h ic h i s o f t h e c o o r d i n a t i n g b o a r d v a r i e t y , and s e c o n d l y , b e c a u s e t h i s fo rm a p p e a r s t o b e t h e t r e n d o f t h e p r e s e n t . I n d e e d , a s i n g l e b o a r d o p e r a t i n g a l l p u b l i c i n s t i t u t i o n s h a s n o t b e e n e s t a b l i s h e d s i n c e 194-5} w h i l e a l l b u t t h r e e o f t h e c o o r d i n a t i n g b o a r d fo rm s h a v e b e e n c r e a t e d s i n c e 4 . 1 9 5 1 . I t may w e l l b e a s k e d a t t h i s p o i n t i f t h e s t a t u t o r i l y o r g a n i z e d b o a r d s a r e i n f a c t u n iq u e g o v e rn m e n ta l m ech an ism s and t h e r e b y d e s e r v e s p e c i a l c o n s i d e r a t i o n s b y t h o s e c o n c e rn e d i n p o l i t i c a l s c i e n c e a n d p u b l i c a d m in is t r a t i o n . (There i s l i t t l e t o i d e n t i f y t h e h i g h e r e d u c a t i o n c o o r d i n a t i o n m echan ism — b e i t " g o v e r n in g b o a r d ” o r " c o o r d i n a t i n g b o a r d " — a s b e i n g u n iq u e a s s u c h . Commis s i o n s an d b o a r d s h a v e t r a d i t i o n a l l y b e e n u s e d i n A m e ric an g o v e rn m e n t t o a d m i n i s t e r , r e g u l a t e o r a d v i s e on a n ad hoc o r p e rm a n e n t b a s i s . The r e g u l a t o r y b o a r d i s a g o v e rn m e n ta l m ech an ism fo u n d a t a l l l e v e l s , s t a t e , l o c a l and f e d e r a l , a n d i t i s l i k e l y t o p e r s i s t th o u g h e f f o r t s a t r e f o r m g e n e r a l l y a i d i n g h i g h e r e d u c a t i o n t h u s g i v i n g i t t h e s e m b la n c e , i n some r e s p e c t s , o f a r e g u l a t o r y a g e n c y . Zl P u b l i c A f f a i r s R e s e a r c h , o p . c i t . , p . 1 4 . 53 call for fewer such mechanisms. Among its claimed vir tues , the board enables the removal of political consid erations from regulation of such services as utilities and from such functions as planning. It may also provide the vehicle through which interests may be represented, formally or informally. The advisory board or commission is commonly found either created on an ad hoc basis to provide a particular kind of advice or established on a permanent basis to give advice on a continuing basis.^ Noting that little study has been reported concerning permanent advisory committees in the literature of public adminis tration, Pfiffner and Presthus suggest that two problems may be identified with such mechanisms: One is the difficulty of spelling out meaningful activities which would be advisory as distinct from administrative: the other is the problem of keeping board members interested when they are confined to giving advice only. It would seem that the lay ^See for example, Avery Leiserson, Administrative Regulations: A Study in Representation of Interests (Chicago: 'University of Chicago Press, 194-23. Leiserson observes: 11. . .The representative advisory committee is really a political device for keeping administration out of politics. Paradoxically, it works by keeping the pub lic agency in a close personal relationship with the groups who are in a position to help or to harm it by one political means or another...The committee rarely ~ functions as a self-generating mechanism. Its driving force usually emanates from the administration or from sources outside the committee." Ibid., pp. 187-188. 54 c i t i z e n i s o f t e n n o t c o n t e n t t o p l a y a p a s s i v e a d v i s o r y b o a r d s e i t h e r becom e r u b b e r sta m p s f o r d e c i s i o n s made b y a d m i n i s t r a t o r s o r d e v e lo p t h e i r own a r e a s o f e x t r a - l e g a l b u t g e n u in e d o m in a n ce and a u to n o m y .7 Though t h e u s e o f b o a r d s o r c o m m issio n s t o p e rf o r m r e g u l a t o r y o r a d v i s o r y t a s k s may n o t b e uncommon among A m e ric an g o v e rn m e n ta l m e c h a n ism s, w h a t may b e o f g r e a t e s t im p o r ta n c e i n c o n s i d e r i n g t h e h i g h e r e d u c a t i o n c o o r d i n a t i n g a g e n c y and i t s b o a r d i s t h a t i n many i n s t a n c e s r e s p o n s i b i l i t i e s a r e a m i x t u r e : a t o n c e a d v i s o r y , a d m i n i s - 8 t r a t i v e , a n d r e g u l a t o r y . T h is m ix m akes t h e s e a g e n c i e s , i f n o t u n i q u e , a t l e a s t e s p e c i a l l y w o r th y o f s t u d y i n t h e c o n t e x t o f s t a t e g o v e rn m e n t. Why C o o r d i n a t i o n o f H ig h e r E d u c a t i o n ? C o o r d i n a t i o n o f h i g h e r e d u c a t i o n i n s t i t u t i o n s i s b e i n g a tt e m p t e d i n some f o r t y - t w o s t a t e s ; i n t h i r t y - n i n e o f them b y a g e n c ie s w h ic h h a v e b e e n a u t h o r i z e d b y s t a t u t e 9 o r c o n s t i t u t i o n a l p r o v i s i o n . W h ile many o f t h e s e a g e n c i e s w e re o r i g i n a l l y e s t a b l i s h e d t o a d m i n i s t e r s p e c i f i c i n s t i t u t i o n s , i n c r e a s i n g l y , e v en t h e s e h a v e b e e n lo o k e d u p o n a s p e r f o r m i n g c o o r d i n a t i n g a s w e l l a s a d m i n i s t e r i n g ^ J o h n M. P f i f f n e r an d R o b e r t V. P r e s t h u s , P u b l i c A d m i n i s t r a t i o n (4-fc e d . , New Y o rk : The R o n a ld P r e s s CJo. , 1 9 w rp ^ a r: o I n d e e d , t h e c o n c e p t o f c o o r d i n a t i o n i t s e l f may d i c t a t e a m ix t u r e o f c h a r g e s . ^T he m o st r e c e n t , a v a i l a b l e l i s t i n g i s t h a t o f R o b e r t L . W il l ia m s , L e g a l B a se s o f C o o r d i n a t i n g B o a rd s f u n c t i o n s . F o r t h e moment b e g g in g t h e q u e s t i o n a s t o w h at may b e i m p l i e d b y t h e te r m " c o o r d i n a ti o n * 1, some n o t e m u st b e made o f t h e r e a s o n s f o r t h e d e v e lo p m e n t o f new c o o r d i n a t i o n m ec h an ism s and f o r t h e r e c o g n i t i o n o f c o o r d i n a t i n g r e s p o n s i b i l i t i e s o f c o n s o l i d a t e d g o v e r n in g b o a r d s o r , i n a t l e a s t t h r e e s t a t e s , t h e s t a t e d e p a r tm e n t o f e d u c a t i o n . The p r e s s u r e s w h ic h h a v e l e d t o i n c r e a s e d s t r e s s o n c o o r d i n a t i o n a r e s e v e r a l . F o r t h e m ost p a r t t h e y h a v e b e e n e x p r e s s e d b y l e g i s l a t u r e s an d s t a t e o f f i c i a l s a s t h e y h a v e becom e i n c r e a s i n g l y p r e s s e d t o t a k e m ore a c t i v e r o l e s i n h i g h e r e d u c a t i o n b e y o n d c u r s o r y r e v ie w a n d a p p r o v a l o f f i n a n c i a l r e q u e s t s fro m s t a t e - s u p p o r t e d c o l l e g e s and u n i v e r s i t i e s . T h ese p r e s s u r e s o r f a c t o r s i n c l u d e : ( 1 ) M arked i n c r e a s e s i n s t u d e n t e n r o l l m e n t s and c o n s e q u e n t dem ands f o r new f a c i l i t i e s , f a c u l t y an d o t h e r s u p p o r t i n g s e r v i c e . ( 2 ) I n c r e a s i n g c o m p le x ity o f h i g h e r e d u c a t i o n . ( 3 ) Demands f o r econom y an d p r o d u c t i v i t y i n h i g h e r e d u c a t i o n . ( 4 ) I n c r e a s i n g c o m p le x ity o f s t a t e g o v e rn m e n ts o f H ig h e r E d u c a ti o n i n T h i r t y - n i n e S t a t e s ( C h i c a g o : The C o u n c il o f S t a t e G o v e rn m e n ts, M id w e s te rn O f f i c e , S e p te m b e r 1 9 6 7 ) . 56 ( t h e c o o r d i n a t i o n and c o n s o l i d a t i o n o f p r o g ra m s i n s t a t e g o v e rn m e n t h a v e i n f l u e n c e d t h e o u t l o o k on h i g h e r e d u c a t i o n ) . ( 5 ) A v o id a n c e o f p o s s i b l e d u p l i c a t i o n o f p ro g ra m s a n d s e r v i c e s . ( 6 ) U n h e a l t h y c o m p e t i t i o n among i n s t i t u t i o n s . ( 7 ) F e d e r a l p ro g ra m s r e q u i r i n g a t t e n t i o n a t t h e s t a t e l e v e l . (8 ) R e c o g n i t i o n o f t h e r o l e p l a y e d b y h i g h e r e d u c a t i o n i n t h e econom y— h i g h e r e d u c a t i o n a s a k n o w le d g e i n d u s t r y . ( 9 ) I n c r e a s i n g c o s t s o f h i g h e r e d u c a t i o n n o t e x c l u s i v e l y r e l a t e d t o e n r o l l m e n t g r o w th . S t i m u lu s f o r c r e a t i o n o f c o o r d i n a t i o n m ec h an ism s a p p e a r s g e n e r a l l y t o h a v e o r i g i n a t e d o u t s i d e t h e h i g h e r e d u c a t i o n e s t a b l i s h m e n t i t s e l f . W here h i g h e r e d u c a t i o n h a s s p o n s o r e d ^ t h e c o o r d i n a t i n g a g e n c i e s i t may h a v e b e e n i n a n e f f o r t t o a v o id a n o t h e r , l e s s a c c e p t a b l e fo rm o f c o o r d i n a t i o n , o r i t may h a v e b e e n p r e s s u r e d i n t o t h e s p o n s o r s h i p o f s u c h a m e c h a n ism . F e i n s t e i n c o n c lu d e d fro m h i s r e v i e w o f s t a t e p l a n n i n g e f f o r t s w ith a t t e n t i o n t o c o o r d i n a t i o n m ec h an - ■ ^ F a c t o r s 1 -7 a r e b a s e d u p o n t h o s e i d e n t i f i e d b y Owen R o b e r t M a rsh a f t e r a s u r v e y o f t h e l i t e r a t u r e an d a r e s e t f o r t h i n “C o o r d i n a t i o n o f S t a t e H i g h e r E d u c a t i o n i n I l l i n o i s : A C ase S tu d y " ( u n p u b l i s h e d d i s s e r t a t i o n , I l l i n o i s S t a t e U n i v e r s i t y , 1 9 6 7 ) , p p . 27-4-2. The f i n a l tw o r e a s o n s seem i m p o r t a n t i n l o o k i n g a t h i g h e r e d u c a t i o n fro m a s t a t e s t a n d p o i n t an d h a v e b e e n a d d e d b y t h e a u t h o r . 5? i s m s : W hich e v e r form o f com p o sin g o r e s t a b l i s h i n g t h e c o m m issio n s was f a v o r e d , a c e r t a i n p a t t e r n a b o u t who p l a n s c a n c l e a r l y b e d i s c e r n e d . E i t h e r t h e l e g i s l a t u r e o r a ' c i t i z e n s g r o u p ' and i n a fe w c a s e s a n a l r e a d y e s t a b l i s h e d a g e n c y r e s p o n s i b l e f o r h i g h e r e d u c a t i o n h a s th e f i n a l r e s p o n s i b i l i t y f o r t h e r e p o r t . The a c t u a l p l a n n i n g and i n f o r m a t i o n g a t h e r i n g i s d o n e e i t h e r b y o u t s i d e c o n s u l t a n t s , s t a f f p e r s o n n e l o r b o t h . An e f f o r t i s made t o t o u c h b a s e w i t h a l l i m p o r t a n t p o w e r g ro u p s i n t h e s t a t e s . P a r t i c i p a t i o n o f t e a c h i n g and r e s e a r c h f a c u l t y i s g e n e r a l l y l a c k i n g an d i n no c a s e h a s t h e r e b e e n a n y p a r t i c i p a t i o n o f s t u d e n t s . H I n some i n s t a n c e s i n s t i t u t i o n s h a v e s e e n some a d v a n ta g e s t o s u p p o r t i n g t h e c o o r d i n a t i o n a g e n c y a s a c o n c e p t and t h e n l a t e r l o o k in g t o i t f o r a i d . The s t a t e u n i v e r s i t y may s e e t h e c o o r d i n a t i n g a g e n c y a s a v e h i c l e t h r o u g h w h ich o t h e r c o m p e tin g i n s t i t u t i o n s may b e c o n t r o l l e d . And o n th e o t h e r h a n d , d e v e l o p i n g i n s t i t u t i o n s s u c h a s s t a t e c o l l e g e s may se e i n t h e c o o r d i n a t i n g a g e n c y a m eth o d b y w h ic h t o g a i n g r e a t e r r e c o g n i t i o n and s u p p o r t — g e n e r a l l y a t t h e e x p e n s e o f t h e o l d e r , b e t t e r e s t a b l i s h e d s t a t e u n i v e r s i t y o r u n i v e r s i t i e s . S u ch h a s b e e n c l e a r l y t h e c a s e i n C a l i f o r n i a . I n t h e C a l i f o r n i a c a s e , p r i v a t e c o l l e g e s and u n i v e r s i t i e s m ay a l s o b e i n c r e a s i n g l y v ie w in g t h e s t a t e ' s C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a ti o n a s a forum f o r t h e i r p o i n t s o f v ie w and i n t e r e s t s . O t t o F e i n s t e i n , e t a l , "E c o n o m ie s o f H ig h e r E d u c a ti o n : Q u a l i t y a n d P e r s o n a l is m " ( d r a f t r e p o r t f o r D a n f o r th F o u n d a tio n , 1 9 6 7 ) , ( m im e o .) , p p . 1 1 1 - 1 2 . 58 H o w ev e r, G le n n y 's c o n c l u s i o n t h a t c o l l e g e s and u n i v e r s i t i e s h a v e g e n e r a l l y o p p o se d t h e e s t a b l i s h m e n t o f l e g a l o r v o l u n t a r y c o o r d i n a t i n g m a c h in e r y a p p e a r s 12 s t i l l t o h o l d o v e r a l l . The p ro b le m now may n o t b e so much a q u e s t i o n o f w h e th e r s u c h m ech an ism s 3 h o u ld b e e s t a b l i s h e d ( s i n c e m ost s t a t e s h a v e t a k e n t h i s s t e p ) b u t r a t h e r , how do t h e i n s t i t u t i o n s c o n c e r n e d r e l a t e t o t h e e s t a b l i s h e d a g e n c y . ( T h is n e w er p ro b le m o f a cc o m m o d atio n i s r e f l e c t e d i n t h e h i g h e r e d u c a t i o n l i t e r a t u r e o f r e c e n t y e a r s . E f f o r t i s u s u a l l y made i n su c h w r i t i n g s t o i d e n t i f y t h e p r o p e r f u n c t i o n f o r t h e c o o r d i n a t i n g a g e n c y a s \ X ^ a q u a s i - s t a t e a g e n c y v i s - a - v i s t h e i n s t i t u t i o n . 12 G le n n y , o p . c i t . , p . 2 2 . 15 •'A .J . B rum baugh w r i t e s : " I f t h e s e c o o r d i n a t i o n b o a r d s o r c o m m issio n s l i m i t t h e i r a c t i v i t i e s t o p o l i c y c o n s i d e r a t i o n s on a s t a t e w i d e b a s i s , t h e y c a n p e r f o r m a g r e a t l y n e e d e d p u b l i c s e r v i c e w i t h o u t i n t e r f e r i n g w ith i n s t i t u t i o n a l f r e e d o m . B ut when s u c h b o a r d s assum e r e s p o n s i b i l i t i e s f o r i n s t i t u t i o n a l m an a g em en t, t h e y becom e a n o t h e r arm o f t h e s t a t e w i e l d i n g a h e a v y h a n d ." S e e , "T he P r o p e r R e l a t i o n s h i p s B etw een S t a t e G o v e rn m e n ts an d S t a t e - S u p p o r t e d H ig h e r E d u c a t i o n ," E d u c a t i o n a l R e c o r d , X L II ( J u l y 1 9 6 1 ) , 175- S i m i l a r l y , A lgo H e n d e rs o n c o n c l u d e s : " I n my o p i n i o n , no s u f f i c i e n t s o l u t i o n t o t h e p r o b lem o f p l a n n i n g and c o o r d i n a t i n g h i g h e r e d u c a t i o n a t t h e s t a t e l e v e l h a s , a s y e t , b e e n f o u n d . . . The e s s e n t i a l d ilem m a i s , o n t h e one h a n d , t o f i n d a m eans th r o u g h w h ic h s u f f i c i e n t c o o r d i n a t e d p l a n n i n g c a n b e e f f e c t e d t o m ee t t h e n e e d s i n e d u c a t i o n b e y o n d t h e higjb. s c h o o l , an d i n d o in g s o , t o r e s o l v e t h e f i n a n c i a l p ro b lem s i n v o l v e d ; a n d , o n t h e o t h e r h a n d , t o a v o id t h e c r e a t i o n o r e v o l u t i o n o f a c e n t r a l i z e d o p e r a t i n g b u r e a u c r a c y , i n t e g r a l l y em bedded w i t h i n t h e a d m i n i s t r a t i v e s t r u c t u r e 59 I n sum m ary, t h e r e a s o n s and m o t i v a t i o n s l e a d i n g t o t h e e s t a b l i s h m e n t o f new c o o r d i n a t i o n m ech an ism s a n d , c o r r e s p o n d i n g l y , t h e e m p h a s is on c o o r d i n a t i o n f u n c t i o n s o f e x i s t i n g a g e n c i e s a r e s e v e r a l . I n i n d i v i d u a l s t a t e s some r e a s o n s w i l l t a k e p r e c e d e n c e o v e r o t h e r s . N ot t o h e o v e r - l o o k e d i s t h e p o s s i b l e "bandw agon 1 * e f f e c t b r o u g h t on b y m ore an d m ore s t a t e s l o o k i n g t o c o o r d i n a t i o n a g e n c i e s t o s o l v e r e a l an d a l l e g e d d i f f i c u l t i e s . The l e g i s l a t i v e m o t i v a t i o n s l e a d i n g t o e s t a b l i s h m ent o f a g e n c i e s , a s G len n y p o i n t s o u t , h a v e b e e n l a r g e l y o n e s o f c o n t r o l . And t h i s c o n t r o l h a s b e e n r e s i s t e d b y t h e s t r o n g e r e d u c a t i o n a l i n t e r e s t s . "The m ore p o s i t i v e p u r p o s e o f p r o m o tin g a b e t t e r , m ore v i g o r o u s s y s te m o f 14 h i g h e r e d u c a t i o n h a s u s u a l l y b e e n o v e r l o o k e d ." S i g n i f i c a n t t o t h i s s t u d y i s t h e p o i n t , h o w e v e r, t h a t c o o r d i n a t i o n o f h i g h e r e d u c a t i o n i s , a t l e a s t on t h e s u r f a c e , l a r g e l y o f s t a t e g o v e rn m e n t i n i t i a t i o n , and t h e r e f o r e , c l o s e l y i d e n t i f i e d w i t h t h e p o l i t i c s a n d p r o c e s s o f g o v e rn m e n t. What i s C o o r d i n a t i o n ? J o h n M i l l e t t , h i m s e l f a " c o o r d i n a t o r " o f h i g h e r e d u c a t i o n a s w e l l a s a s t u d e n t o f p u b l i c a d m i n i s t r a t i o n o f t h e s t a t e . " " S t a t e P l a n n i n g and C o o r d i n a t i o n ," E d u c a - t i o n a l R e c o rd , XLVTI ( F a l l 1 9 6 6 ) , 5 0 7 -5 0 8 . 14 G le n n y , o p . c i t . , p . 2 5 . 60 v ie w s c o o r d i n a t i o n a s a " p r o c e d u r e f o r a d j u s t i n g c o n f l i c t s ■between g o v e r n m e n ta l a g e n c ie s h a v in g r e l a t e d i n t e r e s t s a n d f o r e l i m i n a t i n g o r r e d u c i n g o v e r l a p p i n g an d d u p l i c a t i o n o f a d m i n i s t r a t i v e a c t i v i t i e s . ( T h e g o v e rn m e n ta l a g e n c ie s i n h i s d e f i n i t i o n a r e t h e h i g h e r e d u c a t i o n i n s t i t u t i o n s . ) To G le n n y , " C o o r d i n a t i o n i s d e f i n e d a s t h e a c t o f r e g u l a t i n g and c o m b in in g so a s to g iv e h a rm o n io u s r e s u l t s . P re s u m a b ly t h i s d e f i n i t i o n i m p l i e s some d e g re e o f i n t e g r a t i o n , c e n t r a l i z a t i o n and f o r c e . 1 ' There is little doubt that "coordination" as a te rm h a s d i f f e r e n t u s a g e s i n p r a c t i c e an d c o n t e x t . "Those who employ the word in their daily jargon— the m a n a g e rs , t h e o r g a n i z a t i o n a n a l y s t s , t h e t e a c h e r s — u se i t l o o s e l y and se ld o m d e f i n e i t p r e c i s e l y i n r e l a t i o n t o 17 t h e c o n t e x t i n w h ic h i t i s u s e d . " ( T he d i f f e r e n c e s i n m e a n in g i n d i v i d u a l s a s c r i b e t o t h e te rm " c o o r d i n a t i o n " a r e p o s s i b l y t h e p r o d u c t o f t h e i r IS ^ " S t a t e w i d e P l a n n in g and C o o r d i n a t i o n o f H ig h e r E d u c a t i o n ," an a d d r e s s t o t h e S i x t e e n t h A nnual L e g i s l a t i v e Work C o n f e r e n c e , S o u t h e r n R e g io n a l E d u c a tio n B o a rd , W h ite S u lp h u r S p r i n g s , W est V i r g i n i a , A u g u st 2 7 , 1 967, (m im e o .), p . 9 . ■ ^ G le n n y , o p . c i t . , p . 1 . 1^7James R. Bell, Coordinating California's Govern mental Programs Legislative Problems No. 6 {.Berkeley: University of California, Bureau of Public Affairs, 1 9 5 9 ), p. 5 (mimeo.). 61 d i r e c t e x p e r i e n c e s w i t h a c o o r d i n a t i n g m echanism o r p r o c e s s . Jam es B e l l s u g g e s t s t h a t maximum c o o r d i n a t i o n i s ■brought a b o u t b y i n t e g r a t e d o v e r a l l p l a n n i n g and o p e r a t i o n w i t h a l l i n t e r e s t s p a r t i c i p a t i n g i n c o l l e c t i v e g o a l d e t e r m i n a t i o n . H is c h a r t i n g o f s t a g e s fro m "no c o o r d i n a t i o n " t o "maximum" i s much a s f o l l o w s : 1. Ho Coordination 2 . A c c i d e n t a l C o m m u n icatio n 5 . I n f o r m a t i o n e x c h a n g e d v o l u n t a r i l y 4-. Explanation, discussion, evaluation of plans 5 . C o n f l i c t s a d j u s t e d b y h i g h e r a u t h o r i t y 6 . I n d i v i d u a l c o n s u l t a t i o n and a d ju s tm e n t d u r i n g p r e l i m i n a r y p l a n n i n g 7 . C o l l e c t i v e c o n s i d e r a t i o n an d a d j u s t m e n t o f i n d i v i d u a l p r e l i m i n a r y p l a n s 8 . C o l l e c t i v e g o a l d e t e r m i n a t i o n ; and j o i n t p l a n n i n g and o p e r a t i o n .^ ® T h ese s t a g e s o f c o o r d i n a t i o n ( o r s t a t e m e n t s o f r e l a t i o n s h i p s ) i n g r e a t m e a su re may b e s e e n r e f l e c t e d i n i n d i v i d u a l c o o r d i n a t i o n m ec h an ism s f o r h i g h e r e d u c a t i o n a c r o s s t h e c o u n t r y . I n p a r t , t h i s s o r t o f l i s t i n g g i v e s p e r s p e c t i v e t o t h e p r o b a b l e r o l e s p l a y e d b y t h e r e s p e c t i v e c o o r d i n a t i n g a g e n c i e s . 1 ft I b i d . , p . 8 . B e l l a t t e m p t s t o show t h i s g r a p h i c a l l y b y a n upw ard s l o p i n g l i n e ( p o i n t s 1 - 8 ) to w a r d a p e a k o f maximum c o o r d i n a t i o n . 62 The v iew o f w hat c o o r d i n a t i o n i m p l i e s may v a r y w i t h i n a s t a t e a g e n c y among t h e 1 1 c o o r d i n a t i o n " . A s u r v e y c o n d u c te d b y t h e a u t h o r among p e r s o n n e l o f t h e C a l i f o r n i a a g e n c y i n c o n n e c t i o n w ith a s t a f f r e t r e a t d i s c l o s e d c o n c e p t i o n s o f c o o r d i n a t i o n a n d t h e c o o r d i n a t i n g a g e n c y v a r y i n g fro m one o f a p u r e r e s e a r c h o r i e n t a t i o n t o one e m p h a s iz in g c o n t r o l a c t i v i t i e s . F o r e x a m p le , on e s t a f f member saw th e C a l i f o r n i a a g e n c y c o o r d i n a t i o n r o l e a s on e o f p l a n n i n g t o a c h i e v e common o b j e c t i v e s f o r h i g h e r e d u c a t i o n . A n o th e r saw c o o r d i n a t i o n a s im p ly in g d i r e c t i o n , a u t h o r i t y a n d c o n t r o l . L e a d e r s h i p d e f i n e d a s " f o r c i n g " t h e e d u c a t i o n s e g m e n ts t o f a c e i s s u e s was t h e c o n c e p t i o n o f o n e p e r s o n a n d d e v e lo p m e n t o f c o m p a t i b i l i t y was t h e k e y f o r a n o t h e r s t a f f m em ber. Two m em bers s t r e s s e d f a c t o r s o f i n n o v a t i o n a n d im p ro v e m e n t o f q u a l i t y . Y et a n o t h e r v ie w w as one w h ic h saw c o o r d i n a t i o n i n C a l i f o r n i a a s t h e a c h i e v i n g o f s o l u t i o n s th r o u g h pow er i n th e b e s t i n t e r e s t s o f t h e o r d e r l y g ro w th o f h i g h e r e d u c a t i o n — t h i s p e r h a p s d e s p i t e t h e o b j e c t i o n s o f t h e i n s t i - 1 9 t u t i o n s . ■ ^ R easo n s f o r t h e d i f f e r i n g p o i n t s o f v ie w may b e fo u n d i n d i f f e r e n c e s o f b a c k g r o u n d , e x p e r i e n c e w i t h t h e a g e n c y , and p o s i t i o n . N o t t o b e o v e r lo o k e d a r e d ilem m as f a c i n g s t a f f m em bers i n s u c h a n o r g a n i z a t i o n a s t o w h e th er t o b e b u r e a u c r a t i c i n s t y l e o r p r o f e s s i o n a l . I n t h i s c o n t e x t t h e " b u r e a u c r a t " w i l l l o o k t o m anagem ent ( t h e l e g i s l a t i v e - e x e c u t i v e ) f o r a p p r o v a l , t h e " p r o f e s s i o n a l " t o h i s p e e r s — p r o b a b l y o n a c o l l e g e c am p u s. S e e , P e t e r M. B la u and V. R ic h a r d S c o t t , F o rm a l O r g a n i z a t i o n s (S a n F r a n c i s c o : C h a n d le r P u b l i s h i n g C o ., l 9 3 2 ) . 63 l i t w a k and H y lto n t e n d t o v ie w c o o r d i n a t i o n i n te r m s o f b o t h c o n f l i c t an d c o o p e r a t i o n w i t h a f o r m a l a u t h o r i t y s t r u c t u r e l a c k i n g . I n t h i s c o n t e x t t h e c o o r d i n a t i n g a g e n c y 's m a jo r p u r p o s e i s " t o o r d e r b e h a v i o r b e tw e e n tw o o r m ore o t h e r f o r m a l o r g a n i z a t i o n s b y com m u n ic a t i n g p e r t i n e n t i n f o r m a t i o n ( s o c i a l s e r v i c e e x c h a n g e a n d h o s p i t a l a g e n c i e s ) , b y a d j u d i c a t i n g a r e a s o f d i s p u t e ( F e d e r a l C o m m u n icatio n s C o m m is sio n ), b y p r o v i d i n g s t a n d a r d s o f b e h a v i o r ( s c h o o l a c c r e d i t i n g o r g a n i z a t i o n s ) , b y p r o m o tin g a r e a s o f common i n t e r e s t ( b u s i n e s s a s s o c i a t i o n s ) . . . . " ^ Ho s i m p l e , u n i v e r s a l l y a g r e e d t o d e f i n i t i o n c a n b e d e v e lo p e d o f " c o o r d i n a t i o n " o f h i g h e r e d u c a t i o n e i t h e r fro m t h e l i t e r a t u r e o r b a s e d on e x p e r i e n c e . C o o r d i n a t i o n a p p e a r s t o s u g g e s t much m ore t h a n m ere v o l u n t a r y i n f o r m a t i o n e x c h a n g e , b u t som ew hat l e s s t h a n t o t a l c o n t r o l a n d a d m i n i s t r a t i o n o f p ro g ra m s ( th o u g h i n t h e i n s t a n c e s o f c o n s o l i d a t e d g o v e r n in g b o a r d s t h i s may i n d e e d b e t h e c a s e ) . I t seem s b e s t t o a g r e e w i t h G le n n y i n h i s e m p h a sis o n i n t e g r a t i o n , c e n t r a l i z a t i o n and f o r c e , w h ile r e c o g n i z i n g t h a t c o o r d i n a t i o n i n a p p l i c a t i o n i n h i g h e r e d u c a t i o n v a r i e s t o s u c h a n e x t e n t t h a t one ?0 E ugene L itw a k and L y d ia F . H y l t o n ? " I n t e r o r g a n i - z a t i o n a l A n a l y s i s : A H y p o th e s is on C o - o r d i n a t i n g A gen c i e s , " A d m i n i s t r a t i v e S c ie n c e Q u a r t e r l y , VI (M arch 1 9 6 2 ) , 3 9 9 . 6 k e x tre m e o f " c o o r d in a tio n '* may b e s c a r c e l y i d e n t i f i a b l e 21 w ith, t h e o t h e r . I n t h e f o l l o w i n g p o r t i o n o f t h i s s t u d y t h e C a l i f o r n i a a g e n c y f o r c o o r d i n a t i o n o f h i g h e r e d u c a t i o n i s ex am in e d i n t h e c o n t e x t o f i t s r e l a t i o n s h i p s w i t h s t a t e g o v e rn m e n t. As w i l l b e shown i n t h e d i s c u s s i o n , many o f t h e g e n e r a l r e a s o n s f o r c o o r d i n a t i o n c i t e d abov e l e d t o t h e e s t a b l i s h m e n t o f t h e C a l i f o r n i a m ec h an ism . D i f f e r i n g c o n c e p t i o n s o f t h e sum and s u b s ta n c e o f c o o r d i n a t i o n a r e a l s o a p p a r e n t . 21 C o o r d i n a t i o n a s a te r m may in d e e d b e m ea n in g l e s s . One C a l i f o r n i a a g e n c y s t a f f member h a s s u g g e s te d t h a t t h e te rm b e d ro p p e d fro m t h e a g e n c y l a b e l . PART I I THE CALIFORNIA AGENCY FOR HIGHER EDUCATION CHAPTER IV ORIGINS OP THE CALIFORNIA AGENCY During 19&7 it became apparent that one phase in the development of the California agency for higher educa tion may have ended. The reasons are several. Through 1966 the California Coordinating Council for Higher Education functioned under the administration of Governor Edmund G. Brown. This administration had seen the organi zation of the Council as an outgrowth of the much-heralded California Waster Plan for Higher Education developed in 1 9 5 9 . Portions of this plan were enacted into law during a legislative special session called for that purpose in the winter of i 960 and from the outset the administration tended to consider the Council, and the Master Plan, one of its achievements. The Reagan administration, which to o k office in January 1 9 6 7 , necessarily could not be expected to view the Council and Master Plan in this light. However, the fact of a change in administration in itself has not been the only cause for a major transition period for the California Council. But the election of a new Governor coupled with announced economy programs affect ing higher education, significant changes in the membership of the agency board, resignation of the agency's second 66 staff director, and the stepping down of the Council*s President before completion of his term may have combined to profoundly affect the agency and, presumably, affect its relationships with the legislative-executive, if not with the public and private systems of higher education.1 These specific events occurred before a background of student activism on campuses of public colleges and universities, increasing faculty demands to be heard on higher education matters and a dramatic change in the leadership of the state university. The affairs of higher education have apparently become more politicized as a result. While these events suggest that a major phase of the history of the California Council has ended, it is also apparent that a new one has begun. Consequently this study cannot avoid some attention to what may occur, or more exactly what might be expected of the agency in the future, especially within the context of its relation ships with state government. What is most essential to ask is whether an agency such as the Council will be able to function as it is expected? Indeed the question of the through a series of circumstances more than two- thirds of the board members changed in the 1 9 6 7 -6 8 period. The Council*s second Director announced his resignation in September 1967 because of health, and Arthur Coons was forced to resign as Council President in January 1968 following a heart attack. 68 u s e f u ln e s s and v i a b i l i t y o f th e c o o r d in a t io n a g e n c y c o n c e p t i n C a lif o r n ia may be i n q u e s t io n — p a r t i c u l a r l y a s l e g i s l a t o r s , e x e c u t iv e o f f i c i a l s , and o t h e r i n t e r e s t s becom e m ore o c c u p ie d w ith h ig h e r e d u c a tio n q u e s t io n s . P a r t I I s e e k s to e x p lo r e t h e p r o c e s s e s by w h ich th e C a lif o r n ia a g en cy s e e k s to make i t s e l f f e l t in t h e S t a t e govern m ent c o n t e x t and th e r e s u l t i n g p e r c e p t io n s o f th e C o u n c il. In c lu d e d i s a c o n s id e r a t io n o f th e l e g i s l a t i v e - e x e c u t iv e r e s p o n s e to th e a g e n c y exam ined i n term s o f s p e c i f i c i s s u e s and o th e r r e l a t e d e v e n ts su ch a s e s t a b l i s h m ent o f th e J o in t L e g i s l a t i v e C om m ittee on H ig h er Educa t i o n ( t h e s o - c a l l e d Unruh C o m m ittee). E m phasis i s p la c e d upon th e r e l a t i o n s h i p s o f th e a g e n c y w ith s t a t e governm ent a s s u c h , and n o t o n t h o s e r e l a t i o n s h i p s w ith th e p u b lic and p r iv a t e i n s t i t u t i o n s o f h ig h e r e d u c a tio n e x c e p t in th e g e n e r a l s e n s e o f t h e i r I n f lu e n c e in th e p erform an ce o f th e C o u n c il in th e s t a t e govern m ent c o n t e x t . I n o r d e r to p r o v id e p e r s p e c t iv e f o r th e p r o c e s s e s o f i n f l u e n c e , some a t t e n t i o n m ust be p a id to th e o r i g i n s o f th e C o u n c il and i t s h i s t o r y t o d a t e . However in so d o in g , d e l i b e r a t e e f f o r t I s made to a v o id p r e s e n t a t io n o f th e c o m p le te h i s t o r i c a l r e c o r d o f t h e C a lif o r n ia a g e n c y . The historical record to 1966, though not presented in full is recounted sufficiently in Paltridge's Investiga- 69 tion, focusing on the organizational growth and change of the California Council.2 Findings of this useful work are cited where appropriate. Recent events and issues are noted here in somewhat greater detail due to the terminal date of the Paltridge study, 1 9 6 5, and because of impacts recent events have had upon the existing relationships of the agency and state government. Further, the focus of this study is substantially different from that of Palt ridge. Concept of Coordination Develops Statewide Plans and Coordination Mechanisms. 1899- 1959. The concept of coordination, of at least a minimal sort, was not new to the California situation nor was the notion of statewide planning and goal-setting for higher education unique. The Master Plan for Higher Education prepared in 1959, which in part recommended establishment of the California coordinating agency, was only one of a 3 series of major statewide reviews. An early attempt to coordinate growth in colleges was made by an "Educational Commission" in 1899, a lay 2James G. Paltridge, Californla1s Coordlnatlng Council for Higher Education. A Study of Organizational Growth and Change (Berkeley. California; Center for Re- search and Development in Higher Education, 1966)• Ibid., pp. I 8- 3 6 , presents a detailed summary of these reports. ?o group under the joint chairmanship of the Presidents of the University of California, and Stanford University and the state superintendent for education, this group directed its attention to the problems of the normal schools and suggested a board for their governance. By 1921 the con trol of the normal schools had been placed in the hands of the State Board of Education as a result of a 1919 joint legislative committee investigation. In 1932 a legislatively-initiated study of the Carnegie Commission of Seven (The "Suzzallo Report") recommended the establishment of the State Council for Educational Planning and Coordination. This was done by the 1933 legislature and became, then, California's first attempt at legally sanctioned coordination. Paltridge finds significant that "in this first attempt at the dev elopment of a mechanism for coordination of higher educa tion a working majority of the nine-member council was given h to lay citizens representing the public interest." By 19^1 this first effort was dead (though not for mally replaced)• The next attempt was an excursion into "voluntary" coordination through a joint committee composed of the members of the State Board of Education (responsible for state colleges and the junior colleges) and the Regents ^Ibid., p. 21. 71 of the University of California. This joint committee, termed the ’ ’ Liaison Committee of the State Board of Educa tion and the Regents of the University of California," functioned until the establishment of the Coordinating Council for Higher Education. In 19^8 it sponsored a major survey of public higher education, the "Strayer Report" and subsequently a "Restudy" in 1953-55* Both of th ese surveys by the L iaison Committee were funded by the L eg isla tu re. The report of the 1959 Master Plan Survey Team found strong le g is la t iv e approval for the group when in 1953 i t considered the need for a new survey (th e "Restudy"). "As evidence of the confidence which the L egislatu re had in th is Committee. • .th ere seemed to be general agreement whatever study was author ized I t would be under the d ir e c tio n o f the L iaison Committee."^ And i t was to th is Committee that the L egis latu re once again looked in 1959 for the survey which, -'Monroe E. Deutsch, Aurbrey A. Douglass, and George D. S trayer, A Report o f a Survey o f the Needs o f C alifor nia In Higher Education (Berkeley: U niversity o f C alifor nia P ress, 19^8) , and T. R. McConnell, T. C. Holy, and H. H. Semans, A Restudy of the Needs o f C aliforn ia in Higher Education (Sacramento: C aliforn ia State Department o f Education, 1955)• ^ A Master Plan for Higher Education in C a lifo rn ia . 1960-1975 (Sacramento1 C aliforn ia S tate Department of Education, I960), p. 19, h erein after c ite d as Master Plan. 72 in effect, spelled its own demise.^ The Master Plan and Legislative Interest, By 1959 the pressure for rapid development and expansion of public higher education due to marked increases in enrollments was apparent. This pressure was reflected directly in the 1959 legislative session when twenty-three bills, three resolutions and two constitutional amendments were intro duced relating to the establishment of new institutions, functions for the educational systems or changes in the Q structure of higher education. it was apparent, at least in respect to the question of establishment of new insti tutions that previous surveys and studies were inadequate in the face of the number of bills and the obvious poten tial to bring home a campus to each legislative district. The Liaison Committee, on its own initiative, had surveyed the needs for new institutions in 1956 and had established priority lists for the areas of the state.^ In all but one instance, new state colleges and university campuses authorized in 1957 were compatible with that 11st- 'Assembly Concurrent Resolution No. 88, (1959 Regu lar Session) • The author was Assemblywoman Dorothy Donahoe chairman of the Assembly Education Committee. Q Master Plan, p. 20. 9 H. H. Semans and T. C* Holy, A Study of the Need for Additional Centers of Public Higher Education in Cali fornia (Sacramento: California State Department of Edu- cation, 1957). 73 ln g . But th e f a c t t h a t on e was m ost c l e a r l y n o t — u l t i m a t e l y e s t a b l i s h e d a s S t a t i s l a u s S t a t e C o lle g e — l i k e l y g a v e encou ragem en t to l e g i s l a t o r s and co m m u n ities and r e s u l t e d in th e s p a te o f l e g i s l a t i o n In tr o d u c e d i n 1 9 5 9 * W hile th e p rob lem s o f a u t h o r i z a t io n f o r new c o l l e g e and u n i v e r s i t y cam puses w ere m ost i n t e n s l y f e l t in th e 1959 l e g i s l a t u r e , th e y w ere n o t th e o n ly i s s u e s w h ich g a v e r i s e t o l e g i s l a t u r e i n t e r e s t in some m ajor s t a t e w id e p o l i c y d e v e lo p m e n t. I n c r e a s in g ly t h e q u e s t io n o f th e g o v e r n a n c e and f u n c t io n s o f th e s t a t e c o l l e g e s was com ing to t h e f o r e . Were th e c o l l e g e s to becom e u n i v e r s i t i e s ? G en era l d i s s a t i s f a c t i o n w ith th e p erfo rm a n ce o f t h e S t a t e Board o f E d u c a tio n and th e s e c t i o n s o f th e D ep artm en t o f E d u c a tio n ch a rg ed w ith t h e a d m in is t r a t io n o f th e s t a t e c o l l e g e s was a ls o a p p a r e n t. (T h is d i s s a t i s f a c t i o n was e x h i b i t e d d u r in g f i n a l p a s s a g e o f th e l e g i s l a t i o n f o r th e M a ster P la n when th e C a lif o r n ia S t a t e E m p lo y ees' A s s o c i a t i o n , su p p o r te d by Gov ern o r Brown, so u g h t to e n su r e c o n tin u e d em ploym ent under th e n ew ly e s t a b l i s h e d s e p a r a te Board o f T r u s t e e s o f th e p e r s o n n e l o f th e S t a t e D epartm ent o f E d u c a tio n a s s ig n e d r e s p o n s i b i l i t i e s f o r th e S t a t e c o l l e g e s . The e f f o r t met w ith f a i l u r e . ) The M aster P la n r e p o r t c i t e s fo u r r e a s o n s f o r th e n eed f o r th e stu d y : ?4 1. The number of legislative proposals concerning sites, functions and structure, 2. The state's general financial picture, 3, Actions taken by the State Board of Education and Regents on April 15, 1959 stating, among other points, that the legislature should not approve new institutions unless endorsed by both boards, 4, Unilateral actions taken by each board which had ,Q weakened the voluntary Liaison Committee structure. The determination of the two boards to go forward with the survey was clearly not without outside influence. The meeting of the two boards on April 15 where a proposal was adopted for what was to become the Master Plan study was attended by a number of legislators including: Sena tors Pred S, Farr and George Miller, Jr.; Assemblymen Thomas J. MacBride, Harold T. Sedgwick, Jesse M. Unruh and Gordon H. Winton and Assemblywoman Dorothy Donahoe. Also present were Assembly Speaker Ralph M. Brown, Lt. Governor Glenn Anderson, Alan Post, Legislative Analyst and Bert Levit, Director of Finance. Governor Brown attended as a 10Master Plan, pp. 20-21. 11Some of the events noted here are recorded in Marilyn Post Toll's "Political Activities of the University of California and the State Colleges of California", (unpublished master's thesis, University of California, Berkeley, 1961). Miss Toll's material was based upon discussions with persons such as Stanley McCaffery, Vice President of the University of California, at the time closely concerned with legislative development. Results of interviews conducted in the source of this study supple mented Miss Toll's description. 75 R eg en t and c h a ir e d . Assem blywom an Donahoe r ea d t o th e two b o a r d s a d r a f t o f h e r c o n c u r r e n t r e s o l u t i o n (ACR 8 8), a s k in g f o r a m ajor s u r v e y .11 The R e g e n ts had become c o n c e r n e d i n March when a t a j o i n t m e e tin g on t h e f o u r t e e n t h , th e S t a t e S u p e r in t e n d e n t , Roy S im p so n , had p r e s e n te d a s ta te m e n t w h ich im p lie d en d o rsem en t to a l l o f th e th e n p e n d in g p r o p o s a ls f o r new s t a t e c o l l e g e s . 12 As a r e s u l t th e i n f l u e n t i a l R e g e n ts becam e m ore i n t e r e s t e d in a c c e p t in g some r e v ie w t o a t l e a s t l a y th e s p e c t r e o f s t a t e c o l l e g e s e s t a b l i s h e d th r o u g h o u t t h e s t a t e w ith o u t r e f e r e n c e t o U n iv e r s it y n e e d s . The higher education interests were thus encouraged most strongly by legislators with the approval of Governor Brown to undertake a self-examination of major dimensions and, as the final version of ACR 88 requested, to complete this review by February 1, I960. (Governor Brown in this period had indicated his receptiveness to call a special session of the Legislature to consider the results of the study.) F orm al l e g i s l a t i v e r e q u e s t f o r su ch a s u r v e y was l i k e l y to h ave b een made w h eth er th e b o a rd s had ta k e n t h e i r 12 The Simpson statement was discussed and endorsed by the State Board of Education at its meeting of March 13, 1959« (See Minutes of the Board, pp. 8,767-775. The Minutes include a copy of the statement.) The March 1^, 1959# meeting according to Simpson was the first time the boards had met jointly. April 1959 action or not. The process saved face for all concerned and higher education could perform the review in lieu of some other mechanism such as a legislative com mittee or a blue ribbon commission. Direct involvement of individual legislators or the Governor was not apparent during the conduct of the actual Master Plan Survey. The Survey Team, chaired by Arthur G. Goons, then President of Occidental College in Los Angeles, went to work in June of 1959 and completed its report in December of the same year. While three senators (Nelson S. Dilworth, Donald L. Grunsky and George Miller, Jr.) and four Assemblymen (Carlos Bee, Dorothy Donahoe, Richard T. Hanna, and Harold T. Sedgwick) were designated as advisory to the Team, their involvement appears to have been minimal. The legislative Interest, however, was maintained through the direct involvement in Survey Team considerations of Keith Sexton, then Consultant to the Assembly Education Committee chaired by Miss Donahoe. The Survey Team Develops Its Recommendations. The Master Plan Survey Team investigation and subsequent final report is not of specific concern here. What should be noted are the factors entering into the Survey Team's recom* mendation for a coordinating agency, the roles which were anticipated, and the processes that the agency was expected to employ in order to perform those roles, most particular ly in respect to state government. In considering, however* o n ly one outcom e o f th e C a lif o r n ia M aster P la n , th e r e i s a danger of ignoring the fact that the Plan was viewed as a s i n g l e "package" by some team members in c lu d in g A rthur Coons, the Team Chairman. Tampering with the package could 13 (and d id ) r e s u l t in m o d if ic a t io n o f su p p o r t f o r th e P la n . The Master Plan Survey Team first met on June 16, 1959* At that meeting the Team reserved for itself "con sideration of the structure, organization, control, and administration of public higher education. . other questions such as admission and retention of students and the costs of higher education were assigned to existing or ad hoc representative committees. The Team also stated it would consider the key questions of structure as a final step after results of the other reviews were in. During the course of the meetings of the Survey Team from June to December the subject of coordination arose on a number of occasions. It was earlier made clear to members of the Team that the Legislature was interested 13"a 'package' acceptable to all segments required compromises. Frank recognition of the needs and desires of each segment of relative priorities among them was an essential starting point." Master Plan, p, 27. ■^Master Plan Survey of Higher Education, Minutes. June 16, 1959» P* 2. Hereinafter cited as "MAPS, Minutes". The author is indebted to Mr. Keith Sexton former consul tant to the Assembly Education Committee, for making his personal file of materials relating to the Master Plan available. 78 in coordination mechanisms,^"-* and the Team later expressly concluded that though consideration of coordination mech anisms was only an implied obligation within the wording of ACR 88 nevertheless "the MAPS team regards it as one of the major issues to be dealt with."1^ The Team, however, consistent with its Intention, did not begin to resolve the issue of the form of coor dination mechanism until late in its deliberations. At the November meeting of the Team a number of alternatives for coordination were proposed. A plan submitted by Glenn Dumke, state college representative. Dean McHenry of the University of California, Henry Tyler, Junior college representative, and Robert J. Wert for the private colleges and universities would have established a coordinating council reporting to two committees com posed respectively of members of the University of Cali fornia Board of Regents and members of a new state college board. The council itself would be composed of three "executives" each from the University, state colleges, 17 Junior colleges and independent colleges and universities.f ^This was reported to the Team by Keith Sexton at its July meeting. MAPS. Minutes. July 6, 7, 8, 1959, P* 4, • ^MAPS. Minutes. November 23 and 2 4 , 1959, P» 12. 1?Ibld.. p. 10. 79 The Regents and new state college board would have met jointly on occasion. Each of the committees would be res ponsible for "studying and interpreting recommendations to the respective boards." The Executive Director for the council staff was seen as a top level research person, X 8 though not necessarily "an educational leader". Another plan was developed during this same meeting. This scheme included establishment of special committees of the boards of the four-year colleges, as in the pre vious proposal, and included a committee of the State Board of Education on behalf of Junior colleges as well. Each of the four systems of higher education would be represented on a council reporting to the board committees. The council would be composed of one member of the respec tive boards (including a member of a board for a private institution) together with the chief executive officer and a deputy for each of the four-year, public systems. The State Superintendent for Public Instruction would also have served along with the President of the California Junior College Association. Two representatives of the executive officers of the independent institutions would complete the 19 membership. This plan was more complex than the Dumke l8Ibid. 19Ibld., p. 11 80 et al proposal* No action was taken on either suggested, form. The minutes for this, as well as other meetings of the team, note some reference to still other alternatives including a single coordinating agency above the three boards as well as a proposal for a single board for the state colleges and University (probably to be the Consti tutionally established Regents) thus reducing the need for any coordinating mechanism. There is little doubt that the Team was not of a single mind concerning the kind of coordination agency to 20 be recommended nor ultimately of its scope. Nor was it in agreement on all other subjects under review. The Team endorsed as a part of the total Master Plan package by the existing boards called for a coordinat ing council of twelve members, three each from the four 20Paltridge states, based on his Interviews with Survey Team members: "The group was sharply divided on this issue /of coordinatioiy according to one of the survey team members, and the matter, without a recommendation, was brought before a joint meeting of the Regents and the state board of education." Op. clt*. p. 2 9 . The Team in fact did bote unanimously on a specific proposal which was that of the final recommendation at its meeting of December 2 and 3 , 1959* (MAPS Minutes, p. 5*) The meeting Paltridge mentions may have been the "sum m i t meeting" just prior to the December 8 meeting of the Team, Present were: Clark Kerr, Roy Simpson, State Superintendent.; Regent Donald McLaughlin, State Board President William Blair, Glenn Dumke, Dean McHenry and Arthur Coons. It was at this meet ing that the linkages between functional assignments and coordination and control were discussed and stressed. 81 higher educational groupings. The group was to be advisory to the governing boards and state officials. The agency, according to the Plan, along with the new State College board was to become Constitutional, as were the functional statements for all public higher education and the tasks of coordination laid out for the new Council. The intent to enact the key portions of the Plan into the California Constitution would establish a new status quo for some time to come. The University of California, much as other state universities in similar circumstances seek to do, appar ently hoped to maintain its pre-eminent position throughout the Master Plan development and adoption. Constitutional status for the state colleges, and most importantly inclusion of the functional statements forthe system in the Constitution were seen as desirable outcomes. The assignment of less than university functions to the state colleges could not easily be changed once in the Constitu tion. Likewise, a coordinating agency advisory in nature, of limited functional scope, and composed of institution ally-related persons (though some would be lay board members) was functional to continuance of the University position. Status in the Constitution would not easily be modified in the years to come. This is not to say that other groups did not also see value in the compromise as finally reached. The state 82 colleges had much to gain from a separate "board; and con stitutional status for the board carried with it a basis for autonomy such as enjoyed by the University. The junior colleges received greater recognition as part of higher education than they had heretofore. The private colleges and universities could continue their participation in planning and policy development for higher education, given impetus by inclusion in the Master Plan Survey, by participating in the new coordinating council. The coordinating agency proposed was limited to advisory functions in three general areas: (1) review of the annual budget and capital outlay requests of the University and the State College System, and presentation of comments on the general level of support sought; (2) advice as to the appli cation of the provisions of this division /of the Education Code/ delineating the different functions of public higher education and council as to the programs appropriate to each segment thereof. • •; (3) development of plans for the orderly growth of public higher education and the making of recommen dations on the need for and location of new facili ties and programs. 21 Membership on the new Council was not to include public representation as such, though laymen would serve in their capacities as members of the Regents, State Board of Education or trustees for the new state college system. Critics of the planned organization termed the resuit a "special interest" organization. Persons favoring the on fiXAs finally adopted in statute, State of Califor nia, Education Code, sec. 22703. 83 design, according to one knowledgeable source, saw the agency as a higher education self-policing mechanism. This concept was seen at the time to have no place for public membership. The design was to have a total freedom from political interference, as the Council became the higher educational voice to political authorities. Apparently little attention was paid in the inten sive discussions of the Survey Team to the ways and means by which the new agency would in fact make its influence felt, especially upon the Legislature and other state offi cials. Agreements were sought on principles, with proce dures of implementation generally left open. Paltridge cites two reasons for the Survey Team settling on an advi sory board type of agency with influence largely of an Informal nature. First, "this was the 'best agreement1 they could get that would be acceptable to both the Uni versity and the state colleges. "Secondly", Paltridge continues "the members of the survey team visualized a Council which would grow in stature and gain confidence and Influence with state government and the institutions 2? over the years as it performed its duties well." Most interestingly, he found that the Survey Team members "felt that additional powers for the . . • Council should come 22 Paltridge, op. olt., p. 31. 84 not through surrender of governing powers by the institu tions, but rather by transfer of some areas of authority 23 3nd decision-making exercised by various state offices. This finding (verified in this author's interviews) strong ly supports the view that the Council as recommended was anticipated to be much more identified with higher educa tion than state government. It is probable that establishment of a coordinating agency with substantial authority was never fully enter- ols, tained by the Team. Probably the greatest objection to full discussion was the constitutional status and indepen dence of the University of California. Could there, indeed, be any mechanism which could have effective control over aspects of the University program? The proposals dis cussed by the Survey Team relating to the coordination agency began at a point not much beyond the concept of the 23ibid. 2^The Master Plan, pp. 32-33* cites reasons for not considering a single board (consolidated governing board) or a "superboard". The former, it is stated, was discarded in part because of size and leveling effect; the latter because of the constitutional question. "The Survey Team agreed that the status of the University should not be tampered with and, moreover, that a constitutional change opposed by one segment was unlikely to be adopted." (p. 3 3) The single board proposition, however, continues to be entertained. The concept was suggested as desirable, but not a feasible, approach by a Task Force of businessmen appointed by Governor Reagan. See Governor's Survey on Efficiency and Cost Control, Coordinating Council for Higher Education (Sacramento: State of California, Novem ber 1967), report designated "working copy— internal use only," pp. 10-1 1. 85 voluntary Liaison Committee. The outcome of the Team de liberations— and negotiations with the interests involved— was something rather different from the Liaison Committee, but nevertheless a mechanism which appeared very much a creature of higher education though designed to function independently. Prom the record and comments of those close to the Master Plan's development it appears that only limited and general expectations were developed by the Survey Team and those approving its recommendations concerning the ways in which the new coordinating agency was to carry out its tasks. The statement of functions for the new group were general: it was to be advisory and its staff expert tech nically but not ’ 'leaders of higher education". Considera tion of the ways in which it was to influence were left to the future. One person interviewed by the author said that the Survey Team saw the Council as being a spokesman for higher education in the sense that it was to put the seal of approval on the budgets for higher education with no close review. Beyond this there seemed little further considera tion of possible roles the Council might play. Concerning the new Council, the Master Plan report states: Its effectiveness and its influence with the governing boards, the Governor, the Legislature, 86 and the public will flow from its mastery of problems of higher education* If the Council, along with its staff, performs well, confidence in its recommenda tions and their rate of acceptance will be high*25 In many respects this Investigation considers whether the Council has performed, or can perform, in light of this general expectation* Authorizing the Coordinating Agency Recommendation as to the form and functions of the new coordinating agency was the result of a major compro mising process, itself replete with political overtones. What was at stake was the future development of two massive organizations or systems of higher education* (The junior college involvement appears more as a beneficiary to "fall out" from the compromise among the two major, contending parties: the University of California and the California State Colleges)* During this whole process, the need to give adequate response to legislative-executive demands was ever present. In total the Master Plan agreement of December 18, 1959* as enunciated by the Regents for the University and the State Board of Education on behalf of state colleges and junior colleges was received favorably by the Legisla ture and Governor, However, significant changes were to be 2- ^Master Plan, pp. 39-^0* 87 made in the proposal which in the opinion of some key par ties to the agreement tended to wreck the Master Plan or at least seriously weaken it. The Master Plan report was forwarded to the Legis- lature early in i960. Governor Brown on January 5. I960, called a special session for consideration of aspects of the plan requiring legislative attention. A special pre sentation of the plan was made to interested members of both houses of the Legislature 011 March ? by Gerald Hagar, President of the Regents; University President, Clark Kerr; Louis Heilbron, President of the State Board of Education; and Howard Campion and Robert Wert members of the Survey 27 Team . The recommendations of the Survey Team was first placed into legislative form by Senator Donald Grunsky in Senate Constitutional Amendment 1. The Grunsky measure became the vehicle for extensive discussions in the Senate Education Committee with many of the same questions which had been discussed by the Survey Team, considered in the Senate hearings in detail. However Grunsky*s measure did The report recommendations appear in the Califor nia Legislature, Senate Dall.v Journal. February 1, i9 6 0, PP. 33-^5. ^Arthur Coons, Team Chairman, had suffered a heart attack before the opening of the Legislature and was not to be present during any of the legislative hearings. 88 not meet with full agreement. According to one Individual interviewed who was close to the situation, interested legislators had not been fully prepared for the introduc tion of the proposed constitutional amendment. The constitutional question became the chief point of argument during the hearings and it became apparent that the Grunsky measure would not succeed. At this point (indeed in the context of a meeting of the Senate Education Committee) Senator George Miller, Jr., put forth a modified proposal calling for statutory status for the Trustees of the State College system and the coordinating agency and the addition of three public members on the Council. These proposals were incorporated into Senate Bill 33 (Miller) which became the legislative vehicle for adoption of the Master Plan, The reaction of University officials was very pro bably one of dissappointment at the prospect of periodic re-opening of the functional questions regarding the state colleges. Such could be expected to occur with statutory statement as opposed to constitutional provision. However, in the face of anticipated passage of the Miller measure, pQ the University did not formally oppose. p O A differing interpretation is presented by Palt ridge, op. clt.. p. 3 2 . "The members of the i 960 legisla tive interviewed. • .pointed out that the reasons for this change /constitutional status/ centered largely around these facts: The university, after having once approved the survey teams recommendations, gave second thoughts to 89 During the course of legislative consideration of the Master Plan the interest groups of higher education were not visible except for the University of California, the only group which had traditionally maintained a legislative advocate in Sacramento, then James Corley. Dean McHenry, a member of the Survey Team and on the staff of President Kerr, along with Corley, played a key role during the pro cess. Organized state college legislative influence was not significant, though some faculty expressions were made. Outside efforts to encourage passage of the proposal were made with the University playing the major role in stimu lating them. Attention was paid to mobilizing favorable groups such as the American Association of University Women, and in attempting to neutralize those which were not in support, such as the California State Employees Associa tion. University alumni were also used in the campaign. Senate Bill 33 was passed by the Senate 33 to 1 on March 29 and was approved by the Assembly 70 to 0 on April 5. The bill was signed by Governor Brown on April 27* (Since Assemblywoman Dorothy Donahoe died before final passage of the bill and in recognition of her major role, the matter and opposed giving constitutional status to the state colleges and to a coordinating council which under this protection might grow to become threats to the pres tige or authority of the Regents." Statements made to this writer do not bear out this finding. 90 the bill became known as the "Donahoe Higher Education Act." Her death occurred on the day of the Assembly Edu cation Committee hearing on S.B. 33)* Passage of the bill in the Assembly was complicated by efforts of the California State Employees’ Association to protect employees of the State Department of Education. Supported by Governor Brown, the effort created a division of interests on the Assembly floor. This question, and the Governor’s role, resulted in some opposition to the Assembly version in Senate concurrence; the final vote was 28 to 8. The Governor, it should be noted, had by this time claimed the Master Plan as a major accomplishment of his administration, thus creating some antogonism among legislators who viewed the Master Plan essentially as leg islatively-inspired and non-partisan in nature. The Donahoe Higher Education Act as adopted called for a coordinating council to be composed of fifteen mem bers. Twelve members were to represent higher education interests including the private colleges and universities as called for in the Master Plan recommendations, and three were to be public members appointed by the Governor. Another legislative change not often noticed invol ved the appointment of private college and university members on the Council. The Survey Team recommended app ointment of private college members jointly by the Univer sity and state college chief executive officers after 91 discussion with private college associations. The statu tory version called for appointment of the independent institution representatives by the Governor. The addition of the public members and the changed method of appointment for the private college representatives carried with it the potential for much less control of the coordinating mechanism by the University and state colleges than might have occurred otherwise. In still another change, the Legislature gave each member of the agency board an equal vote on all matters where the Survey Team had recommended a system of voting which • .was to insure that decisions affecting any public Institution, particularly the University or the state colleges, would be made primarily by members whose institutions most likely would be affected."2^ Thus, the final adoption of Senate Bill 33 left the essential portions of the Master Plan intact but also resulted in major changes in its failure to make either the state college board or the coordinating agency consti tutional. Further, in respect to the coordinating agency, legislative decision-making had resulted in the addition of public membership and other related changes in member ship and procedures which potentially could make the agency 2^Paltridge, op. olt.. p. 3^. 92 much less dependent on the goodwill of the two four-year systems of public higher education. Further expression of legislative intent to encour age a coordinating mechanism independent of the higher education system interests was exhibited in 1965 in passage of Senate Bill 550 (1965> Regular Session,) which expanded public membership on the Council to six persons as well as making other changes in respect to establishing terms of office, limiting use of alternates, and providing for Senate confirmation of private college and university representatives as well as public members.-^ This change, as Paltridge points out, had stemmed from an impression of "bloc-voting" on the part of the public higher educa- 31 tion systems, a charge he found difficult to substantiated From the record it may be stated that California sought establishment of a coordinating mechanism much for the same reasons cited before as applicable for other 32 states. Arthur Coons spotlighted the chief reasons both for the Master Plan and by inference the reasons to create a coordinating mechanism when he dramatically introduced ^°State of California, Education Code, sec. 22700, as amended 1965* ^Paltridge, op. clt.. p. 100. The specific in stances of this change and its possible consequences are discussed in detail in his Chapter V, pp. 98-121. ^2Supra. pp. 47-51 (draft). 93 the Master Plan Survey Team’s recommendations to the 33 Regents and the State Board on December 18, 1959* In his presentation, Coons called attention to four major reasons leading to the Master Plan: 1* “Quantitative considerations and, consequently, institutional and segmental competition for stu dent enrollments and new institutional units in which to teach them. • 2. Desires of many locales and their spokesmen for new institutions. 3S “• • ./r/he strongly voiced aspirations of one segment of public higher education. • .the state colleges. Voiced was their desire for additional recognition and prestige. • .” 4. “. . ,/o/ver against this dynamic situation, yet involving all other elements in the situation as well, one could detect fear." Pear for each systems' future well-being. 5. Discussion in many quarters concerning the reor ganization of the structure and control or coor dination of higher education. There was at the time, apparently, no clear concep tion of what might be the process and outcome of coordina tion in the California context. This is perhaps well- illustrated in the one exchange regarding the coordinating agency which occurred during the joint meeting at which the Team findings were presented. MRS. NOLAND^ (member of the State Board of Educa- -^Prepared statement of Arthur Coons, December 18, 1 9 5 9 . ^Excerpt from University of California, Regents, Minutes, Vol. V, pp. 419-63. 9^ t i o n ) : We w ere c o n c e rn e d a b o u t t h i s c o m p e ti t io n f o r fu n d s w i t h i n t h e S t a t e , f o r h i g h e r e d u c a ti o n . We w ere m o st happy to s e e a c o o r d i n a t i n g c o u n c i l w r i t t e n i n t o t h i s amendment to t h e C o n s t i t u t i o n , b e c a u s e we f e l t t h a t t h e C o o r d in a tin g C o u n c il w i l l s a f e g u a rd t h e s e fu n d s and i t w i l l p r o v id e a m eans o f a l l a y i n g an y c o m p e ti t io n f o r f u n d s . To w hich G o v ern o r Brown, c h a i r i n g t h e m e e tin g r e p l i e d : Thank you v e ry much. I am s u r e t h a t i t w i l l c e r t a i n l y be a p r e s s u r e g ro u p i n t h a t d i r e c t i o n , b u t I am con f i d e n t t h a t n o th in g w i l l s to p t h e c o m p e ti t io n f o r f u n d s . (L a u g h te r ) CHAPTER V THE RECORD FOR THE CALIFORNIA COORDINATING AGENCY 1959-1967 The historical statements of the preceding chapter point up the fact that the California Coordinating council for Higher Education came into being with a general list ing of functions of an advisory nature and no clear con ception or direction toward defining the ways and means by which its advice would become known or carried out. What tools and strategies of influence has the California agency employed? T he T o o ls a n d S t r a t e g i e s o f I n f l u e n c e Typically any Interest group might be expected to employ a number of tools or strategies to project a parti cular point of view desired in the context of government. These could include: 1, Use of grass-roots expressions to legislators and other officials through letters and individual contact, 2. Expressions from Interested bodies such as boards of local agencies or powerful citizens groups. 95 9 6 3* Volunteering of services to officials to provide expert advice and aid to develop an image of res ponsibility and ability. i | > . Techniques designed to develop indebtedness on the part of the officials— campaign aid in the form of services, gifts and entertainment, 5* Individual contact with legislators and officials. 6. Formal presentations before committees and boards on issues. 7. Staged demonstrations to present an image of active support or opposition* 8. General public relations campaigns with government al officials as one of the targets. The list of tools and strategies could be extended. But not all techniques of influence open to private associations are available to a formal, statutory group such as the coordinating agency for higher education. While no hard and fast limits can be easily determined, it appears generally recognized, based on comments of persons interviewed during the course of this study as well as the literature, that certain avenues for influence are closed to a state agency, and indeed to institutions such as a state university supported in large part from state funds. Both legal and practical restrictions apply. Direct support in campaigns is presumably precluded (though this is not to say it cannot occur). The providing of services and benefits to officials is circumscribed to some extent. Perhaps most importantly the state-sponsored Interest is not in a satisfactory position to combine with 97 o t h e r i n t e r e s t s i n l o g - r o l l i n g a c t i v i t i e s . F u r t h e r , a g e n c i e s a r e n e c e s s a r i l y m ore c ir c u m s p e c t c o n c e r n in g s p e n d in g o f p u b l i c f u n d s f o r i n f l u e n c e p u r p o s e s . B ut t h i s d o e s n o t im p ly t h a t a n a g e n c y i s u n a b le t o e f f e c t i v e l y make i t s I n t e r e s t s known i n an y o f a v a r i e t y o f w ays— i n c l u d i n g a n a g e n c y d e v o te d to m a t t e r s r e l a t i n g to o n e o f s o c i e t y ' s »g o o d s " — e d u c a t i o n . The f i n d i n g s o f a s tu d y c o n d u c te d by F reem an o f t h e f e d e r a l B ureau o f I n d i a n A f f a i r s a r e r e l e v a n t h e r e . I n h i s s t u d y , F reem an i d e n t i f i e d a num ber o f t o o l s a n d s t r a t e g i e s u s e d by t h e B u re au i n t h e c o n d u c t o f i t s r e l a t i o n s h i p s w ith C o n g re s s . He n o te d t h a t t h e B ureau w ould o n o c c a s i o n em ploy a te c h n iq u e o f e x p l o i t i n g t h e p r e s t i g e a n d i n f l u e n c e o f t o p - l e v e l o f f i c i a l s su c h a s t h e S e c r e t a r y o f I n t e r i o r I n d e a l i n g w ith C o n g ressm en . He c o n s i d e r e d I m p o r ta n t th e e f f o r t s by th e B u re au t o r o u t l n i s e t h e i r r e l a t i o n s h i p s by a s s ig n m e n t o f s t a f f o n a c o n t i n u i n g b a s i s to l e g i s l a t i v e l i a i s o n . C o u p led w i t h t h i s was t h e e n c o u ra g e m e n t o f t h e d e v e lo p m e n t o f p e r s o n a l r e l a t i o n s h i p s b e tw e e n B u re au p e r s o n n e l a n d C ongressm en and t h e i r s t a f f s . I n a d d i t i o n , h i s s t u d y fo u n d t h a t t h e B u reau em ployed a t e c h n iq u e o f p l a y i n g one l e g i s l a t i v e c o m m itte e a g a i n s t a n o t h e r . He a l s o fo u n d t h a t e x p l o i t a t i o n o f c o m m itte e h e a r i n g s f o r a g e n c y im a g e - b u i l d i n g o c c u r r e d fro m tim e t o t im e . F i n a l l y , h e p o i n t e d t o t h e u s e o f p u b l i c i t y c o n c e r n in g t h e q u e s t i o n a t h a n d a s 98 being of value in making the Bureau's interests known. 1 The importance of the political individuals within the agency staff is stressed: „ . */l/t is also the case that embedded in the formal legislative liaison structure will very likely be some individuals who are unusually important adjuncts to the efforts of bureau leaders to influence policy. • • Usually his formal status is less significant than his informal function. 2 The agency, or bureau, may also seek to develop a ‘ 'constituency" both Internally and externally where there was once none or it was Inadequately felt. This may be done by the use of publicity, stimulus for program support, and mobilization of clientele. The backing of the agency's own personnel and clientele may be important. Freeman develops this proposi tion saying that a bureau chief should have support of most of the bureau's employees and clientele before the policy can be successfully pursued before committee members.3 In light of the above, the coordinating agency for higher education as an interest group, can be anticipated J. Leiper Freeman, The Political Process: Bxecutlre Bureau-Legislative Commlttee^Relatlons (rev, ed.. New York: Random House and Co., 1965)* PP. 70-78. See also his "The Bureaucracy in Pressure Politics," in Donald C. Blalsdell, ed., "Unofficial Government: Pressure Groups and Lobbies," The flnnals of the American Academy of Political and Social Science CCCXIX (September 1958), pp. 10-19. 2I b id . . p. 77. 3I b ld . , p. 124. 99 to employ a number of tools or strategies, Individually or in combination, in seeking to Influence decision-making on higher education matters in the political arena, to include: lo I t w i l l s e e k t o d e v e lo p th e " e x p e r t1 1 im age by p e r fo r m in g f u n c t io n s c o m p a tib le w ith t h a t im age. In this context it will provide services to offi cials. 2. Consistent with the "expert" strategy, it may attempt to seek out and stimulate legislative requests and opportunities for it to further perform that function. 3. Individuals will be assigned legislative liaison as an exclusive or major portion of their duties. Efforts will be made to develop "friends in court": key legislators interested in higher education and important executive officials such as those engaged in the budget-making organiza tion. 5. Efforts will be made to gain support of the Gov ernor and his top aides. 60 Efforts will be made to work with other Interests on some issues. 7. Board members may be called upon to contact key officials and legislators on major questions. 8. Interests of the coordinating agency will be ex pressed through personal contacts as well as through formal reports, committee hearings, and the like. 9« The ag en cy w i l l se e k to d e v e lo p t h e s u p p o r t o f I t s c l i e n t e l e ( t h e h i g h e r e d u c a ti o n i n s t i t u t i o n s an d sy s te m s) and w i l l lo o k t o them f o r s u p p o r t i n c a r r y i n g o u t l e g i s l a t i v e p ro g ra m s . If in the view of the agency these strategies and tools, in whole or in part, fail to work in making inter ests known, then attempts may be anticipated at co-optation. 100 The agency may seek to espouse policies of other groups 4- and Interests in order to gain the appearance of success. Or If failure Is encountered in performing certain functions per se then the coordination agency may seek out others to perform in order to Justify its existence."* If a poor performance record is perceived by the legislative-execu tive, then attempts may be anticipated to modify the or ganization or other wise seek to modify its direction. With this framework of possible tools and strate gies in mind, the following pages record the performance of the California agency based on existing historical record. This record is first reviewed in terms of the instances on which advice was sought by the Legislature and the responses to those requests. Next are considered requests of the Governor. Also noted are those issues on which the Council has sought to convey advice on its own initiative. Following this inventory of formal directives and responses, other less formal contacts between Council and ^This is suggested by the notion stated by Phillip Selznick, TVA and the Grass Roots (Berkeley and Los Angeles: University of California Press, 1961). See also James D. Thompson and William J. McEwen, "Organization Goals and Environment," American Sociological Review XXIII (February 1 9 5 8 ) . 2 3 -3 1 * . 5<rhis proposition is put forth by James D. Thompson, Organizations in Action: Social Science Bases of Adminis trative Theory (New York: McGraw-Hill Book Company, 196?), PP. 36-37. 101 l e g i s l a t i v e - e x e c u t i v e a r e d i s c u s s e d . Some a t t e n t i o n i s t h e n p a id to th e e x t e n t to w hich C o u n c il and l e g i s l a t i v e - e x e c u ti v e r e l a t i o n s a r e r o u t i n l z e d . F i n a l l y C h a p te r VI d i s c u s s e s s e v e r a l q u e s t i o n s o r i s s u e s w hich a r e i l l u s t r a t i v e o f C o u n c il an d l e g i s l a t i v e - e x e c u tiv e r e l a t i o n s h i p s an d te c h n iq u e s and t o o l s em ployed t o m a i n t a i n t h o s e r e l a t i o n s h i p s . The r e s u l t i n g p e r c e p t i o n s o f p e rfo rm a n c e an d th e a p p r o p r i a t e n e s s o f t h e t o o l s an d s t r a t e g i e s u s e d by t h e a g e n c y a r e d i s c u s s e d i n C h a p te r V II and C h a p te r V I I I . F o rm al Exchange B etw een th e C o u n c il and L e g i s l a t i v e - E x e c u tiv e L e g i s l a t i v e S t a t e m e n t s . S in c e t h e o r g a n i z a t i o n o f t h e C o u n c il i n O c to b e r i960 t h e L e g i s l a t u r e h a s made a num ber o f fo rm a l e x p r e s s io n s d i r e c t e d t o th e C o u n c il, g e n e r a l l y r e q u e s t i n g t h e C o u n c il to c o n d u c t p a r t i c u l a r s t u d i e s o r , i n t h e c a s e o f t h e n e e d f o r new i n s t i t u t i o n s , t o c o n s i d e r a p a r t i c u l a r l o c a l e w i t h i n i t s r e v i e w s . T hese a c t i o n s a r e g e n e r a l l y i n r e s o l u t i o n form a d o p te d by e i t h e r o r b o th h o u s e s . T a b le I , A ppendix A, s e t s f o r t h i n b r i e f a l l su c h l e g i s l a t i v e s t a t e m e n t s , i 960 th r o u g h 1 9 6 ? . A lso i n d i c a t e d i s a n o t a t i o n a s to t h e C o u n c i l 's r e s p o n s e to t h e a c t i o n . I n c l u d e d w i t h i n t h e l i s t i n g , a s w e l l , a r e t h o s e s t a t u t e s w hich h a v e m o d if ie d th e C o u n c i l 's s t r u c t u r e i n any way o r hav e d i r e c t e d i t t o p e rfo rm c e r t a i n f u n c t i o n s . 102 Legislative direction, of a semi-formal nature, may be expressed in California through the comments and recom mendations of the Legislative Analyst in his annual report to the Joint Legislative Budget Committee. While the Analy st's main objective is to review the proposed Governor's budget each year, his report often includes additional recommendations on suggested policies, program modifica tions which might be desirable, or on studies which are needed. In most years the recommendations of the Analyst are given formal status by their adoption by the Senate Finance Committee (or, on occasion, by the Assembly Ways and Means Committee) during consideration of the budget bill. Whether formally adopted or not, the recommendations of the Legislative Analyst for studies to be performed are generally taken to have the force of legislative direction in practice by the California Coordinating Council, Table II, Appendix A, lists those recommendations of the Analyst since 1961 calling for Council study or review. Also in cluded in the listing are other actions of a similar nature taken by the two finance committees, though not originally proposed by the Analyst. Notation is made concerning Council actions relevant to the requests. Tables I and II, Appendix A show that the advice of the Council has been sought on relatively few questions by the Legislature since the organization of the Council in 103 October i960* Legislative Interest has tended, to be most often expressed on matters concerning Council consideration of certain areas for location of new state colleges or cam puses of the University of California, Specific studies have been requested by resolution of either or both houses over the seven year period on medical and dental education, continuing education, aspects of state support for junior colleges, annual reports on faculty salaries and benefits, impact of federal funds, agricultural business management programs, use of computers in education, possible elimina tion of lower division at selected state colleges or Uni versity campuses, multi-year budgeting for higher education and the value and use of the doctorate in arts degree* The Council has also been commended by the Legislature for its policies regarding year-round operation of colle giate facilities. In other statutory enactments the Council has been authorized to administer programs under the higher Educa tion Facilities Act of 1963 and the Higher Education Act of 1 9 6 5 . A review of the primary authors of legislative ac tions relating to the Council disclosed the repetition of the names of a small group of legislators. Excluding the Instances of requests for new campuses, the names of 104 S e n a t o r s R ic h a r d R odda, G eorge M i l l e r , J r . , a n d W a lte r S t l e r n a p p e a r o n m ore t h a n t h r e e m e a s u re s a s d o e s t h a t o f A s s e m b ly m a n C h a r le s G a r r i g u s . S e n a to r R odda now s e r v e s a s c h a irm a n o f t h e S e n a te E d u c a tio n C om m ittee an d S e n a to r S t i e r n was f o r some y e a r s c h a irm a n o f t h e S e n a t e 's I n t e r i m F a c t - F i n d i n g C om m ittee on E d u c a ti o n , S u b -C o m m ittee on H ig h e r E d u c a tio n . S e n a to r M i l l e r , a u t h o r o f t h e M a s te r P l a n l e g i s l a t i o n , i s c h a irm a n o f t h e S e n a te C om m ittee o n F i n a n c e . A ssem blym an C h a r le s G a r r ig u s was c h a irm a n o f t h e A ssem bly C om m ittee o n E d u c a tio n u n t i l h i s r e t i r e m e n t fro m t h e L e g i s l a t u r e a t t h e end o f 1966. The re c o m m e n d a tio n s o f t h e L e g i s l a t i v e A n a ly s t t e n d to i n d i c a t e t h a t h e and h i s s t a f f h a v e b e e n c o n c e rn e d o v e r a l i m i t e d num ber o f i s s u e s h a v in g im p a c t c h i e f l y u p o n t h e o v e r a l l l e v e l o f s u p p o r t r e q u i r e d f o r p u b l i c h i g h e r e d u c a t i o n . S t u d e n t f e e s , b o th f o r r e s i d e n t s an d n o n - r e s i d e n t s , im p le m e n ta tio n o f y e a r - r o u n d o p e r a t i o n s , and q u e s t i o n s r e l a t i n g t o u n i t c o s t s a r e r a i s e d a s s u b j e c t s f o r s t u d y . A ls o , re c o m m e n d a tio n s r e l a t i n g t o t h e m eth o d s o f im p le m e n t i n g t h e M a s te r P l a n p o l i c y o f d i v e r t i n g c e r t a i n s t u d e n t s fro m t h e lo w e r d i v i s i o n o f s t a t e c o l l e g e s a n d t h e U n iv e r s ity o f C a l i f o r n i a to j u n i o r c o l l e g e s w ere made i n f o u r s e p a r a t e A n a l y s e s . E x a m in a tio n o f t h e t e x t s o f t h e s t a t e m e n t s a p p e a r i n g i n t h e a n n u a l A n a ly s e s th r o u g h 1967-68 d i s c l o s e a g e n e r a l l y f a v o r a b l e a t t i t u d e to w a rd t h e C o u n c il an d i t s p u r p o s e s . 105 Im p a tie n c e i s e x p r e s s e d o n o c c a s i o n b u t w ith some e f f o r t t o e x p l a i n th e c ir c u m s ta n c e s . Though r e l a t i v e l y few fo r m a l s t u d i e s h av e b e e n r e q u e s t e d v i a th e A n a l y s e s , t h e A n a ly s t a p p e a rs to have lo o k e d to t h e C o u n c il f o r e x p e r t a d v i c e . F u r th e r m o r e , d i s c u s s i o n s o f h i g h e r e d u c a t i o n m a t t e r s c o n t a i n e d i n th e a n n u a l r e p o r t r e f l e c t c o n s i d e r a b l e u s e o f C o u n c il r e p o r t s and o t h e r docum ents p r e p a r e d f o r t h e Counc I I • C o u n c il S t a t e m e n t s . The a d v ic e o f t h e C a l i f o r n i a c o o r d i n a t i n g ag en c y h a s b e e n l i m i t e d n o t o n ly t o t h o s e Ite m s u p o n w hich t h e L e g i s l a t u r e o r i t s c h i e f s t a f f members hav e e x p r e s s e d a c o n c e rn . T a b le I I I , A pp en d ix A, summar i z e s t h o s e fo rm a l a c t i o n s t a k e n by t h e C o u n c il a d v i s i n g t h e L e g i s l a t u r e o r G o v e rn o r. The a c t i o n s a r e p r e s e n t e d i n c h r o n o l o g i c a l o r d e r by d a te o f C o u n c il a p p r o v a l an d b r i e f n o t a t i o n i s made c o n c e rn in g l e g i s l a t i v e r e s p o n s e to t h e a d v ic e . T h is l i s t i n g s u g g e s t s t h a t C o u n c il a d v ic e to t h e l e g i s l a t u r e and G o v ern o r h a s b e e n r e l a t e d to a num ber o f d i f f e r e n t s u b j e c t s , w ith m ost o f them f a l l i n g w i t h i n t h e c o n te x t o f f i n a n c i a l q u e s t i o n s o r m a t t e r s r e l a t i n g t o t h e n e e d f o r an d l o c a t i o n o f new c e n t e r s f o r h i g h e r e d u c a t i o n . The C o u n c il o n a num ber o f o c c a s i o n s s u p p o r te d p r o p o s i t i o n s f o r s t a t e w i d e bond I s s u e s to f i n a n c e c a p i t a l o u t l a y . I t m e m o ria liz e d t h e L e g i s l a t u r e s e v e r a l tim e s r e g a r d i n g I n c r e a s e d s u p p o r t f o r t h e j u n i o r c o l l e g e s and - \ . 106 finally presented a major plan for revising their method of financing. A number of actions have been taken concern ing the support for year-round operations, especially in the state colleges and the University of California.. Since 1962 it has advised the Legislature in varying degrees of detail on the need for salary increases for state college and University faculty, similarly since 19^2, though much reduced in 1 9 6 ? , the Council has made comment first to the Department of Finance and Governor, and then to the Legis lature, on the "level of support sought for higher educa tion". These comments have been mainly confined to speci fic proposals of the University and state colleges for new programs. In 1965. the Council presented its major series of advices on the need for new state colleges and University campuses. In addition, as required by statute, it has reported on the carrying out of the functional delineation among the systems of public higher education, finding no. statutory changes required at least through 1968. No meaningful statement can be made concerning the implementation by the Legislature and other state officials of advice from the Council. The importance attached to the issue or question at hand must necessarily be given predominant attention. The discussion of certain general questions and issues which have brought greatest legisla tive-executive attention can perhaps best contribute toward 107 suggesting the total impact the Council has had in its relationships with state government. These "cases" are discussed in Chapter VI. The Governor^ Statements. The record shows few occasions upon which the Governor has either sought the advice of the Council or otherwise indicated his desires. Governor Brown in a letter dated September l^f 1961, asked Council members to consider the permanent location of Council offices in Sacramento.^ The next formal request was in April 1963, when it was reported that Governor Brown had asked the Council to consider the desirability of a 7 state college in the San Joaquin Valley. In his budget message for the 1962-63 fiscal year, Governor Brown re quested the Council to take the lead in developing accept able formulae for the distribution of state funds for junior college capital outlay purposes, and in November 1965 be made a request by letter that the Council consider the adequacy of University of California plans to adminis- 8 ter the federally-sponsored State Technical Services Act. Governor Reagan during his first year in office made two requests of the Council: a request for a Council ^Coordinating Council for Higher Education (herein after designated CCHE), Minutes. September 15# 1961. 7CCHE, Minutes. April 2, 1963. p. 2. ®CCHE, Minutes. November 19, 1965* 108 Q s tu d y on m etho ds o f p r o v i d i n g s t u d e n t f i n a n c i a l a s s i s t a n c e ^ a n d one r e l a t i n g t o a l t e r n a t i v e m ethods o f f i n a n c i n g h ig h e r e d u c a tio n * I n f o r m a l E x ch an g es B etw een C o u n c il and L e g i s l a t i v e - E x e c u t i v e T h e re a r e , o f c o u r s e , many ways I n w hich members o f a n agency b o a rd f o r h i g h e r e d u c a ti o n an d i t s s t a f f may s e e k to I n f l u e n c e t h e l e g i s l a t i v e - e x e c u t i v e , and v i c e v e r s a . T h ese e x c h a n g e s a r e t h e e s s e n c e o f w hat i s h e r e te rm e d t h e " p o l i t i c a l p r o c e s s " . A few o f t h e k i n d s o f c o n t a c t s w h ich h a v e b een n o te d i n a r e v ie w o f t h e h i s t o r i c a l d e v e lo p m e n t o f t h e C o u n c il a r e p r e s e n t e d b e lo w .'1 '0 A p p e a ra n c e s o f O f f i c i a l s . A p p e a ra n c e s o f k e y p e r s o n n e l fro m t h e G o v e rn o r’ s o f f i c e a t c o u n c i l m e e tin g s may h a v e s i g n i f i c a n t im p a c t upon members o f t h e C o u n c il, a s w e l l a s p r o v i d in g members o f t h e C o u n c il w ith a v e h i c l e to make t h e i r p o s i t i o n s known to t h e G o v ern o r a n d h i s s t a f f . The G o v e r n o r 's c h i e f f i s c a l o f f i c e r , h i s D i r e c t o r o f F in a n c e , h a s m et f o r m a l ly w ith t h e C o u n c il o n t h r e e o c c a s i o n s . Jo h n C a r r , G overnor B ro w n 's se c o n d D i r e c t o r 9CCHE, Minutes. March 28', 1967. ■ ^ T h is summary i s b a se d upo n a r e v ie w o f t h e m in u te s f o r e ac h m e e tin g o f t h e C o u n c il s i n c e i960, o b s e r v a t i o n s o f th e a u t h o r s i n c e 1 9 6 1 , comments made t o t h e a u t h o r a s a p a r t o f t h e c u r r e n t s tu d y and o t h e r i n f o r m a ti o n p r o v id e d by C o u n c il s t a f f . 109 ( B e r t L e v l t s e rv e d t h e G o v ern o r I n t h a t c a p a c i t y f i r s t ) m et w ith t h e C o u n c il on March 1 0 , 1 9 6 1 . H ale Cham pion, C a r r 's s u c c e s s o r a t t e n d e d t h e S e p te m b e r 24, 19&3 m e e tin g . Gordon S m ith , G o v e rn o r R e a g a n 's f i r s t D i r e c t o r , made a p r e s e n t a t i o n to a C om m ittee m e e tin g o f t h e C o u n c il a t w hich m ost members o f t h e f u l l C o u n c il w ere p r e s e n t o n F e b r u a r y 2 0 , 1 9 6 7 . I t s h o u ld be n o te d t h a t M r. C a r r 's an d Mr. S m i t h 's p r e s e n t a t i o n s w ere l a r g e l y l i m i t e d t o t h e b u d g e ta ry s i t u a t i o n a t t h e p a r t i c u l a r p o i n t i n tim e . C h am p io n 's p r e s e n t a t i o n was d i r e c t e d m ore t o t h e p o s s i b l e f u n c t i o n s o f C o u n c il m ig h t p la y v i s - a - v i s t h e b u d g e ta r y p r o c e s s . L e g i s l a t i v e r e p r e s e n t a t i v e s h av e a t t e n d e d C o u n c il m e e tin g s o n few o c c a s i o n s , an d i n a l l i n s t a n c e s i n r e s p e c t to q u e s t i o n o f l o c a t i o n o f p ro g ra m s . S e n a to r S t l e r n a t t ended tw i c e i n 19&3» t h e F e b r u a r y an d A p r i l m e e ti n g s . At t h e A p r i l 19&3 m e e tin g he was j o i n e d by S e n a to r R ic h a rd D olw ig and Assem blym en C a rl B r i t i s c h g an d Leo Ryan. Assem blym an V i c to r V e rse y a t t e n d e d a November 1966 m e e tin g to h e a r d i s c u s s i o n r e g a r d i n g c o n tin u a n c e o f a n o ff-c a m p u s s t a t e c o l l e g e c e n t e r i n I m p e r i a l C o u n ty . O r g a n i z a t i o n s W ith in G o v e rn m e n t. The C o u n c i l 's f i r s t D i r e c t o r , J o h n R i c h a r d s , so o n a f t e r a s s u m p tio n o f t h e d i r e c t o r a t e , a c c e p t e d G o v ern o r B ro w n 's i n v i t a t i o n to s e r v e o n h i s c a b i n e t . R ic h a r d s met w ith t h e c a b i n e t o n o c c a s i o n 110 u n t i l h i s r e s i g n a t i o n . H is s u c c e s s o r * W illa r d S p a l d in g , c o n tin u e d th e p r a c t i c e b u t n o rm a lly a t t e n d e d o n ly when m a t t e r s r e l a t i n g to e d u c a ti o n w ere o n th e a g e n d a . W ith t h e ch an g e i n G o v e rn o rs a n d a d i f f e r i n g c a b i n e t o r g a n i z a t i o n , t h e C o u n c il D i r e c t o r no l o n g e r s e r v e s . The D i r e c t o r may a l s o be c a l l e d upon to s e r v e o n c o m m itte e s o f s t a t e g o v e rn m e n t. F o r ex am p le, a t p r e s e n t , t h e D i r e c t o r s e r v e s w ith t h e L i e u t e n a n t G o v ern o r an d t h e S t a t e T r e a s u r e r on a S t a t e C o n s t r u c t i o n Bond A u t h o r i z a t i o n C om m ittee. B oard Member C o n ta c ts an d I n f l u e n c e . I n f o r m a l c o n t a c t b etw een C o u n c il members and l e g i s l a t o r s h a s o c c u r r e d i n a num ber o f c o n t e x t s o v e r t h e p e r i o d o f t h e Coun c i l ' s e x i s t e n c e . F o r e x am p le , i n 1966 and a g a i n i n 1967 c e r t a i n C o u n c il members e n t e r t a i n e d k e y l e g i s l a t o r s i n I n f o r m a l " g e t a c q u a in t e d d i n n e r s " i n S a c ra m e n to . (L unch e o n s a n d d i n n e r s w ith th e G o v e rn o r h a v e a l s o b e e n h e ld on a p p r o x im a te ly a y e a r l y b a s i s . ) I n d i v i d u a l m em bers, o n o c c a s i o n , c o n t a c t l e g i s l a t o r s o n m a t t e r s im p o r ta n t t o C o u n c il a f f a i r s . I n a l l , h o w e v er, i t a p p e a r s t h a t l e g i s l a t l v e - C o u n c i l member c o n t a c t on m a t t e r s o f C o u n c il c o n c e rn h a s b e e n r e l a t i v e l y l i m i t e d . ( I t m u st be rem em bered t h a t some C o u n c il members a l s o s e r v e o n b o a rd s f o r t h e sy ste m s o f h i g h e r e d u c a t i o n .) The b a c k g ro u n d s an d p o s i t i o n s o f members o f t h e C o u n c il d i c t a t e t o a g r e a t e x t e n t t h e i n f l u e n c e p o t e n t i a l I l l th e y may have i n r e s p e c t t o l e g i s l a t o r s an d G o v e rn o r. G o v e rn o r Brown d u r in g h i s a d m i n i s t r a t i o n a p p o in te d e i g h t p e r s o n s to t h e C o u n c il a s p u b l i c m em bers. Of h i s f i r s t a p p o i n t e e s on e was a n a t t o r n e y , W arren C h r i s t o p h e r , a member o f a p ro m in e n t s o u t h e r n C a l i f o r n i a la w f i r m an d a c t i v e i n D e m o c ra tic P a r t y a f f a i r s . He was p a r t i c u l a r l y i d e n t i f i e d w i t h th e Brown a d m i n i s t r a t i o n , s e r v i n g a s a c am p aig n m an ag er and i s now s e r v i n g a s D eputy A t t o r n e y G e n e r a l f o r t h e U n ite d S t a t e s . A se co n d a p p o in tm e n t was Andrew K ay, a S an D iego e l e c t r o n i c s m a n u f a c tu r e r whose p o l i t i c a l a c t i v i t i e s h a d l a r g e l y b e en l i m i t e d to cam p aig n fu n d r a i s i n g . H e le n M ilb an k was h i s t h i r d a p p o i n t e e , a woman a c t i v e i n c i v i c a f f a i r s . The n e x t a p p o in tm e n t t o t h e C o u n c il r e p l a c i n g M rs. M ilb an k on h e r r e s i g n a t i o n , was B e r t L e v i t , fo rm e r D i r e c t o r o f F in a n c e a n d a c l o s e f r i e n d o f G o v e rn o r Brown. W ith th e a d d i t i o n o f t h r e e new p u b l i c members i n 1965 t h e G o v ern o r a p p o in te d A r th u r C oons, fo rm e r P r e s i d e n t o f O c c i d e n ta l and som etim e r e p r e s e n t a t i v e on th e C o u n c il f o r t h e p r i v a t e c o l l e g e s and u n i v e r s i t i e s , a s a p u b l i c m em ber. The c h a i r man o f th e M a s te r P l a n S u rv e y Team, Coons c o u ld be s a i d to h a v e i n f l u e n c e w ith t h e a d m i n i s t r a t i o n b a s e d u pon h i s p a s t e x p e r i e n c e a n d h i s p r e s t i g e . A p p o in te d a lo n g w ith Cooris, was R o b e r t S e t r a k l a n p ro m in e n t S a n J o a q u in V a lle y g ro w e r. He h a d s e r v e d t h e D e m o c ra tic P a r t y i n fu n d r a i s i n g cam paigns an d a l s o h o ld s 112 a n a p p o in tm e n t o n t h e C a l i f o r n i a S t a t e F a i r an d E x p o s i ti o n B o a rd . L o u is J . K ro e g e r was a l s o I n c lu d e d I n t h e new a p p o in tm e n ts . O netim e c h i e f o f t h e C a l i f o r n i a S t a t e P e r s o n n e l B o ard , K ro e g e r h ad h e ld a num ber o f g o v ern m en t p o s i t i o n s and w a s, u n t i l t h e tim e o f h i s d e a t h i n 19^7» a m anagem ent c o n s u l t a n t . At th e same tim e , G eorge Gelman o f B a k e r s f i e l d was a p p o in te d on th e e x p i r a t i o n o f K a y 's te rm . G elm an, a c h e m is t, had b e e n a c t i v e i n e f f o r t s t o s e c u r e a s t a t e c o ll e g e f o r K ern County and was a c o n t r i b u t o r to t h e D e m o c ra tic P a r t y . From h i s i n a u g u r a t i o n i n J a n u a r y 1967 t o J a n u a r y 1 9 6 8 , G overnor R eagan h a s made f i v e p u b l i c member a p p o i n t m en ts to th e C o u n c il. (T h e re a r e s i x i n a l l ) . H is f i r s t a p p o in tm e n t was D udley Swim o f C arm el V a lle y to r e p l a c e B e r t L e v i t whose te rm had e x p i r e d . Swim, a s u c c e s s f u l b u s in e s s m a n , h a s s e rv e d i n fu n d r a i s i n g e f f o r t s f o r th e R e p u b lic a n P a r t y . On t h e r e s i g n a t i o n o f W arren C h r i s t o p h e r , R eagan a p p o in te d H a rry H aldem an, a n a d v e r t i s i n g e x e c u t i v e , i n h i s s t e a d . Haldem an h a d j u s t c o m p le te d a te rm o n t h e R e g e n ts o f t h e U n i v e r s i t y o f C a l i f o r n i a i n h i s c a p a c i t y a s U n i v e r s i t y o f C a l i f o r n i a Alum ni P r e s i d e n t and i s c l o s e to members o f th e R eagan a d m i n i s t r a t i o n . 11 W ith t h e e x p i r a 11Haldem an i n M arch 1968 was a p p o in te d t o a f u l l s i x t e e n - y e a r te r m on t h e R e g e n ts l e a v i n g a new v a c a n c y f i l l e d by P a t t e r s o n Hyndeman o f S an D ie g o . I n t h e same m onth D udley Swim was a p p o in te d t o t h e T r u s t e e s o f th e s t a t e c o l l e g e s l e a v i n g y e t a n o th e r v a c a n c y . 113 t i o n o f th e te rm o f R o b e rt s e t r a k i a n , R eagan n o m in a te d K e n n e th R e arw in , a s to c k b r o k e r , fro m S an D ie g o , R e arw in h a s b e e n a c t i v e In R e p u b lic a n P a r t y a f f a i r s o f t h e a r e a and h a d s e rv e d a s a p u b l i c member o n t h e C o u n c il- s p o n s o r e d S t a t e C om m ittee on C o n tin u in g E d u c a tio n . The f i n a l a p p o in tm e n t h a s been L o ren z o H oopes, a p p o in te d to c o m p le te t h e te rm o f L o u is K ro e g e r who d ie d i n O c to b e r 196 7 . H oopes, a g r o c e r y s t o r e c h a in e x e c u t i v e , i s a R ep u b lican and was a o n e -tim e a s s i s t a n t to S e c r e ta r y o f A g r ic u lt u r e , Ezra T a ft B enson. Members o f th e R e g e n ts o f t h e U n i v e r s i t y , t h e T r u s t e e s o f t h e S t a t e C o lle g e s and t h e member o f t h e S t a t e B oard o f E d u c a tio n ( r e p l a c e d a lo n g w ith o t h e r j u n i o r c o l l e g e r e p r e s e n t a t i v e s a f t e r M arch 1968 by members o f t h e new B oard o f G o v e rn o rs f o r t h e C a l i f o r n i a Community C o l l e g e s ) , and t h e member o f th e S t a t e B oard o f E d u c a tio n who s e r v e o n th e C o u n c il may, o f c o u r s e , be c l o s e to t h e G o v ern o r i n o f f i c e a s w e ll a s o t h e r l e g i s l a t i v e l e a d e r s . C l e a r l y , t h e R e g e n ts , f o r e x am p le, a s a b o a rd r e p r e s e n t some o f th e m ost i n f l u e n t i a l p e rs o n s i n C a l i f o r n i a . F u rth e r t h e G o v ern o r i n a p p o in t i n g p r i v a t e c o l l e g e m em bers, may a p p o i n t th o s e c l o s e to him . The p o t e n t i a l f o r C o u n c il i n f l u e n c e o n a n a d m in is t r a t i o n and L e g i s l a t u r e th ro u g h p u b l i c member a p p o in t e e s a p p e a r s p r e s e n t th o u g h , o v e r a l l members o f t h e C o u n c il a p p o in t e d t o d a t e to r e p r e s e n t t h e g e n e r a l p u b l i c h av e n o t 114 g e n e r a l l y b e e n r e c o g n i z e d , m a jo r s t a te w i d e f i g u r e s e i t h e r i n p o l i t i c a l c o n c e r n s , b u s i n e s s o r c i v i c a f f a i r s . Members o f t h e s y s te m g o v e rn in g b o a rd s o f h ig h e r e d u c a ti o n s i t t i n g on t h e C o u n c il have te n d e d t o be more p r e s t i g o u s . T h e ir p o t e n t i a l f o r i n f l u e n c e w ith p o l i t i c a l l e a d e r s i s presum ed g r e a t e r b u t would p r o b a b ly be e x e r t e d on b e h a l f o f t h e g o v e rn in g b o a rd to w hich th e y h a v e been a p p o in t e d , r a t h e r t h a n t h e C o u n c il, i f t h e r e s h o u ld be a c o n f l i c t o f r o l e s and I n t e r e s t s . The C o u n c il M e e tin g . The C o u n c il m e e tin g i t s e l f may s e r v e a s th e a r e n a i n w hich i n f l u e n c e u p o n s t a t e gov ern m e n t m ay_occur i n a num ber o f w ays. M e e tin g s , w hich o c c u r some e i g h t tim e s a y e a r , o f t e n f o r two d a y s , a r e a t t e n d e d by s t a f f fro m t h e L e g i s l a t i v e A n a l y s t 's o f f i c e , t h e D e p a rtm e n t o f F in a n c e , a n d more r e c e n t l y a r e p r e s e n t a t i v e o f t h e G o v e r n o r 's o f f i c e . ( T y p i c a l l y th e G o v e r n o r 's r e p r e s e n t a t i v e i s t h e s e c r e t a r y a s s ig n e d r e s p o n s i b i l i t y f o r e d u c a ti o n m a t t e r s . ) S t a f f members from t h e C a l i f o r n i a L e g i s l a t u r e 's J o i n t C om m ittee o n H ig h e r E d u c a tio n have a t t e n d e d s i n c e o r g a n i z a t i o n o f t h e C om m ittee i n 1965* T hrough s t a f f p e r s o n n e l a t t e n d i n g m e e tin g s t h e a c t i o n s and d i s c u s s i o n s o f th e C o u n c il a r e r e l a y e d to r e s p e c t i v e o f f i c e s . Such o c c a s io n s may, a s w e l l , o f f e r o p p o r tu n e t i e s f o r members o f t h e C o u n c il t o d i s c u s s ite m s w ith t h e s e l e g i s l a t i v e - e x e c u t i v e r e p r e s e n t a t i v e s . The c o n te x t o f C o u n c il m e e tin g s may, a s w e l l , s e r v e a s v e h i c l e f o r members 115 o f t h e C o u n c i l 's s t a f f to d e v e lo p r e l a t i o n s h i p s w ith s t a f f p e r s o n n e l i n l e g i s l a t i v e an d g o v e rn m e n ta l o f f i c e s . P r e s s . The p r e s s n o r m a lly h a s b een i n a t t e n d a n c e a t m e e ti n g s , th o u g h r e p o r t e r s h a v e e x p r e s s e d t o t h i s w r i t e r f r u s t r a t i o n a t t h e g e n e r a l l y t e c h n i c a l l e v e l o f d i s c u s s i o n an d t h e d i f f i c u l t y o f d e te r m i n i n g w h at i s n ew s w o rth y . N ew sp ap ers su c h a s t h e S an F r a n c i s c o C h r o n i c l e , t h e S a c ra m e n to Bee a n d t h e L os A n g e le s Tim es h a v e e d u c a t i o n a l w r i t e r s o n t h e i r s t a f f s and h a v e te n d e d to g i v e t h e g r e a t e s t c o v e ra g e t o th e C o u n c il o v e r th e y e a r s . I n d e e d r e p o r t e r s s u c h a s W illia m T rom bley o f th e T im es h av e p r o d u c e d s i g n i f i c a n t e v a l u a t i o n s o f t h e o p e r a t i o n o f t h e 12 C o u n cil from tim e t o tim e . I n t e r e s t s G ro u p . The a c t i v i t i e s o f t h e C o u n c il a r e a ls o c l o s e l y f o l lo w e d by t h e s e v e r a l a s s o c i a t i o n s i n h i g h e r e d u c a t i o n . T h ese g ro u p s o f t e n sen d r e p r e s e n t a t i v e s t o m e e tin g s o f t h e C o u n c il a n d o c c a s i o n a l l y may p r e s e n t t h e i r p o s i t i o n s o r s t a t e m e n t s t o t h e b o a rd o r i t s com m it t e e s . I n m ost i n s t a n c e s t h e s e g ro u p s a r e r e p r e s e n t e d i n S a c ra m e n to d u r in g l e g i s l a t i v e s e s s i o n s and t h e i r a d v o c a te s may s e r v e t o e n h a n c e o r r e d u c e t h e i n f l u e n c e o f th e C o u n c il a s th e y c o n t a c t l e g i s l a t o r s an d t h e i r s t a f f s . O b s e r v a ti o n o f m e e tin g s o f t h e C o u n c il d u r i n g 1 9 6 ? d i s c l o s e d t h e f o llo w - 12 S e e f o r e x a m p le , L os A n g e le s T im e s, J a n u a r y 1 0 , 1 9 6 6 , a r t i c l e h e a d l i n e d : " C o n t r o v e r s i e s P o i n t Up G row in g Pow er o f H ig h e r E d u c a tio n C o u n c il ." 116 in g groups toeing r e p r e s e n te d a t one o r more m e e tin g s: C a lif o r n ia T each ers A s s o c ia t i o n , C a lif o r n ia J u n io r C o lle g e A s s o c i a t i o n , C a lif o r n ia J u n io r C o lle g e F a c u lt y A s s o c i a t i o n , A s s o c i a t i o n o f C a lif o r n ia S t a t e C o lle g e P r o f e s s o r s , C a l i f o r n i a S t a t e E m p loyees’ A s s o c ia t i o n , C a l i f o r n ia S t a t e C o lle g e Academic S e n a te , U n iv e r s it y o f C a lif o r n ia Academ ic S e n a t e , and th e A s s o c ia t i o n o f In d ep en d en t C a l i f o r n ia C o lle g e s and U n i v e r s i t i e s ^ P a t te r n s o f C ou n cil L ia is o n With The L e g i s l a t i v e - E x e c u t i v e S t a f f i n g . From th e tim e o f i t s o r g a n i z a t i o n , th e C o u n cil h as been con cern ed w ith th e con d u ct o f i t s r e l a t i o n s h i p s w ith th e l e g i s l a t i v e and e x e c u t i v e b ran ch es o f I k govern m en t. I m p l i c i t r e c o g n i t io n o f th e im p ortan ce o f t h e s e r e l a t i o n s h i p s was g iv e n by th e C o u n cil i n th e a p p o in t ment o f K e it h S e x to n a s th e C o u n c il’ s f i r s t s t a f f member. S e x to n , a s n o te d in C hapter IV , had s e r v e d a s c o n s u lta n t to 13 -'N eith er o f th e academ ic s e n a t e groups m a in ta in what m ight be c o n s id e r e d a Sacram ento lo b b y . However, S t a t e C o lle g e S e n a te r e p r e s e n t a t i v e s a r e a c t i v e on o c c a s io n . T h is i s l e s s o f t e n t r u e w ith th e U n iv e r s i t y s e n a t e . As n o te d b e lo w , b oth th e s t a t e c o l l e g e s and t h e U n iv e r s i t y m a in ta in f u l l - t i m e l e g i s l a t i v e r e l a t i o n s s t a f f s lo c a t e d p erm an en tly i n S acram en to. I k S e e CCHE, M in u te s . F e b r u a r y 1 0 , 1 9 6 1 , f o r t h e f i r s t a c t i o n s r e l a t i n g t o p o s i t i o n s on b i l l s and t h e a u t h o r i z a t i o n f o r C o u n c il o f f i c e r s t o sp e a k b e f o r e t h e ’L e g i s l a t u r e . The C o u n c il i n J a n u a r y 1961 h a d a d o p te d c e r t a i n p r o c e d u r e s f o r a c t i n g o n s p e c i f i c b i l l s . ( M i n u t e s . J a n u a r y 5 t 1 9 ^ 1 , p p . 9 - 1 0 .) 117 t h e A ssem bly C om m ittee o n E d u c a tio n and c o n tin u e d to s e r v e i n t h a t c a p a c i t y on a h a l f - t i m e b a s i s fro m J a n u a r y to J u l y 1961 w h ile s e r v i n g a s a s t a f f to t h e C o u n c il. E f f o r t s e a r l y w ere to e s t a b l i s h a r o u t i n e f o r l e g i s l a t i v e c o n t a c t s , a n d , to some e x t e n t , c o n t a c t w ith th e a d m i n i s t r a t i o n . S e x to n c o n tin u e d to s e r v e a s p rim a ry c o n t a c t w ith S acram en to o f f i c i a l s th r o u g h th e 19&3 S e s s io n o f t h e L e g i s l a t u r e . The r e s p o n s i b i l i t y was t h e n assum ed to a g r e a t e r e x t e n t by D i r e c t o r J o h n R ic h a r d s w ith a s s i s ta n c e from t h e a u th o r d u r in g t h e 196^ S e s s i o n . W ith R i c h a r d s ’ r e s i g n a t i o n i n l a t e 196^ and th e a p p o in tm e n t o f A s s o c ia t e D i r e c t o r W illa r d S p a l d in g , f i r s t a s A c tin g D i r e c t o r and t h e n a s D i r e c t o r i n e a r l y 19&5* S e x to n was g iv e n f u l l r e s p o n s i b i l i t y f o r S a c ra m e n to a f f a i r s an d moved h i s o f f i c e t h e r e from t h e s t a f f h e a d q u a r t e r s t h e n l o c a t e d i n S a n F r a n c i s c o . B e g in n in g w ith t h e 1966 s e s s i o n a new s t a f f member, L e la n d M yers was a l s o a s s i g n e d l i a i s o n a c t i v i t i e s and by 1967 he was p e rfo r m in g t h e p rim a ry r o l e a s S e x to n d i r e c t e d h i s a t t e n t i o n t o o t h e r r e s p o n s i b i l i t i e s . D u rin g t h e c o u r s e o f h i s d i r e c t o r s h i p , S p a ld in g p la y e d a n a c t i v e r o l e i n l e g i s l a t i v e and e x e c u ti v e r e l a t i o n s h i p s . T h u s, fro m th e b e g in n in g , t h e C o u n c il h a s had p e r s o n n e l w ith a s s i g n e d l e g i s l a t i v e - e x e c u t i v e l i a i s o n r e s p o n s i b i l i t i e s . By 1965 t h i s f u n c t i o n had become a f u l l - t i m e t a s k a t l e a s t d u r in g l e g i s l a t i v e s e s s i o n s . W ith a n n u a l s e s s i o n s b e g in n in g i n 1 9 6 ? , t h e l i a i s o n a c t i v i t i e s have 118 r e q u i r e d v i r t u a l l y t h e c o m p le te a t t e n t i o n o f on e p e r s o n w o rk in g w i t h t h e D i r e c t o r . { I t s h o u ld he o b s e r v e d t h a t S e x to n to o h a s c o n ti n u e d some l i a i s o n r e s p o n s i b i l i t i e s , e s p e c i a l l y o n q u e s t i o n s c o n c e r n in g j u n i o r c o l l e g e s . ) The C o u n c il h a s n o t a lw a y s e x p r e s s e d s a t i s f a c t i o n w ith t h e p r o s e c u t i o n a n d r e s u l t s o f l i a i s o n a c t i v i t i e s . W arren C h r i s t o p h e r , t h e n p r e s i d e n t o f t h e C o u n c il, a f t e r su m m a riz in g t h e 1964 l e g i s l a t i v e s e s s i o n e x p e r i e n c e , s t a t e d t h a t a f u t u r e a g e n d a ite m f o r t h e C o u n c il s h o u ld be a d i s c u s s i o n o f how c o m m u n ic a tio n s w ith l e g i s l a t o r s a n d a s s i s t a n c e t o t h e L e g i s l a t u r e c o u ld be im p ro v e d . R e s u l t i n g I n p a r t fro m t h e g e n e r a l c o n c e r n o f t h e C o u n c il, e s p e c i a l l y i n a n t i c i p a t i o n o f t h e k e y q u e s t i o n o f l e g i s l a t i o n f o r new c o l l e g e c a m p u se s, S p a l d i n g , o n assu m p t i o n o f d i r e c t i o n o f t h e C o u n c il n o t o n ly made t h e a p p o i n t m ent o f S e x to n t o f u l l - t i m e c o n c e r n f o r l e g i s l a t i v e m a t t e r s b u t a l s o s u g g e s t e d t h a t t h e C o u n c il a p p o i n t a c o m m itte e to a d v i s e on l e g i s l a t i v e m a t t e r s . T h is was done i n t h e fo rm o f a C om m ittee o n C o u n c il R e l a t i o n s h i p s a n d P r o c e d u r e s c r e a t e d i n M arch 1 9 6 5 * ^ R e s u l t a n t im pro vem en t was n o te d by P r e s i d e n t C h r i s t o p h e r a t t h e c l o s e o f t h e 1965 S e s s i o n a s h e a s c r i b e d t h e im p ro v e d r e l a t i o n s h i p s t o t h e e n e r g i e s 1 5 CCHE, M i n u t e s . May 2 6 , 1 9 6 4 , p . 2 . l 6 CCHE, M in u te s . M arch 3 0 , 1 9 6 5 . PP. 1 5 - 1 6 . 119 17 a n d a t t e n t i o n o f S p a ld in g a n d S e x to n . 1 8 P r o c e d u r e s . A r e c e n t s t a f f p a p e r t o t h e C o u n c il o u t l i n e d t h e g e n e r a l p r o c e d u r e s em ployed i n p u r s u i n g r e l a t i o n s h l p s w ith t h e L e g i s l a t u r e i n C a l i f o r n i a . A c c o rd in g t o t h e p a p e r , t h e p r o c e d u r e s a r e e s s e n t i a l l y a s f o l lo w s : The C o u n c i l 's reco m m en d atio n s a n d a d v ic e a r e t r a n s m i t t e d t o t h e L e g i s l a t u r e an d t h e G o v e rn o r by fo rm a l r e s o l u t i o n . No e f f o r t i s made by e i t h e r C o u n c il members o r s t a f f t o a s s u r e t h a t t h e C o u n c i l 's a d v ic e i s em bodied i n t o p ro p o s e d l e g i s l a t i o n a n d a c t e d upo n by t h e l e g i s l a t u r e . When b i l l s b a s e d on C o u n c il re c o m m e n d a tio n s a r e i n tr o d u c e d by l e g i s l a t o r s a c t i n g o n t h e i r own a c c o r d , C o u n c il s t a f f , when r e q u e s t e d , p r o v id e s a s s i s t a n c e by f u r n i s h i n g n e c e s s a r y a d d i t i o n a l i n f o r m a ti o n a n d by I n f o rm in g l e g i s l a t i v e c o m m itte e s , a l s o on r e q u e s t , o f t h e C o u n c i l 's a c t i o n . When b i l l s c o n t r a r y to C o u n c il p o s i t i o n s a r e i n t r o d u c e d , t h e C o u n c il s t a f f in fo rm s a u t h o r s o f su c h b i l l s o f t h e C o u n c i l 's p o s i t i o n , and when n e c e s s a r y , p o i n t s o u t t o l e g i s l a t i v e c o m m itte e s t h a t th e b i l l s a r e n o t c o n s i s t e n t w ith C o u n c il a d v ic e . T h is same s t a f f p a p e r s o u g h t, i n e f f e c t , t o d e t e r m ine i f t h e C o u n c il w ish ed t h e g e n e r a l p o l i c i e s o f th e p a s t to c o n tin u e r e g a r d i n g l e g i s l a t i v e r e l a t i o n s h i p s . I n t h e p a p e r , th e s t a f f p ro p o s e d s i x g e n e r a l q u e s t i o n s : 1 . When th e C o u n c il h a s t r a n s m i t t e d a d v ic e a n d / o r rec o m m e n d a tio n s to t h e l e g i s l a t u r e , d o e s t h e C o u n c il w is h to s p o n s o r l e g i s l a t i o n w hich would im plem ent i t s a c t i o n ? ■^CCHE, M in u te s . J u n e 2 9 . 1 9 6 5 . P* 3» 18 " C o u n c il P o l i c i e s and P r o c e d u r e s w ith R e s p e c t to L e g i s l a t i v e I s s u e s , " p r e p a r e d f o r t h e C om m ittee o n C o u n c il R e l a t i o n s h i p s a n d P r o c e d u r e s , Decem ber 5 . 1967. 120 2 . Does t h e C o u n c il w ish to t a k e a p o s i t i o n o f s u p p o r t i n g , s u g g e s t i n g am endm ents, o r o p p o s in g e a c h b i l l w hich f a l l s w i t h i n t h e C o u n c i l 's p urview ? 3 . Does t h e c o u n c i l p r e f e r t o t a k e th e p o s i t i o n s n o te d i n ,,2“ abov e w ith r e s p e c t o n ly t o b i l l s ju d g e d by t h e S t a f f to be o f m a jo r im p o rta n c e ? 4 . Does th e C o u n c il w ish t o be k e p t in fo r m e d , when p o s s i b l e , o f m a jo r i s s u e s w hich may come b e fo r e l e g i s l a t u r e , p r i o r t o th e i n t r o d u c t i o n o f l e g i s l a t i o n on t h e i s s u e s so t h a t t h e C o u n c il c o u ld be i n a p o s i t i o n t o a c t q u i c k l y to p r o v id e a d v ic e a s t h e s e i s s u e s a r e c o n s id e r e d by t h e L e g i s l a t u r e ? 5 . Does t h e C o u n c il p r e f e r t o m eet more f r e q u e n t l y d u r i n g a l e g i s l a t i v e s e s s i o n i n o r d e r t o d i s c u s s p e n d in g l e g i s l a t i o n , o r t o d e l e g a t e r e s p o n s i b i l i t y f o r l e g i s l a t i v e p o l i c y m a t t e r s t o a c o m m ittee o f t h e C o u n c il, w h ich c o u ld m eet m ore o f te n ? 6 . Does t h e C o u n c il w ish t o r e a f f i r m t h e p o l ic y a d o p te d i n 1964 p e r m i t t i n g t h e P r e s i d e n t , th e V ice P r e s i d e n t , t h e D i r e c t o r o r t h e i r d e s ig n e e s t o sp e a k on t h e C o u n c i l 's b e h a l f b e f o r e th e l e g i s l a t u r e ; and p e r m i t t i n g t h e s e o f f i c i a l s to make known t h e i r p e r s o n a l v ie w s o r o p i n io n s when s p e c i f i c a l l y r e q u e s t e d and when t h e C o u n c il h a s no o f f i c i a l p o s i t i o n ? A r e v ie w o f t h e s e c r e t a r y 's r e c o r d f o r t h e m e e tin g shows l i t t l e d i s c u s s i o n o f t h e s e q u e s t i o n s . I n g r e a t m ea su re t h e a n sw e rs t o e a c h w ere s u g g e s te d by L e la n d M yers o f t h e s t a f f i n h i s p r e s e n t i n g o f t h e docum ent to t h e groupt (T he l i m i t e d d i s c u s s i o n i n p a r t may hav e b e en due t o t h e f a c t t h a t i t fo llo w e d a lo n g and e x te n d e d d i s c u s s i o n o f f a c u l t y s a l a r y q u e s t i o n s . A lso a num ber o f new members on t h e C o u n c il may n o t h av e b e en a t t u n e t o t h e f u l l e x t e n t o f th e p ro b le m s s u g g e s te d by th e q u e s t i o n s . ) The d i s c u s s i o n r e s u l t e d i n a d v ic e to t h e s t a f f t h a t t h e C o u n c il d i d n o t w ish t o s p o n s o r l e g i s l a t i o n a s a r u l e . 121 I n a d d i t i o n i t was made c l e a r t h a t th e C o u n c il d o e s n o t w is h to t a k e p o s i t i o n s on e v e ry b i l l w i t h i n i t s p u rv ie w b u t w ould p o s s i b l y t a k e p o s i t i o n s on b i l l s w h ich th e s t a f f ( o r members) ju d g e d o f m a jo r Im p o rta n c e . A d e s i r e t o be k e p t in fo rm e d o f d e v e lo p in g q u e s t i o n s was a l s o e x p r e s s e d . Some d i s c u s s i o n o c c u r r e d i n r e s p e c t to t h e q u e s t i o n o f h o ld i n g C o u n c il m e e tin g s m ore f r e q u e n t l y d u r in g l e g i s l a t i v e s e s s i o n s . The g e n e r a l c o n c lu s io n r e a c h e d was t h a t a Coun c i l c o m m itte e c o u ld a c t i n l i e u o f th e C o u n c il i f r e q u i r e d d e p e n d in g o n th e c ir c u m s ta n c e s and th e i s s u e . F i n a l l y , t h e p o l i c y f o r m a l ly d e s i g n a t i n g t h e P r e s i d e n t , v i c e P r e s i d e n t , D i r e c t o r o r t h e i r d e s ig n e e s to make p r e s e n t a t i o n s t o t h e L e g i s l a t u r e was c o n tin u e d a s w e l l a s p e r m i t t i n g e a c h , i n c l u d i n g t h e D i r e c t o r , t o make s t a te m e n t s o f p e r s o n a l o p i n i o n i f i t was so made c l e a r a t t h e tim e . (The r e s u l t s o f t h e a u t h o r ’ s i n t e r v i e w s , d i s c u s s e d i n t h e f o l l o w i n g c h a p t e r s , i n d i c a t e some v a r i a t i o n among t h e o p i n io n o f i n d i v i d u a l s i n te r v ie w e d c o n c e r n in g w ith t h e ways i n w h ich t h e C o u n c il s h o u ld a p p ro a c h th e L e g i s l a t u r e . T h is v a r i a t i o n was n o t a p p a r e n t i n t h e p u b l i c d i s c u s s i o n o f D ecem ber 1 9 6 ? . S i m i l a r l y t h e s t a f f p a p e r may r e f l e c t a m ore p a s s i v e l e g i s l a t i v e l i a i s o n p a t t e r n t h a n I s , i n f a c t , t h e c a s e an d i s r e f l e c t e d i n C h a p te r V I.) R e l a t i o n s h i p s i n B u d g et-M ak in g . W ith t h e p a s s a g e o f tim e a r e l a t i v e l y s t a b l e p a t t e r n o f r e l a t i o n s h i p s a p p e a r s to hav e d e v e lo p e d b e tw ee n th e C o u n c il s t a f f and t h e s t a f f s 122 o f th e L e g i s l a t i v e A n a ly st and th e Department o f F in a n c e . P e r so n s in te r v ie w e d in th e c o u rse o f t h i s stu d y from both o f th e s e o f f i c e s , in g e n e r a l h e ld a fa v o r a b le im p r e ssio n o f th e r e l a t i o n s h i p s w hich have e x is t e d a t th e s t a f f l e v e l . A d e v ic e w hich may have c o n tr ib u te d to good w orking r e l a t i o n s h i p s has been th e i n c l u s i o n o f F in an ce and A n a ly st r e p r e s e n t a t io n on v a r io u s w orking com m ittees to a d v is e in th e condu ct o f C ou n cil s t u d i e s . L e g i s l a t i v e S t a f f s . The permanent s t a f f s to l e g i s l a t i v e com m ittees a r e a n o th er p o in t o f c o n ta c t f o r C ouncil s t a f f members. C lo se l i a i s o n p r e s e n t ly e x i s t s w ith s t a f f members o f th e Assem bly Ways and Means Committee and w ith t h e s t a f f o f th e tem porary J o in t Committee on H igh er Educa t i o n . C o n ta cts are c l o s e w ith o th e r k ey s t a f f p e r so n s , though b ased on r e s u l t s o f in t e r v ie w s , th e c o n t a c ts a r e n ot s a t i s f a c t o r y in a l l in s t a n c e s nor are fa v o r a b le a t t i t u d e s o n th e p a r t o f such s t a f f a lw ays h e ld . These r e l a t i o n s h i p s , i t must be p o in te d o u t , ten d to depend h e a v ily upon p erso n a l i t i e s o f th e in d iv i d u a l s co n cern ed . Changes in l e g i s l a t i v e membership a f f e c t th e s t a f f s to com m ittees a s do th e p o l i c i e s o f th e le a d e r s h ip o f th e r e s p e c t i v e h o u s e s . For exam p le, i t was p o in te d ou t by a s t a f f member to th e educa t i o n p o l i c y com m ittee o f one o f th e h o u ses t h a t th e commit t e e had ten d ed to c o n fin e i t s e l f to p u b lic s c h o o l m a tte r s i n th e r e c e n t p a s t . T h is was n o t tr u e i n p r io r s e s s i o n s . (Nor i s i t a s tr u e in th e 1968 s e s s i o n . ) The r e a s o n s f o r 123 t h i s p rob ab ly tem porary change in p o l i c y , may In clu d e th e e x is t e n c e o f th e J o in t Committee on H igher E d u ca tion which h as tended to pre-em pt key q u e s t io n s in v o lv in g h ig h e r edu c a t io n and th e d e s i r e s o f th e com m ittee chairm an. The ch an gin g em phasis o f th e Committee work may be r e f l e c t e d in a t t i t u d e s toward th e c o u n c i l. I n t e r e s t Groups. Of im portance in th e p a t te r n o f r e l a t i o n s h i p s w ith th e l e g i s l a t i v e - e x e c u t i v e a re th e i n t e r a c t i o n s w ith o th e r i n t e r e s t groups f o r h ig h e r e d u c a tio n . I t i s g e n e r a lly r e c o g n iz e d t h a t th e r e i s a lo b b y or lo b b ie s f o r h ig h e r e d u c a tio n i n Sacram ento and t h a t th e C ou n cil i s g e n e r a lly c o n sid e r e d to be a p a r t o f t h i s l o b b y . ^ The C ouncil n e c e s s a r i l y i s more d i r e c t l y concerned w ith th e a c t i v i t i e s o f th e o f f i c i a l a d v o c a te s f o r th e U n i v e r s i t y o f C a lif o r n ia and th e C a lif o r n ia S t a t e C o lle g e s . To d a t e , th e ju n io r c o l l e g e s have been " o f f i c i a l l y " r e p r e se n te d by th e S t a t e Departm ent o f E d u cation and th e C a l i f o r n ia J u n io r C o lle g e A s s o c ia t io n (a group r e p r e s e n t in g th e a d m in is t r a t io n o f th e l o c a l l y - c o n t r o l l e d community c o l l e g e s ) a s w e ll a s o th e r a s s o c i a t i o n s in some i s s u e s such a s th e C a lif o r n ia S c h o o l Boards A s s o c ia t i o n , C a lif o r n ia J u n io r C o lle g e F a c u lty A s s o c ia t io n and th e C a lif o r n ia A s s o c ia t io n o f S ch ool Em ployees. T h is p a tt e r n may change to some e x te n t 19 'S e e Chapter I I I f o r r e s u l t s o f stu d y in t e r v ie w s on t h i s q u e s t io n . 12^ a s th e ju n io r c o l l e g e s a r e p r o v id e d w ith a new s t a t e w id e g o v e r n in g hoard w hich assum es o p e r a t io n a l a u t h o r it y from th e D epartm ent o f E d u c a tio n i n J u ly 1 9 6 8 . Prom r e s u l t s o f in t e r v ie w s f o r t h i s stu d y i t a p p ears t h a t th e C o u n c il s t a f f has m a in ta in e d r e l a t i v e l y c o r d ia l r e l a t i o n s h i p s w ith th e system a d v o c a te s a s a w h o le . There a r e , how ever, r e l a t i v e l y few in s t a n c e s when a c t i v e c o o p e ra t i o n b etw een in d iv i d u a l o f f i c i a l sy stem l o b b i e s and th e C o u n cil s t a f f h as b een th e c a se though n e i t h e r has o b v io u s c o n f l i c t been a p p a r e n t. R e la t io n s h ip s w ith th e G overn or’ s s t a f f have app ar e n t l y been l e s s s u s c e p t i b l e to r o u t i n i z a t i o n . At a g iv e n p o in t in tim e g e n e r a l ly o n ly one o f th e G o v ern o r's s e c r e t a r i e s has b een co n cern ed w ith h ig h e r e d u c a tio n m a t t e r s . At tim e s t h i s p o s i t i o n has been v a c a n t w ith l i t t l e e f f o r t to p r o v id e c o n t i n u i t y . Most in d iv i d u a l s in te r v ie w e d in th e c o u r se o f t h e stu d y b e lie v e d t h a t a s a t i s f a c t o r y , in fo r m a l r e l a t i o n s h i p e x i s t e d w ith th e a d m in is t r a t iv e s t a f f in th e o f f i c e o f G overnor Brown. T h is im p r e s sio n d o e s n o t seem to be sh a re d in r e s p e c t to th e a d m in is t r a t io n o f G overnor Reagan. * * * * * I t i s ap p a ren t from th e ab ove d e s c r i p t i o n o f form al and in fo r m a l c o n t a c t s t h a t th e C o u n cil and i t s s t a f f , in 125 20 m a i n t a i n i n g l e g i s l a t i v e - e x e c u t i v e r e l a t i o n s h i p s , h a s em ployed and may p o s s i b l y u t i l i z e a v a r i e t y o f d i f f e r e n t t o o l s a n d s t r a t e g i e s . T h is i s f u r t h e r i l l u s t r a t e d , i n p a r t , w i t h i n t h e c o n te x t o f th e d i s c u s s i o n o f s e v e r a l i s s u e s o r " cases'* w hich a p p e a r to h a v e b e e n o f m a jo r im p o r t a n c e i n t h e d e v e lo p m e n t o f t h e C o u n c il a n d i t s r e l a t i o n s h i p s w ith s t a t e g o v e rn m e n t. T h e se a r e p r e s e n t e d i n C h a p te r VI f o l l o w i n g . ?0 I t i s p o s s i b l e f o r th e S t a t e S u p e r i n t e n d e n t o f P u b l i c I n s t r u c t i o n to loom l a r g e r i n r e s p e c t t o t h e a f f a i r s o f t h e C o u n c il. The f i r s t S t a t e B o ard o f E d u c a tio n r e p r e s e n t a t i v e on t h e C o u n c il ( r e p r e s e n t i n g j u n i o r c o l l e g e i n t e r e s t s ) was Roy S im p so n , t h e n S t a t e S u p e r i n t e n d e n t . The S t a t e B o ard o f E d u c a tio n o n th e e l e c t i o n o f Max R a f f e r t y i n l a t e 1961 a p p o i n t e d o n e o f i t s own m em bers. To d a t e , t h e in c u m b e n t S u p e r i n t e n d e n t h a s d i r e c t e d l i t t l e a t t e n t i o n to w a rd t h e C o u n c il and w i l l p re s u m a b ly be e v e n l e s s l i k e l y t o do so w ith t h e t r a n s f e r r a l o f j u n i o r c o l l e g e a d m i n i s t r a t i v e f u n c t i o n s fro m th e S t a t e D e p a rtm e n t o f E d u c a tio n to t h e n e w ly e s t a b l i s h e d B o a rd o f G o v e rn o rs f o r t h e C a l i f o r n i a Community C o l l e g e s . H ow ever, he c o n t i n u e s t o s i t a s a member o f t h e T r u s t e e s f o r t h e C a l i f o r n i a S t a t e C o lle g e s and t h e R e g e n ts o f th e U n i v e r s i t y o f C a l i f o r n i a . He h a s n o t , h o w e v e r, b e e n p r o v id e d a s e a t o n t h e new B o ard o f G o v e r n o r s . CH APTEH VI THE CALIFORNIA COUNCIL IN THE POLITICAL MILIEU: SIX ISSUES S ev er a l is s u e s or q u e s tio n s which have been o f con cern to th e C a lifo r n ia c o o r d in a tin g agenoy on th e one hand and th e L e g is la tu r e and e x e c u tiv e on th e o th e r may be u s e f u lly d is c u s s e d to i l l u s t r a t e th e ways in w hich th e C ouncil a s a group has sought to in flu e n c e th e p o l i t i c a l d ecisio n -m a k in g p ro cess* or* in some I n s ta n c e s , has attem pted to o b ta in l e g i s l a t i v e and g u b e r n a to r ia l l e g i t i m iza tio n o f C ouncil sta tem en ts* D is c u s s io n o f th e se I s s u e s s e r v e s to p o in t up a s w e ll th e e x te n t o f C ouncil s u c c e s s in p u rsu in g i t s in t e r e s t s and in id e n t if y in g th e p o in ts a t which problem s were encountered* E a r lie r i t was shown th a t one o f th e major rea so n s f o r th e M aster P la n f o r H igher E d u cation in C a lifo r n ia was th e com peting demands fo r new c o lle g e s and U n iv e r s ity cam puses* At th e tim e o f l e g i s l a t i v e ap proval f o r a s p e o ts o f th e M aster Plan* th e L e g is la tu r e e x p r e s s ly d e c la r e d i t s in te n t n ot to a u th o r iz e o r a cq u ire s i t e s f o r new i n s t l t u - 1 2 6 1 2 ? t io n s u n le s s recommended by th e new C ouncil*'1 ' N e c e s s a r ily th e C o u n c il's f i r s t e x p e r ie n c e s d e a lin g w ith t h i s major 2 is s u e must be con sid ered * Another is s u e o f c o n sid e r a b le l e g i s l a t i v e d is c u s sion * as w e ll as im pact upon th e segm ents o f h ig h er educa tio n * was th e d e c is io n o f th e C ouncil to p r e ss f o r y e a r - round o p e r a tio n s o f U n iv e r s ity campuses and s t a t e c o lle g e s and to recommend c o n v e r sio n to th e q u a rter aoadem lc c a le n dar a s a v e h ic le f o r extended o p era tio n s* The q u e s tio n o f ju n io r c o lle g e governance i s i l l u s t r a t i v e o f th e C ouncil working w ith o th e r groups in b rin g in g forw ard a major p ro p o sa l f o r change and should be b r ie f ly explored* S im ila r ly , developm ent o f th e method by which Ju n ior c o lle g e c a p it a l o u tla y programs should be a d m in istered p o in ts up in a somewhat d if f e r e n t co n tex t* C ouncil and le g i s l a t i v e - e x e c u t i v e r e la t io n s h ip s than do th e p reced in g ca ses* ^ S ta te o f C a lifo r n ia * E ducation Code, s e c . 22501. ^ P a ltrld g e p la c e s g r e a t s t r e s s on t h i s q u e s tio n a s a key p o in t in th e developm ent o f th e C ouncil: "Changed r e la t io n s h ip s betw een th e C ouncil and th e l e g i s l a t u r e , and betw een th e C ouncil and th e p u b lic h ig h e r ed u ca tio n i n s t i t u t i o n s , came o u t o f th e 1963-6^ s tr u g g le o v er m aintenance o f M aster P la n agreem ents and procedu res f o r e s t a b lis h in g o f new campuses. The r o o ts o f o th e r changes and r e o r g a n i- z a tio n grew o u t o f t h i s ex p e r ie n ce * M James G * P a lt - r id g e , C a lif o r n ia 's C oord in atin g C ouncil f o r H igher Educa t io n (B erk eley* C a lifo r n ia : C enter f o r R esearch and Developm ent in H igher Education* U n iv e r s ity o f C a lifo rn ia * B erkeley* 1 9 6 6 ), p . 140* 128 A nnually s in c e 1962 th e C ouncil has sought to com ment on th e l e v e l o f support sought to th e Governor and th e L e g is la tu r e * A b r ie f rev iew o f th e perform ance o f t h i s fu n c tio n i s u s e f u l in th a t i t i l l u s t r a t e s a number o f th e dilemmas en countered by an agency such a s th e C ouncil w ith in a complex s t a t e government* The C o u n c il's a c t i v i t i e s in r e s p e c t to th e q u e s tio n o f th e im p o s itio n o f t u i t i o n a t S ta te C o lle g e s and campuses o f th e U n iv e r s ity i s co n sid ered f i n a l l y both a s a r e c e n t c a se and f o r what im pact i t may have upon fu tu r e r e la t io n sh ip s o f th e C ouncil w ith s t a t e government* Need f o r A d d itio n a l C enters Of any s u b je c t y e t co n sid ered by th e C o u n cil» th e developm ent o f i t s sta te m e n ts on th e need f o r new s t a t e c o lle g e s and campuses o f th e U n iv e r s ity was probably th e m ost c l o s e ly w atched by members o f th e L e g is la tu r e * Under t h i s s c r u tin y th e c o u n o il in th e fa o e o f e ig h t b i l l s c a l l i n g f o r new s t a t e c o lle g e s (w ith some d u p lic a tio n s )* took a c t io n on Hay 7, 1963* recommending th a t no new s t a t e c o lle g e s o r U n iv e r s ity oampus be th en approved and s t a t in g th a t a r e p o r t would be made to th e 1965 L e g is la tu r e on th e 3 need f o r a d d itio n a l c e n te r s o f h ig h e r eduoation* The 3 C C H E* M in u tes, pp* 3-5* 129 r e s u lt was th a t no new c o lle g e s were approved In th a t se ssio n * (A b i l l which was p assed by th e L e g is la tu r e c a l lin g f o r a s t a t e c o lle g e In 3an Mateo c o u n ty , SB 5 2 , was pocket v eto ed by th e Governor* O thers w ere dropped o r p ig e o n -h o le d by com m ittees*) I n t h i s p e r io d o f d is c u s s io n , th e C ouncil p o s it io n had th e p u b lic support o f S en ator W alter S t le r n , h im s e lf th e author o f a b i l l reg a rd in g a new o o lle g e f o r th e K ern County area* He s ta te d h is support f o r d e la y b efo re th e c o u n c il and o th e r l e g i s l a t o r s in a tten d a n ce from th e 3an Mateo County a rea who were if s tr o n g ly u rg in g a c t io n a t th e time* The C oun cil conformed to I t s tim e ta b le and p resen ted I t s recom m endations to th e 1965 L e g isla tu r e * The C ouncil a c t io n c a lle d f o r a Kern S ta t e C o lle g e Im m ediately and th r e e o th e r s t a t e c o lle g e s and two U n iv e r s ity oampuses f o r which th e r e was a " d e f in it e u ltim a te need"* The statem en t a ls o p rovid ed th a t th e C ouncil m ight recommend th e d ev elo p ment o f one o f th e s t a t e c o lle g e s f o r which th e r e was an u ltim a te need and on one o f th e campuses f o r th e U n iv e r s ity p r io r to I t s n ex t r e v ie w , soheduled fo r p r e s e n ta tio n to th e 1969 L e g is la tu r e * The L e g is la tu r e adhered to th e C oun cil recommenda t io n s in su b sta n ce (though compromise was reaohed d u rin g th e c o n s id e r a tio n o f th e m easures p ro v id in g f o r advance pur- ^CCHE, M in u tes. A p r il 2 , 1 9 6 3 . PP* 130 chase o f s i t e s f o r a l l o f th e c o l le g e s , I t con tinu ed to c a l l f o r th e c o u n c il to a u th o rize " c o n stru ctio n " . P a ltr id g e 'a I n v e s tig a tio n le d him to ooncludes The s in g le f a c t th a t th e C ouncil w ith sto o d th e p o l i t i c a l p ressu res in th e 1963 L e g is la tu r e , a s w e ll a s th e stro n g fo r c e s w ith in i t s own membership, to change th e o r it e r ia and th e tim e sch ed u le fo r e s ta b lis h in g new campuses gave i t a new co n fid en ce in i t s e l f and a new s ta tu r e in th e ey es o f th e l e g i s l a t iv e le a d e r s *5 H is In terv iew s in th e oourse o f h is study w ith le g i s l a t o r s le d to fu r th e r o b ser v a tio n s concerning th e is s u e : T his gave th e C ouncil new in flu e n c e in th e l e g i s l a tu r e— in flu e n c e which m ight be tr a n s fe r a b le to C o u n o il-le g ls la tu r e r e la tio n s h ip s in a re a s o th e r than new-campus m a tte r s .6 Once i t had been adopted, a major e f f o r t was made ' by C ouncil members and s t a f f to make th e C ouncil p o s it io n on new c o lle g e s known and u n d erstood . During th e 1965 S e s s io n o f th e L e g is la tu r e th e C ouncil sta g ed a p r e se n ta t io n to members o f th e Bduoation Committees o f both h ou ses and in a d d itio n h osted an inform al dinner s e s s io n w ith in te r e s te d members o f th e L e g is la tu r e . L e g is la t iv e I n te r e s t was h igh and b i l l s were in tr o duced f o r each o f th e new s t a t e c o lle g e s Included in th e ^ F a ltr ld g e , o p. c l t . . p . 6 0 . ^ Ib ld . See a ls o h is pp. 55*61 f o r a more d e t a ile d d is c u s s io n than p resen ted here on ev en ts which occu rred dur in g developm ent o f th e c o u n c il recom m endations. C ouncil l i s t i n g * A r e s o lu t io n (HB 322) o a llin g f o r C ounoil r e -e v a lu a tio n o f th e needs f o r th e G lendale-Burbahk area f o r re p o r t in 1966 was a ls o in trodu ced* T h is a rea was n ot one o f th o s e recommended f o r a new c o l le g e . A nother mea su re was proposed in th e s e n a te (SB 850) w hich would have e s ta b lis h e d a c o lle g e in t h i s same a rea i f th e T r u ste e s and C oun cil approved. The m easures f o r new c o lle g e s were c l o s e ly watohed by th e C ouncil s t a f f * In el f o o tin g th e compromise worked o u t reg a rd in g th e a u th o r iz a tio n f o r s i t e p u rch ases in advance o f approval o f c o n s tr u c tio n by th e C ouncil* K eith S ex to n worked c lo s e ly w ith S en a to rs H ille r and S tie r n * H il le r was th e au th o r o f a m easure c a lle d fo r th e c o lle g e in th e Contra C osta area* and S tie r n o f one f o r th e new B a k e r s fie ld in s t it u t io n * The Governor approved th e b i l l s p ro v id in g fo r th e i n s t i t u t i o n s in th e fo u r a r e a s recommend ed by th e C ouncil and th e m easures r e la t in g to th e G len dale-B urbahk area were k i l l e d In th e r e s p e c t iv e s u b je c t m atter oom m ittees* I t sh ould be n oted th a t during t h i s s e s s io n th e p r e s id e n t o f th e C ouncil* Warren C hristopher* watohed th e p ro g ress o f th e b i l l s c lo s e ly and was in Sacram ento on c o u n c il b u sin e ss s e v e r a l tim e s d u rin g th e 7 s e s s io n * ' ^Arthur Coons noted in h i s d ls o u s s io n o f C oun cil l e g i s l a t i v e p o l i c i e s on Deoember 5 * 1 9 6 7 * th a t both pre v io u s p r e s id e n ts o f th e C ouncil* Robert Wert and Warren C h ristop h er had tak en a g r e a te r r o le in Sacram ento a f f a i r s th a n he had* 132 In su rveyin g th e C o u n cil's f i r s t ex p erien ce w ith developm ent o f a d v ice to th e L e g is la tu r e on new c o lle g e s based on th e evid en ce a t hand, i t appears th a t th e in f lu ence o f key l e g i s l a t o r s who f e l t a commitment to th e M aster P lan a s such may have been very im portant in en a b lin g th e C ouncil to con tin u e i t s work w ith in th e tim e sch ed u le i t had l a id o u t. L e g is la t iv e in t e r e s t and p ressu re from e a r ly 1963* p a r tic u la r ly on b eh a lf o f th e San Mateo l o c a l e , was most n o tic e a b le . Though th e C ouncil d ecided to adhere to a soh ed ule fo r n ot r e p o r tin g to th e L e g is la tu r e u n t i l 1965* l e g i s l a t i v e in t e r e s t was noted a t a number o f p o in ts in tim e and some accommodation was made during t h i s p erio d a s th e C ouncil tended to broaden ou t i t s exam in ation from th a t which was o r ig in a lly s e t f o r t h . For exam ple, th e p ro p o si t io n f o r advanced a c q u is it io n o f s i t e s b efo re a c tu a l con s tr u c tio n o f a c o lle g e , a s w e ll a s more s t r e s s on th e fa c t o r o f i s o l a t i o n , were in s e r te d in to d e lib e r a tio n s l a t e in th e 8 study p r o c e s s . I n r e s p e c t to advance a c q u is it io n a sub com m ittee o f th e Assembly In terim Committee on Sduoation had met to d is c u s s th e su b je c t on O ctober 2 3 . 1964. i t 8 CCHE, M inutes. November 1 0 , 1 9 6 4 , p . 3 . For a d d i t io n a l e x p la n a tio n o f th e developm ent and c r i t e r i a f o r th e study s e e , CCHE, C a lifo r n ia 's Needs f o r A d d itio n a l C enters o f P u b lic H igher E ducation. Number 1Q14 (Sacram ento and San F ra n cisco : The c o u n o ll, Deoember 1 9 6 4 ), pp. 7 -1 6 . 133 seems l i k e l y th a t l e g i s l a t i v e I n te r e s t p layed a p a rt in th e d e c is io n o f th e C o u n cil, in November, to in c lu d e th e p o s s ib le p r o v isio n f o r such a c tio n w ith in i t s stud y g u id e lin e s * The L e g is la tu r e appears to have been r e c e p tiv e to th e C ouncil recommendations in gen eral* The p rev io u s s e s s io n had seen s e v e r a l In sta n c es o f disappointm ent in th e s t a f f d ir e o to r , exp ressed in th e co n tex t o f h ea rin g s on th e C o u n c il's budget req u est* The r e s ig n a tio n o f th e D ir e o to r , e f f e c t i v e February 1 6 , 19^5* ®ay w e ll have con tr ib u te d to a more fa v o r a b le r e o e p tio n fo r C ouncil p o s i t io n s among some le g is la t o r s * The m atter o f a d d itio n a l c e n te r s , how ever, was not th e f i r s t s ig n if ic a n t l e g i s l a t i v e t e s t o f th e Council* The C ouncil in 1964 had tak en a c tio n upon year-round o p e r a tio n s f o r c o lle g e s and u n iv e r s i t ie s which may have le d to th e b eg in n in g s o f a stren gth en ed im age, r e in fo r c e d by i t s r e la t i v e su c c e ss in h an d lin g th e h ig h ly p o l i t ic i z e d q u e stio n o f new c o lle g e lo o a tlo n s* Year-Round O p eration s The M aster P la n , a s adopted by both governing boards in l a t e 1959• c a lle d f o r th e new co o rd in a tin g agency to study th e m e rits o f a tr im e s te r v ersu s a q u a rter p lan f o r year-round u se o f th e p h y sic a l f a c i l i t i e s and to recom mend a calen d ar fo r such ; * year-round o p era tio n s* 134 A stu d y o f th e C o u n c il's s t a f f began on th e m atter in m id-1963. A rep o r t was f i r s t p resen ted to th e Counoil on O ctober 28 o f th a t y e a r , which proposed th e q u a rter system a s b ein g th e m ost a p p r o p r ia te , t u t which was not a c te d upon im m ediately by th e C ou n cil. P in a l C ouncil a c t io n en d orsin g th e co n v er sio n to th e q u a rter system occurred on January 28, 1964, a f t e r both th e U n iv e r s ity and th e s t a t e c o lle g e governing boards had a cted fa v o rin g Q year-round o p e r a tio n o f f a c i l i t i e s on th e q u a rter sy ste m .7 I n ta k in g a c t io n th e C ouncil s ta te d th a t i t would seek to determ ine th e in te n t o f th e L e g is la tu r e w ith r e s p e c t to fln a n o in g year-round o p e r a tio n s a t th e cu rren t s e s s io n .10 The v e h ic le fo r d eterm in in g l e g i s l a t i v e In te n t became a S en ate Concurrent R e so lu tio n authored by 3enator George H il l e r , J r . , chairman o f the S en a te com m ittee on Finance and co-au th ored by Assemblyman Robert Crown, chairman o f th e Assembly Ways and Means Committee. I n i t i a l d r a fts o f th e r e s o lu tio n whloh commended th e C ouncil and th e two fo u r -y e a r p u b lic h ig h e r ed u oatlon system s fo r t h e ir a c tio n s were prepared by th e C ouncil s t a f f . The D ireo to r ^These ev en ts are summarized from a s t a f f rep ort to th e C ouncil Committee on E d u cational Program s, Nov. 22, 1965* 10For th e f u l l a o tio n o f th e C ouncil and th e t e x t o f th e s t a f f r e p o r t, s e e , CCHE, A Comparison o f th e T rim ester and Four-Q uarter C alendars forY ear-R ou n d O p eration o f P u b lic H igher E ducation in C a lifo r n ia . Number l609« (San F ra n cisco and Saoramento: The c o u n c il, 1 9 6 4 ), p . 4 3 . 135 o f th e C ouncil watohed p rogress o f th e r e s o lu tio n c lo s e ly and appeared a t com m ittee hearings* The r e s o lu tio n was adopted by both h ouses in April*'*'1 D uring th e f i n a l hear ing on th e measure in th e Assembly E ducation Committee o p p o s itio n was str o n g ly exp ressed to year-round o p e r a tio n s, and p a r t ic u la r ly th e q u arter system , by s t a t e c o lle g e f a c u lty groups supported by th e C a lifo r n ia S ta te Employees' A s s o c ia tio n (th e f i n a l v o te in th e Assembly was f i f t y - s i x fo r and seven a g a in s t ) • Though th e M iller-G rown r e s o lu tio n had been approved, a subsequent measure was p assed by th e Assembly r e q u e stin g in terim study o f th e m atter o f year-round o p e r a tio n s in r e s p e c t to th e S ta te C o lle g e s , Authored by Leo J* Ryan, th e r e s o lu tio n was supported by th e f a c u lt y groups and a p p a ren tly was n ot opposed to any d egree by th e s t a t e c o l le g e a d m in istra tio n * 12 T his r e s o lu tio n tended to r a is e a q u e stio n o f l e g i s l a t i v e in te n tio n * Though i t was g e n e r a lly oonceded a Concurrent B e s o lu tio n had g r e a te r im port, n e v e r th e le s s some c o n tr a d ic tio n s were apparent* During th e d is c u s s io n s le a d in g to passage o f t h is ^ S e n a te Concurrent R eso lu tio n 2 4 , f i l e d w ith S ecre tary o f S ta te , A p r il 30, 1964* Chapter 37 (1964 F i r s t Extra ord in ary S e s s io n ) * l 2 House R e so lu tio n 244, adopted May 1 1 , 1964, by un animous v o te , (1964 F ir s t E xtraordinary S e s s io n ) . 136 r e s o lu tio n , th e D ir e o to r o f th e Counoil was ou t o f th e cou n try. T his t r ip le d to q u e stio n s on th e p art o f some l e g i s l a t o r s and t h e ir s t a f f s and may hare been c o n tr ib u tin g fa o to r to th e d e c is io n o f th e D ire cto r to r e s ig n In la t e 1964. A l e g i s l a t i v e Interim com m ittee h ea rin g was la t e r oonduoted pursuant to th e d ir e c t io n o f H.H. 244 by a Sub com m ittee o f th e Assembly E ducation Committee ch a ired by Byan (J u ly 1 3 , 1 9 6 4 ). One o f th e recom mendations o f th a t subcom m ittee i s o f in t e r e s t in co n sid er in g C o u n c il-le g is l a t i v e r e la tio n s h ip s : The Committee recommends th a t th e b a s ic d e c is io n on m atters such a s year-round calen dar should be made in co o p era tio n w ith th e L e g is la tu r e , w ith a view toward th e f a c t th a t s o c i a l , c u ltu r a l and o th e r fa c to r s w i l l in e v ita b ly be in v o lv ed .1 3 The Committee re p o r t went on to s t a te : The Committee noted an apparent o o n f iio t in th e r o le played by th e C oordinating C ouncil w hich, a s e sta b lis h e d in la w , i s an a d v iso ry body to th e Governor and th e L e g is la tu r e , ra th e r th a n th e r e p o s ito r y o f f i n a l d e c is io n s . The Committee f e l t th a t In such a b a sic m atter as sta te w id e calen d ar r e o r g a n iz a tio n , th e m atter should have been p resen ted fo rm a lly to th e L e g is la tu r e b efo re any f i n a l o r d e f i n i t i v e sta tem en ts were is s u e d .14 I n th e f a l l o f 1965 p u b lic a t t e n t io n was once more •^ C a lifo r n ia L e g is la tu r e , Assem bly In terim com m ittee on E duoation, Subcommittee on P erson n el P roblem s, B ep ort. Assembly In terim Committee B ep o rts, 1963*6 5 , V o l. 1 0 , No. I ? , p . 35. ^ Ib ld . 137 fo cu sed on year-roun d o p e r a tio n s . At th a t t in e p r e ssu r e s d evelop ed on th e s t a t e c o lle g e s to a o o e le r a te p la n s f o r I n s t it u t in g th e q u a rter ca len d a r and commencing f u l l - y e a r o p e r a tio n s . At th e November C ouncil m eetin g ch arges had been made by P r e sid e n t Clark Kerr o f th e U n iv e r s ity o f C a lifo r n ia th a t th e s t a t e o o lle g e s w ith th e a o q u lesen ce o f th e C ouncil were underm ining th e 1964 C ouncil a c t io n by f a l l i n g to adhere to sc h e d u le s f o r year-roun d o p e r a t io n s .1 ^ The outcome o f t h i s a s s e r t io n was a c a l l f o r a s p e c ia l m eetin g to co n sid e r th e m a tte r . Governor Brown th e n ex t day le n t h is in flu e n c e by s t a t i n g . "I am d isa p p o in te d th a t th e S ta te C o lle g e s do n o t seem to be m eetin g t h e ir commit ment a s prom ptly a s th e U n iv e r s it y .”1^ The C ouncil a t a s p e c ia l m eetin g in Deoember took a c t io n opposed by th e s t a t e c o lle g e r e p r e s e n ta tiv e s a sk in g th e o o lle g e s to a c c e l e r a te t h e ir p la n s f o r I n s t it u t io n o f f u ll - y e a r o p e r a tio n s 1? D is c u s s io n o f year-roun d o p e r a tio n s and more p a r t i c u la r ly d is c u s s io n o f th e c o n v er sio n to th e q u a rter system 1^Los A ngeles Tim es. November 2 5 . 19^5. a r t i c l e head l i n e d . "Kerr A tta ck s Duake, Charges: Year-Bound P la n S t a lle d " • 1^Los A n g eles Tim es. November 2 6 . 19<>5» a r t i c l e h e a d lin e d . "Brown P roas S ta te C o lle g e s ” . I t should be r e c a lle d a t t h i s p o in t th a t th e P r e sid e n t o f th e C ouncil was Warren C h risto p h er, a p erson c lo s e to Governor Brown. H is in flu e n c e In o b ta in in g th e sta tem en t was l i k e l y . 1 ?CCHE» M in u tes. Deoember 1 3 . 1965* P« 7 . 138 co n tin u es to th e p resen t tim e though th e U n iv e r s ity has now converted a l l campuses to th e q u arter system and th e s t a t e o o lle g e s have begun to do th e same on a c o lle g e by c o lle g e b a s is . Concern* however* s t i l l e x i s t s regard in g th e sch ed u lin g o f co n v ersio n o f th e s t a t e o o lle g e s . L e g is la t iv e a t t e n t io n to th e is s u e reced ed in 1966 and 196? though p o t e n t ia lly th e is s u e may once more be th e su b je c t o f l e g i s l a t i v e debate i f th e planned p a tte r n o f f u ll - y e a r o p era tio n s should be in terru p te d by lim ite d fin a n c in g provided in th e s t a t e budget o r oonoerted f a c u lty p r e s su r e s. Beduced fin a n c e s appeared l i k e l y in e a r ly 1967 when some l e g i s l a t i v e r e a c tio n was noted to th e apparent p rop osal o f Department o f Finance D ir e c to r Gordon Sm ith to d ela y c o n v e r sio n s. H ille r and Crown combined to c a l l fo r continued fin a n c in g . Smith la t e r m od ified h is p o s it io n in r e s p e c t to th e 1967-68 b u d gets. The ev en ts in th e 1964- L e g is la tu r e r e s u ltin g In th e two co n tr a d icto ry l e g i s l a t i v e sta tem en ts showed th a t th e C ouncil d id n ot su cceed in g a in in g th e c le a r le g it im iz a t io n o f i t s a c tio n s i t had so u g h t. To a g re a t e x te n t th e burden f o r o b ta in in g t h i s v a lid a t io n o f a c tio n and e x p r e ssio n o f In te n t to support o v er th e y ea r s to come had been p la ced upon th e C ouncil by th e two h ig h er ed u ca tio n system s con cern ed . T his was made q u ite c le a r in sta tem en ts made by P r e sid e n t Kerr and C hancellor Duake during d ls o u s s io n s o f 139 I d th e proposed c o u n c il a c t io n . The s t a t e o o lie g e s * as ev en ts proved* d id not s tr o n g ly support th e v e h ic le fo r endorsement o f th e C ouncil and system plans* SCfi 2 4 , nor d id th e y work a c t iv e ly to oppose th e co n tra d ic to ry H B 2 4 4 . U n iv e r s ity o f C a lifo r n ia support was accorded during th e d is c u s s io n s o f 3CB 2 4 . ^ The q u e stio n s a r is in g from th e r e s u lt o f the l e g i s l a t i v e a c tio n s can be co n sid ered to have co n trib u ted to th e con tinu ed d is c u s s io n and debate o f th e q u a rter system p a r tic u la r ly among fa c u lty * even a s in s t it u t io n s have con v er te d to q u a rter ca len d a rs and commenced f u l l o p e ra tio n s during th e summer q u arters* The fin d in g s o f th e in te rim com m ittee in v e s t ig a t io n su g g est a q u e stio n in g * by a t l e a s t th a t committee* o f the ways in which th e C ounoil had pro ceeded to a d v ise th e h ig h e r ed u oatlon system s and to g a in 20 l e g i s l a t i v e support fo r th a t advice* ^ C ounoil Committee on E ducation Program s, M inu tes. January 28, 1965* P* 2* 19The au th or o f th e study was an o b serv er to many o f th e e v e n ts and h ea rin g s in th e L e g is la tu r e d u rin g th e 1964 S essio n * The s t a t e c o lle g e r e p r e s e n ta tiv e s were p ressu red by f a c u lt y groups and ten d ed to tr a n s fe r th e onous o f th e unpopular co n v ersio n to q u a rter system to th e Council* The A s s o c ia tio n o f C a lifo r n ia S ta te C o lle g e P r o fe s s o r s and th e C a lifo r n ia S ta t e Em ployees' A s s o c ia tio n were th e primary groups opposing th e q u a rter system* 20The q u e stio n o f who a d v ised whom i s most apparent in t h i s q u estio n * No a c t io n was tak en on th e C ouncil r e port u n t i l a f t e r both system boards had approved th e quar te r system and year-round o p era tio n s* The dilemma o f C ouncil a c tio n p r io r to a governing board a c t io n and whether a governing board member s i t t i n g on th e C ounoil oan v o te 140 J u n io r C o lleg e Governance One r e s u lt o f l e g i s l a t i v e enactm ent o f th e i 960 C a lifo r n ia M aster P la n was th e c r e a tio n o f a sep a ra te govern in g hoard fo r s t a t e o o lle g e s whloh u n t il th a t tim e had been a d m in istered by th e 3 t a te Board o f Education* However, th e P lan d id not p rovid e fo r a s im ila r c h a n g e fo r th e ju n io r o o lle g e s* The Survey Team In stea d s ta te d I t s support f o r con tin u an ce o f th e p a tte r n whereby th e ju n io r c o lle g e s a re s u b s ta n tia lly lo o a lly - o o n t r o lle d I n s t it u t io n s w ith g e n e r a l su p e r v is io n by th e S ta te Board* The Team ex p ressed a hope t h a t th e S ta te Board* on ce r e lie v e d o f i t s r e s p o n s i b i l i t i e s toward th e s t a t e c o l le g e s , cou ld g iv e g r e a te r a t t e n t io n and provide le a d e r s h ip f o r th e ju n io r c o lle g e sy stem . 21 In 1 9 6 3 , th e c o u n c il In str u c te d I t s s t a f f to conduct a major stu d y o f ju n io r c o lle g e problem s; th e r e s u lt was a s e r i e s o f papers and commentary p resen ted to th e C ouncil 22 in January 1965* S t a f f recom m endations based In p a rt on f o r a C ouncil p o s it io n In advance o f in s t r u c t io n by h is own board i s y e t to be reso lv ed * T his q u e s tio n has been on CounoU agendas fo r d is c u s s io n a s r e c e n tly a s February 1968* At th a t tim e C ouncil members determ ined to rem ain f l e x i b l e and d ecid e th e q u e s tio n in term s o f s p e c if i c Issues* ^ A M aster P la n fo r H igher E ducation In C a lif o r n ia . 1960-1495 < Sacram ento1 C a lifo r n ia S ta te Department o f Education* i 960)* p* 29* 22CCHE, A C o n sid era tio n o f I s s u e s A ffe c tin g C a lifo r n ia P u b lic Ju nior C o lle g e s . Number l 6l 8 * (Saoramento and San F r a n o ls o o t T h e C ou n cil, A p ril 1965)* 141 th e s e papers inoluded th e p rop osal th a t th e C ounoil a d v ise th e 1965 L e g is la tu r e th a t a new board fo r th e Junior o o l le g e s should be c r e a te d . T h is p rop osal was opposed by Junior c o lle g e r e p r e s e n ta tiv e s on th e board and by th e r e p r e s e n ta tiv e s o f th e C a lifo r n ia J u n io r C o lleg e A sso c ia t io n , but fa v o red by th e C a lifo r n ia Ju n ior C o lle g e F a cu lty 23 A s s o c ia tio n . F o llo w in g d is c u s s io n o f th e n a tte r a t th r ee su c c e s s iv e m eetin g s, th e C ouncil took a c tio n s t a t in g th a t a new governing board m ight be a d v isa b le and in s tr u c tin g th e 3t a f f to study a sp e c ts o f th e q u e stio n fu r th e r , fo r rep o rt In Ootober o f 1966. An e f f o r t to amend t h is r e s o lu tio n to s t a t e th a t a sep a ra te governing board _ls a d v isa b le l o s t 24 on a sev en to seven v o t e . The s t a f f recommendation fo r a new board was n ot u n rela ted to d is c u s s io n s ooou rrlng b efo re th e L e g is la tu r e . At a h earin g o f th e S en ate Subcommittee on H igher E ducation in Deoember 1964*, th e L e g is la t iv e A n a ly st had proposed a 25 sep a ra te governing board and b i l l s were in trod u ced in th e 23 cch e, com m ittee on E d u cation al Program s, M inutes. February 22, 1965* P« 4 . 24 CCHE, M inutes. March 3 0 , 1964, p . 7• 25CCHE, A c o n sid e r a tio n o f I s su es A ffe c tin g C alif o r n ia P u b lic J u n io r C o lle g e s . Number 1018, (Saoramento and San F r a n c is c o : T h e C ou n oll, A p r il 1 9 6 5 ), P# 70* ikz 1965 L e g is la t iv e s e s s io n c a l lin g fo r e sta b lish m en t o f boards o f d if f e r in g c o m p o sitio n .2^ Author o f one o f th e b i l l s was S en a to r W alter S tle r n who had ch a ir ed th e S en ate com m ittee to which th e L e g is la t iv e A n a ly st made h is recommendation* The C ouncil s t a f f a id ed in th e p rep a ra tio n o f th e S t i e m m easure on th e re q u e st o f th e S en a to r and in th e a b sen ce o f a s p e c i f i c p o s it io n by th e C ouncil i t s e l f * However* none o f th e b i l l s were approved by th e r e s p e c t iv e su b je c t m a tter com m ittees a t th a t se s s io n * though th e S t ie r n b i l l r e c e iv e d s u r p r is in g support in th e S en a te com m ittee on Education* In O ctober 1 9 6 6 . th e C ouncil once a g a in co n sid ered th e q u e s tio n o f a recom m endation to th e L e g is la tu r e * An independent c o n su lta n ts* r e p o r t had been prepared f o r th e C ouncil which concluded th a t th e r e was need f o r a se p a r a te 27 g o v ern in g board* By t h i s tim e , th e I n f lu e n t ia l C a lifo r n ia S ch ool Boards A s s o c ia tio n and th e C a lifo r n ia J u n io r C o lle g e A s s o c ia tio n had a ccep ted th e p r in c ip le o f th e sep a r a t e board* The c o u n c il gave i t s ap proval and a d v ised th e L e g is la tu r e o f th e a c tio n * 2® 2^These in clu d ed * AB 24-6 (D ym ally)* AB 1168 (Dymally) SB 779 ( S t ie m ) and SB 1522 (Sym ons). 2?Leland L* Medsker and George W * C lark, S ta t e L ev el Governance o f C a lifo r n ia J u n io r C o lle g e s (B erk eley ! U n i- v e r s it y o f C a lifo rn ia * C enter f o r R esearch and Developm ent in H igher Education* August 1966)* 2®CCHE, M in u tes. September 2 7 , 1966. 143 Working closely with the Council staff, Senator Stiern introduced a new measure in the 1967 legislative session. This legislation, SB 6 6 9, was subsequently adopted and approved by the Governor,^ (A bill somewhat similar in nature was introduced in the Assembly.) During the course of legislative consideration of the measure, the Council staff worked closely with repre sentatives of interested junior college groups in assuring passage and in working out amendments to the bill, A “Composite Committee on State Governance'1 was formed and met with Senator Stiern prior to his decision to introduce legislation; members of the same group worked on the matter throughout the session. This alliance of interests included the California Teachers Association, California Junior College Association, California School Boards Association, California Junior College Faculty Association, th e C o o r d in a tin g C o u n c il, and th e C a lif o r n ia F e d e r a tio n o f 30 T e a c h e r s • The j u n io r c o l l e g e g o v e r n a n c e q u e s t io n d e m o n s tr a te s th e im p o r ta n t r o l e th e s t a f f o f a c o o r d in a t in g a g e n c y may ^Chapter 1549» filed with Secretary of State, A u gu st 3 0, 1 9 6 7, 30 Summary of February 1, 19o7» meeting with Senator Stiern prepared by George W. Clark. The group had been called together by the California Junior College Associa tion with the cooperation of the Council staff. play In encouraging legislative approval of a major change in the organization of the grievance mechanisms of the higher education systems. The Council staff had earlier proposed the creation of a separate governing board for the two-year institutions. Given an indefinite statement by the agency board pending more review, the staff was relatively free to provide advice and assistance in ini tial legislative efforts to pass the measure. As other key groups began to favor the proposition and with the final action of the Council clearly endorsing the separate board idea, the staff played an active role, presenting a united front in association with the interested parties of support for the bill introduced by Stiern in the 19^7 Session and which was eventually passed. A continued responsibility for the agency staff and board are contained in provisions of the junior college governance bill as finally enacted. The bill calls for the Coordinating Council for Higher Education to propose a functional division between the new board— as created by the Stiern bill— and the local governing boards for report 31 to the 1969 Legislature for necessary statutory enactment. This statement came about during legislative consideration of the bill and was seen as a satisfactory compromise by 31 State of California, Education Code, sec. 22700, subsec. 3» 145 the Junior college groups. Furthermore, these Interests, though tending to support the notion of the hoard itself, could not agree on the statement of functions which should be applied to the board and the transfer of responsibili ties from the State Board of Education and Department of Education*, The Council in this instance apparently was seen by the various groups as a satisfactory arena in which to negotiate the functional questions which carry with them important conceptions of state versus local control— at least as perceived by the participants. The Council contribution to the Junior college governance question should not, however, be over-stressed. Very likely no legislation would have been approved if the two most influential groups concerned, the California School Boards Association and the California Junior College Association, had not accepted the principle. The legislative climate was also favorable to the notion of the separate board. The State Board of Educa tion had failed to suggest alternatives which were seen acceptable. The Board sponsored several legislative mea sures to give the State Department of Education more staff and support for administration of junior college programs. These did not meet with legislative endorsement. Further more, the fact that Speaker Unruh did not openly seek to pre-empt the subject for study by the Joint Committee on Higher Education, as had been done in respect to the 146 higher education provisions of Article IX of the Constitu tion, was significant. Finally, the State Board of Educa tion, though never endorsing the separate board, did not offer strenuous opposition either* After it was apparent efforts to expand the State Department staffing for Junior colleges were to fall, State Superintendent Max Rafferty tended toward a neutral position. Developing a Junior College Capital Outlay Program The coordinating agency may be looked upon to pro vide technical advice to the Legislature and executive agencies and such advice may then be placed in statute. The development of administrative mechanisms for distribu tion of California state funds for capital outlay in Junior colleges is Illustrative of an agency performance in such a capacity. Beginning in 1961, the State of California began to make available capital outlay funds on a small scale to Individual junior college districts to assist in meeting their construction needs which up to that time had been met exclusively from local sources. On November 6, 1962, the first State Construction Bond proposition in which Junior colleges were included was approved by the voters of the state. Under its provisions, junior colleges were to re ceive $20 million in state aid for capital outlay. Advice had earlier been sought by the Governor from 147 the Coordinating Council as to the appropriate methods by which the state funds should be allocated. The result was a set of guidelines developed after discussions with the Department of Education, other state agency representatives 12 and the California Junior College Association.^ These guidelines were adopted in April, 19&3» the Council. Legislation as developed by the Department of Edu cation and approved by the Legislature and Governor during the 1963 Session, established an interim method of distri bution of funds.^ This measure, authored by Senator Walter Stiern, directed the Department of Education, together with the Department of Finance, the Legislative Analyst, the Coordinating Council, the California Junior College Association, the California School Boards Associa tion, and the California Junior College Faculty Association to examine the needs of Junior colleges over the next ten years and the extent to which state support was required. The Department was to recommend a means of providing needed 35 state assistance to the 19^5 Legislature. 32CCHE, Financing California's Public Junior Col leges . Number 1029 (Sacramento, California:The Council, June, 1967)# P« 59* See pp. 50-81 for discussion upon which this summary is based in part. Courtland Washburn of the Council staff was helpful in providing additional background material* -^CCHE, Minutes. April 2, I9 6 3, PP* 7-8. 34 Junior College Facilities Construction Law of 1963, Chapter 1790* Statutes of 1963* -^Ibld.. sec. 2. 148 After a number of meetings by a committee convened by the Department of Education in which Council staff played an active role, a report was completed and adopted by a majority of the participants# Legislation was then developed# Results of the committee work did not meet with the full approval of the Department of Finance, the Legislative Analyst or the California Junior College Faculty Association# Each filed statements indicating reservations.-^ Legislation, however, was approved sub stantially as proposed in the committee report and was again authored by Stiern.-^® “Less them three months elapsed before complaints and reservations were raised as to the adequacy of the p la n ."39 The matter became once more the subject of legisla tive attention in the 1966 session when efforts were made to modify the 1965 Act to meet complaints from several quarters. Though modifying legislation was approved, its provisions were to apply only to June 30» 19^7• Meanwhile, California State Department of Education* A Report to the California Legislature on the Need for Junior College Facilities During the Next Ten fears. 1965-1975 (Sacramento: The Department , ' January 1965)"^ 3?ibld.. appendices. 2®Junior College Construction Act of 1 9 6 5* Chapter 12 72, Statutes of 1 9 6 5 . ^CCHE, Financing California's Public Junior Colleges. p. 6 0. 14-9 the Coordinating Council was directed, via concurrent resolution, to study the whole subject and present statu tory proposals to carry out the recommendations based on 4-0 its studies. The Council staff organized a committee similar in composition to that which had participated in the drafting of the 1965 proposal but including in addition private college. University of California and State College repre sentation, The committee was advisory to the staff of the Council and no effort was made to vote on specific elements of the plan as finally proposed by the staff. The plan based on the Council’s staff study with the advice of the ad hoc committee was approved by the Council in January, 1 9 6 7, and transmitted to the Legislature, The Director of the Council was authorized by the Council to prepare draft legislation as had been proposed in the concurrent i n resolution. The Council staff following endorsement by its board, with the cooperation of Senator Stiern and his staff drafted a proposed statute. The legislation was introduced as Senate Bill 691 which was passed by the Legislature and ^°Senate Concurrent Resolution No. 14-, Chapter 6 8, filed with Secretary of State May 11, 1966. The legisla tion continuing the interim distribution of Junior college funds was contained in SB 4, Chapter 129, Statutes of 1966. ^CCHE, Minutes. January 30, 19&7, P* 6. 150 ap p roved by th e G o v ern o r.^ 2 D u rin g l e g i s l a t i v e h e a r in g s on t h e b i l l , C o u n cil s t a f f in c o n ju n c tio n w ith S e n a to r S t i e r n p r e s e n te d th e c o n te n ts o f th e b i l l and resp o n d ed t o q u e s t io n s . This series of events over a five-year period relat ing to development of a satisfactory method of distribution of state funds for Junior college construction may be con sidered as pointing up legislative and exeoutlve attention to the coordinating agency in California as a repository for technical advice and an arena for resolution of differ ences which are essentially technical in nature, but often with major policy implications. Questions of state match ing funds, state dictation of the extent to which existing facilities are to be used, and application of federal monies, all were involved in the development of a satisfac tory plan. In 1962, the Governor, with prompting from staff of the Department of Finance, had asked the Council to take leadership in devising the method for allocation. Results were limited and the Department of Education then was charged with developing plans.^ The Departments proposal, ^2Chapter 1550, Statutes of 19^7, The transferrance of leadership In this connection occurred with the approval and encouragement of the Council staff and the Council, 151 th ou gh a d o p ted in l e g i s l a t i v e fo rm , s a t i s f i e d n e i t h e r th e j u n io r c o l l e g e s n or d id i t m eet D epartm ent o f F in a n c e o r L e g i s l a t i v e A n a ly s t d e s i r e s i n f u l l . W ith th e c o n tin u e d d i s c u s s i o n o f th e w ays in w h ich to a d m in is te r fu n d s in 1966, th e C o u n c il o n c e m ore— t h i s tim e more f o r m a lly — was ch a rg ed w ith d e v e lo p in g a p la n . T h is was d o n e. The r e s u l t , p e n d in g p a s sa g e o f t im e , a p p ea r s to be s a t i s f a c t o r y in th e m ain th o u g h d is a g r e e m e n t may a r i s e in th e f u t u r e o n c e m ore. R e s u lt s o f in t e r v ie w s co n d u cte d d u r in g t h e c o u r se o f t h i s stu d y and a s d is c u s s e d in th e f o llo w in g c h a p te r s i n d ic a t e t h a t th e C o u n c il's c o n t r ib u t io n to t h i s q u e s t io n h a s b een s i g n i f i c a n t a n d , m o reo v er, i s g e n e r a l ly r e c o g n iz e d . The C o u n c il and B udget R eview Of t h r e e p rim ary f u n c t io n s s e t f o r t h i n s t a t u t e f o r th e C a lif o r n ia c o o r d in a t in g a g e n c y , th e f i r s t i s one o f " r e v ie w o f th e a n n u a l b u d get and c a p i t a l o u t la y r e q u e s t s o f th e u n i v e r s i t y and th e S t a t e C o lle g e S y s te m s , and p r e s e n t a t i o n o f comments on th e g e n e r a l l e v e l o f su p p o r t hh s o u g h t . • •" T h ese comments a r e t o be made t o th e g o v e r n in g b oard s co n c er n e d and t o " a p p r o p r ia te s t a t e o f f i c i a l s " . fali- State of California, Education Code, sec. 22703. 152 Each year since 1 9 6 2 , the Council has sought to present advice and comment of varying extents on budget matters to the governing boards, the State Department of Finance, Governor and Legislature. In this time period the Council has pursued three generally distinct approaches in commenting on the level of support and has conducted iLf. two major reviews of its own performance. u Findings of the most recent review conducted in the spring of 1 9 6 7 , point up the difficulties encountered in effectively making Council influence felt either upon the governing boards or upon the state officials concerned, including the Legislature. • .the Council's role in the formal budget review process has failed to contribute significantly to the quality of decision-making in public higher education finance."^7 The reasons cited for this conclusion included: (1) the Council has no legal power to make budgetary decisions; (2) the Council is not inform- ^see for example, CCHE, Budget Report to the Legis lature . for the years 1963 through 1966 and individual staff reports in 1967 including Council Comments on Modified 1967-68 Governor's Budget. Staff Report 67-5a» March 28, T W T . ^See CCHE, Budget Review in Public Higher Education Number 1022 (Sacramento and San Francisco: The Council, December 1965). number 1022, and The Budget Review Role of the Coordinating Council for Higher Education. Staff Report 67-10, May 23. 1967. ^?The Budget Review Role of the Coordinating Council for Higher Education, p. 17. 153 ed about questions of overall state financing limitations; (3) "the Council does not have to live with its advice in quite the same ways that either the requesting segment or the appropriation authorities have to", and {*0 the Council has not adopted a viewpoint broader than the interests of LQ any one system of higher education. The review then noted that the Council had, however, contributed to policy decisions having major financial implications to the state through a number of special studies. In an effort to seek a new approach for the Council to take the staff attempted to poll members of the Council and draw from the experience of other states. The result of the survey of Council members was not conclusive. The consensus was that the Council should neither withdraw com pletely from attempts to examine budgets, nor should it seek to undertake a complete line-item review similar to that conducted by the Department of Finance, as it develops the budgets for the Governor; or the Legislative Analyst, in his review on behalf of the Legislature of the Governor's budget proposal. The survey found interest In expanding special studies and continued presentation of informational statements on overall needs and expenditures. The review Ji o ^The last point is based on statements of the Legislative Analyst. Ibid.. pp. 17-18. 154 of other state coordinating agencies, based in part on a special questionnaire, led the staff to once more underline the lack of legal authority as the key to effectiveness in budget review. The staff also found that there seemed to be no significant relationship between agency board composition (i.e., extent of public higher education re presentation on the boards) and the extent of authority Ilq and in f lu e n c e e x e r c is e d by th e a g e n c y . 7 The new ap p roach w h ich r e s u l t e d from t h i s r e v ie w was to s t r e s s more h e a v i ly in 1967- 6 8 , th e id e a o f s p e c i a l s t u d i e s c o n c e r n in g d i s c r e t e a r e a s — su ch a s s t a t e su p p o r t f o r o r g a n iz e d r e s e a r c h — a s m e e tin g th e i n t e n t o f th e C o u n c il's r o l e in r e s p e c t to comment on th e l e v e l o f su p p o r t . A lso to be g iv e n em p hasis was th e c o n tin u e d and expanded en cou ragem en t o f th e a d a p tio n o f program and p e r form an ce b u d g e tin g sy s te m s to h ig h e r e d u c a tio n .-* 0 The reasons for difficulties in Implementation of a satisfactory method of "commenting on the level of sup port" are many and cannot be fully explored here. They include, as brought out in the Council's own reviews, the fact of determining a role unique from that of the Legisla tive Analyst and Department of Finance; system representa tive unwillingness to vote as Council member, against a 49Ibid., pp. 19-29. 5°Ibld.. pp. 39-41. 155 budget proposal of their own system; difficulty in the determination of the effective time at which to provide advice given a budget development cycle, and Council staff limitations. What may be pointed to at this point is the Coun cil's and its staff's own recognition of a failure to effectively fulfill the function given to it by statute, at least through the 1967-68 budget development and adoption cycle. This recognition of limited success is reflected in comments of individuals made in course of this study's interviews. The performance of the Council and its staff appears to have been limited to preparation of reports providing background data with comment on selected proposals by each system, generally in respect to new programs proposed. Typically, the Council has not been represented in budget proposal discussions between the Department of Finance representatives and higher edu cation system staffs nor have Council representatives appeared in budget hearings of the legislative finance 51 committees. Other attempts at influencing the legisla tive-executive in favor of particular budget proposals likewise appear to have been limited. 5lThe suggestion that a Council staff member should sit along with Legislative Analyst and Department of Fin ance in hearings on higher education budgets was made on occasion during the course of interviews. 156 The m ain a r e a o f b u d g e t re v ie w , i f n o t c o n t r o l , a p p e a rs to have been e f f e c t i v e l y p r e c lu d e d from th e C a l i f o r n i a h ig h e r e d u c a tio n a g en c y . E x cept i n p u r s u in g s p e c i a l i n v e s t i g a t i o n s w ith f i n a n c i a l i m p l i c a t i o n s i t has b e e n a p p a r e n t l y a b s e n t i n making s i g n i f i c a n t c o n t r i b u t i o n s . The newly d e f in e d scope o f a c t i v i t y s i m i l a r l y d i s c o u n ts any p o s s i b i l i t y o f e x te n s iv e bu dget re v ie w b u t r a t h e r s e e k s to f u l f i l l th e g e n e r a l f u n c t i o n o f "comment on th e l e v e l o f s u p p o r t so u g h t" w i t h i n s p e c i a l s t u d i e s o u t s i d e th e bu d g et c y c le and i n p u r s u i t o f o b j e c t i v e s to improve th e b u d g e t- making p r o c e s s i t s e l f . The T u i t i o n I s s u e S u b s t a n t i a l f e e s have been c h arg ed s t u d e n t s a t t e n d ing th e U n i v e r s i t y o f C a l i f o r n i a and th e C a l i f o r n i a S t a t e C o lle g e s f o r some y e a r s . These f e e s have n o t been term ed " t u i t i o n " a s th e y m ight i n o t h e r i n s t a n c e s f o r i t has b een cla im e d t h a t th e f e e s c h a rg e d a r e f o r p u rp o se s o t h e r th a n i n s t r u c t i o n o r i n s t r u c t i o n a l f a c i l i t i e s . They s u p p o r t , i n s t e a d , s t u d e n t a c t i v i t i e s , h e a l t h s e r v i c e s , and c o u n s e l i n g . These l i m i t a t i o n s upon th e u s e s o f s t u d e n t f e e income have l e d to th e a s s e r t a t i o n t h a t C a l i f o r n i a a d h e re s to a " t u i t i o n - f r e e " p o l i c y to w ard s t a t e - s u p p o r t e d h i g h e r ed u ca t i o n . With th e i n c r e a s i n g c o s t s o f m a i n t a i n in g th e p u b l i c h i g h e r e d u c a ti o n a l system s and w ith th e demands on s t a t e 157 fun ds cau sed by r a p i d e x p a n sio n , p r e s s u r e s have d e v elo p ed w i t h i n th e s t a t e to d e p a r t from t h i s l o n g - s t a n d i n g p o licy .. These p r e s s u r e s have b een m ost a o u te s i n c e th e b e g in n in g o f th e Reagan a d m i n i s t r a t i o n i n J a n u a ry 1967* The is s u e o f th e p o s s i b l e c h a rg in g o f t u i t i o n to meet a p o r t i o n o f th e c o s t s o f i n s t r u c t i o n s i n c e t h a t tim e h as been th e su b j e c t o f e x te n s i v e p u b l ic d e b a te , i n th e L e g i s l a t u r e , i n th e p r e s s and i n o t h e r forum s. The C a l i f o r n i a c o o r d i n a ti n g agency f o r h i g h e r edu c a t i o n i n term s o f i t s r e s p o n s i b i l i t y to a d v is e L e g i s l a t u r e and G overnor, a s w e ll as th e b oards o f th e s y s te m s , and g iv e n th e n a tu r e o f th e is s u e m ight be e x p e c te d to p la y a s i g n i f i c a n t r o l e i n d e te r m in in g outcom es o f t h i s p u b lic d i s c u s s i o n and d e b a t e . A re v ie w o f th e r e c o r d o f th e Coun c i l does in d ee d r e f l e c t d i s c u s s i o n o f th e q u e s t i o n on t u i t i o n on a number o f o c c a s i o n s , b u t w ith a l i m i t e d r e s u l t a s 52 i s n o te d below .^ The S t a t e Board o f E d u c a tio n and th e R eg en ts o f th e U n i v e r s i t y o f C a l i f o r n i a i n a p p ro v in g th e M a ste r P l a n i n 1959 r e a f f i r m e d th e t u i t i o n - f r e e p o l ic y and th e C o u n cil by r e f e r e n c e s u p p o rte d t h i s a c t i o n i n 1961 when i t s p e c i f i c a l l y s t a t e d i t would fo llo w th e M a ste r P l a n p r i n c i p l e s and recom - ■ 5 2The h i s t o r i c a l su m m ariza tio n i s b ased upon a Coun c i l s t a f f p a p e r p r e s e n t e d to th e C o u n c il, J a n u a r y 6 , 1 9 6 7 . The p a p e r was p r e p a r e d by th e a u t h o r . 158 m e n d a tio n s . T his s t a te m e n t was encom passed I n t h e C o u n c il* s in te n d e d s c o p e , f u n c t i o n s and p ro c e d u re s a d o p te d i n l a t e 1 9 6 1 . S in c e t h a t tim e i n t e r e s t i n a p o s s i b l e t u i t i o n , p r i m a r i l y a t th e U n i v e r s i t y and i n t h e s t a t e c o l l e g e s , h a s mounted* W ith e v e ry l e g i s l a t i v e s e s s i o n , 19&3 th ro u g h 1 9 6 8 , b i l l s have b een i n tr o d u c e d r e l a t i n g to t h e t u i t i o n m a t t e r . T h is l e g i s l a t i v e I n t e r e s t has b e e n n o te d by th e C o u n c il d u r i n g i t s m ee tin g s* I n O c to b e r 1963 a C o u n cil co m m ittee , r e f l e c t i n g i n c r e a s i n g c o n c e rn o v e r t h e l e g i s l a t i v e d i s c u s s i o n s , s t a t e d t h a t th e p o s s i b i l i t y o f t u i t i o n w ould n o t be c o n s id e r e d by t h e Committee i n c o n n e c ti o n w ith t h e 196^ -65 b u d g e t. However, i n March o f t h e f o l lo w in g y e a r on r e q u e s t o f Andrew Kay, a p u b l ic member, th e s t a f f began to s tu d y th e q u e s t i o n s t h a t m ig ht a r i s e i f t h e r e w ere to be a d e p a r t u r e from th e no t u i t i o n p o l i c y . The s t a f f was l a t e r r e q u e s t e d t o p r e p a r e a r e p o r t b a se d on t h i s s tu d y b u t to o m it any s t a f f reco m m en d atio n s. T h is r e p o r t was f i r s t p r e s e n t e d to a December 196^ m e e tin g o f th e C o u n cil and a f i n a l v e r s i o n o f th e document c o n s i d e r e d a t a s p e c i a l m e e tin g o f t h e C o u n c i l 's Committee on F in a n c e on March 5» 1965. The C o u n c il c o m m ittee , c h a i r e d by A r t h u r Coons who <3 ^CCHE, Committee on F in a n c e , M in u te s . O c to b e r 22, 1963. P. 3 . 159 had p r e v i o u s l y i n d i c a t e d h i s s u p p o r t f o r t u i t i o n , re v ie w e d th e r e p o r t and l i s t e n e d t o a s t a te m e n t p r e s e n t e d by L i e u t e n a n t G overnor G lenn A nderson i n o p p o s i t i o n t o any im p o s i t i o n o f t u i t i o n . The Committee c o u ld n o t r e a c h any a g r e e m ent and i n s t e a d r e f e r r e d th e s t a f f r e p o r t ; t o th e f u l l C o u n c il. The C o u n c il, m e e tin g o n March 30, a c c e p t e d t h e a c t i o n o f t h e Committee r e f e r r i n g th e s t a f f r e p o r t to th e f u l l b o ard and a l s o a g re e d w ith a Committee s t a te m e n t t h a t no f u r t h e r d i s c u s s i o n s be h e ld p e n d in g c o m p le tio n o f U n i v e r s i t y and s t a t e c o l l e g e s t u d i e s w hich w ere s t a t e d a s a. backgrou nd docum ent. D a tes f o r r e c e i p t o f th e U n i v e r s i t y and s t a t e c o ll e g e s t u d i e s w ere f i r s t s e t f o r November 1965* t h e n l a t e r p o s t poned to May 1 9 6 6 . F u r t h e r d e la y o c c u r r e d , and f i n a l l y l e t t e r s w ere r e q u e s t e d by th e C o u n c il D i r e c t o r , and r e c e i v e ! from P r e s i d e n t C la rk K e rr and C h a n c e llo r G le n n Dumke i n December 196 6 , s t a t i n g t h a t no a c t i o n s had b e en t a k e n by e i t h e r b o a rd r e g a r d i n g th e q u e s t i o n . Background m a t e r i a l s and a r e q u e s t f o r i n s t r u c t i o n s as to th e n e x t s t e p s w ere r a i s e d by th e C o u n c il s t a f f a t th e C o u n c i l 's J a n u a ry 6 , 19&7 m e e tin g . The r e s p o n s e was to p l a c e th e ite m on th e a gen da o f th e m e e tin g f o r F e b r u a r y 21, ■5^CCHE, An E v a l u a t i o n o f th e T u i t i o n F re e P r i n c i p l e - i n C a l i f o r n i a H ig h e r E d u c a tio n . Number 1019 (S acram ento and San F r a n c i s c o : The C o u n c il, May 1 9 6 5) . Vr 160 1 9 6 7 * ^ T his a c t i o n was ta k e n w ith knowledge o f Governor R e ag a n 's c o n s i d e r a t i o n o f a #^00 p e r y e a r t u i t i o n a t th e U n i v e r s i t y and one o f f>200 a t th e s t a t e c o ll e g e s w hich had b een p u b l i c l y r e p o r t e d th e day b e f o r e . ^ Throughout th e month i n c r e a s i n g a t t e n t i o n was p a id to th e Reagan p r o p o s a l e s p e c i a l l y a s h e , h i m s e l f , s t r e s s e d th e is s u e i n h i s f i r s t t e l e v i s e d "R ep o rt to th e P e o p l e " . ^ L e g i s l a t i v e e x p re s s io n s were made as w e l l . S p e a k er J e s s e Unruh i n r e a c t i n g to th e G o v e rn o r's s ta te m e n ts s u g g e s te d " c a u t i o n and re a so n " and n o te d t h a t i t was up to th e L e g i s l a t u r e to u l t i m a t e l y d e te rm in e what c h a rg e s , i f an y , w ere to be made a-5® (The C a l i f o r n i a L e g i s l a t u r e may impose t u i t i o n by s t a t u t e on th e s t a t e c o l l e g e s . As f o r th e U n iv e r s i t y , a c o n s t i t u t i o n a l l y p r o t e c t e d p u b lic c o r p o r a t i o n , l e g i s l a t i v e a c t i o n would n e c e s s a r i l y be i n d i r e c t — th ro u g h , p e rh a p s , a r e d u c t i o n o f th e U n i v e r s i t y bud g et by an amount e q u i v a l e n t to w h a te v e r t u i t i o n was to be c h a r g e d .) Former G overnor Brown was q u o te d i n a w ire s e r v i c e s t o r y a t th e tim e: -^CCHE, M in u te s , J a n u a ry 6, 1 9 6 7 * P* 1* 66 Sacram ento B ee, J a n u a ry 5* 19&7* P* A l. • ^ I b l d . . J a n u a ry 17, 1 9 6 7 , p. A l. 58I b l d . , p . A6. 161 The g r e a t e v i l o f i t / t h e p r o p o s a l o f Governor Reagaii/ i s th e y have a m a s te r p l a n o f h i g h e r e d u ca t i o n d ep en din g on th e g o v e rn o r c o n s u l t i n g w ith th e c o o r d i n a ti n g c o u n c i l . T h a t 's w hat t h e y 'r e s e t up f o r . 59 Thus a fo rm e r G overnor c a l l e d a t t e n t i o n to a presum ed r o l e f o r th e C o o r d in a tin g C ou ncil to p l a y . The t u i t i o n i s s u e r e c e d e d i n p u b l ic n o t i c e t o a l i m i t e d e x t e n t a m id s t th e c o n t r o v e r s i e s betw een th e Gover n o r and P r e s i d e n t K e rr o v e r th e U n i v e r s i t y 's b ud g et f o r 1967- 6 8. W ith K e r r 's a b r u p t rem oval by th e Board of R egents in l a t e J a n u a r y , t h e is s u e was f u r t h e r moved in to th e background, thou gh n o t f o r lo n g . I n F e b ru a ry d e m o n s tra tio n s were h e ld a t th e C a p ito l i n Sacram ento on th e t u i t i o n q u e s t i o n a s w e ll as on p la n s to red u c e s t a t e s u p p o r t f o r h i g h e r e d u c a ti o n . At a r a l l y o f r e p o r t e d l y some f i v e th o u sa n d p e r s o n s , S t a t e S e n a to r Mervyn Dymally p ro p o se d c r e a t i o n o f a "Committee A g a in st S t a t e T u i t i o n " . G overnor Reagan a tte m p te d to sp eak to th e /Irx gro u p b u t gave up th e e f f o r t a f t e r i n t e r r u p t i o n s . W ith in th e c o n te x t o f th e w e l l - p u b l i c i z e d d e b a te on th e i s s u e o f t u i t i o n , th e C oun cil met i n Sacram ento on F e b ru a ry 21, 19^7* and to o k a c t i o n a d v i s i n g th e L e g i s l a t u r e t h a t no d e t e r m i n a t i o n o f th e t u i t i o n q u e s t i o n sh o u ld be made 59I b i d . u5 a n F r a n c is c o Exam iner and C h r o n i c l e . F e b ru a ry 12, 1967, p . 1 . 162 d u rin g th e 1967 S e s s io n . T his s ta te m e n t was made i n l i g h t o f th e R e g e n ts ’ a c t i o n s e a r l i e r i n th e month w hich i n d ic a te d t h a t no t u i t i o n would be imposed f o r th e academ ic y e a r 1 9 6 7 -6 8 and c a l l e d f o r c o n s i d e r a t i o n o f t h e q u e s t i o n as a p p ly in g to su b se q u e n t y e a r s a t th e A p r i l R egents m e e tin g . The T r u s te e s o f t h e S t a t e C o lle g e s by t h a t tim e had a ls o ta k e n a c t i o n o p p o sin g th e p r o p o s i t i o n . I n a d d i t i o n , the L e g i s l a t u r e was c o n s i d e r i n g a t th e tim e a b ro a d e n in g o f th e ch arg e o f th e J o i n t Committee on H ig h er E d u c a tio n to r e p o r t on th e t u i t i o n q u e s t i o n by t h e 1968 s e s s i o n . ^ By th e tim e th e C ouncil to o k i t s a c t i o n , th e q u e s t io n o f im p o s itio n o f t u i t i o n f o r th e coming academ ic (and budget) y e a r was m oot. The R e g e n ts , T r u s t e e s and t h e L e g i s l a t u r e were a l l , e i t h e r a b o u t to be, o r a l r e a d y e x p r e s s ly i n f a v o r o f e i t h e r no f e e i m p o s it i o n o r a t l e a s t f u r t h e r d e la y . D uring th e f o llo w in g months a t t e n t i o n o f t h e Reagan a d m i n i s t r a t i o n was fo c u s e d p r i m a r i l y upon t h e a c t i v i t i e s o f th e R e g e n ts . F i n a l d i s c u s s i o n — and d e c i s i o n by th e R e g e n ts — was postp o n ed from th e A p r i l m e e tin g to a llo w f o r p r e p a r a t i o n o f r e p o r t s by th e C olleg e E n tra n c e E x am in a tio n Board r e g a r d i n g s t u d e n t f i n a n c i a l n e e d s . P r e s e n t a t i o n o f t h i s m a t e r i a l was s c h e d u le d f o r A ug ust. ^ A s s e m b ly C o n c u rre n t R e s o l u ti o n 16 was l a t e r a d o p te d p r o v id in g f o r th e s tu d y . 6 2 C o lleg e E n tra n c e E x am in a tio n B oard, S tu d e n t F in a n c i a l A id A d m i n is tr a t io n R equirem ents and R e so u rce s a t th e 163 At th e J u l y m e e tin g o f th e C o u n o il, D i r e c t o r W illa r d S p a ld in g r a i s e d th e q u e s t i o n o f th e need f o r a C oun cil s ta te m e n t on t u i t i o n . F ollo w in g d i s c u s s i o n , th e m a t t e r was p la c e d o n th e C o u n c il 's A ugust agenda f o r f u r t h e r e x p l o r a t i o n w ith p o s s i b i l i t y o f a c t i o n l e f t o p e n . ^ P r e s i d e n t A r th u r Coons, i n o p e n in g th e d i s c u s s i o n a t th e A ugust 2 h m e e tin g o f th e C o u n c il, s t a t e d t h a t i t was h i s i n t e n t i o n n o t to p r e s s f o r a c t i o n on t h e m a t t e r . ^ The s ta te m e n t a p p a r e n t l y i n d i c a t e d t h a t v e ry l i k e l y th e t u i t i o n p r o p o s i t i o n c o u ld n o t p a ss th e C ou n cil i n C oon's o p i n io n even tho ugh t h r e e r e c e n t a p p o in te e s o f th e G overnor had now t a k e n s e a t s on th e C ouncil and were e x p e c te d to e n d o rse th e t u i t i o n p r o p o s i t i o n . An a n t i - t u i t i o n a c t i o n by th e C ou n cil m ight u p s e t th e p r e c a r i o u s s i t u a t i o n w i t h i n th e R egents who were sc h e d u le d to meet l a t e r i n th e month. I n any e v e n t Coons, who was a s u p p o r t e r o f th e t u i t i o n p r o p o s i t i o n though w ith some s i g n i f i c a n t q u a l i f i c a t i o n s on u s e s o f Income so d e r i v e d , th o u g h t i t b e s t n o t to p u t th e q u e s t i o n to th e C ou n cil U n i v e r s i t y o f C a l i f o r n i a . 2 V o l ., A ugust 1967- At t h e same tim e th e C o u n c il s t a f f was engaged i n a s tu d y o f s t u d e n t a id program s w ith th e U n i v e r s i t y and s t a t e c o ll e g e s t a f f s . ^ cC H E , M in u te s . J u l y 18, 1967, p p . 2-3* ^"The C ouncil m in u te s f o r t h i s d i s c u s s i o n a r e l i m i t e d . A u t h o r 's n o te s o f th e m e e tin g have been u s e d i n s t e a d . ^ C o o n s ' p o s i t i o n had been o u t l i n e d on F e b ru a ry 4 , 1 9 6 7 * i n a s ta te m e n t d i s t r i b u t e d to C oun cil members. 164 D e s p ite th e c h a i r ' s i n t e n t i o n , a m o tio n to c o n tin u e th e t u i t i o n - f r e e p r i n c i p l e was p la c e d b e fo re th e C ouncil by a p u b l ic member who was a Brown a p p o i n t e e . The m otion was 66 t h e n t a b l e d on a v o ic e v o t e . T his a b ru p t a c t i o n , a t l e a s t th ro u g h March 1 , 1968, has m arked th e end o f C o un cil p u b l ic c o n s i d e r a t i o n o f th e s u b j e c t o f t u i t i o n even th o u g h th e m a t t e r i s th e s u b j e c t o f d i s c u s s i o n i n t h e L e g i s l a t u r e and among th e g o v e rn in g b o a rd s . At th e A ugust m e e tin g o f th e R egents a sem an tic b a t t l e began as t h e y to o k a c t i o n s t a t i n g t h a t " t u i t i o n " would n o t be imposed b u t a g re e d to s tu d y s u b s t a n t i a l i n c r e a s e s i n s tu d e n t f e e s . By F e b ru a ry 1968 t h e J o i n t Committee on H ig h er E d u c a tio n , on a s p l i t v o t e , c o n clu d ed t h a t t u i t i o n sh o u ld n o t be c o n s id e r e d i n th e 1968 l e g i s l a - 6 7 t i v e s e s s i o n . f P r e s s r e a c t i o n to th e C o u n c i l 's f a i l u r e to ta k e d i r e c t a c t i o n l e d to h e a d l in e s such a s " E d u c a tio n Council 68 •Ducks' S ta n d on C o lle g e T u i t i o n " . As n o te d i n l a t e r c h a p t e r s , p e rs o n s in te r v ie w e d i n th e c o u rse o f t h i s s tu d y ^CCHE, M in u te s . A ugust 24, 1 9 6 ?, pp. 5 0 6 . The m o tio n to t a b l e was made by a n o th e r Brown a p p o in t e e , ^ T h e J o i n t C om m ittee's m em bership was changed s h o r t l y b e fo r e i t s F e b ru a ry 8 m e e tin g . I n d i c a t i o n s p r i o r to t h a t tim e were t h a t th e Committee was d i v id e d e v e n ly on the q u e s t i o n . 68 Sacram ento Bee. A ugust 25» 1967* 165 i n th e L e g i s l a t u r e , a s w e l l as o t h e r s , i n d i c a t e d d i s a p p o i n t ment t h a t t h e C ouncil had f a i l e d s i g n a l l y to g iv e a d v ic e on a m ajor i s s u e . F u r t h e r , some C o u n cil members th e m se lv e s i n d i c a t e d d i s s a t i s f a c t i o n w ith th e r e s u l t s o f th e c o n s i d e r a - 69 t i o n o f th e m a t t e r o f t u i t i o n . A r e f l e c t i o n o f th e g e n e r a l l y p e rc e iv e d u n s a t i s f a c t o r y outcome o f th e C o u n c il ’ s c o n s i d e r a t i o n o f th e t u i t i o n m a t t e r i s found i n a s t a f f document p r e p a r e d f o r th e C ou ncil on th e q u e s t i o n o f v o t i n g by system r e p r e s e n t a t i v e s i n advance o f t h e a d o p tio n o f p o s i t i o n by t h e i r r e s p e c t i v e b o a rd s . S ta te m e n ts i n t h e document a re q u o te d h e re i n f u l l b e ca u se o f t h e i r i m p l i c a t i o n s to t h i s s tu d y as a w h ole, a s w e ll as t h e t u i t i o n q u e s t i o n i n p a r t i c u l a r . The s t a f f p a p e r n o te d : The Donahoe A ct s t a t e s t h a t t h e C o u n c il 's f u n c t i o n s a r e 'a d v i s o r y to th e g o v e rn in g b o a rd s o f th e i n s t i t u t i o n s o f p u b l ic h i g h e r e d u c a ti o n and to a p p ro p r i a t e s t a t e o f f i c i a l s . 1 I n o r d e r t o p ro v id e a d v ic e to th e g o v e rn in g b o a rd s i n a tim e ly f a s h i o n , C ou n cil recom m endations sh o u ld be t r a n s m i t t e d b e fo r e g o v e rn in g b o a rd s have t a k e n a c t i o n on th e i s s u e s i n q u e s t i o n . The C ouncil sh o u ld n o t p ro v id e a d v ic e o n ly a f t e r g o v e rn in g b o ard s have t a k e n a c t i o n . Even more damaging to th e e f f e c t i v e n e s s o f an a d v is o r y group such as th e C ou n cil i s th e i n a b i l i t y o r u n w i l li n g n e s s to p ro v id e a d v ic e a t a l l , such a s o c c u r r e d on th e i s s u e o f th e t u i t i o n - f r e e p r i n c i p l e ^ L ouis J . K ro e g er i n a l e t t e r to th e C ou n cil Com m i t t e e on F in a n ce p r e s e n t e d a t th e Septem ber 25, 1967* m e e tin g o f th e Committee e x p re s s e d such c o n c e rn . 166 i n p u b l i c h i g h e r e d u c a t i o n i n C a l i f o r n i a . D e s p ite t h e f a c t t h a t i n d i v i d u a l C o u n c il members may fro m tim e t o tim e a b s t a i n fro m v o t i n g f o r one r e a s o n o r a n o t h e r , t h e C o u n c il a s a w ho le s h o u ld n o t a v o id p r o v i d i n g t im e ly a d v ic e o n s i g n i f i c a n t i s s u e s a f f e c t i n g p u b l i c h i g h e r e d u c a t i o n . I f a n i n d i v i d u a l s e g m e n ta l member a b s t a i n s from v o t i n g on a n i s s u e a t a C o u n c il m e e tin g b e c a u s e t h a t i s s u e i s p e n d in g b e f o r e h i s g o v e r n in g b o a rd , o t h e r C o u n c il m embers have a r e s p o n s i b i l i t y to v o te o n th e i s s u e so t h a t t h e C o u n c il may d i s c h a r g e i t s r e s p o n s i b i l i t i e s u n d e r t h e Donahoe A c t i n a t i m e l y f a s h i o n . An o c c a s i o n a l a b s t e n t i o n may n o t w eaken t h e C o u n c il s u b s t a n t i a l l y , b u t i n a c t i o n o n t h e p a r t o f t h e C o u n c il a s a w hole w i l l e ro d e s e r i o u s l y t h e C o u n c i l s e f f e c t i v e n e s s . 70 The C o u n c i l 's c o n s i d e r a t i o n an d d i s p o s i t i o n o f t h e t u i t i o n i s s u e ( a t l e a s t to tim e o f t h i s w r i t i n g ) a p p e a r s t o be a n exam ple o f t h e a g e n c y i n a s i t u a t i o n w here i t has b e e n u n a b le t o a d v i s e th e g o v e r n in g b o a rd s a n d s t a t e o f f i c i a l s , i n c l u d i n g t h e L e g i s l a t u r e , o n a m a t t e r o f s i g n i f i c a n t p u b l i c c o n c e r n . I n e a r l i e r y e a r s , C o u n c il s t a f f c o u ld s t a t e i n l e g i s l a t i v e h e a r i n g s , i f c a l l e d u p o n , t h a t t h e C o u n c il p o s i t i o n was to u p h o ld th e M a s te r P l a n , w h ich i n t u r n had s u p p o r t e d t h e t u i t i o n - f r e e p r i n c i p l e . H ow ever, t h e p o s i t i v e n a t u r e o f t h e a c t i o n o f F e b r u a r y 1967 c o n c e r n in g d e l i b e r a t i o n s a t t h a t y e a r ' s l e g i s l a t i v e s e s s i o n , and t h e s u b s e q u e n t a c t i o n to t a b l e c o n s i d e r a t i o n i n A u g u st 1 9 6 7 , has c a s t s u f f i c i e n t d o u b t a s t o make s t a t e m e n t s o n b e h a l f o f t h e C o u n c il d i f f i c u l t f o r l e g i s l a t i v e l i a i s o n ?°A genda ite m , " V o tin g o f S e g m e n ta l M em bers," Com m i t t e e on C o u n c il R e l a t i o n s h i p s an d P r o c e d u r e s , F e b r u a r y 9» 1968. t 167 p e r s o n n e l . I n e f f e c t , t h e C o u n c il h a s no p o s i t i o n o n th e q u e s t i o n . The i s s u e o f t u i t i o n became a m a jo r p o l i t i c a l i s s u e d u r i n g 1 9 6 7 . R e f e r r i n g to t h e p o l i t i c a l im p o r ta n c e o f th e m a t t e r , one p e r s o n i n t e r v i e w e d by t h e a u t h o r s u g g e s te d t h a t t h e r e a s o n t h e C o u n c il was u n a b le t o a c t was t h a t th e i s s u e h ad become to o p o l i t i c a l f o r t h e b o a rd to accommo d a t e . O th e rs s t a t e d t h a t th e G o v e rn o r h a d i n t e r j e c t e d h i s i n t e r e s t i n t h e q u e s t i o n w i t h i n t h e C o u n c il by m aking h i s new a p p o in tm e n ts c o n t i n g e n t u p o n v ie w s o n t u i t i o n . I t i s l i k e l y t h a t t h e G o v e r n o r 's o f f i c e was in d e e d i n t e r e s t e d i n t h e outcom e o f t h e C o u n c il d i s c u s s i o n , a t l e a s t i n i t i a l l y , b u t t h a t a f a v o r a b l e a c t i o n on t h e p a r t o f t h e R e g e n ts was t h e u l t i m a t e o b j e c t i v e and t h a t th e s t r a t e g y , i f t h e r e was o n e , was t o e n s u r e t h a t no f o r c e s d i s r u p t e d t h e p r o c e s s e s o f o b t a i n i n g t h a t f a v o r a b l e a c t i o n . The r i s k o f a n o - t u i t i o n C o u n c il s t a t e m e n t j u s t p r i o r to t h e R e g e n ts m e e tin g may h av e s e e n as p o t e n t i a l l y to o d i s r u p t i v e t o a l l o w . Thus t h e a c c e p t a n c e o f a m o tio n to t a b l e n e v e r was c h a l l e n g e d . The r o l e o f t h e C o u n c il i n t h i s q u e s t i o n c a n s u g g e s t t h a t a c o o r d i n a t i n g a g e n c y may n o t be a b l e t o e f f e c t i v e l y i n f l u e n c e t h e p o lic y - m a k in g p r o c e s s o n m a jo r q u e s t i o n s i f t h e y in v o lv e p o l i t i c a l c o n s i d e r a t i o n s i n w h ic h t h e G o v e rn o r, L e g i s l a t u r e a n d o t h e r s t a t e w i d e f i g u r e s a r e s i g n i f i c a n t l y i n t e r e s t e d . I t may be h y p o t h e s iz e d t h a t s u c h a q u e s t i o n c a n o n ly be d e c id e d I n t h e p o l i t i c a l a r e n a an d t h a t a c o o r d i n a t 168 in g a g e n c y , I f i t s e e k s to m a i n t a i n a n " e x p e r t ” im age, i s p e rh a p s j u s t a s w e ll o f f i n n o t t a k i n g a p o s i t i o n o n a n i s s u e w h ich a p p e a rs one d e s t i n e d t o be d e c id e d o n s u b j e c t i v e b a s e s , (The C o u n c il i t s e l f had t a c i t l y r e c o g n iz e d th e ‘s u b j e c t i v e n a t u r e o f th e d e c i s i o n by i t s c o n tin u e d s t r e s s o n s e e k in g a rg u m e n ts "p ro and con" from th e C o u n c il s t a f f and o t h e r r e l a t e d d a t a , b u t e x p r e s s l y d i r e c t i n g t h a t no s t a f f reco m m en d atio n s be made b a s e d on i t s s t u d i e s . ) F u r th e rm o re , t h e q u e s t i o n o f t u i t i o n i n th e C a l i f o r n i a c o n t e x t may in v o lv e t h e m a jo r p o l i c y q u e s t io n s o f a l l o c a t i o n o f s t a t e r e s o u r c e s — w h e th e r th e p u b l i c c o l l e g e s and u n i v e r s i t i e s w i l l be s u p p o rte d by th e s t a t e p e rh a p s a t th e e x p e n se o f o t h e r s t a t e s e r v i c e s . A c o o r d i n a t i n g a g e n c y f o r h i g h e r e d u c a ti o n w ould a p p e a r a p o o r a r e n a i n w h ic h to d e b a te t h i s p ro b le m . S ix I s s u e s Sum m arized The s i x i s s u e s w h ich have o c c a s io n e d c l o s e C a l i f o r n i a C o u n c il c o n t a c t w ith t h e l e g i s l a t i v e - e x e c u t i v e o r g o v e rn m e n ta l i n t e r e s t i n t h e C o u n c il have i l l u s t r a t e d s e v e r a l d i f f e r e n t a p p ro a c h e s t a k e n by th e a g e n c y i n s e e k in g to i n f l u e n c e th e p o l i t i c a l p r o c e s s . They a l s o p o i n t up a r e a s w here t h e ag en cy h as b een f r u s t r a t e d o r i n e f f e c t i v e i n s e e k in g to i n f l u e n c e . I n t h e q u e s t i o n o f a d d i t i o n a l c e n t e r s , th e C o u n c il m ig h t be s a i d to have t a k e n on a n e x p e r t t e c h n i c a l a p p ro a c h 169 i n d e v e lo p in g i t s reco m m en d atio n s on new c o l l e g e s and cam p u s e s . T hen, r e a l i z i n g t h e im p o rta n c e o f th e i s s u e to th e f u t u r e o f t h e C o u n c il i t s e l f , i t assum ed a s i g n i f i c a n t a d v o c a c y r o l e a s i t s o u g h t to e n s u r e t h a t i t s recom m enda t i o n s w ould be a d o p te d by t h e L e g i s l a t u r e and th e G o v e rn o r. The r e s u l t was f a v o r a b l e . The s u b j e c t o f y e a r - r o u n d o p e r a t i o n s f o r c o l l e g e s a n d u n i v e r s i t i e s and c o n v e r s io n to a q u a r t e r a cad em ic c a l e n d a r i s i l l u s t r a t i v e o f th e ag en c y s e e k in g t o o b t a i n l e g i s l a t i v e l e g i t i m i z a t i o n o f i t s d e c i s i o n and a s t a te m e n t o f f u t u r e s u p p o r t . A c o n c u r r e n t r e s o l u t i o n was g a in e d , b u t s h o r t l y t h e r e a f t e r i n t e r e s t g ro u p s w ere a b l e t o s e e t h a t a n o t h e r r e s o l u t i o n was a p p ro v e d i n one h o u s e , c a s t i n g some c o n f u s io n o n t h e l e g i s l a t i v e e n d o rse m e n t w h ich had b een o b t a i n e d . L ac k o f s u p p o r t f o r th e a g e n c y 's l e g i s l a t i v e pro g ram by a s y s te m , i t s e l f one o f t h e o b j e c t s o f t h e p o l ic y f u r t h e r m i t i g a t e d e f f e c t i v e n e s s an d p e rh a p s l e d to th e d i s c u s s i o n an d e f f o r t s to r e v e r s e t h e p o l i c y w h ich c o n tin u e to d a y . The j u n i o r c o l l e g e g o v e rn a n c e q u e s t i o n i s i n t e r e s t i n g i n t h a t th e i n i t i a l f a i l u r e o f t h e C o u n c il to ta k e a d e f i n i t i v e p o s i t i o n o c c u r r e d i n su c h a c o n te x t a s t o , i n a l l p r o b a b i l i t y , e n c o u ra g e e v e n t u a l a c c e p ta n c e o f th e p r o p o s i t i o n . The p o s i t i o n o f M arch 1965 i n d i c a t i n g t h a t th e Coun c i l b e l i e v e d t h e " u l t i m a t e e s t a b l i s h m e n t o f a s t a te w i d e g o v e rn in g b o a rd d e v o te d e x c l u s i v e l y t o t h e J u n i o r C o lle g e s 170 may "be e s s e n t i a l " ^ p e r m i t t e d t h e s t a f f o f th e C o u n c il to a d v is e l e g i s l a t o r s a s th e y i n tr o d u c e d b i l l s to c r e a t e su c h a b o a rd . I n O c to b e r I 966 th e C o u n c il to o k d e f i n i t i v e a c t i o n e n d o r s in g th e b o a rd and a s u b s e q u e n t a c t i o n o n f u n c t i o n . D u rin g t h e w hole p e r i o d , t h e C o u n c il s t a f f c o u ld w ork c l o s e l y w i t h l e g i s l a t o r s i n e n c o u r a g in g th e b o a rd , h o w e v er, a s m ore g ro u p s began to f a v o r th e p r o p o s i t i o n , th e C o u n c il’ s r o l e became one o f c o l l a b o r a t i o n w ith o t h e r i n t e r e s t g ro u p s i n o b t a i n i n g th e p r o p o s i t i o n s . E v e n ts l e a d i n g to a d o p ti o n o f a. p l a n to a d m i n i s t e r s t a t e pro g ram s f o r j u n i o r c o ll e g e f a c i l i t i e s c o n s t r u c t i o n i n s t a t u t e , te n d to show th e C a l i f o r n i a ag en c y i n t h e c a p a c i t y o f s e e k in g s o l u t i o n s to a h i g h l y t e c h n i c a l i s s u e among i n t e r e s t e d g ro u p s and th e n th e s o l u t i o n was a d o p te d by t h e L e g i s l a t u r e . The n a t u r e o f th e s u b j e c t an d t h e m ethods u s e d i n d e v e lo p in g a n a c c e p t a b l e s o l u t i o n to t h e p ro b lem a p p e a r t o c o n t r i b u t e t h e e x p e r t image w h ich m ig h t be a p p l i e d to th e C o u n c il. I n t h e c a s e o f t h e C o u n c i l 's p e rfo rm a n c e i n r e s p e c t to m aking comments o n t h e l e v e l o f s t a t e s u p p o r t f o r h i g h e r e d u c a t i o n , th e ag en c y a p p a r e n t l y h a s b een u n a b le t o f i n d a s a t i s f a c t o r y m ethod o r v e h i c l e f o r i n f l u e n c e i n t h e b u d g e t- m aking and a d o p ti o n p r o c e s s . I t h a s i n s t e a d s o u g h t o t h e r ^CCH E, M in u te s . M arch 30» 19&5* P« 6 171 a p p ro a c h e s su c h a s s p e c i a l , f i n a n c i a l - r e l a t e d s t u d i e s th ro u g h w hich to make i t s e l f f e l t i n th e p o l i t i c a l m i l i e u . F i n a l l y , t h e t u i t i o n q u e s t i o n i s i l l u s t r a t i v e o f a n ag en cy u n a b le to r e a c h an a g re e m e n t w i t h i n and t h u s u n a b le to make i t s e l f f e l t on a n im p o r ta n t h ig h e r e d u c a t i o n i s s u e i n w hich members o f th e L e g i s l a t u r e and G o v ern o r w ere m ost i n t e r e s t e d . The v e ry f a c t o f t h i s i n t e r e s t by l e g i s l a t o r s , th e G o v ern o r an d g o v e rn in g b o a rd members may h av e r e n d e r e d th e C o u n c il in c a p a b le o f a c t i o n . An O verview o f t h e C a l i f o r n i a Agency: T e c h n iq u e s o f I n f l u e n c e At t h e b e g in n in g o f C h a p te r VI some g e n e r a l s t a t e m ents c o n c e r n in g p o s s i b l e t o o l s o r s t r a t e g i e s f o r i n f l u e n c e w ere s u g g e s te d a s th o s e w hich a n a g en c y su c h a s a c o o r d i n a t in g a g en c y m ig h t be e x p e c te d to em ploy i n s e e k in g to have im p a ct o n p o l i c y d e c i s i o n s made by th e G o v e rn o r, l e g i s l a t o r s and o t h e r o f f i c i a l s . D raw ing upon t h e h i s t o r i c a l r e c o r d , d e s c r i p t i o n o f fo rm a l and in f o r m a l p a t t e r n s o f c o n t a c t s and t h e s i x c a s e s im m e d ia te ly p r e c e e d l n g , some a s s e s s m e n t c a n be made o f t h e e x t e n t to w h ich th e C a l i f o r n i a a g en c y h as made u s e o f th e s e v e r a l t o o l s o r s t r a t e g i e s o f i n f l u e n c e s u g g e s te d a t t h e o u t s e t and w h ich m ig h t be e x p e c te d to be em ployed by a c o o r d i n a t i n g a g e n c y . ? 25 u p r a . ( d r a f t p p . 9 ^ -9 7 ) ■ > I t was s u g g e s te d t h a t : 1 . The a g e n c y w i l l s e e k to d e v e lo p t h e " e x p e r t ” image p e rf o rm in g f u n c t i o n s c o m p a tib le w ith t h a t im age. I n t h i s c o n te x t i t w i l l p r o v id e s e r v i c e s to o f f i c i a l s . The C a l i f o r n i a ag en cy a p p e a rs to have p u rs u e d t h i s s t r a t e g y to some e x t e n t . I t h a s made i t s e l f a v a i l a b l e to s t a t e o f f i c i a l s o n a num ber o f q u e s t i o n s a lth o u g h th e r e c o r d te n d s to show t h a t c lo s e w o rk in g r e l a t i o n s h i p s have d e v e lo p e d w ith a v e r y l i m i t e d num ber o f l e g i s l a t o r s and o f f i c i a l s . P a t t e r n s o f r e l a t i o n s h i p s a t th e s t a f f l e v e l have d e v e lo p e d to a c o n s i d e r a b l e d e g re e w ith t h e D e p artm en t o f F in a n c e and t h e L e g i s l a t i v e A n a ly s t a s w e l l a s o t h e r s e l e c t e d l e g i s l a t i v e s t a f f p e rs o n n e l* The C o u n c ilr s e f f o r t s to d e te r m in e a n e f f e c t i v e a p p ro a c h i n g i v in g a d v ic e on a n n u a l b u d g e t r e q u e s t s , h o w e v er, s u g g e s t s t h a t i n a n im p o r t a n t a r e a t h e ag en c y h as n o t d e f i n e d ways by w hich i t may p u rs u e th e " e x p e r t ” s t r a t e g y . 2 . C o n s i s t e n t w ith t h e " e x p e r t ” s t r a t e g y , i t may a tt e m p t to s e e k o u t and s t i m u l a t e l e g i s l a t i v e r e q u e s t s an d o p p o r t u n i t i e s f o r i t to f u r t h e r p e r form t h a t f u n c t i o n . W ith t h e e x c e p ti o n o f some m a t t e r s r e l a t i n g to th e j u n i o r c o l l e g e s — th e q u e s t i o n o f g o v e rn a n c e and c a p i t a l o u t l a y p ro g ram s among them — th e C a l i f o r n i a a g e n c y does n o t a p p e a r to h av e d e l i b e r a t e l y , e i t h e r f o r m a l l y o r i n f o r m a l l y , 173 so u g h t a s s ig n m e n t o f c e r t a i n t a s k s w h ic h i n t u r n m ig h t l e a d to en h an cem en t o f a n " e x p e r t" im age f o r i t s e l f . 3 . I n d i v i d u a l s w i l l be a s s i g n e d l e g i s l a t i v e l i a i so n a s a n e x c l u s i v e o r m a jo r p o r t i o n o f t h e i r d u t i e s . The C a l i f o r n i a C o o r d in a tin g C o u n c il h as c l e a r l y made s u c h a s s ig n m e n t a lm o s t fro m th e o u t s e t o f i t s o r g a n i z a t i o n . P e r s o n n e l a s s i g n e d h a v e n o t a lw a y s b e e n o f th e t o p s t a f f l e v e l , b u t n e v e r t h e l e s s , much a s o t h e r i n v e s t i g a t o r s hav e n o te d i n e x a m in a tio n o f g o v e rn m e n ta l a g e n c i e s , th e p e r s o n a s s i g n e d may be m ost i n f l u e n t i a l w i t h i n t h e l e g i s l a t i v e m i l i e u ; e x c e e d in g in some c a s e s t h e i n f l u e n c e o f b o a rd member o r ag en c y h e a d . U • E f f o r t s w i l l be made to d e v e lo p " f r i e n d s i n c o u r t " : key l e g i s l a t o r s i n t e r e s t e d i n h i g h e r e d u c a t i o n , and i m p o r ta n t e x e c u t i v e o f f i c i a l s s u c h a s t h o s e i n th e b u d g e t- m a k in g p r o c e s s . The r e c u r r e n c e o f th e name o f S e n a t o r W a l te r S t i e r n on m e a s u re s o f i n t e r e s t to t h e C o u n c il a s w e ll a s t h e nam es o f a few o t h e r k e y l e g i s l a t o r s s u g g e s t t h a t " f r i e n d s i n c o u r t" h a v e in d e e d b e e n d e v e lo p e d . The e x i s t e n c e o f c lo s e r e l a t i o n s h i p s w ith c e r t a i n l e g i s l a t i v e s t a f f a l s o s u p p o r t t h i s f i n d i n g . Though th e C o u n c i l ’ s r o l e i n t h e b u d g e t d e v e lo p m e n t p r o c e s s may n o t h a v e b e en e f f e c t i v e l y d e te r m in e d , e v en i n t h e C o u n c il ’ s own ju d g m e n t, k e y s t a f f p e r s o n n e l o f th e D e p a rtm e n t o f F in a n c e a n d t h e L e g i s l a t i v e A n a l y s t h a v e 174 - w orked c l o s e l y w ith C o u n c il s t a f f o v e r th e p e r i o d o f t h e C o u n c i l 's e x i s t e n c e . 5 . E f f o r t s w i l l be made t o g a in s u p p o r t o f t h e G overnor a n d h i s to p a i d e s . The r e c o r d te n d s t o show some e f f o r t s i n t h i s d i r e c t i o n o v e r t h e y e a r s , p a r t i c u l a r l y on th e p a r t o f a t l e a s t one C o u n c il member a t a g i v e n tim e . R e l a t i o n s h i p s w ith th e G o v e rn o r’ s t o p o f f i c e s t a f f have b e e n d e v e lo p e d , th o u g h c h a n g e s i n p e r s o n n e l have te n d e d to l i m i t t h e a b i l i t y to e s t a b l i s h s a t i s f a c t o r y r o u t i n e r e l a t i o n s h i p s . 6 . E f f o r t s w i l l be made to work w i t h o t h e r h i g h e r e d u c a tio n i n t e r e s t s o n some i s s u e s . C ases su ch as t h o s e r e l a t i n g to j u n i o r c o l l e g e gov e rn a n c e and s t a t e p ro g ram s f o r j u n i o r c o l l e g e c a p i t a l con s t r u c t i o n I l l u s t r a t e t h e C a l i f o r n i a ag en cy i n c o o p e r a t i o n w i t h o t h e r I n t e r e s t s . An is s u e su c h as y e a r - r o u n d o p e r a t i o n o f f a c i l i t i e s an d c o n v e r s io n to th e q u a r t e r c a l e n d a r s u g g e s ts t h a t th e C o u n c il may w ork i n c o n ju n c ti o n w i t h one h i g h e r e d u c a ti o n i n t e r e s t , b u t n o t w ith a n o t h e r , e v e n th o u g h t h a t i n t e r e s t was a p a r t y to t h e C o u n c il 's p o s i t i o n i n th e i s s u e . 7 . B oard members may be c a l l e d u p o n to c o n t a c t key o f f i c i a l s a n d l e g i s l a t o r s on m a jo r q u e s t i o n s . T h is t o o l o f i n f l u e n c e h a s b e en u s e d from tim e to tim e i n p u r s u i t o f C o u n c il o b j e c t i v e s . M a jo r i s s u e s su ch as d e s i g n a t i o n o f new c e n t e r s f o r h i g h e r e d u c a ti o n a p p e a r to 1 7 5 hav e made o c c a s i o n a l u s e o f su ch a t o o l more o f t e n t h a n o f o t h e r s . 8 . I n t e r e s t s o f th e c o o r d i n a t i n g ag en cy w i l l “ be e x p re s s e d th r o u g h p e r s o n a l c o n t a c t s a s w e ll a s th r o u g h p e r s o n a l c o n t a c t s a s w e ll a s th r o u g h fo rm a l r e p o r t s , com m ittee h e a r i n g s , an d th e l i k e . W ith th e d e s i g n a t i o n o f p e rm a n e n t l e g i s l a t i v e - e x e c u tiv e l i a i s o n p e r s o n n e l and r o u t i n l z a t i o n o f c o n t a c t s , an d w ith some d i r e c t r e l a t i o n s h i p s b e tw e e n a g e n c y b o a rd members and key o f f i g i a l s , th e C a l i f o r n i a a g en c y h as em ployed t h i s t o o l to a c o n s i d e r a b le e x t e n t . I n f o r m a l s t a f f i n f l u e n c e i n t h e c o u rs e o f d e v elo p m e n t o f t h e j u n i o r c o ll e g e g o v e rn a n c e q u e s t i o n and s t a f f an d C o u n c il member i n f l u e n c e s r e g a r d i n g l o c a t i o n o f new c e n t e r s a r e c a s e s i n p o i n t . T h e re i s e v id e n c e to s u g g e s t t h a t th e p e r s o n a l and in f o r m a l c o n t a c t s an d ex ch an g es a r e o f g r e a t s i g n i f i c a n c e . S u c c e s s f u l in f o rm a l r e l a t i o n s h i p s i n t h e q u e s t i o n s r e l a t i n g to j u n i o r c o l l e g e g o v e rn a n c e and n e ed f o r new c e n t e r s , doubt>- l e s s w ere m ost im p o r ta n t i n f i n a l p a s s a g e o f d e s i r e d l e g i s l a t i o n . 9 . The ag en c y w i l l se e k to d e v e lo p s u p p o r t o f t h i s c l i e n t e l e , t h e h i g h e r e d u c a t i o n i n s t i t u t i o n s and s y s te m s , a n d w i l l lo o k to them f o r s u p p o r t i n c a r r y i n g o u t l e g i s l a t i v e p ro g ra m s . A lth o u g h t h i s i n v e s t i g a t i o n h a s n o t f o c u s e d d i r e c t l y 176 upon t h e r e l a t i o n s h i p s o f t h e C a l i f o r n i a a g e n c y w i t h th e h i g h e r e d u c a ti o n s y s te m s th e m s e lv e s , th e i s s u e o f y e a r - ro u n d o p e r a t i o n s s u g g e s t s , t h a t s u p p o r t o f c l i e n t e l e , i . e . , th e s t a t e c o l l e g e s , was n o t a c h ie v e d .. Though some a tt e m p t s w ere made to g a i n t h e i r s u p p o r t , th e s e w e re i n e f f e c t i v e . The f a c t t h a t t h e sy s te m s th e m s e lv e s a r e r e p r e s e n t e d o n th e C a l i f o r n i a ag en cy b o a rd may re d u c e th e n e e d f o r d e l i b e r a t e l y p u r s u in g a s t r a t e g y o f s e e k in g " c l i e n t e l e " s u p p o r t . As t h e sy s te m s a r e p a r t y to C o u n c il p o s i t i o n s , su ch s u p p o r t may be presum ed (th o u g h t h i s s u p p o r t i s n o t a lw ay s f o r t h coming e s p e c i a l l y i f t h e sy s te m r e p r e s e n t a t i v e s h av e op p o sed t h e a c t i o n o f th e m a j o r i t y o f members o f th e 73 C o u n c il. I t was a l s o s u g g e s te d i n p r e s e n t i n g th e l i s t i n g o f a n t i c i p a t e d t o o l s o r s t r a t e g i e s , t h a t i f m arked f a i l u r e was e n c o u n te r e d , t h a n t h e a g e n c y m ig h t s e e k to c o - o p t th e p o l i c i e s o f o th e r i n t e r e s t s i n o r d e r t o g iv e t h e a p p e a ra n c e o f s u c c e s s . A re v ie w o f t h e d e v elo p m e n t o f r e l a t i o n s h i p s o f t h e a g e n c y v i s - a - v i s th e l e g i s l a t i v e - e x e c u t i v e i n C a l i f o r n i a does n o t a p p e a r t o s u g g e s t t h a t t h i s h a s o c c u r r e d . Though 7 I4 , A nnual C o u n c il reco m m en d atio n s o n f a c u l t y s a l a r i e s a r e i l l u s t r a t i v e * I n m ost y e a r s s t a t e c o l l e g e r e p r e s e n t a t i v e s h a v e s o u g h t h i g h e r p ro p o s e d i n c r e a s e s th a n t h e C o u n c il i t s e l f h a s recom m ended. Though th e C o u n c il has t a k e n f o rm a l a c t i o n , t h e s t a t e c o l l e g e s have g e n e r a l l y c o n tin u e d to p u r su e t h e h i g h e r i n c r e a s e s b e f o r e th e L e g i s l a t u r e . 177 l i m i t e d s u c c e s s may h a v e b e en a c h ie v e d i n some a r e a s (a n d , a s w i l l be d i s c u s s e d i n th e f o l lo w in g c h a p t e r s , a m odest " p e rfo rm a n c e r a t i n g " a c h ie v e d ) t h e a g en c y a p p e a rs to have b e e n r e l a t i v e l y in d e p e n d e n t i n i t s a c t i o n s and h a s n o t s o u g h t th e a p p e a ra n c e o f s u c c e s s by d e l i b e r a t e a s s o c i a t i o n w ith a c o l l e g i a t e s y s te m o r some s p e c i a l h i g h e r e d u c a ti o n i n t e r e s t g ro u p . I t was f u r t h e r p ro p o s e d t h a t i f d i f f i c u l t i e s a r e e n c o u n te r e d i n p e rf o r m in g c e r t a i n f u n c t i o n s p e r s e th e n t h e c o o r d i n a t i n g a g e n c y may se e k o u t o t h e r f u n c t i o n s t o p e rfo rm i n o r d e r to j u s t i f y i t s e x i s t e n c e . Some e v id e n c e o f t h i s o c c u r r e n c e may be s e e n i n r e s p e c t to th e C a l i f o r n i a a g e n c y . F r u s t r a t i o n a t d e v e lo p in g a n e f f e c t i v e m ethod o f c o n v e y in g comments on t h e l e v e l o f s t a t e s u p p o r t s o u g h t, h av e l e d to p u b l i c re v ie w s and r e d i r e c t i o n o f e f f o r t . A ls o , i n some m ea su re th e C o u n c il and s t a f f i n t e r e s t shown i n g a i n i n g d e s i g n a t i o n to a d m i n i s t e r s e v e r a l f e d e r a l p rogram s f o r h i g h e r e d u c a ti o n have c o n t r i b u t e d t o th e j u s t i f i c a t i o n f o r 74 c o n tin u a n c e o f t h e a g e n c y. 1 To t h i s p o i n t t h e h i s t o r y o f t h e ag en c y i n C a l i f o r n i a h a s b e e n s t r e s s e d w i t h i n a fram e o f r e f e r e n c e o f t o o l s and s t r a t e g i e s o f i n f l u e n c e , fo rm a l and in f o r m a l, an d i l l u s t r a - 74 1 The C o u n c i l 's r e s p o n s i b i l i t i e s c o n c e rn in g f e d e r a l p ro g ram s h av e n o t b e en em p h asized h e r e i n . Though im p o r ta n t th e y a p p e a r to h av e re m a rk a b ly l i t t l e im p a c t on s t a t e g o v e rn m e n t r e l a t i o n s h i p s . 178 t l v e c a s e e x a m p le s. N e x t th e p e rc e iv e d , p e rfo rm a n c e o f th e a g e n c y i n t h e p o l i t i c a l m il i e u s h o u ld be c o n s id e r e d a s w e ll a s e x p e c t a t i o n s o f f u t u r e p e rfo rm a n c e . T hese c o n s i d e r a t i o n s , when l i n k e d to t h e f i n d i n g s b a se d o n t h i s p e r f o r mance r e c o r d , may e n a b le th e d e v e lo p m e n t o f c e r t a i n g e n e r a l s t a te m e n t s c o n c e rn in g t h e C a l i f o r n i a c o o r d i n a t i n g a g e n c y and i t s p a r t i n th e p o l i t i c a l p r o c e s s . CHAPTER V II PERCEPTIONS OF THE CALIFORNIA AGENCY: ROLES, FUNCTIONS AND CONTRIBUTIONS I n C h a p te r VI s e v e r a l m a jo r I s s u e s w h ic h have b r o u g h t t h e C a l i f o r n i a C o o r d in a tin g C o u n c il f o r H ig h e r E d u c a ti o n i n t o t h e p o l i t i c a l p r o c e s s h a v e b e e n o u t l i n e d . I n t h a t d i s c u s s i o n t h e t o o l s and s t r a t e g i e s o f i n f l u e n c e u s e d by t h e a g e n c y have b e e n g iv e n e m p h a s is . The r e s u l t s o f t h e s e e f f o r t s t o a s s u r e o u tco m es o f p u b l i c d e b a t e c o n s i s t e n t w i t h a g en c y i n t e r e s t s l e a d to p e r c e p t i o n s o f t h e C o u n c il h e l d o n t h e p a r t o f l e g i s l a t o r s , l e g i s l a t i v e s t a f f , i n d i v i d u a l s i n t h e h i g h e r e d u c a t i o n s y s tem s a s w e l l a s " s e l f - p e r c e p t i o n s " by C o u n c il m embers a n d s t a f f . I n t h e c o u r s e o f t h i s s tu d y a n e f f o r t h a s b e en made to a s c e r t a i n , t h r o u g h i n t e r v i e w s , w h a t some o f t h e s e p e r c e p t i o n s may be a n d t o e x p lo r e a t t h e sam e tim e some o f t h e m a jo r f a c t o r s w h ich l e a d t o t h e s e p e r c e p t i o n s . An a t t e m p t h a s a l s o b e e n made to s e c u r e i n d i v i d u a l ju d g m e n ts a s t o t h e m o st a p p r o p r i a t e c o u r s e s o f a c t i o n t h e C o u n c il i s t o t a k e i n i t s r e l a t i o n s h i p s w ith s t a t e g o v e rn m e n ta l b o d i e s . S i m i l a r l y , I n d i v i d u a l n o t i o n s a s t o t h e t o o l s a n d s t r a t e g i e s o f i n f l u - 179 180 e n c e w h ich a r e a p p r o p r i a t e t o a p u b l i c body s u c h a s t h e C o u n c il h av e b e e n s o l i c i t e d . F i n a l l y , q u e s t i o n s a s to t h e n e e d f o r ch an g e s i n r e s p o n s i b i l i t i e s a n d / o r s t r u c t u r e o f t h e C o u n c il hav e b e e n posed a lo n g w i t h q u e r i e s d e s ig n e d to a s c e r t a i n t h e " p e rfo rm a n c e " r a t i n g s w hich i n d i v i d u a l s w ould g i v e th e a g e n c y a t t h e p r e s e n t tim e . I t i s b e l i e v e d t h a t t h e r e s u l t s o f t h e s e i n t e r v i e w s a s r e c o u n te d i n t h e f o l lo w in g c h a p t e r s , w hen l i n k e d t o t h e p r e v io u s m a t e r i a l , w i l l i l l u s t r a t e t h o s e p o i n t s , i f a n y , a t w hich t h e r e i s m a jo r d is a g r e e m e n t b e tw e e n p e r c e p t i o n s o f a c t u a l p e rfo rm a n c e s i n t h e p o l i t i c a l p r o c e s s a n d b e l i e f s a s t o a p p r o p r i a t e p e rf o r m a n c e s . The o p i n io n s o f k e y i n d i v i d u a l s may t h e n l e a d t o i d e n t i f i c a t i o n o f t h e s t r e n g t h s a n d w e a k n e sse s o f t h e c o o r d i n a t i n g a g en c y i n th e C a l i f o r n i a s i t u a t i o n — a n d , p e r h a p s , s u g g e s t t h e s t r e n g t h s and w eak n e s s e s o f t h e c o n c e p t o f h i g h e r e d u c a ti o n c o o r d i n a t i o n i t s e l f . The f i n d i n g s o f P a r t I I I r e g a r d i n g a n a t i o n a l s u r v e y o f s t a t e a g e n c ie s may t h e n p o i n t up i f t h e C a l i f o r n i a s i t u a t i o n i s u n iq u e , o r o f a p a t t e r n . Agency R o le s an d F u n c t i o n s ; An I n t r o d u c t o r y N ote I n a s s e s s i n g t h e ways i n w h ic h a n a g e n c y o r g ro u p i s p e r c e i v e d i n t h e p e rfo rm a n c e o f I t s r e l a t i o n s w i t h a n o th e r body o r g ro u p su c h a s a L e g i s l a t u r e , i t may be u s e f u l to c o n s i d e r t h e a g e n c y a s p e rfo r m in g b o th " r o l e s " a s w e l l a s 181 " f u n c t i o n s " . I s t h e ag en c y v ie w e d a s p e rfo r m in g a l e a d e r s h i p r o l e ? I s i t v iew ed a s p e rfo rm in g a s a l o b b y i s t ? And con c e r n i n g f u n c t i o n , d o es i t a p p e a r t h a t t h e c o n se q u e n c e s o f a n a c t i o n r e s u l t i n t h e a g e n c y f u n c t i o n i n g much a s a n e x p e r t a d v i s o r to L e g i s l a t u r e o r G o vernor? As a r e s e a r c h g ro u p o r a s a r e x t e n s i o n o f t h e s t a t e b u d g e t o f f i c e ? W hile t h e u s e o f t h e te rm " f u n c t i o n " i s common i n r e s p e c t to a g e n c y and g ro u p p e rf o rm a n c e s , some b r i e f n o te s h o u ld be made o f t h e l i m i t s and v a l u e s o f u s i n g t h e n o t i o n o f " r o l e " a s a p p l i e d t o a g ro u p in g o r a g en c y su c h a s t h e c o o r d i n a t i n g m echanism f o r h i g h e r e d u c a t i o n . I n e v e ry d a y la n g u a g e an d i n many w r i t i n g s , one o f t e n e n c o u n te r s r e f e r e n c e t o o r g a n i z a t i o n a l " r o l e " . F o r exam ple, "A c e n t r a l them e i n many l e g i s l a t i v e s t u d i e s i s t h a t t h e l e g i s l a t u r e p l a y s t h e r o l e /e m p h a s is a d d e d / o f th e r e f e r e e o r b r o k e r i n t h e s t r u g g l e b e tw ee n i n t e r e s t g r o u p s , c o n s t i t u e n c i e s , an d e x e c u ti v e a g e n c ie s ." - 1 - Or D avid B. Trum an w r i t e s : " . • • F s f h e r o l e o f g ro u p s i n t h e g o v e rn m e n ta l p r o c e s s c a n n o t be a d e q u a te ly u n d e rs to o d a p a r t fro m t h e i r ^Thomas H. D ye, " S t a t e L e g i s l a t i v e P o l i t i c s , " i n H e r b e r t J a c o b an d K e n n e th A. V in e s , P o l i t i c s i n th e A m eri c a n S t a t e s (B o s to n : L i t t l e , Brown a n d Company, 1965)• p . 1 6 3 . S i m i l a r l y " r o l e " o f t e n a p p e a r s I n t i t l e s o f w o rk s . Two r e c e n t d i s s e r t a t i o n s w e re e n t i t l e d r e s p e c t i v e l y : "The B o le and F u n c t i o n o f t h e L e g i s l a t i v e S t a f f i n t h e C a l i f o r n i a A sse m b ly ," and "The P o l i t i c a l R o le o f t h e S o v ie t M i l i t a r y " • 182 2 i n t e r n a l d y n a m ic s .” On t h e o t h e r h a n d , t o t h e s o c i a l p s y c h o l o g i s t o r s o c i o l o g i s t , " r o l e " h a s a c o n n o t a t i o n w h ic h i s g e n e r a l l y i n d i v i d u a l - c e n t e r e d . F o r e x a m p le , B id d le c o n s i d e r s t h e con c e p t o f r o l e i n t h e c o g n i t i v e s y s te m a s " a s e t o f c o g n it i o n s m a i n t a i n e d f o r a n a c t o r i n a c o n t e x t by a s u b j e c t p e r s o n . "3 He f u r t h e r p o i n t s o u t t h a t r o l e i s l i m i t e d t o a n a c t o r i n a g i v e n c o n t e x t . B id d le p r e s e n t s a p a r t i c u l a r m ea n in g f o r " r o l e " w h ic h c o u ld p r e c l u d e a p p l i c a t i o n o f t h e te rm i n a m e a n in g f u l a n a l y t i c s e n s e t o a g ro u p o f i n d i v i d u a l s com p r i s i n g a n a g e n c y . B ut a s B id d le h i m s e l f p o i n t s o u t , many te r m s s u f f e r from " c o n n o t a t i v e b l o a t i n g " . "B u t f o r p r o l i f e r a t i o n o f m e a n in g s , l o g i c a l c i r c u l a r i t y , o u t r i g h t d e s p a r a t e u s a g e , an d s h e e r m uddle r o l e an d g o a l l e a d a l l t h e r e s t . " D raw ing fro m o t h e r d i s c i p l i n e s , t h e c o n c e p t o f r o l e i s becom ing m ore common a s a n o r g a n i z i n g c o n c e p t i n p o l i t i c a l s c i e n c e . A r e c e n t i n v e s t i g a t i o n o f l e g i s l a t i v e b e h av i o r s fo u n d v a l u e s i n t h e c o n c e p t i n t h a t i t c a n be u s e d t o p o i n t u p t h e b e h a v i o r o f l e g i s l a t o r s w h ic h a r e r e l e v a n t to ^The G o v e rn m e n ta l P r o c e s s : P u b l i c I n t e r e s t s an d P u b l i c O p in io n (New Y ork; A l f r e d A. K n o p f, I 9 5 1 J , p . x . ■^Bruce J . B i d d le , " R o le s , G o a ls a n d V alu e S t r u c t u r e s i n O r g a n i z a t i o n s , " i n W illia m W. C o o p e r, H a ro ld J . L e a v i t t , M aynard W. S h e l l y , I I , e d s . , New P e r s p e c t i v e s i n O r g a n iz a t i o n R e s e a r c h (New Y ork: J o h n W iley an d S o n s , I n c . , 1 9 6 4 ), p . - 1 6 0 . ^I b ld . . p . 1 5 0 . 183 t h e L e g i s l a t u r e a s a n I n s t i t u t i o n . I n s t i t u t i o n s . . . a r e r e g u l a r i t i e s o r u n i f o r m i t i e s o f b e h a v i o r . The c o n c e p t o f r o l e a s s o c i a t e d w ith a p o s i t i o n o f m em b ersh ip i n a n y i n s t i t u t i o n a l i z e d g r o u p r e f e r s t o p r e c i s e l y t h o s e b e h a v i o r a l u n i f o r m i t i e s o r r e g u l a r i t i e s w h ic h c o n s t i t u t e t h e i n s t i t u t i o n . No l e g i s l a t u r e o r o t h e r i n s t i t u t i o n c o u ld be * s e e n ' by t h e a n a l y s t i f t h e human a c t o r s d i d n o t e x h i b i t b e h a v i o r i n c o n f o r m ity , t o a t l e a s t some m in im a l e x t e n t , w ith t h e norm s o f b e h a v i o r c o n s t i t u t i n g t h e i r r o l e s .5 B u t, i f , a s t h e s e i n v e s t i g a t o r s p o i n t o u t , i n s t i t u t i o n s a r e r e g u l a r i t i e s o r u n i f o r m i t i e s o f b e h a v i o r , t h e n c a n i t be s a i d t h a t t h e r e g u l a r i t i e s o r u n i f o r m i t i e s o f b e h a v i o r w h ic h make u p t h e i n s t i t u t i o n a r e i n e f f e c t " r o l e s ” o f t h e I n s t i t u t i o n ? Jam es Thompson i n a r e c e n t book o n o r g a n i z a t i o n s s t a t e s t h a t o r g a n i z a t i o n s " a c t " . ^ He d o e s , h o w e v e r, c a u t i o n t h e r e a d e r t h a t he h a s r e s o r t e d t o v e r b a l s i m p l i f i c a t i o n s i n t r e a t i n g o r g a n i z a t i o n s a s " a c t o r s " : " s u c h p h r a s in g / a r e / . • .s h o r t h a n d c o n v e n tio n s em ployed o n ly te m p o r a r i l y to f a c i l i t a t e c o m m u n ic a tio n ." ^ ^ J o h n C. W halke, e t a l , The L e g i s l a t i v e S y s te m : E x p l o r a t i o n s i n L e g i s l a t i v e B e h a v io r (New Y ork: J o h n W ile y a n d S o n s , I n c . , 1 9 o 2 ) , p . 1 0 . S e e e s p e c i a l l y , p p . 8 -1 5 f o r a u s e f u l d i s c u s s i o n o f r o l e a s em ployed I n p o l i t i c a l s c ie n c e . F u r t h e r p e r s p e c t i v e I n d e t a i l o n t h e u s e s o f r o l e i n a num ber o f d i f f e r i n g e x a m in a tio n s i s p r o v id e d by B ru c e J . B id d le a n d Edw in J . Thom as, e d s . , R o le T h e o ry : C o n c e p ts R e s e a r c h (New Y ork: J o h n W ile y an d S o n s , I n c . , 1 9 6 6 ) . ^Jam es D. Thompson, O r g a n i z a t i o n s i n A c tio n : S o c i a l S c ie n c e B a se s o f A d m i n i s t r a t i v e T h eo ry (New Y ork: McGraw- H i l l Book Company, 196 7 ) , p . 1 . 7I b i d . , p. i x . 1 8 b Thus i f o r g a n i z a t i o n s c a n be c o n s id e r e d a s “a c t i n g ” t h e n i t c o u ld a l s o be s a i d t h a t t h e o r g a n i z a t i o n may p l a y q c e r t a i n “r o l e s ” i n t h e p r o c e s s o f t h a t a c t i o n . The c h i e f v a lu e i n u s i n g t h e te rm “r o l e ” i n r e s p e c t t o t h e p erform ance o f a n a g en c y i s t h a t i t i s a t o o l f o r u s e w hen o t h e r s a r e 9 l a c k i n g . The n o t i o n o f “r o l e " i s h e re a p p l i e d t o c e r t a i n p e rfo rm a n c e s o f t h e c o o r d i n a t i n g a g en c y f o r h i g h e r e d u c a t i o n i n s t i t u t i o n s and s y s te m s . I t i s n o t done so a s t o c o n t r i b u t e to a " c o n n o t a ti v e b l o a t i n g " , b u t t o p r o v id e a w o rk in g t o o l i n t h e a b s e n c e o f o t h e r s - - i t i s a s h o r th a n d t o o l much a s t h a t u s e d by Thompson. The u s a g e i s s i m i l a r t o t h a t o f G lenny a s he s p e a k s , f o r e x am p le, a b o u t c o o r d i n - 8 G y e rt a n d M arch have r e c o g n iz e d t h e v a lu e o f d e s c r i b i n g o r g a n i z a t i o n s a s m aking d e c i s i o n s an d c o n s i d e r i t a p p r o p r i a t e to s p e a k o f o r g a n i z a t i o n s a s h a v in g " g o a ls " an d " e x p e c t a t i o n s " . ( I t seem s r e a s o n a b l e t o a s c r i b e r o l e s t o t h e i n s t i t u t i o n s a s w e l l . ) S ee: B.M. C y e rt an d J .G . M arch, "The B e h a v io r a l T heory o f t h e F irm : A B e h a v io r a l S c ie n c e -E c o n o m ic s Amalgam," i n C ooper, e t a l . o p . c l t . . p . 2 9 0 . I n a d d i t i o n , th e c o n c e p t o f " r o l e - s e t " m ig h t s i m i l a r l y be p r o j e c t e d to th e o r g a n i z a t i o n . To M erto n e a c h s o c i a l s t a t u s o f t h e i n d i v i d u a l i n v o lv e s n o t a s i n g l e a s s o c i a t e d r o l e , b u t a n a r r a y o f a s s o c i a t e d r o l e s . A n a g g r e g a t i o n o f s i m i l a r r o l e - s e t s t h e n m ig h t be s a i d t o make u p a g ro u p r o l e . See R o b e rt K. M e rto n , S o c i a l T heory and S o c i a l S t r u c t u r e (G le n c o e , I l l i n o i s : F re e P r e s s , 1957)» p p . 3 6 8 -3 7 0 . ^The l i m i t e d d e v elo p m e n t o f m e th o d o lo g ic a l t o o l s f o r i n t e r - o r g a n i z a t i o n a l a n a ly s e s i s e x p lo r e d i n S o l L e v in e and P a u l E . W h ite , "C hanges a s a C o n c e p tu a l Fram ew ork f o r t h e S tu d y o f I n t e r o r g a n i z a t i o n a l R e l a t i o n s h i p s , " A d m l n i s t r a t l v e S c ie n c e Q u a r t e r l y , V (M arch 1 9 6l ) , p . 5 8 b , a t i o n a g e n c ie s and t h e i r p o s s i b l e b r o k e ra g e o r l e a d e r s h i p The Sample C o m p a ra tiv e ly few p e r s o n s , b a s e d o n i n i t i a l i n v e s t i g a t i o n s o f th e a u t h o r , a r e f a m i l i a r t o a n y d e g re e w ith t h e o p e r a t i o n s an d a c t i v i t i e s o f t h e C a l i f o r n i a C o o r d in a tin g C o u n c il f o r H ig h e r E d u c a tio n * And, o f t h i s g ro u p , o n ly a p o r t i o n c o u ld be e x p e c te d t o s p e a k w ith an y d e g re e o f know l e d g e c o n c e rn in g t h e a c t i v i t i e s and r e l a t i o n s h i p s o f t h e C o u n c il w i t h i n t h e o p e r a t i o n s o f s t a t e g o v e rn m e n t. Of t h o s e who m ig h t be e x p e c te d t o hav e o p in io n s r e g a r d i n g t h e C o u n c il, f i v e g e n e r a l l y d i s t i n c t g ro u p s o f i n d i v i d u a l s can be s p e c i f i e d * B ased o n d i s c u s s i o n s w ith C o u n c il s t a f f m em bers, t h e p o t e n t i a l i n te r v ie w e e s w ere I d e n t i f i e d . Prom t h e s e l i s t i n g s , a n e f f o r t was made t o i n t e r v i e w a s many p e rs o n s a s p o s s i b l e , s u b j e c t to t h e tim e a v a i l a b l e an d t h e i r a c c e s s i b i l i t y . The o v e r a l l o b j e c t i v e i n t h i s p r o c e s s was to s e c u r e a s p e c tru m o f r e p r e s e n t a t i v e o p i n i o n . The f i r s t g ro u p in g c o n s i s t e d o f l e g i s l a t o r s who, ^°Lym an A. G len n y , " P o l i t i c s a n d C u r r e n t P a t t e r n s i n C o o r d i n a t i n g H ig h e r E d u c a t i o n ,n i n W. J o h n M i n t e r , E d ., Campus a n d C a p i t o l : H ig h e r E d u c a tio n an d t h e S t a t e (B o u ld er, C o lo ra d o : W e ste rn I n t e r s t a t e Com m ission f o r H ig h e r E duca t i o n , Novem ber 1 9 6 6 ) , p p . 27-4-6. 186 a c c o r d in g t o t h e C o u n c il D i r e c t o r a n d l e g i s l a t i v e l i a i s o n p e rs o n n e l* c o u ld be e x p e c te d , by v i r t u e o f t h e i r p o s i t i o n s I n t h e l e g i s l a t i v e s t r u c t u r e o r r e c e n t l e g i s l a t i v e i n t e r e s t s , t o h a v e form ed some p e r c e p t i o n s c o n c e rn in g t h e Coun c i l a n d i t s o p e r a t i o n s . T his p o t e n t i a l g ro u p i s n o t l a r g e — r e f l e c t i n g som ew hat o n t h e p e rfo rm a n c e o f t h e C o u n c il, b u t a l s o on t h e f a c t t h a t l e g i s l a t o r s te n d t o s p e c i a l i z e i n c e r t a i n s u b j e c t a r e a s and t h e r e f o r e a r e more in fo rm e d a b o u t 1 1 th e i n t e r e s t s and a g e n c ie s o f t h o s e a r e a s . I n t h e s u rv e y some e i g h t l e g i s l a t o r s w ere i n t e r v i e w ed i n c l u d i n g t h e c h a irm a n o f t h e e d u c a ti o n c o m m itte e s o f t h e A ssem bly and t h e S e n a te , r e s p e c t i v e l y . Two o f t h e g ro u p w ere among t h e f o u r l e g i s l a t o r s i d e n t i f i e d a s h a v in g c a r r i e d more t h a n t h r e e s u c c e s s f u l p i e c e s o f l e g i s l a t i o n e a c h r e l a t i n g t o t h e C o u n c il, & F o u r o f t h e g ro u p w ere a t t h e tim e members o f t h e L e g i s l a t u r e 's J o i n t C om m ittee on H ig h e r E d u c a tio n . T h ree w ere R e p u b lic a n and f i v e D em ocra- U F o r one s u p p o r t o f t h i s s t a t e m e n t , s e e N ic h o la s A. M a s t e r s , R o b e r t H. S a l i s b u r y , and Thomas E l i o t , S t a t e P o l i t i c s and t h e P u b l i c S c h o o ls ; An E x p lo r a to r y A n a ly s is (New Y ork: " A lfre d A. K n o p f, 1 9 6 4 ), p a s s im : A S tu d y o f t h e C a l i f o r n i a L e g i s l a t u r e w ith H a ro ld Dyke a s p rim a r y i n v e s t i g a t o r h a s te n d e d to b e a r o u t t h e a s s e r t i o n t h a t a l i m i t e d num ber o f C a l i f o r n i a L e g i s l a t o r s h a v e any e x t e n s i v e o p in io n s o n p u b l i c s c h o o l i s s u e s . (As r e l a t e d t o t h e a u t h o r by a member o f t h e r e s e a r c h te a m .) ^ 2S ee A ppendix A, T a b le I . 187 t i o . 1* A s e c o n d g r o u p in g o f i n t e r v i e w e e s i n c l u d e d t h o s e l e g i s l a t i v e a n d e x e c u t i v e a g e n c y s t a f f who h a d c o n c e r n f o r t h e a c t i v i t i e s o f t h e C o u n c il i n t h e c o u r s e o f t h e i r w o rk . I n a l l s i x t e e n p e rs o n s i n t h i s c l a s s i f i c a t i o n w ere i n t e r v ie w e d . S e v e n o f t h e g ro u p w e re c u r r e n t s t a f f m embers to c o m m itte e s o r i n d i v i d u a l l e g i s l a t o r s . T h re e w ere fo rm e r s t a f f o r o t h e r I n d i v i d u a l s c l o s e to th e L e g i s l a t u r e . Two w e re a f f i l i a t e d w i t h t h e L e g i s l a t i v e A n a l y s t ’ s o f f i c e ( i n c l u d i n g t h e A n a ly s t h i m s e l f ) a n d one w i t h t h e G o v e r n o r ’ s o f f i c e . Two members o f t h e s t a f f o f t h e s t a t e D e p a rtm e n t o f F in a n c e w e re c o n t a c t e d a s w e l l . I n a d d i t i o n , a member o f t h e G o v e r n o r 's T ask F o rc e o n C o st a n d E f f i c i e n c y i n S t a t e G overnm ent was i n t e r v i exfed a n d p l a c e d w i t h i n t h i s g r o u p in g . A t h i r d c l a s s i f i c a t i o n o f I n t e r v i e w e e s w ere th o s e p e r s o n s who a r e a f f i l i a t e d w i t h t h e s y s te m s o f h i g h e r e d u c a t i o n , a n d who h a v e a k n o w led g e o f t h e C o u n c il i n t h e c o n t e x t o f s t a t e g o v e rn m e n t. F o r t h e m ost p a r t t h e s e p e r s o n s a r e , o r h a v e b e e n , p a r t o f t h e l e g i s l a t i v e l i a i s o n a c t i v i t i e s f o r t h e i r r e s p e c t i v e s y s te m s o r a s s o c i a t i o n . T w elve ^ O v e r a ll t h e a u t h o r was c o r d i a l l y r e c e i v e d by a l l t h o s e fro m whom he s o u g h t i n t e r v i e w s . H ow ever, i t a p p e a r s t h a t t h o s e l e g i s l a t o r s who h a v e b e e n i n S a c ra m e n to f o r some y e a r s a r e becom ing som ew hat Ja d e d an d i n u r e d t o i n t e r v i e w - s e e k i n g d o c t o r a l s t u d e n t s an d o t h e r i n v e s t i g a t o r s . 188 p e rs o n s w e re in c lu d e d i n t h i s g r o u p in g : f i v e i d e n t i f i e d w i t h t h e U n i v e r s i t y o f C a l i f o r n i a , two w ith j u n i o r c o l l e g e i n t e r e s t s , one w ith t h e p r i v a t e c o l l e g e s an d f o u r w i t h t h e s t a t e c o l l e g e s . Twelve C o u n c il members i n a l l , p r e s e n t and p a s t , w ere i n t e r v i e w e d . Em phasis was p la c e d o n t a l k i n g w ith p u b l i c an d p r i v a t e c o ll e g e r e p r e s e n t a t i v e s b e c a u s e o f t h e i r l i m i t ed p a r t i s a n s h i p i n C o u n c il a c t i v i t i e s i n r e s p e c t to t h e a f f a i r s o f a p a r t i c u l a r p u b l i c sy s te m o f h i g h e r e d u c a ti o n . F iv e p u b l i c members w ere I n t e r v i e w e d , t h r e e from p r i v a t e c o l l e g e s , two j u n i o r c o l l e g e and one U n i v e r s i t y r e p r e s e n t a t i v e . I n c lu d e d i n t h e g ro u p w ere A r th u r C oons, t h e n p r e s i d e n t o f t h e b o a rd , and F a t h e r C h a r le s C a s a s s a , who s u c c e e d e d to t h e c h a i r on C oons' r e s i g n a t i o n . R o b e r t W e rt, t h e C o u n c i l 's f i r s t P r e s i d e n t was c o n t a c t e d a s w e l l . F i n a l l y , s i x members o f t h e C o u n c il s t a f f w ere i n t e r v ie w e d , I n c l u d i n g one fo rm e r member, t o make up t h e f i f t h g r o u p in g . I n a l l f i f t y - f o u r i n te r v ie w s w ere c o n d u c te d o v e r a p p r o x im a te ly a tw o-m onth p e r i o d , November 1 , 1967 t o J a n u a r y 1 , 1968 I n p r e s e n t i n g t h e r e s u l t s o f t h e s e i n t e r v i e w s t h e r e i s no a t t e m p t , o r w is h , to r e p r e s e n t d a t a a s b e in g s t a t i s t i c a l l y v a l i d i n any r e s p e c t . I t i s b e l i e v e d , b a s e d up on ^ S e e A ppendix B f o r a l i s t i n g o f p e rs o n s i n t e r v i e w e d . 189 i n i t i a l a s s e s s m e n t , r e i n f o r c e d by t h e o p i n io n s e x p r e s s e d i n t h e c o u r s e o f d i s c u s s i o n s w ith r e s p o n d e e s , t h a t m o st p o s i t i o n s o n q u e s t i o n s a s k e d have b e e n p r e s e n t e d . F u r t h e r , i t i s t h o u g h t t h a t t h e r e i s a r e a s o n a b l e r e p r e s e n t a t i o n o f o p i n i o n w i t h i n t h e g ro u p s i d e n t i f i e d . F o r t h e m o st p a r t , th e r e s u l t s o f I n t e r v i e w s a r e t r e a t e d i n t h e a g g r e g a t e o r , a t m o s t, a r e c l a s s i f i e d i n t o two g r o u p in g s o f r e s p o n s e s : th e l e g i s l a t o r s an d l e g i s l a t i v e - e x e c u t i v e s t a f f i n o n e g ro u p ( d e s i g n a t e d Group I ) , and h i g h e r e d u c a t i o n s y s te m s t a f f , C o u n c il m em bers and C o u n c il s t a f f i n t h e o t h e r (G roup I I ) . W here m arked v a r i a t i o n s o c c u r w i t h i n t h e s e two l a r g e g r o u p i n g s , t h e y a r e so i n d i c a t e d . R e s u l t s o f i n t e r v i e w q u e s t i o n s a r e g e n e r a l l y p r e s e n t e d q u a n t i t a t i v e l y . P e r c e n t a g e s a r e n o t show n l e s t th e r e a d e r be m is le d i n t o o v e r - p r o j e c t i n g th e i n t e r v i e w r e s u l t s t o l a r g e r p o p u l a t i o n s . The I n t e r v i e w Q u e s t i o n n a i r e An i n t e r v i e w q u e s t i o n n a i r e ( se e A p p e n d ix C) was d e v e lo p e d f o r u s e i n g a t h e r i n g d a t a f o r t h e s t u d y . An e f f o r t was made t o c o n s t r u c t t h e i n s t r u m e n t so t h a t r e s p o n se s c o u ld be n o te d I n a c o m p a ra b le f a s h i o n f o r l a t e r a n a l y s i s an d p r e s e n t a t i o n . The f i r s t q u e s t i o n and s u b - p a r t s , r e l a t i n g t o t h e ways i n w h ic h th e a g e n c y i s p r e s e n t l y p e r c e i v e d , I . e . r o l e s a n d f u n c t i o n s , w as g i v e n e m p h a sis 190 i n t h e i n t e r v i e w . I f tim e was s h o r t , a n e f f o r t was made to l e a d t h e i n t e r v i e w e e th r o u g h t h i s q u e s t i o n a t t h e o u t s e t . P r o g r e s s t h r o u g h t h e r e s t o f t h e q u e s t i o n n a i r e d e p en d e d u p o n tim e , i n t e r e s t o f t h e r e s p o n d e e , a n d i n some i n s t a n c e s on h i s k n o w led g e o f t h e C o u n c i l 's a c t i v i t i e s . As i s a p p a r e n t i n t h e f o l l o w i n g p r e s e n t a t i o n , some o t h e r q u e s t i o n s w e re g i v e n e m p h a sis a s w e l l . S p e c i f i c a l l y , t h o s e r e l a t i n g t o c h a n g e s i n fo rm a n d f u n c t i o n w h ic h m ig h t be a n t i c i p a t e d , and t h e o v e r a l l p e rfo rm a n c e r a t i n g s o f t h e C o u n c il. I f t h e I n d i v i d u a l was c l o s e t o t h e l e g i s l a t i v e l i a i s o n a c t i v i t i e s o f a h i g h e r e d u c a t i o n s y s te m , t h e n e m p h a sis was p l a c e d u p o n t h a t p a r t o f t h e q u e s t i o n n a i r e c o n c e r n in g t h e h i g h e r e d u c a t i o n l o b b i e s . C e r t a i n o f t h e q u e s t i o n s w e re t y p i c a l l y n o t a s k e d , o r w e re a s k e d i n a n a b b r e v i a t e d fo rm , d e p e n d in g o n t h e c i r c u m s t a n c e s . The e f f o r t t o s t r u c t u r e a n I n t e r v i e w s e e k i n g t o i d e n t i f y p e r c e p t i o n s o f t h e c o o r d i n a t i n g a g e n c y a s i t o p e r a t e s c a r r i e s w ith i t t h e h a z a r d t h a t key q u e s t i o n s may n o t be a s k e d w h ic h m ig h t h av e come o u t u n d e r m ore o p e n -e n d e d i n t e r v i e w t e c h n i q u e s . On t h e o t h e r h a n d , many m in u te s may be w a s te d i n u n p r o d u c t i v e d i s c u s s i o n i f t h e q u e s t i o n s a r e g e n e r a l i z e d . I t i s t h e a u t h o r 's b e l i e f t h a t t h i s m ethod o f a p p ro a c h w as d e s i r a b l e an d t h a t i t d i d n o t m a t e r i a l l y r e s t r i c t t h e i n t e r v i e w e e fro m i n t e r j e c t i n g h i s o p i n i o n s beyond t h o s e c a l l e d f o r i n t h e s e r i e s o f q u e s t i o n s . A d a p t a t i o n to 191 th e i n d i v i d u a l o n t h e p a r t o f t h e i n t e r v i e w e r i s im p o r ta n t i n t h i s r e s p e c t . -* -5 What R o le s Does th e Agency Pla.y? I f , f o r p u rp o s e s o f d i s c u s s i o n , i t may be assum ed t h a t a g e n c ie s do a c t , a n d i f a n ag en cy i s a n " a c t o r " , t h e n i t may a l s o be s t a t e d t h a t t h e ag en cy p e rfo rm s c e r t a i n r o l e s i n r e s p e c t to th o s e i n s t i t u t i o n s and g ro u p s w ith w hich i t m ust d e a l . An e f f o r t was made i n t h i s s tu d y t o d e te r m in e th r o u g h i n te r v ie w s w h e th e r o r n o t i n d i v i d u a l s p e r c e i v e th e C a l i f o r n i a a g e n c y a s p e rf o r m in g c e r t a i n p o l l t i c a l l y - r e l e v a n t r o l e s i n t h e c o n te x t o f s t a t e g o v e rn m e n t. I n d e v e lo p in g t h e q u e s t i o n n a i r e , a num ber o f p o s s i b l e r o l e d e s i g n a t i o n s w ere c o n s i d e r e d , d ra w in g p a r t i c u l a r l y u p o n G le n n y 's r e c e n t c o n s i d e r a t i o n o f t h e p o l i t i c s o f c o o r d i n a t i o n o f h i g h e r e d u c a tio n * " ^ S ix p o l l t i c a l l y - r e l e v a n t r o l e s w ere s e l e c t e d u p o n w hich to e l i c i t r e s p o n s e s a s to w h e th e r i n d i v i d u a l s q u e rie d b e l i e v e d t h a t th e y a p p l i e d to t h e C a l i f o r n i a agency a t th e tim e o f i n t e r v i e w . (T he q u e s - num ber o f p e rs o n s w i t h whom t h e a u t h o r d i s c u s s e d t h e m ethod f o r th e s t u d y r a i s e d th e q u e s t i o n w h e th e r a n i n d i v i d u a l who, h i m s e l f , was a p a r t o f t h e ag en c y w ould be a b le t o c a r r y o u t t h e i n te r v ie w s s u c c e s s f u l l y a s I n d i v i d u a l s who r a i s e q u e s t i o n s o f " c o n f l i c t o f i n t e r e s t " . The a u th o r d o e s n * t b e l i e v e t h i s o c c u r r e d ; i f a n y th i n g , some i n t e r v i e w e e s may hav e d r a m a tiz e d t h e i r v iew s o f t h e C o u n c il som ewhat m ore t h a n t h e y m ig h t h av e o t h e r w i s e . ■ ^G lenny, " P o l i t i c s . . o p . c i t . . p p . 2 3 -^ 8 . 192 t i o n w h e th e r t h e a g e n c y s h o u ld p e rfo r m su c h r o l e s was e x p r e s s l y l e f t f o r l a t e r e x p l o r a t i o n i n t h e d i s c u s s i o n . ) I n r e s p o n d in g t o th e q u e s t i o n s r e g a r d i n g p o s s i b l e r o l e d e s i g n a t i o n s f o r t h e C o u n c il, a n e f f o r t was made to e x p lo r e th e r e a s o n s o r q u a l i f i c a t i o n s p la c e d upon t h e i n i t i a l r e s p o n s e w h ic h w ere s o u g h t i n a " y e s — no" m an n er. I n d i v i d u a l s w ere a s k e d » a . May t h e C o u n c il be v iew ed a s a l o b b y i s t f o r h i g h e r e d u c a tio n ? b . Do you c o n s i d e r i t t o be t h e l e a d e r o f h i g h e r e d u c a tio n i n C a l i f o r n i a ? c . Do you c o n s i d e r t h e C o u n c il to be a n e x p e r t a d v i s o r o n h i g h e r e d u c a ti o n to t h e L e g i s l a t u r e ? d . Do you c o n s i d e r t h e C o u n c il to be a n e x p e r t a d v i s o r o n h i g h e r e d u c a ti o n t o t h e G o v ern o r? e . Do you c o n s i d e r t h e C o u n c il to a c t much a s a n a r b i t r a t o r o f h i g h e r e d u c a ti o n c o n f l i c t s w i t h t h e d e c i s i o n s ( I n e f f e c t ) b in d in g o n t h e p a r t i e s ? f . Do you c o n s i d e r t h e C o u n c il t o a c t much a s a m e d ia to r o f h i g h e r e d u c a ti o n c o n f l i c t s to w a rd n e g o t i a t i n g a c o n s e n s u s , com prom ise, o r a g r e e m ent? g . Do you c o n s i d e r t h e C o u n c il t o be a spokesm an f o r h i g h e r e d u c a tio n ? T h ese q u e s t i o n s s u g g e s t a ty p o lo g y o f w hat may be c o n s id e r e d s i x p o l i t i c a l l y - r e l e v a n t r o l e s , w i t h o n e , th e " e x p e r t " r o l e d i v i s i b l e i n te rm s o f t h e o b j e c t o f t h e p e r fo rm a n c e . O th e r r o l e d e s i g n a t i o n s c o u ld be s u g g e s t e d , p a r t i c u l a r l y I n r e s p e c t to t h e r e l a t i o n s h i p s o f t h e c o o r d i n a t i n g a g e n c y to i t s h i g h e r e d u c a ti o n c l i e n t e l e . The above a r e 193 s e t f o r t h a s b e in g among th o s e r o l e s w h ic h a r e im p o r ta n t an d w h ic h may be c o n s id e r e d r e p r e s e n t a t i v e o f o t h e r d e s i g n a ti o n s * I t i s b e l i e v e d t h a t th e y c a n be u s e d a s t o o l s i n a s s i s t i n g to u n d e r s t a n d t h e p r o c e s s by w h ic h th e a g e n c y i s a b le t o I n f l u e n c e p u b l i c p o l i c y and t h e p e r c e p t i o n s r e s u l t in g fro m t h a t p r o c e s s . L o b b y is t R o le . I f t h e C a l i f o r n i a C o o r d in a tin g C o u n c il f o r H ig h e r E d u c a tio n s e e k s t o make I t s e l f f e l t w i t h i n t h e p o lic y - m a k in g p r o c e s s o f s t a t e g o v e rn m e n t, t h e n i t i s i n i t i a l l y presum ed t h a t i t m u s t, i n some m e a s u re , a t t e m p t to i n f l u e n c e t h e a c t o r s m aking t h o s e p o l i t i c s w ith t h e o b j e c t i v e e i t h e r o f o b t a i n i n g l e g i t i m i z a t i o n o f d e c i s i o n s made by t h e a g e n c y , o r o f a s s u r i n g l e g i s l a t i v e o u t comes c o n s i s t e n t w i t h t h e i n t e r e s t s a n d o b j e c t i v e s v iew ed a s im p o r ta n t by t h e a g e n c y . I n t h i s p r o c e s s th e a g e n c y may ta k e o n a " l o b b y i s t " r o l e a s p e r c e i v e d by t h e i n d i v i d u a l s c o n c e rn e d . The view o f t h e c o o r d i n a t i n g a g e n c y i n t h e l o b b y i s t fram e may r e f l e c t , i n p a r t , on t h e q u e s t i o n w h e th e r o r n o t t h e a g e n c y i s su p p o se d to i n f l u e n c e . I n t h e C a l i f o r n i a c a s e t h i s i s m ost im p o r ta n t w ith t h e e x p l i c i t a d v i s o r y f u n c t i o n s s e t f o r t h f o r t h e a g e n c y i n s t a t u t e . I n t h e c o u rs e o f i n t e r v i e w s , I n d i v i d u a l s w e re a s k e d i f th e y b e l i e v e d t h a t t h e C o u n c il c o u ld be c h a r a c t e r i z e d a s a l o b b y i s t f o r h i g h e r e d u c a ti o n , i . e . p e rfo r m in g t h e lo b b y i s t r o l e . No d e f i n i t i o n o f lo b b y in g was s u p p l i e d t o th e 19^ I n t e r v i e w e e , i n s t e a d i t was s u g g e s te d t h a t t h e p e r s o n r e s pond w i t h i n t h e m eaning t h a t he w ould a s c r i b e to t h e te r m . S i m i l a r l y no " i d e a l " c o n c e p t o f w h at m ig h t be a lo b b y in g r o l e f o r t h e c o o r d i n a t i n g ag en cy i s h e r e p r o p o s e d . R e s u l t s o f i n te r v ie w s a r e sum m arized i n T a b le I c o n c e r n i n g t h e q u e s t i o n r e l a t i n g t o t h e l o b b y i s t r o l e a s w e ll a s f o r t h e o t h e r p o l i t i c a l l y - r e l e v a n t r o l e s - d e s i g n a t e d . I n a l l t h i r t y - f o u r p e rs o n s th o u g h t t h e l a b e l in a p p r o p r i a t e a n d tw e n ty th o u g h t i t d i d a p p ly . L e g i s l a t o r s and s t a t e g o v ern m en t s t a f f a s a g ro u p (G roup I ) re s p o n d e d tw e lv e "no" and t e n " y e s " , th o u g h o f t h e s t a f f p e r s o n n e l , e i g h t o f f i f t e e n so c l a s s i f i e d b e l i e v e d t h e l a b e l c o u ld be a p p l i e d t o t h e C o u n c il. O nly t e n o f t h i r t y - t w o i n t h e se c o n d g r o u p in g (G roup I I ) th o u g h t t h e C o u n c il a c t e d th e l o b b y i s t r o l e . A num ber o f p e rs o n s I n te r v ie w e d q u a l i f i e d t h e r e r e s p o n s e s w h ich r e f l e c t e d a p p a r e n t d i f f e r e n c e s i n i n d i v i d u a l v iew s o f lo b b y in g a s a c o n c e p t and a l s o t h e d e g re e o f "ad v o c a cy " to t h e p e r s o n 's way o f t h i n k i n g w h ich i s r e q u i r e d b e f o r e t h e te rm " lo b b y " o r " lo b b y in g " s h o u ld be a p p l i e d . One l e g i s l a t o r n o te d t h a t t h e a g e n c y s h o u ld n o t " a d v o c a te ” , b u t i n t h e i n s t a n c e s o f m a jo r p o l i c y d e b a t e , i t s h o u ld be r e a d y t o g i v e a rg u m e n ts i n r e s p e c t to t h e I s s u e a t h a n d . I n m aking t h i s o b s e r v a t i o n , t h i s same l e g i s l a t o r s t a t e d th e C o u n c i l 's p u rp o se i n h i s m ind was n o t t o g u id e o r d i r e c t h i g h e r e d u c a ti o n i n t h e s t a t e , b u t r a t h e r to b r i n g p ro b lem s 195 TABLE 1 PERCEPTIONS OF THE CALIFORNIA AGENCY: POLITICALLY-RELEVANT ROLES PERFORMED ROLE INDIVIDUALS IDENTIFYING ROLE L e g . Group I L e g . E x e c . S t a f f S y ste m S t a f f G roup I I C o u n c il Members Coun. S t a f f T o ta l L o b b y is t Yes 2 8 . 4 4 2 20 No 5 7 8 8 6 34 L e a d e r o f H ig h e r E d. Yes 3 1 0 4 0 8 No 3 E x p e r t A d v is o r 14 12 8 6 43 t o L eg . Yes 6 14 11 12 6 49 No 1 E x p e r t A d v is o r 1 1 0 0 3 t o Gov. Yes 4 13 3 10 5 35 No 2 1 8 1 1 13 A r b i t r a t o r Yes 2 8 5 6 1 22 No 4 7 7 6 5 29 M e d ia to r Yes 5 14 11 12 6 48 No 0 1 1 0 0 2 S pokesm an Yes 3 14 11 8 3 39 No 2 1 1 3 3 10 (54 p e rs o n s i n t e r v i e w e d , n o t a l l r e s p o n s e s c o u ld be t a b u l a t e d . ) 196 t o t h e f o r e ; i t i s t h e n up t o th e L e g i s l a t u r e to move from t h i s p o i n t . On t h e o t h e r hand a n o t h e r l e g i s l a t o r , who te n d e d t o v iew t h e C o u n c il i n t h e l o b b y i s t f ra m e , s t a t e d he b e l i e v e d t h e C o u n c il’ s r e s p o n s i b i l i t y was t o a d v o c a te p o s i t i o n s to in c l u d e t h e s p o n s o r in g and s u p p o r t f o r l e g i s l a t i o n . Two l e g i s l a t o r s s t a t e d t h a t th e C o u n c il was n o t I n te n d e d to be a lo b b y in g a g e n c y , th o u g h o n e o f t h e s e had d e t e c t e d some a d v o c a c y te n d e n c i e s i n r e s p e c t to t h e q u e s t i o n o f t h e b o a rd f o r th e j u n i o r c o l l e g e s and t h e i s s u e o f t h e d e t e r m i n a t i o n o f th e m ethod o f s t a t e s u p p o r t f o r t h e tw o -y e a r c o l l e g e s 1 o u t l a y p ro g ra m s. ( T h is d id n o t , h o w ev er, l e a d him to p e r c e i v e t h e C o u n c il i n t h e l o b b y i s t r o l e . ) One i n d i v i d u a l in te r v ie w e d w i t h i n t h e l e g i s l a t i v e - e x e c u ti v e s t a f f g ro u p o b s e rv e d t h a t t h e C o u n c il a s a p r a c t i c a l m a t t e r c o u ld n o t s u s t a i n i t s e l f i f i t en g ag e s i n e x t e n s i v e l o b b y in g . H ow ever, a n o th e r o f t h e same g r o u p in g s t a t e d t h a t a s t h e C o u n c il s o u g h t t o have i t s recom m enda t i o n s a d o p te d and t o th e e x t e n t to w h ic h th e y a r e u s e d by o t h e r s t h e n th e C o u n c il m ust be c o n s id e r e d a lo b b y . A l e g i s l a t i v e s t a f f p e r s o n s t a t e d t h a t i n h i s v iew t h e L e g i s l a t u r e had b u i l t i n a s many l i m i t s o n t h e C o u n c il a s p o s s i b l e i n o r d e r t o a v o id i t s becom ing a h i g h e r e d u c a ti o n lo b b y . A C o u n c il member s t a t e d t h a t he hop ed th e ag en c y w o u ld become a lo b b y in g g ro u p f o r h i g h e r e d u c a ti o n an d b e l i e v e d t h a t i t had become so to some e x t e n t . A n o th e r s t a t e d 197 t h a t th e C o u n c il was a lo b b y a s s u c h , b u t was i n e f f e c t i v e i n i t s p e rfo rm a n c e s o f t h e r o l e . The f a c t t h a t t h e a g e n c y was a d v i s o r y i n n a t u r e an d d i d n o t i n a n y s e n s e p ro m o te o n b e h a l f o f h i g h e r e d u c a t i o n w ould i n t h e o p i n i o n o f one C o u n c il member p r e c l u d e i t fro m becom ing a l o b b y . S t i l l a n o t h e r v iew was t h a t a s t h e C o u n c il had t h e te n d e n c y o f e n d o r s i n g a n y p r o p o s i t i o n p la c e d b e f o r e i t by t h e h i g h e r e d u c a t i o n i n t e r e s t s , i t c o u ld n o t e f f e c t i v e l y p e rfo r m a l o b b y in g r o l e . A s t a f f member o f o n e o f t h e h i g h e r e d u c a t i o n sy stem s f a m i l i a r w i t h t h e a c t i v i t i e s o f h i g h e r e d u c a t i o n i n t e r e s t s i n S a c ra m e n to , s t a t e d h e b e l i e v e d t h a t no p u b l i c l y - s u p p o r t ed h i g h e r e d u c a t i o n g ro u p c o u ld be c o n s i d e r e d a l o b b y . I n e x p l a i n i n g t h i s s t a t e m e n t , he i n d i c a t e d t h a t so lo n g a s e f f o r t s t o i n f l u e n c e l e g i s l a t o r s th r o u g h cam p aig n a i d a n d o t h e r p e r s o n a l s e r v i c e s a r e p r e c l u d e d fro m g ro u p s a s t h e C o u n c il, t h e lo b b y in g l a b e l c o u ld n o t a p p l y . Y et a n o t h e r s y s te m s t a f f p e r s o n who i n h i s m ind d e f i n e d lo b b y in g as " in f o r m a t i o n d i s s e m i n a t i o n " , w ould p l a c e t h e C o u n c il a s a " lo b b y ” . Though m ost I n d i v i d u a l s i n t h e i r i n i t i a l r e s p o n s e s , a s n o t e d , d i d n o t t e n d t o c o n s i d e r t h e C o u n c il a s p e r f o r m in g a s a l o b b y i s t , a s u b s e q u e n t q u e s t i o n a s k e d o f many I n t e r v i e w e e s w ould te n d t o m o d ify t h e o v e r a l l r e s u l t to some e x t e n t . I n t h e c o n t e x t o f r e l a t i o n s h i p s b e tw e e n t h e C o u n c il a n d t h e o t h e r h i g h e r e d u c a t i o n I n t e r e s t s , i t i s g e n e r a l l y p e r c e i v e d t h a t t h e r e i s a h i g h e r e d u c a t i o n 198 " lo b b y " I n S a c ra m en to and t h a t t h e C o u n c il i s o n e o f th e 17 g ro u p s c o n s t i t u t i n g t h a t " lo b b y " . S e m an tic d i f f i c u l t y i s m ost a p p a r e n t i n u s i n g such v a l u e - l a d e n te rm a s " lo b b y " . The sum o f i n t e r v i e w r e s u l t s i n t h i s c o n te x t te n d s to s u g g e s t t h a t a s th e i n d i v i d u a l c o n c e iv e s " lo b b y in g ” a s s t r e s s i n g d i s s e m i n a t i o n o f i n f o r m a tio n , t h e n he i s more l i k e l y to in c lu d e th e C a l i f o r n i a c o o r d i n a t i n g a g e n c y u n d e r t h e l a b e l " lo b b y " . The more th e i n d i v i d u a l s e e s lo b b y in g a s p r i m a r i l y a n exch an g e o f f a v o r s , t h e l e s s l i k e l y h e i s to view t h e C o u n c il as p e rf o r m in g t h e " l o b b y i s t " r o l e . ^ ^ L e a d e r s h ip R o l e . The h i g h e r e d u c a tio n a g e n c y may be e x p e c te d to p e rfo rm a s t h e l e a d e r o f h ig h e r e d u c a ti o n i n a p a r t i c u l a r s t a t e . G lenny h a s n o te d : T h i s . . .mode o f o p e r a t i o n . . .d e p en d s h e a v i l y upon t h e c o m p o s itio n o f th e b o a rd o f c o u n c i l . Those a g e n c ie s w ith a c l e a r m a j o r i t y o f c i t i z e n members n o t d i r e c t l y c o n n e c te d w ith t h e g o v e rn a n c e o f adm in i s t r a t i o n o f p u b l i c c o l l e g e s o r u n i v e r s i t i e s t e n d to ^ I n f r a , p p . 19^ - 9 5 * ( d r a f t ) ^ D i c t i o n a r y d e f i n i t i o n te n d s to s t r e s s t h e " v o te - o b t a i n i n g " a s p e c t . E e c e n t s t u d i e s , how ever, s e e lo b b y in g more i n t h e c o n te x t o f co m m u n icatio n o f p o s i t i o n an d e f f o r t s a t r e i n f o r c i n g e x i s t i n g d i s p o s i t i o n s o f l e g i s l a t o r s to w a rd one p o l i c y o r g r o u p . The more c l o s e l y i d e n t i f i e d th e l e g i s l a t o r may be to t h e i n t e r e s t g ro u p by v i r t u e o f h i s s t a t u s , r e f e r e n c e g ro u p s , e t c . , t h e b e t t e r . See Harmon Z e i g l e r , " I n t e r e s t G roups i n t h e S t a t e s , " i n H e r b e r t J a c o b and K en n eth A. V in e s , e d s . , P o l i t i c s i n t h e A m erican S t a t e s (B o s to n : L i t t l e , Brown and Company, 1 9 6 5 ), p p . 135-39* 199 e x e r c i s e v i g o r o u s l y t h e new l e a d e r s h i p r o l e a n t i c i p a te d toy t h e l e g i s l a t u r e a n d g o v e r n o r . The a t t i t u d e s o f su ch c i t i z e n h o a rd s u s u a l l y c o n t r a s t s u b s t a n t i a l l y w i t h th o s e a g e n c ie s i n c l i n e d t o t h e b r o k e r a g e m ode.19 A c c o rd in g t o t h i s s t a t e one w ould n o t e x p e c t t h e C a l i f o r n i a C o u n c il to h a v e t a k e n a l e a d e r s h i p s t a n c e b e c a u s e i t s b o a rd m em bership d o e s n o t I n c lu d e a c l e a r m a j o r i t y o f n o n - l n s t i t u t i o n a l l y r e l a t e d m em bers. The C a l i f o r n i a C o u n c il w o u ld f i t G le n n y 's " b r o k e r a g e mode" m ore c l o s e l y , w h ich he f i n d s r e s u l t s i n "h a l f - m e a s u r e s " , dom inance o f t h e s t r o n g e r i n s t i t u t i o n s { o r s y s te m s ) and " a s a f e a p p ro a c h to a l l m a jo r c h a n g e " . " S t a t u s quo becomes t h e o r d e r o f th e d a y . " 2^ I n d i v i d u a l s who w ere i n t e r v i e w e d w ere a s k e d i f th e y v ie w e d th e C o u n c il a s b e in g t h e l e a d e r o f h i g h e r e d u c a ti o n i n C a l i f o r n i a . W ith few e x c e p tio n s ( o n l y e i g h t o f f i f t y - one r e s p o n s e s ) , th e C a l i f o r n i a ag en c y i s n o t v ie w e d a s p e r f o rm in g t h e l e a d e r s h i p r o l e . A t l e a s t f o u r i n d i v i d u a l s , h o w e v e r, s t a t e d t h a t t h e a g e n c y c o u ld b e c o n s id e r e d a s one o f s e v e r a l " l e a d e r s " . One p e r s o n s t a t e d t h a t i n h i s m ind t h e l e a d e r o f h ig h e r e d u c a ti o n i n th e s t a t e i s t h e U n iv e r s i t y o f C a l i f o r n i a b e c a u s e i t i s t h e m o st i n f l u e n c i a l 21 g r o u p . ■ ^G ienny, " P o l i t i c s . . o p . c l t . . p . 36 . 2^ l b i d . , p . G lenny a l s o te rm s h i s b ro k e ra g e m ode, a " r o l e f o r t h e a g e n c y . The m e d i a t i n g r o l e h e r e u se d r e l a t e s m ost c l o s e l y to h is t e r m in o lo g y . pi ^ R e l a t e d to t h i s o p i n i o n , one member o f th e p r e s s c o r p s who c l o s e l y w a tc h e s h i g h e r e d u c a t i o n m a t t e r s , o b s e r v ed t h a t th e R e g e n ts o f th e U n i v e r s i t y a r e t h e o n ly body w h ic h can h a v e im p a c t on t h e G o v e r n o r 's h i g h e r e d u c a ti o n p o l i c i e s , m o st p a r t i c u l a r l y t h o s e r e l a t i n g t o f i n a n c i n g . 200 I t i s i n t e r e s t i n g t o n o t e i n t h e r e s p o n s e p a t t e r n t h a t t h r e e o f t h e s i x l e g i s l a t o r s r e s p o n d in g v ie w e d t h e C o u n c il a s t h e l e a d e r o f h i g h e r e d u c a t i o n a s d i d f o u r o f t h e tw e lv e C o u n c il members i n t e r v i e w e d . One member s t a t e d h e b e l i e v e d t h a t t h e C o u n c il was t h e l e a d e r b e c a u s e no o t h e r g ro u p ( o t h e r t h a n t h e J o i n t C om m ittee o n H ig h e r Edu c a t i o n o f t h e L e g i s l a t u r e ) was c o n c e rn e d w i t h a l l h i g h e r e d u c a t i o n m a t t e r s r e g a r d l e s s o f l e v e l . On t h e o t h e r h a n d , a l e g i s l a t i v e s t a f f member a s s e r t e d t h a t t h e c o o r d i n a t i n g a g e n c y c o u ld n o t p e rfo r m i n a l e a d e r s h i p c a p a c i t y b e c a u s e i t l a c k e d a po w er b a s e . R e s p o n s e s t o t h i s q u e s t i o n w o u ld t e n d t o b e a r o u t th e G len n y f i n d i n g t h a t a n a g e n c y , c o n s t i t u t e d i n t h e m anner o f t h e C o u n c il, i s n o t p e r c e i v e d a s p e r f o r m in g a s a l e a d e r . W h eth er t h e c o o r d i n a t i n g a g e n c y com posed l a r g e l y o f l a y p e r s o n s c a n e f f e c t i v e l y p e rf o r m i n a l e a d e r s h i p 22 c a p a c i t y i s , o f c o u r s e , n o t c o n s i d e r e d h e r e . Some e v i d e n c e o n t h i s p o i n t i s c i t e d , h o w e v e r, i n P a r t I I I o f t h i s s t u d y . The E x p e r t . T hough few e x p e c t a t i o n s o f t h e p e r f o r m ance o f t h e C a l i f o r n i a a g e n c y w e re s p e l l e d o u t a t t h e tim e o f t h e a g e n c y 1s c r e a t i o n , i t d o e s seem c l e a r t h a t t h e Coun c i l a n d i t s s t a f f w ere e x p e c te d t o f u n c t i o n a s e x p e r t s o n 2? The q u e s t i o n may be r a i s e d i f c o o r d i n a t i n g a g e n c i e s , a s s u c h , c a n 1 1 l e a d " . L e a d e r s h i p may d e p en d on t h e p r e s e n c e o f a " l e a d e r ” o n t h e b o a rd o r i t s s t a f f . 201 h i g h e r e d u c a tio n * S p e a k in g o f t h e m em b ersh ip o n t h e p r o p o s e d c o o r d i n a t i n g a g e n c y , t h e M a s te r P l a n S u rv e y Team s t a t e d : "The p ro b le m s o f c o - o r d i n a t i o n r e q u i r e a d e g r e e o f e x p e r t n e s s t h a t som eone new t o h i g h e r e d u c a t i o n i s u n l i k e l y t o h av e o r s o o n a c q u i r e . " 23 F u r t h e r , W i l l a r d S p a ld i n g , w h ile d i r e c t o r o f t h e C a l i f o r n i a a g e n c y , o b s e r v e d : "T he g e n iu s o f t h e C o u n c il, i t seem s to me, i s p r e c i s e l y i t s c o o r d i n a t i n g f u n c t i o n w h ic h i s e n h a n c e d by t h e p r o f e s - s i o n a l c h a r a c t e r o f i t s m e m b e r s h ip .'" ^ I n d i v i d u a l s w ere f i r s t a s k e d d u r i n g t h e c o u rs e o f i n t e r v i e w i f t h e y b e l i e v e d t h e C o u n c il c o u ld be c o n s i d e r e d t o be a n e x p e r t a d v i s o r o n h i g h e r e d u c a t i o n t o t h e L e g i s l a t u r e . W ith a lm o s t no e x c e p t i o n s , I n t e r v i e w e e s s t a t e d th e y b e l i e v e d t h e a g e n c y c o u ld be v iew ed i n t h i s m a n n e r. In d e e d o n l y t h r e e p e r s o n s b e l i e v e d t h a t t h e l a b e l d i d n o t a p p ly . One o f t h i s g ro u p n o te d t h a t t h e C o u n c il s o u g h t t o a d v is e t h e L e g i s l a t u r e b u t was s i n g u l a r l y i n e f f e c t i v e . He a d d e d , h o w e v e r, i t s h o u ld be p e rf o r m in g t h e f u n c t i o n . To t h e q u e s t i o n w h e th e r t h e C o u n c il was s e e n a s b e in g a n e x p e r t a d v i s o r o n h i g h e r e d u c a t i o n to t h e G o v e rn o r, 2?A M a s te r P l a n f o r H ig h e r E d u c a tio n i n C a l i f o r n i a . 1 9 6 0 - 7 5 . C S a c ra m e n to , C a l i f o r n i a : S t a te " D e p a r tm e n t o f E du- c a t l o n , i 9 6 0 ) , p . 3 9 . 2^ " C a l i f o r n i a H ig h e r E d u c a tio n i n t h e N e x t D ecade: C h a lle n g e s and P r o s p e c t s , " sp e e c h b e f o r e L os A n g e le s Town H a l l , J a n u a r y 1 8 , 1 9 6 6 . 202 g r e a t e r d i f f e r e n c e o f o p i n i o n was n o t e d . I n a l l , t h i r t y - f i v e p e r s o n s saw t h e C o u n c il i n t h e " e x p e r t " r o l e i n r e s p e c t t o t h e G o v e rn o r an d h i s o f f i c e a n d t h i r t e e n d i d n o t . E ig h t o f t h e t h i r t e e n w ere a s s o c i a t e d w i t h t h e s y s te m s o f h i g h e r e d u c a t i o n . I n c o n s i d e r i n g t h e q u e s t i o n o f t h e C o u n c il a s "ex p ert? 1 a d v i s o r t o t h e C a l i f o r n i a G o v e rn o r, a num ber o f i n d i v i d u a l s te n d e d t o i d e n t i f y a d i f f e r e n t r e l a t i o n s h i p b e tw e e n t h e Brown a d m i n i s t r a t i o n a n d t h e a g e n c y a s o p p o se d to t h a t w h ic h e x i s t e d a t t h e tim e o f i n t e r v i e w d u r i n g t h e R e ag a n g o v e r n o r s h i p . T hese p e r s o n s b e l i e v e d t h a t t h e C o u n c il h a d p e rfo rm e d a s a n e x p e r t d u r i n g B ro w n 's t e n u r e , e s p e c i a l l y i n i t s f i n a l two y e a r s a s on e p e r s o n n o t e d . A s t a f f member o f a e d u c a t i o n a l s y s te m o b s e r v e d t h a t t h e R e a g a n a d m i n i s t r a t i o n a p p e a r e d t o s e e k i t s a d v ic e beyond t h e C o u n c il— a n d p e rh a p s beyond t h e h i g h e r e d u c a t i o n s y s te m s t h e m s e l v e s . A s i m i l a r v iew was e x p r e s s e d by a n o t h e r p e r s o n who n o te d t h a t i n h i s o p i n i o n G o v e rn o r R e a g a n h a d n o t a v a i l e d h i m s e l f o f t h e a d v ic e and s e r v i c e s o f t h e C o u n c il. On t h e o t h e r h a n d a n I n d i v i d u a l i n t h e l e g i s l a t i v e - e x e c u t i v e s t a f f g r o u p in g b e l i e v e d t h e G o v e rn o r a n d h i s o f f i c e w e re p e rh a p s t h e o b j e c t o f more a d v ic e fro m t h e C o u n c il i n r e c e n t m onths t h a n t h e L e g i s l a t u r e . B ut a l e g i s l a t o r n o te d t h a t t h e C o u n c il was g e n e r a l l y c l o s e r t o t h e L e g i s l a t u r e , a n d was t h e r e f o r e n o t a n e x p e r t a d v i s o r t o th e G o v e rn o r, n o r w o u ld b e , to a n a p p r e c i a b l e e x t e n t . F i n a l l y , 203 a n o th e r l e g i s l a t o r s t a t e d t h a t t h e C o u n o il was d o in g a p o o r jo b and was n o t b e in g t h e d i s i n t e r e s t e d , q u a l i f i e d g ro u p t h a t i t was su p p o se d t o b e . Though t h e r e a c t i o n s o f p e r s o n s i n te r v ie w e d te n d e d t o p la c e t h e C a l i f o r n i a a g en c y i n t h e " e x p e r t " r o l e , t h i s i s n o t to s a y t h e r e i s u n i v e r s a l s a t i s f a c t i o n w ith C o u n c il p e rfo rm a n c e i n r e s p e c t t o th o s e f a c t o r s w h ich may c o n t r i b u te to t h a t " e x p e r t " r o l e . A r b i t r a t o r R o le . The c o o r d i n a t i n g a g e n c y d e v o te d t o h i g h e r e d u c a t i o n m a t t e r s may be v ie w e d a s a n a r e n a i n w hich t h e d is a g r e e m e n ts an d d i f f e r e n c e s b e tw ee n o r among p a r t i e s a r e d i s c u s s e d and r e s o l v e d by in fo rm e d f i a t l a i d down by t h e b o a rd i t s e l f . S uch c o n f l i c t r e s o l u t i o n may t e n d to a v o id l e g i s l a t i o n an d l e g i s l a t i v e i n t e r e s t i n th e q u e s t i o n . I n such i n s t a n c e s t h e e v id e n c e may be p r e s e n t e d by t h e c o m p e tin g i n t e r e s t s , an d t h e b o a rd l a y s down i t s d e c i s i o n s w hich a r e de f a c t o o r de j u r e b i n d in g o n t h e p a r t i e s . I n t h i s c o n te x t t h e c o o r d i n a t i n g a g e n c y i f i t p e rfo rm s t h i s r o l e may be c o n s id e r e d a s an " a r b i t r a t o r " . I n o r d e r to a s c e r t a i n w h e th e r t h e C a l i f o r n i a ag en cy i s p e r c e i v e d a s p e rf o r m in g su c h a r o l e , I n d i v i d u a l s w ere a s k e d i f t h e y v iew ed t h e C o u n c il a s b e in g a n a r b i t r a t o r o f h i g h e r e d u c a t i o n c o n f l i c t s w ith d e c i s i o n s ( i n e f f e c t ) b in d in g on th e p a r t i e s . S t r e s s was p la c e d u p o n t h e b in d in g a s p e c t s so a s t o be s u r e t h e r e s p o n d e n t was re m in d e d o f t h e d i s t i n c t i o n b e tw e e n " a r b i t r a t i o n " an d " m e d ia tio n " . 204- A t a b u l a t i o n o f r e s p o n s e s t o t h i s q u e s t i o n show ed a c o n s i d e r a b l e d i v i s i o n o f o p i n i o n th o u g h t h e m a j o r i t y o f p e rs o n s b e l i e v e d t h e a g e n c y s h o u ld n o t be v iew ed i n su c h a r o l e p e rfo rm a n c e . I n a l l tw e n ty -tw o r e s p o n d e n ts b e l i e v e d t h e C o u n c il d i d p e rfo rm t h i s r o l e on o c c a s i o n s , b u t tw e n ty - n i n e d id n o t b e l i e v e i t d id t o any a p p r e c i a b l e e x t e n t . 2-5 The l e g i s l a t i v e - e x e c u t i v e g ro u p in g d i v id e d a lm o s t e q u a l l y i n v ie w in g t h e C o u n c il a s a n a r b i t r a t o r : t e n r e s p o n d e n ts saw t h e C o u n c il a s p e rf o rm in g t h e r o l e a n d e le v e n d i d n o t . I n t h e b a la n c e o f I n t e r v i e w e e s th e d i v i s i o n was tw e lv e f a v o r i n g t h e d e s c r i p t i o n and e i g h t e e n c o n s i d e r i n g t h a t i t d i d n o t a p p ly . The M e d ia to r R o l e . W ith a lm o s t no e x c e p tio n s ( o n ly two o f f i f t y ) , i n te r v ie w e e s b e l i e v e d t h e C o u n c il to p e rfo rm t h e m e d ia to r r o l e . F o r t h i s r o l e i d e n t i f i c a t i o n , i n d i v i d u a l s w ere a s k e d i f t h e y b e l i e v e d t h e C o u n c il i s a t tim e s a m e d ia to r o f h i g h e r e d u c a t i o n c o n f l i c t s w ith a view to w a rd n e g o t i a t i n g a c o n s e n s u s , com prom ise o r a g re e m e n t. A ssum ing a s i m i l a r i t y b e tw ee n t h a t w h ic h i s c o n n o te d by th e m e d i a t o r r o l e a n d t h a t w hich G len n y te rm s th e " b r o k e r a g e r o l e ,,<s i t a p p e a r s t h a t t h e G len ny d i s t i n c t i o n s 2^0 n t h i s q u e s t i o n , a s w e ll a s o t h e r s , c e r t a i n i n d i v i d u a l s d e t e c t e d some t e n d e n c i e s b u t n o t en o u g h , i n t h e i r m in d s , to c o n s i d e r t h e s t a te m e n t a c o r r e c t d e s c r i p t i o n o f t h e C o u n c il. G le n n y , " P o l i t i c s . . . , " o p . o l t . . p . 3 3 . G lenny c o n s i d e r s b o th th e m e d ia to r an d a r b i t r a t o r r o l e s a s m ak in g up h i s b r o k e ra g e r o l e . To t h i s a u t h o r t h e r e a r e some d i s t i n c t i o n s w h ic h s h o u ld be m ade— a s h a s b e e n s u p p o r t e d i n 205 b e tw e e n t h e c o o r d i n a t i n g a g e n c y a s " l e a d e r " a n d a s " b r o k e r " c o n tin u e t o a p p ly a t l e a s t i n t h e C a l i f o r n i a e x am p le. I n r e s p o n d in g t o t h e q u e s t i o n , one l e g i s l a t o r com m en ted r a t h e r s t r o n g l y on t h e n eed t o a v o id t h e n e g o t i a t e d com prom ise i n d e te r m in in g a p o s i t i o n o f t h e C a l i f o r n i a C o u n c il. I n h i s v ie w , t h e a g e n c y s h o u ld p r e s e n t t o th e L e g i s l a t u r e e x p e r t a d v i c e , f r e e o f I n t e r n a l , p o l i t i c a l c o m p ro m ise s. I n h i s m o d el, t h e n , t h e L e g i s l a t u r e w o u ld r e c e i v e t h i s a d v ic e an d make u s e o f i t a s a p p r o p r i a t e i n 27 e f f e c t i n g t h e p o l i t i c a l d e c i s i o n . Spokesm an R o l e . A n o th e r r o l e h a v in g r e l e v a n c e i n t h e p o l i t i c a l c o n te x t and w h ich t h e c o o r d i n a t i n g a g e n c y f o r h i g h e r e d u c a t i o n m ig h t be e x p e c te d to p e rfo rm i s t h a t o f s e r v i n g a s a spokesm an o n b e h a l f o f c o l l e g e i n t e r e s t s b e f o r e t h e b o d ie s o f s t a t e g o v e rn m e n t. The a g e n c y , In p l a y i n g t h i s r o l e , c o u ld be e x p e c te d to make known t o th e l e g i s l a t i v e - e x e c u t i v e t h e n e e d s an d b e s t i n t e r e s t s o f h i g h e r e d u c a t i o n a s v ie w e d by t h e a g e n c y . W hile t h e c o o r d i n a t i n g m echanism m ig h t be t h e " l e a d e r " an d a "spokesm an" a t o n c e , t h e spokesm an r o l e d o e s n o t n e c e s s a r i l y r e q u i r e t h e a g e n c y to p e rfo rm a s a l e a d e r . The a d v is o r y t a s k s s e t f o r t h f o r t h e C a l i f o r n i a i n t e r v i e w r e s u l t s f o r t h i s s t u d y . 27 " T h e i s s u e u p p e rm o st i n t h i s l e g i s l a t o r ' s m ind a t t h e tim e o f i n t e r v i e w was t h e q u e s t i o n o f t h e C o u n c i l 's p o s i t i o n o n t u i t i o n . 206 c o o r d i n a t i n g ag en c y i n th e M a s te r P l a n and i n s t a t u t e a s w e l l , s t r o n g l y s u g g e s t a n o t i o n o f a spokesm an r o l e f o r t h e C o u n c il. The p o t e n t i a l f o r su c h a r o l e was e x p l i c i t l y r e c o g n iz e d i n a n e d i t o r i a l a p p e a r in g i n t h e L os A n g e le s T im e s: To t h e e x t e n t t h a t t h e c o u n c i l c a n s e r v e a s a spokesm an f o r h i g h e r e d u c a ti o n and th u s r e d u c e th e am ount o f p r i v a t e — an d o f t e n r i v a l — lo b b y in g w hich te n d s to c o n fu s e t h e s t a t e * s la w m a k e rs , i t s e r v e s a u s e f u l p u r p o s e . The c o n s e n s u s i t i s a b l e to p r e s e n t , h o w e v e r, s h o u ld be c o n s id e r e d p e r s u a s i v e r a t h e r t h a n c o n t r o l l i n g o n th e L e g i s l a t u r e . 28 To d e te r m in e i f i n d i v i d u a l s s e e t h e C a l i f o r n i a a g e n c y as p e rfo r m in g su c h a r o l e , i n t e r v i e w e e s w ere a s k e d i f th e y b e l i e v e d th e C o u n c il c o u ld be c o n s i d e r e d a s a spokesm an f o r h i g h e r e d u c a t i o n . (Had t h e q u e s t i o n b e e n p h r a s e d " t h e spokesm an f o r h i g h e r e d u c a t i o n " , th e n few w o u ld l i k e l y h av e re s p o n d e d a f f i r m a t i v e l y . T h is was b o rn e o u t by s e v e r a l i n t e r v i e w e e 's com m ents.) T h i r t y - n i n e o f f o r t y - n i n e p e r s o n s r e s p o n d in g s t a t e d t h a t th e C o u n c il c o u ld be d e s c r i b e d i n t h i s m an n er. Of th e t e n p e rs o n s who b e l i e v e d i t was n o t a c o r r e c t d e s c r i p t i o n , t h r e e w ere c l a s s i f i e d among Group I an d s e v e n i n Group I I . A member o f t h e C o u n c il i n h i s r e s p o n s e s t a t e d t h a t he th o u g h t t h e C o u n c il i n t h e p u b l i c 's m ind was in d e e d a 2® July 8 , 1965* The e d i t o r i a l was t i t l e d : "R o le o f t h e E d u c a tio n C o u n c il" . 207 spokesm an f o r h i g h e r e d u c a ti o n , b u t he was n o t a t a l l s u r e t h i s was a c o r r e c t v ie w . A n o th e r member o b s e rv e d t h a t th e C o u n c il c o u ld n o t be a spokesm an so lo n g a s t h e sy s te m s o f h i g h e r e d u c a ti o n re m a in e d w ith t h e a u t h o r i t y an d t h e Coun c i l d i d n o t . S e v e r a l r e s p o n d e n ts s t a t e d t h a t t h e C o u n c il was t e n d i n g to become m ore o f a spokesman® One member o f t h e L e g i s l a t u r e s a i d t h a t t h e C o u n c il c o u ld be d e s c r i b e d a s p e rfo rm in g a spokesm an r o l e a s much a s an y o t h e r e le m e n t o f h i g h e r e d u c a ti o n ; a n o t h e r n o te d t h a t t h e a g e n c y c o u ld be c o n s id e r e d a spokesm an and a s a s o u n d in g - b o a rd f o r h i g h e r e d u c a ti o n i s s u e s . Summary. To sum m arize t h e p o r t i o n o f th e s u r v e y r e l a t i n g to p e rfo rm a n c e o f p o l i t i c a l l y - r e l e v a n t r o l e s , i t may be s t a t e d t h a t t h e m a j o r i t y o f p e rs o n s i n te r v ie w e d d id n o t c o n s i d e r t h e C o u n c il to p e rfo rm a l o b b y i s t r o l e . A lso v e r y few p e rs o n s v iew t h e C o u n c il a s t h e l e a d e r o f h i g h e r e d u c a ti o n i n t h e s t a t e . However t h e c o o r d i n a t i n g body i s v iew ed a s b e in g a spokesm an f o r h i g h e r e d u c a ti o n i n t e r e s t s . The C o u n c il i s p e r c e i v e d by m ost i n d i v i d u a l s a s f u l f i l l i n g t h e e x p e r t r o l e i n r e s p e c t to t h e L e g i s l a t u r e an d G o v ern o r on q u e s t i o n s a f f e c t i n g t h e c o l l e g e s and u n i v e r s i t i e s . The m a j o r i t y c o n s i d e r t h e a r b i t r a t o r r o l e in a p p l i c a b l e to th e C o u n c il, b u t n e a r l y a l l i n t e r v i e w e e s t h i n k t h a t t h e m e d ia to r r o l e d e s i g n a t i o n does c h a r a c t e r i z e c e r t a i n C o u n c il p e rfo r m a n c e s . 208 The p i c t u r e w hich em erges fro m t h i s r e c o u n t in g s u g g e s t s a C o o r d in a tin g C o u n c il o f some p o t e n t i a l i n f l u e n c e , b u t n o t a s a s t r o n g f o r c e i n r e p r e s e n t i n g h i g h e r e d u c a t i o n ^ i n t e r e s t s . F u rth e rm o re p e r c e p t i o n s o f t h e p o l i t i c a l l y - r e l e v a n t r o l e s s u g g e s te d a r e r e l a t i v e l y u n if o r m ly h e ld among m o st p e rs o n s r e g a r d l e s s o f t h e i r a f f i l i a t i o n . What F u n c tio n s A re P e rfo rm e d ? I f a f u n c t i o n i s t o be c o n s id e r e d t h e o b s e r v e d o u t come o f b e h a v io r t h e n t h e c o o r d i n a t i n g a g en c y f o r h i g h e r e d u c a ti o n may be s a i d t o h a v e a num ber o f f u n c t i o n s w h ic h a r e t h e outcom es o f t h e p e rfo rm a n c e o f c e r t a i n a c t i o n s and t a s k s . ( I n p e rf o rm in g t h e f u n c t i o n s t h e a g e n c y a s d i s c u s s e d c a n t a k e o n t h e a p p e a ra n c e o f h a v in g p e rfo rm e d c e r t a i n r o l e s . ) W ith in t h e l i s t i n g o f q u e s t i o n s d e s ig n e d to g a t h e r im p r e s s io n s a s t o th e p o l i t i c a l l y - r e l e v a n t r o l e s p e rfo rm e d by t h e C a l i f o r n i a a g e n c y , a num ber o f o t h e r q u e s t i o n s w ere a s k e d t o d e v e lo p some n o t i o n a s t o t h e p e r c e p t i o n o f f u n c t i o n s p e rfo rm e d by th e C o u n c il. T h ese w ere: a . Do you c o n s i d e r th e C o u n c il to be a s o u rc e o f i n n o v a t i v e id e a s f o r h i g h e r e d u c a tio n ? b . Do you b e l i e v e t h e C o u n c il f u n c t i o n s i n su c h a m anner a s t o c o n s i d e r i t t h e e q u i v a l e n t o f a l e g i s l a t i v e i n v e s t i g a t i n g c o m m ittee s t a f f f o r h i g h e r e d u c a tio n ? c . Does t h e C o u n c il f u n c t i o n a t tim e s a s a p u b l i c r e l a t i o n s v e h i c l e f o r h i g h e r e d u c a tio n ? 209 d . Do you b e l i e v e t h e C o u n c il may he c h a r a c t e r i z e d a s a r e s e a r c h g ro u p ? e . Do you b e l i e v e t h e C o u n c il h a s f u n c t i o n e d i n w hole o r i n p a r t a s th o u g h i t w ere a n e x t e n t i o n o f th e D e p a rtm e n t o f F in a n c e ? f . Do you c o n s i d e r t h e C o u n c il t o be a n a d m i n i s t r a t i v e ag en cy ? T h ese s e r i e s o f q u e s t i o n s , i t i s b e l i e v e d , s u g g e s t a number o f f u n c t i o n s 2^ w hich may be p e rfo rm e d by th e h i g h e r e d u c a t i o n a g e n c y : a . The f u n c t i o n o f e n co u ra g e m e n t o f i n n o v a t i o n . b . The f u n c t i o n o f im age b u i l d i n g f o r h i g h e r edu c a t i o n . c . The f u n c t i o n o f l e g i s l a t i v e i n v e s t i g a t i o n . d . The f u n c t i o n o f r e s e a r c h . e . The f u n c t i o n o f b u d g e t a s r e v ie w and c o n t r o l . f . The f u n c t i o n o f a d m i n i s t r a t i o n o f a s p e c t s o f h i g h e r e d u c a ti o n . The Agency a s I n n o v a t o r . I n o r d e r t o d e te r m in e i f i n d i v i d u a l s view t h e C a l i f o r n i a ag en cy a s f u n c t i o n i n g in s u c h a m anner so a s t o r e s u l t i n in n o v a t i o n s f o r h i g h e r 29 The Donahoe H ig h e r E d u c a tio n A c t s e t f o r t h t h r e e a d v i s o r y , s t a t u t o r y f u n c t i o n s f o r th e C o u n c il: comment o n t h e l e v e l o f s u p p o r t f o r h i g h e r e d u c a ti o n , a d v ic e a s to t h e d e l i n e a t i o n s o f f u n c t i o n s among th e s y s te m s o f p u b l i c h ig h e r e d u c a t i o n , and p la n n in g f o r t h e o r d e r l y g ro w th o f h ig h e r e d u c a ti o n ( i n c l u d i n g a d v ic e a s to t h e n e e d f o r new f a c i l i t i e s ) . (S e e S t a t e o f C a l i f o r n i a E d u c a tio n Code, s e c . 2 2 7 0 3 ). T h ese may be c o n s id e r e d to be m ore i n t h e fram e o f t a s k s s e t o u t f o r t h e C o u n c il r a t h e r t h a n " o b s e r v e d o u t comes o f p a t t e r n e d b e h a v i o r s ." 210 e d u c a t i o n , i n t e r v i e w e e s w ere a s k e d i f th e y saw t h e C o u n c il a s "being a s o u r c e o f i n n o v a t i v e id e a s f o r h i g h e r e d u c a ti o n . ( I n n o v a t i o n s I n t h i s i n s t a n c e c o u ld in c l u d e new fo rm s o f o r g a n i z a t i o n s f o r c o l l e g e s , new form s o f g o v e rn a n c e , c h an g in g i n s t r u c t i o n a l m e th o d s, e t c . ) , R e s u l t s a r e sum m arized i n T a b le I I . The m a j o r i t y o f p e rs o n s ( tw e n ty - s e v e n ) in te r v ie w e d d i d n o t p e r c e i v e t h e C o u n c il a s f u n c t i o n i n g a s a s o u r c e o f i n n o v a t i v e i d e a s f o r h i g h e r e d u c a t i o n . H ow ever, tw e n ty -o n e d i d r e s p o n d t h a t th e y d i d v iew t h e C o u n c il a s a s o u r c e o f i n n o v a t i o n . Some d i f f e r e n c e s w ere n o te d among th e s u b g r o u p in g s a lt h o u g h th e two m a jo r g ro u p s re s p o n d e d i n a c o m p a ra b le m an n er. The s i x l e g i s l a t o r s r e p l y i n g to th e q u e s t i o n d i v i d e d e q u a l l y , w h ile th e l e g i s l a t i v e - e x e c u t i v e s t a f f g ro u p showed f i v e p e rs o n s b e l i e v i n g th e C o u n c il s e r v e d a s a n I n n o v a to r f o r h i g h e r e d u c a ti o n and t e n n o t . The mem b e r s o f t h e C o u n c il d i v id e d e v e n ly , s i x and s i x , w h ile t h e C o u n c il s t a f f te n d e d t o s u p p o r t t h e i n n o v a t i o n view ( f o u r " y e s " an d two M n o ")* H ig h e r e d u c a t i o n - a f f i l i a t e d s t a f f w ere g e n e r a l l y n e g a t i v e to t h e c o n c e p tio n : t h r e e !,y e s H a n d s e v e n 1 1 n o ” . A member o f t h e C o u n c il i n s t a t i n g t h a t t h e ag en c y h ad b e en a s o u r c e o f I n n o v a tiv e id e a s r e f e r r e d t o s t u d i e s r e l a t i n g t o t h e t e a c h i n g d o c t o r a t e a n d l o c a t i o n o f lo w e r d i v i s i o n p ro g ra m s . O th e r p e rs o n s r e c o g n iz e d t h i s a s a po t e n t i a l f o r t h e C o u n c il, b u t d i d n * t v iew th e f u n c t i o n a s 211 TABLE 2 PERCEPTIONS OF THE CALIFORNIA AGENCY: POLITICALLY-RELEVANT FUNCTIONS PERFORMED FUNCTION INDIVIDUALS IDENTIFYING FUNCTION PERFORMED G roup I G roup I I L e g . L e g .- E x e c . S y stem C o u n c il Coun. S t a f f S t a f f Members S t a f f T o ta l I n n o v a t i o n Yes 3 5 3 6 4 21 No 3 10 8 6 2 29 L e g . I n v e s t i g a t i o n Yes 1 2 6 3 2 14 No 5 13 6 9 4 37 ; I m a g e - B u ild in g Yes 3 8 7 8 3 29 No 2 7 5 4 3 21 R e s e a r c h Yes 5 14 9 10 6 44 No 0 1 3 1 0 5 B udget O f f i c e E x te n s i o n Yes 0 4 2 2 2 10 No 5 n 9 10 4 39 A d m i n i s t r a t i o n Yes 0 4 6 6 1 17 No 5 n 6 6 5 33 (54 p e r s o n s i n t e r v i e w e d , n o t a l l r e s p o n s e s c o u ld be t a b u l a t e d . ) 212 p r e s e n t l y b e in g p e rfo rm e d . The Agency a s I n v e s t i g a t o r . A h i g h e r e d u c a ti o n a g e n c y w h ich i s a c r e a t u r e o f s t a t e governm ent d e s ig n e d t o a d v is e t h e L e g i s l a t u r e m ig ht u n d e r c e r t a i n c i r c u m s t a n c e s ' f u n c t i o n v e ry much a s a l e g i s l a t i v e i n v e s t i g a t i n g co m m ittee s t a f f f o r h i g h e r e d u c a ti o n . To s e e i f t h i s i s t h e common p e r c e p t i o n o f t h e f u n c t i o n i n g o f t h e C a l i f o r n i a a g e n c y , a q u e s t i o n to t h a t e f f e c t was a s k e d o f p e rs o n s i n t e r v i e w e d . F o r p u rp o s e s o f e x p l a n a t i o n t h e O f f i c e o f th e C a l i f o r n i a L e g i s l a t i v e A n a ly s t was g e n e r a l l y c i t e d a s t h e k i n d o f com m i t t e e i n v e s t i g a t i n g s t a f f im p lie d by t h e q u e s tio n .- ^ 0 The q u e s t i o n a l s o s u g g e s t s t h e e x t e n t to w h ic h th e C o u n c il an d i t s s t a f f a r e v iew ed a s a n arm o f L e g i s l a t u r e i n C a l i f o r n i a . M ost p e rs o n s in te r v ie w e d d i d n o t c o n s i d e r t h e Coun c i l f u n c t i o n i n g i n su c h a f a s h i o n . I n a l l , tw e n ty - s e v e n i n t e r v i e w e e s to o k t h i s p o s i t i o n w h ile o n ly f o u r t e e n p e rs o n s b e l i e v e d t h a t t h i s was a c o r r e c t c h a r a c t e r i s a t i o n o f a C o u n c il f u n c t i o n . G roup I , com posed o f l e g i s l a t o r s and s t a f f , c l e a r l y d i d n o t view t h i s f u n c t i o n as a t t r i b u t a b l e to t h e C a l i f o r n i a C o u n c il ( t h r e e w ere c l a s s i f i e d M y e s" an d e i g h t e e n " n o ")* H ow ever, e le v e n p e r s o n s i n t h e se co n d g ro u p in g th o u g h t t h e C o u n c il d id f u n c t i o n i n t h i s m anner com pared w i t h n i n e t e e n who d i d n o t . 30 The C a l i f o r n i a L e g i s l a t i v e A n a ly s t i s em ployed by a J o i n t L e g i s l a t i v e B udget C om m ittee o f t h e C a l i f o r n i a L eg i s l a t u r e . 213 Im age B u ild in g * A n o th er f u n c t io n w h ich th e h ig h e r h ig h e r e d u c a tio n a g e n c y m ig h t p erform i s t h a t o f s e e k in g to en han ce th e s t a t u s o f h ig h e r e d u c a tio n in t h e e y e s o f th e L e g is la t u r e and th e e x e c u t iv e a s w e l l a s th e g e n e r a l pub l i c . P erform an ce o f t h i s f u n c t io n m igh t p o s s i b l y be e x p e c te d to in c r e a s e in im p o rta n ce a s p u b lic a t t e n t i o n i s fo c u s e d to g r e a t e r e x t e n t upon th e a f f a i r s o f th e c o l l e g e cam pus. To a s s e s s w h eth er o r n o t th e C a lif o r n ia a g en cy i s p e r c e iv e d a s p e r fo r m in g a f u n c t io n o f e n h a n c in g th e p u b lic im age o f h ig h e r e d u c a tio n , I n t e r v ie w e e s w ere a sk e d i f th e y v iew ed th e C a lif o r n ia C o o r d in a tin g C o u n c il a s b e in g a pub l i c r e l a t i o n s v e h i c l e f o r h ig h e r e d u c a t io n . T w e n ty -n in e o f th e r e sp o n d e n ts s t a t e d t h a t th e C o u n c il c o u ld be con s id e r e d a s f u n c t io n in g i n su ch a m anner, w h ile tw e n ty -o n e d id n o t a g r e e . E le v e n o f th e l e g i s l a t o r s and l e g i s l a t i v e - e x e c u t iv e s t a f f in Group I a s s o c i a t e d th e f u n c t io n w ith t h e C o u n c il and n in e d id n o t . I n Group I I , e ig h t e e n a g r e e d , and tw e lv e d id n o t . One C o u n c il member s u g g e s te d t h a t some a c t io n s o f th e board w orked to th e d e tr im e n t o f h ig h e r e d u c a tio n ; he s t a t e d he had i n m ind th e h a n d lin g o f th e i s s u e o f t u i t i o n f o r th e U n iv e r s it y and s t a t e c o l l e g e s . A l e g i s l a t o r v ie w e d th e p er form an ce o f th e im age b u i ld in g - f u n c t i o n a s i n e v i t a b l e w h eth er t h e C o u n c il f o r m a lly r e c o g n iz e d i t o r n o t . A Coun c i l member c a l l e d a t t e n t i o n to in c r e a s in g p r e s s c o v e r a g e o f 21A C o u n c il m e e tin g s and c o n se q u e n t p u b lic a w a r en ess o f m a tte r s o f c o n c e r n to h ig h e r e d u c a tio n . B udget R eview and C o n tr o l. The h ig h e r e d u c a tio n a g en cy may have s t a t u t o r y a u t h o r it y to p r e p a r e and su b m it b u d g e ts f o r t h e s e v e r a l i n s t i t u t i o n s o f h ig h e r e d u c a tio n u n d er i t s c o n tr o l* I n t h i s s i t u a t i o n , on e p a t t e r n o f r e l a t io n s h ip s and f u n c t io n s w i l l l i k e l y d e v e lo p w ith t h e e x e c u t i v e o f f i c e c h a r g ed w ith p r e p a r in g a b u d g e t f o r t h a t s t a t e . H ow ever, a. d i f f e r e n t s e t o f r e l a t i o n s h i p s ca n be e x p e c te d i f th e a g en cy h a s a more l im i t e d r o l e i n th e b u d g et p r o c e ss * I n th e in s ta n c e o f th e C a lif o r n ia a g en cy w it h i t s a d v is o r y f u n c t i o n , a p a t t e r n m igh t be p e r c e iv e d w h ich w ould have t h e C a lif o r n ia C o u n c il f u n c t io n in g in e f f e c t a s an e x t e n s io n o f t h e s t a t e ' s b u d g et-m a k in g a g e n c y , th e D ep a rt m ent o f F in a n c e . I n t h i s v ie w , th e C o o r d in a tin g C o u n c il m igh t be c o n s id e r e d to be c a r r y in g o u t t h e d i c t a t e s o f th e b u d g et-m a k in g and e x e c u t io n a g en cy th ro u g h d ev elo p m en t o f b u d get fo r m u la e , a d v ic e o n new program n e e d s , and n eed f o r new f a c i l i t i e s , Such a p e r c e p t io n c o u ld be c o n s id e r e d l i k e l y when i t i s n o te d t h a t th e C a lif o r n ia D epartm ent o f F in a n c e up to t h e tim e o f th e M aster P la n and a f t e r has p la y e d an im p o r ta n t r o le i n c h a n n e lin g t h e d ev elo p m en t o f th e C a l i f o r n ia S t a t e C o lle g e s and t h a t s i n c e th e c r e a t i o n o f th e s e p a r a te sy ste m f o r th e s t a t e c o l l e g e s , e f f o r t s on t h e i r p a r t to g a i n g r e a t e r f i s c a l autonom y have m et o n ly w ith l i m i t e d s u c c e s s . I n su ch a s i t u a t i o n , th e c o o r d in a t in g 215 a g e n c y m ig h t h ave b een e x p e c te d t o ta k e o v e r c e r t a i n o f th e D epartm ent o f F in a n c e r o le s e i t h e r a s i t s a g e n t , o r on an in d ep en d e n t b a s i s , a s a com prom ise in s t e a d o f c o m p le te sy ste m f i s c a l autonom y. I n o r d e r t o d e ter m in e th e e x te n t to w h ich th e C a li f o r n i a a g e n c y h as te n d e d t o f u n c t i o n as s u g g e s te d a b o v e , r e s p o n d e n ts w ere a sk ed i f i n t h e i r o p in io n th e C o u n c il a t tim e s o p e r a te d a s th ou gh i t w ere an e x t e n s io n o f th e S t a t e D epartm ent o f F in a n ce? O nly t e n o f f o r t y - n in e r e s p o n d in g to th e q u e s t io n th o u g h t t h a t th e C o u n c il d id f u n c t i o n i n t h i s m anner. One h ig h e r e d u c a tio n s t a f f member r e c a l l e d t h a t a t th e tim e o f th e M aster P la n , i t was hoped th e agency w ou ld a b so r b some o f th e f u n c t io n s o f th e D epartm ent o f F in a n c e . He was d is a p p o in te d i t h a d n ’ t . The R e se a rc h F u n c tio n . A h ig h e r e d u c a t io n a g e n c y ch a rg ed w ith p la n n in g f u n c t io n s may w e l l be v ie w e d as a r e s e a r c h group f o r h ig h e r e d u c a tio n . T h is f u n c t io n may be m ost c l o s e l y a s s o c i a t e d w ith th e s t a f f to th e a g e n c y b oard th ou gh th e board i t s e l f may ta k e on an a u ra o f a d i r e c t o r a t e f o r p a r t i c u la r r e s e a r c h p r o j e c t s . To d e te r m in e i f I n d iv id u a ls co n c er n e d w it h th e C a li f o r n i a a g e n c y a c t i v i t i e s v ie w th e board and i t s s t a f f a s p e r fo r m in g th e r e s e a r c h f u n c t i o n , in t e r v ie w e e s w ere a sk e d i f th e y b e lie v e d th e C o u n c il c o u ld be c o n s id e r e d a s a r e s e a r c h group? N e a r ly a l l r e s p o n s e s w ere in th e a f f i r m a t i v e : f o r t y - f o u r o f f o r t y - n in e r e p l i e d f a v o r a b le to th e q u e s t io n . 216 F our o f th e n e g a t iv e r e p l i e s w ere made by p e r s o n s i n Group I I , in c lu d in g one C o u n c il member and t h r e e s t a f f members o f i n s t i t u t i o n s . P e r c e p t io n s o f C o u n c il C o n tr ib u tio n : S e l e c t e d I s s u e s I n d iv id u a l p e r c e p t io n s o f th e C a l i f o r n ia H ig h e r E d u c a tio n A gen cy may b e b a sed in p a r t upon i n d iv i d u a l Judg m en ts a s to a g e n c y 's c o n t r i b u t i o n tow ard t h e s o l u t i o n o f p ro b lem s o f c o n c e r n t o h ig h e r e d u c a t io n . B ased upon a r e v ie w o f t h e C a l i f o r n ia C o u n c il's work 31 in r e c e n t y e a r s , and t a k in g n o te a s w e l l o f a number o f I s s u e s upon w h ich t h e r e h a s b een r e c e n t p u b lic comment in c lu d in g t h a t o f s t a t e l e a d e r s , a l i s t i n g o f i s s u e s o r q u e s t io n s w ere d e v e lo p e d . E f f o r t was th e n made to g a i n a r e s p o n s e w h e th e r th e i n d iv i d u a l in t e r v ie w e d c o n s id e r e d t h a t th e C o o r d in a tin g C o u n c il had made some s i g n i f i c a n t c o n t r i b u t io n tow ard s o l u t i o n o f th e p rob lem o r p ro d u ced a n sw e rs to th e in d u lg in g q u e s t i o n s . T ab le I I I su m m arizes th e r e s u l t s o f t h i s s e r i e s o f q u e s t io n s d e v e lo p e d fro m in t e r v ie w r e c o r d s . ( I t s h o u ld be n o te d t h a t i f tim e was s h o r t t h i s s e r i e s o f q u e s t io n s was n o t a sk ed o f c e r t a i n p e r s o n s in t e r v ie w e d .) 31 J R e fe r e n c e t o C o u n c il a d v ic e to t h e L e g i s l a t u r e a s show n in A p pend ix A w as h e l p f u l i n d e v e lo p in g t h i s l i s t i n g . 217 Most i n d iv i d u a l s ( t h i r t y - s e v e n o u t o f f o r t y - o n e r e sp o n d in g ) b e l ie v e d th e C o u n c il h as made s i g n i f i c a n t con t r i b u t i o n s in r e s p e c t to p r o p o s a ls f o r f a c u l t y s a l a r i e s . T h is a p p ea rs t o r e f l e c t th e r e c o r d in t h a t f o r s e v e r a l y e a r s th e C o u n c il h as made recom m en d ation s to th e L e g i s l a t u r e f o r s t a t e c o l l e g e and U n iv e r s it y f a c u l t y s a l a r y i n c r e a s e s . S i m i la r l y th e C o u n c il was i d e n t i f i e d w ith p r o p o s a ls f o r new c o l l e g e s and U n iv e r s it y ca m p u ses, t h i r t y - n i n e o f f o r t y p e r so n s r e s p o n d in g . (C o u n c il a c t i v i t i e s i n t h i s r e s p e c t a r e n o te d i n th e p r e c e d in g c h a p t e r ) • Some t h i r t y - f i v e p e r s o n s v ie w e d th e C o u n c il as h a v in g p la y e d a m ajor r o le i n a d o p tio n o f th e p r o p o s a l f o r a new g o v e r n in g b oard f o r th e ju n io r c o l l e g e s . As was n o te d in C h ap ter VI t h e C o u n c il r o l e in t h i s i s s u e was i n f a c t a s i g n i f i c a n t o n e . In r e s p e c t to th e q u e s t io n o f f a c u l t y c o l l e c t i v e b a r g a in in g , som e t h ir t y - t w o p e r s o n s d id n o t i d e n t i f y any C o u n c il c o n t r ib u t io n t o th e s u b j e c t w h ich i s c u r r e n t ly u n d er p u b lic d i s c u s s i o n p a r t i c u l a r l y w i t h i n t h e C a lif o r n ia S t a t e C o l l e g e s . Two p e r s o n s , h o w ev er, d id b e l i e v e th e C o u n c il had made a c o n t r ib u t io n and f i v e w ere u n c e r t a in . The r e c o r d d i s c l o s e s n e i t h e r th e C o u n c il n o r i t s s t a f f have d e v e lo p e d p o s i t i o n s on t h e s u b j e c t though th e g e n e r a l s u r v e y s o f f a c u l t y s a l a r y n eed s p erform ed a n n u a lly m igh t be c o n str u e d a s h a v in g a b e a r in g on t h e s u b j e c t . ( I n t h i s c o n n e c tio n , s e v e r a l p e r s o n s in te r v ie w e d r e c a l l e d th e D ir e c to r o f th e 218 TABLE 3 PERCEPTIONS OP CALIFORNIA AGENCX: CONTRIBUTION TO SOLUTION OP QUESTIONS AND ISSUES ISSUE INDIVIDUALS IDENTIFYING SIGNIFICANT CONTRIBUTION OF COUNCIL G roup I L e g . L e g -E x e c . S t a f f G roup I I S ystem C o u n c il S t a f f Members Coun. S t a f f T o t a l a . F a c u lt y S a l a r i e s Yes 5 11 ( l ) a 9 6 6 3 7 (1 ) No 2 0 1 0 0 3 b . New C o lle g e s Yes 6 12 9 (1 ) 6 6 3 9 ( D No 0 0 0 0 0 0 0 . J .C . B oard Yes 5 10 (1) 8 (2 ) 6 6 35(3) No 1 1 0 0 0 2 d . F a c u l t y B a r g a in in g Yes 0 1 (3) 1 (1 ) 0 (1) 0 2 (5 ) No 5 8 8 5 6 32 e . T u i t i o n & Fees Yes 4 8 (1 ) 5 1 5 2 3 (1 ) No 2 3 5 5 1 16 f . B u ild in g P ro g ram s and Bond I s s u e s Yes 4 9 (2) 9 5 4 3 1 (2 ) No 2 1 1 1 2 7 g* P la n s to F in a n c e H ig h e r E duc. Yes 3 4 2 3 3 15 No 2 8 8 3 3 24 h . S tu d e n t U n r e s t Yes 0 3 0 1 (1) 0 4 (1 ) No 6 9 10 4 6 35 U n c e r t a i n T a b le 3 . c o n tin u e d 219 ISSUE INDIVIDUALS IDENTIFYING SIGNIFICANT CONTRIBUTION OF COUNCIL Group I Group I I L e g . L e g -E x e c . S ystem C o u n c il Coun. S t a f f S t a f f Members S t a f f T o ta l i . Y ear-R ound O p e r a tio n s Yes 5 No 1 1 1 ( 1) 0 10 0 6 0 6 o 38(1 ) 1 3 . Name Change f o r S t a t e C o lle g e s Yes 1 (1 ) No 4 4 (3) 6 (1) 5 (1 ) 3 (2 ) 1 9 (8 ) 5 3 0 1 13 k . New fo rm s o f O r g a n l z a t i o n Yes 2 (1) 7 (1) 5 No 3 4 5 5 1 3 (2 ) 22(4 ) 1 14 1 . S tu d e n t S c h o l a r s h i p P ro g ra m s Yes 3 (1 ) 8 (2) No 2 2 m. S t a t e F unds f o r « T • C • C a p i t a l O u tla y y e s 6 10 (1) No 0 1 7 (1) 5 2 1 10 0 5 ( 1 ) 0 5 (1 ) 28(5) 0 7 6 0 37 1 n . F e d e r a l P rogram s f o r H ig h e r E duc. Yes 4 No 1 10 2 10 0 6 0 5 (1 ) 3 5 (1 ) 0 3 A d m issio n s S td s • Yes 3 No 0 9 (1) 2 5 4 6 0 6 0 29 6 220 C o u n c il m aking a n e x p r e s s io n o f a p e r s o n a l v ie w p o in t on th e d e s i r a b i l i t y o f b a r g a i n in g b e f o r e a l e g i s l a t i v e c o m m itte e .) A q u e s t i o n r e l a t i n g to w h e th e r th e C o u n c il had made a c o n t r i b u t i o n i n th e d i s c u s s i o n o f i n c r e a s e s i n t u i t i o n an d f e e s a t th e s t a t e c o l l e g e s and U n i v e r s i t y drew a m ixed r e s p o n s e . T w e n ty -th re e p e rs o n s b e li e v e d a c o n t r i b u t i o n had b een m ade, b u t s i x t e e n d i s a g r e e d . One p e rs o n was u n d e c id e d . The r e c o r d , a s shown i n p r e v io u s d i s c u s s i o n , m ig h t be co n s t r u e d e i t h e r way. I n d i v i d u a l s w ere a s k e d i f th e y p e r c e iv e d t h e C a l i f o r n i a ag en c y a s h a v in g p la y e d a s i g n i f i c a n t r o l e i n r e s p e c t to d e v elo p m en t o f h i g h e r e d u c a tio n b u i l d i n g program s and bond i s s u e s . T h ir ty - o n e b e li e v e d i t h a d , s e v e n s a i d i t h a d n ’ t an d two w ere u n d e c id e d . The r e c o r d shows t h e C o u n c il a s h a v in g r e v ie w e r t h e c a p i t a l o u t l a y program s o f th e s t a t e c o ll e g e s and U n i v e r s i t y o n o c c a s io n th o u g h w ith l i m i t e d recom m end atio ns r e s u l t i n g . The C o u n c il s t a f f d i d p la y a r o l e i n t h e cam paigns f o r p a s s a g e o f h i g h e r e d u c a ti o n s t a t e bond i s s u e s th o u g h t h i s p a r t i c i p a t i o n may n o t h a v e b een e s s e n t i a l . (One p e rs o n i n te r v ie w e d s t a t e d t h a t i n h i s m ind t h e d e c i s i o n o f t h e f i r s t C o u n c il D i r e c t o r to p la y a n a c t i v e r o l e i n t h e cam paign f o r P r o p o s i t i o n 1-A i n 1962 was an u n f o r t u n a t e one i n t h a t i t made th e ag en cy a p p e a r a s a t o o l o f th e D e p artm en t o f F in a n c e and t h e Brown a d m i n i s t r a t i o n . ) F i f t e e n o f t h i r t y - n i n e p e rs o n s r e s p o n d in g th o u g h t t h a t th e C o u n c il made e f f o r t s t o s u g g e s t p la n s t o f i n a n c e 221 h i g h e r e d u c a ti o n o v e r t h e l o n g - r u n . The b a la n c e d i d n o t . One e f f o r t i n t h i s s u b j e c t a r e a w h ich c a n be i d e n t i f i e d i s a n In d e p e n d e n t c o n s u l t i n g f i r m r e p o r t co m m issio ned by th e 32 C o u n c il some y e a r s a g o . The C o u n c il 's s tu d y o f j u n i o r c o l l e g e s f i n a n c e may be c i t e d a s w e l l . A g e n e r a l i s s u e o f t h e moment h a s b e e n th e m a t t e r o f s t u d e n t u n r e s t o n cam puses and a t c o l l e g e s th r o u g h o u t th e c o u n tr y a s w e ll a s i n C a l i f o r n i a . I n t e r v i e w e e s w e re a s k e d i f th e y b e l i e v e d t h e C o u n c il had b e e n c o n c e rn e d w i t h a s p e c t s o f t h i s s u b j e c t . N e a rly a l l r e s p o n s e s w ere n e g a t i v e ( t h i r t y - f i v e o f f o r t y , w i t h one p e r s o n u n c e r t a i n ) . T h is p e r c e p t i o n a p p e a r s to r e f l e c t t h e r e c o r d a c c u r a t e l y i n t h a t t h e C a l i f o r n i a C o u n c il h a s n o t c o n c e rn e d i t s e l f w ith s tu d e n t d i s c i p l i n e an d r e l a t e d m a t t e r s . A lm ost a l l p e rs o n s ( t h i r t y - e i g h t o f f o r t y ) a g re e d t h a t th e C o u n c il h a d c o n t r i b u t e d t o th e i n s t a l l a t i o n o f y e a r - r o u n d o p e r a t i o n s o n s e l e c t e d cam p u ses. An i s s u e w h ic h a r o s e d u r in g t h e 19^7 l e g i s l a t i v e s e s s i o n r e l a t e d to w h e th e r o r n o t t h e s t a t e c o l l e g e s s h o u ld be p e r m i t t e d to ch an g e t h e i r n o m e n c la tu re fro m " C a l i f o r n i a S t a t e C o lle g e s " t o " C a l i f o r n i a S t a t e U n i v e r s i t i e s " . N in e t e e n p e rs o n s th o u g h t t h e C o u n c il had made a c o n t r i b u t i o n , t h i r t e e n d i d n o t a n d e i g h t w ere u n c e r t a i n . A t th e tim e t h e -*2G r if f e n h a g e n - K r o e g e r , I n c . , C a l i f o r n i a 's A b i l i t y t o F in a n c e H ig h e r E d u c a tio n (S a n F r a n c i s c o : F e b r u a r y , 1 9 6 3). 222 q u e s t io n w as a sk e d , th e C o u n c il s t a f f was i n th e p r o c e s s o f p r e p a r in g a stu d y o n th e s u b j e c t and no s i g n i f i c a n t d i s c u s s io n had y e t o c c u r r e d . I n t e r v ie w e e s w ere a l s o a sk ed i f th e y b e lie v e d th e C o u n c il had made a c o n t r ib u t io n by s u g g e s t in g new form s o f o r g a n iz a t io n f o r h ig h e r e d u c a t io n . T w enty-tw o th o u g h t s o , f o u r t e e n d id n o t and fo u r w ere u n c e r t a in . A number o f p e r so n s m en tio n ed th e C o u n c il r o le i n r e s p e c t to th e new j u n io r c o l l e g e g o v e r n in g b oard a s b e in g a c o n t r ib u t io n . C o u n c il c o n t r ib u t io n was a ls o i d e n t i f i e d tow ard d ev elo p m en t o f stu d e n t- s c h o la r s h ip program s ( t w e n t y - e ig h t " y e s " , s e v e n "no" and f i v e " u n c e r ta in " ) and d ev elo p m en t o f p la n s to d i s t r i b u t e s t a t e fu n d s f o r c a p i t a l o u t la y f o r th e j u n io r c o l l e g e s ( t h i r t y - s e v e n "yes" o u t o f t h i r t y - e i g h t r e s p o n s e s ) . T h i r t y - f i v e r e c o g n iz e d t h e C o u n c il r e s p o n s i b i l i t i e s in a d m in is t r a t io n o f f e d e r a l program s a id in g h ig h e r e d u c a tio n ( t h r e e d id n o t and on e was n o t c e r t a i n ) . F i n a l l y , m ost p e r so n s th o u g h t th e C o u n c il had p la y e d a m ajor r o le in r e s p e c t t o q u e s t io n s o f a d m is s io n s ta n d a r d s f o r h ig h e r edu c a t io n : tw e n ty -n in e o u t o f t h i r t y - f i v e r e s p o n d in g . F or th e m ost p a r t t h i s l i s t i n g o f i s s u e s and i n d i v i d u a l p e r c e p t io n s o f C o u n c il c o n t r ib u t io n tow ard s o l u t i o n o f th e p rob lem s a r i s i n g from t h o s e i s s u e s r e f l e c t s t h e r e c o r d o f th e C o u n c il q u it e c l o s e l y . M ost p e r so n s n o te d t h a t th e r e had b e e n l i t t l e c o n t r ib u t io n in r e s p e c t to f a c u l t y c o l l e c t i v e b a r g a in in g , s tu d e n t u n r e s t and p la n s t o f in a n c e h ig h e r 223 e d u c a tio n o v e r t h e lo n g r u n . The r e c o r d show s l i t t l e a c t i v i t y i n t h i s r e s p e c t . On o t h e r i s s u e s in w h ich m ost i n d i v id u a ls i d e n t i f i e d a c o n t r ib u t io n , t h e r e c o r d shows e i t h e r a c t io n s a lr e a d y made by th e C o u n cil o r s t u d ie s p e n d in g . Prom t h i s a s s e s s m e n t o f C o u n c il c o n t r ib u t io n s and th e r a th e r c lo s e c o r r e l a t i o n to th e h i s t o r i c a l r e c o r d i t m igh t be s u g g e s te d th a t o n th e w h o le th e p e r so n s r e sp o n d in g w ere q u i t e f a m i li a r w ith t h e p r e s e n t and p a s t a c t i v i t i e s o f th e C o u n c il— t h i s w ou ld be as e x p e c te d among C o u n cil members and s t a f f , but n o t n e c e s s a r i l y to su ch an e x t e n t among t h e o th e r s in t e r v ie w e d . P resu m ab ly th e k n ow led ge o f th e C o u n c il w orks i d e n t i f i e d among r e s p o n s e s en h a n ces th e r e s u l t i n g c h a r a c t e r iz a t io n s o f th e C o u n c il in term s o f r o l e s and f u n c t io n s p erfo rm ed . S t a t e G overnm ent o r H ig h er E d u c a tio n ? An a g en cy su ch a s t h e C a lif o r n ia C o o r d in a tin g C o u n c il f o r H ig h er E d u c a tio n i s by v i r t u e o f s t a t u t o r y s ta te m e n t a c r e a tu r e o f s t a t e g o v ern m en t, y e t i t s ta s k s and a d v is o r y n a tu r e in r e s p e c t to th e sy ste m s o f h ig h e r e d u c a tio n may lead, to d i f f e r i n g judgm ents a s t o w h eth er th e a g e n c y i s in f a c t c o n s id e r e d a p a r t o f s t a t e govern m ent o r p erh ap s more a p a r t o f h ig h e r e d u c a tio n a s s u c h . W ith in th e c o n t e x t o f in t e r v ie w d i s c u s s i o n o f r o l e s and f u n c t io n s p erform ed by th e C o u n c il, in t e r v ie w e e s w ere a sk ed i f th e C o u n c il te n d e d to be m ore a p a r t o f s t a t e g o v — 224 e m in e n t o r te n d e d more to w a rd b e in g a p a r t o f h i g h e r e d u c a t i o n ? (F o r p u rp o s e s o f t h i s q u e s t i o n t h e i n t e r v i e w e e was a s k e d to c o n s i d e r p u b l i c h i g h e r e d u c a ti o n a s s e p a r a t e fro m s t a t e g o v ern m en t as s u c h .) R e s u l t s o f t h i s q u e s t i o n i n d i c a t e no common v ie w . S l i g h t l y m ore p e rs o n s t e n d to c o n s i d e r t h e C a l i f o r n i a Coun c i l a s a p a r t o f s t a t e g o v ern m en t i n s t e a d o f h i g h e r e d u c a t i o n . H ow ever, n e a r l y a n e q u a l num ber, e i t h e r c o u ld n o t make a ju d g m e n t, o r e x p r e s s l y s t a t e d th e y th o u g h t t h e Coun c i l c o u ld be i d e n t i f i e d w ith n e i t h e r g r o u p in g an d s h o u ld be 33 p l a c e d som ewhere i n b e tw e e n . _ _ P e rfo rm a n c e A sse ssm e n t A t t h e c o n c lu s io n o f t h e i n t e r v i e w s e s s i o n , i n t e r v ie w e e s w ere a s k e d t o i n d i c a t e a n o v e r a l l p e rfo rm a n c e r a t i n g w h ic h th e y w o u ld a p p ly t o t h e C o u n c il: f i r s t , i n r e s p e c t to i t s r e l a t i o n s h i p s w ith s t a t e g o v e rn m e n t; an d s e c o n d ly , i n r e s p e c t to r e l a t i o n s h i p s w ith h i g h e r e d u c a t i o n . T h is q u e s t i o n i n m ost i n s t a n c e s was p o se d a f t e r c o n s i d e r a b l e d i s c u s s i o n o f t h e C o u n c il 's p e rfo rm a n c e s a s w e l l a s some o f t h e w ays i n w h ic h t h e i n d i v i d u a l b e l i e v e d t h e C o u n c il s h o u ld - ^ T a b u l a t i o n o f r e s u l t s show s e v e n t e e n p e rs o n s v ie w i n g t h e C o u n c il as a p a r t o f s t a t e g o v ern m en t an d f o u r t e e n v ie w in g i t a s a p a r t o f h i g h e r e d u c a t i o n . A n o th e r f o u r t e e n c o u ld be p l a c e d in n e i t h e r g ro u p . The m ethod o f p o s in g t h e q u e s t i o n was changed a f t e r i n i t i a l i n t e r v i e w s , c o n s e q u e n tly r e s u l t s s h o u ld be c o n s id e r e d o n ly s u g g e s t i v e o f o p i n i o n . p e rf o rm . I n d i v i d u a l s w ere a s k e d to r a t e p e rfo rm a n c e s a s b e in g " h i g h " , "m edium ", " lo w " , o r " i n e f f e c t i v e " . I t was s u g g e s t ed t h a t t h i s r a t i n g be d e te rm in e d much a s t h e f i n a l o v e r a l l r a t i n g o f a n i n d i v i d u a l i s made on p e r s o n n e l p e rfo rm a n c e r e p o r t s . R e s u l t s o f t h e q u e s t i o n a r e t a b u l a t e d i n T a b le IV . They show t h a t t h e m a j o r i t y o f p e rs o n s in te r v ie w e d te n d e d to r a t e t h e C o u n c il a t a "medium" p e rfo rm a n c e l e v e l g iv e n t h e f o u r c h o ic e s b o th i n r e s p e c t r e l a t i o n s h i p s w ith s t a t e g o v ern m en t and th o s e w ith t h e h i g h e r e d u c a ti o n s y s te m s . H ow ever, a s i g n i f i c a n t num ber te n d e d t o g iv e t h e C o u n c il a "low " r a t i n g . O nly one r e s p o n d e n t c o n s i d e r e d t h e C o u n c il i n e f f e c t i v e and th e n i n r e s p e c t to r e l a t i o n s h i p s w i t h s t a t e g o v ern m en t o n l y . M ost p e rs o n s te n d e d t o g i v e th e same r a t in g b o th i n r e s p e c t to p e rfo rm a n c e v i s - a - v i s s t a t e g o v e rn m ent and p e rfo rm a n c e v i s - a - v i s t h e h i g h e r e d u c a t i o n s y s te m s . I n tw e lv e I n s t a n c e s t h e r e was a d i f f e r e n c e b e tw e e n t h e two i n d i v i d u a l r a t i n g s : e i g h t o f t h e s e w ere h i g h e r f o r s t a t e g o v ern m en t r e l a t i o n s h i p s t h a n t h o s e g iv e n i n r e s p e c t to t h e h i g h e r e d u c a ti o n c o n s t i t u e n c y . The C a l i f o r n i a Agency C h a r a c te r iz e d The p o l i t i c a l l y - r e l e v a n t r o l e s and f u n c t i o n s d i s c u s s e d i n t h e f o r e g o i n g may be c o n s id e r e d t o g e t h e r a s form in g a c o m p o s ite c h a r a c t e r i z a t i o n o f th e C a l i f o r n i a C o o rd in - 226 TABLE * J - THE CALIFORNIA AGENCY: OVERALL PERFORMANCE RATINGS RATING RATINGS IN RESPECT TO RELATIONSHIPS WITH STATE GOVERNMENT Group I G roup I I L e g . L e g -E x e c . S t a f f S ystem S t a f f C o u n c il Members Coun. S t a f f Total H igh 1 k 0 2 0 7 Medium 5 6 5 5 k 25 Low 1 it it 1 2 12 I n e f f e c t i v e 1 0 0 0 0 1 RATINGS IN RESPECT TO RELATIONSHIPS WITH HIGHER EDUCATION H igh 0 it 0 3 0 7 Medium 5 6 it 3 2 20 Low l it 5 2 it 16 I n e f f e c t i v e 0 0 0 0 0 0 227 a t l n g C o u n cil f o r H ig h e r E d u c a tio n a s i t was view ed i n l a t e 1 9 6 7 . R esp o n ses to q u e s t io n s i n d i c a t e d t h a t n e a r l y a l l p e rs o n s b e li e v e d th e C a l i f o r n i a C o u n c il to be p e rfo rm in g r o l e s w hich c o u ld be d e s c r i b e d a s i n c l u d i n g m e d ia to r o f h i g h e r e d u c a tio n c o n f l i c t s , e x p e r t a d v i s o r to t h e L e g i s l a t u r e and G overnor and a spokesm an f o r h ig h e r e d u c a tio n i n t e r e s t s * The ag en cy i s v e ry seldom view ed a s th e l e a d e r o f h ig h e r e d u c a tio n i n th e s t a t e . The m a j o r i t y o f p e rs o n s do n o t b e li e v e th e C o u n c il p e rfo rm s a l o b b y i s t r o l e f o r h i g h e r e d u c a tio n n o r one a s a r b i t r a t o r o f h i g h e r e d u c a tio n c o n f l i c t s w ith th e C o u n c il’s d e c i s i o n s b in d in g de f a c t o u p o n th e p a r t i e s . I n c o n s i d e r i n g a s e t o f f u n c t i o n s w h ich c o u ld be p e rfo rm e d by t h e C o u n c il u n d e r c e r t a i n c ir c u m s ta n c e s , n e a r l y a l l in te r v ie w e e s a g re e d t h a t th e C o u n c il a c t s much a s a r e s e a r c h g ro u p . A m a j o r it y c o n s i d e r t h e C o u n c il i s a t tim e s engaged i n an im a g e - b u ild in g f u n c t i o n f o r h i g h e r edu c a t i o n . Pew i n d i v i d u a l s p e r c e iv e t h e C o u n c il a s a c t i n g i n a n y way as a n e x te n s i o n o f th e s t a t e D ep artm en t o f F in a n c e i n i t s b u d g e t-m a k in g and re v ie w f u n c t i o n . S i m i l a r l y few p e rs o n s se e t h e ag en c y p e rfo rm in g a n a d m i n i s t r a t i v e f u n c t i o n o r in a c a p a c i ty a s i n v e s t i g a t o r o n b e h a l f o f t h e L eg i s l a t u r e i n t o h ig h e r e d u c a tio n q u e s t i o n s . F i n a l l y , a m a j o r i t y o f p e rs o n s do n o t c o n s id e r t h e C o u n c il a s p e rfo rm - i n g a f u n c t i o n d e v o te d to I n n o v a tio n f o r h i g h e r e d u c a tio n . 228 The a s s e s s m e n t o f t h e r o l e s an d f u n c t i o n s p e rfo rm e d by t h e C a l i f o r n i a a g e n c y a p p e a r s to be b a s e d u p o n a r e l a t i v e l y c l e a r p e r c e p t i o n o f t h e r e c o r d o f t h e C o u n c il on th e p a r t o f m o st i n d i v i d u a l s . F i n a l l y , t h i s r e c o r d an d p e r c e iv e d p e rfo rm a n c e s l e a d m o st p e rs o n s t o r a t e t h e C o u n c il i n te rm s o f a "medium1 1 e f f e c t i v e n e s s o r i n a num ber o f i n s t a n c e s a "low " r a t i n g b o th i n r e s p e c t to r e l a t i o n s h i p s w ith s t a t e go vern m ent an d w i t h t h e h i g h e r e d u c a t i o n sy s te m s a s w e ll* The f o r e g o i n g f i n d i n g s a p p e a r to s u g g e s t a c o m p o s ite im age o f t h e C a l i f o r n i a agency* An image o f a r e l a t i v e l y p a s s i v e g ro u p a s p i r i n g m o s tly t o t h e s p e c i a l i z e d e x p e r t r o l e s an d seld o m to w a rd a c t i v i t i e s w h ich s u g g e s t l e a d e r s h i p 34 f o r h i g h e r e d u c a ti o n i n t h e s t a t e . I t s o v e r a l l p e r f o r m ances a r e g e n e r a l l y v iew ed a s b e in g o f m o d e ra te o r l i m i t e d e f f e c t i v e n e s s ; i t i s n o t c l e a r l y i d e n t i f i e d w ith s t a t e g ov ern m en t o n t h e one h a n d , o r h i g h e r e d u c a ti o n o n t h e o th e r. 34 I n a n a l y s i s o f i n t e r v i e w r e s p o n s e s a s w e l l a s i n t h e n a t i o n a l s u rv e y r e p o r t e d i n P a r t I I I , i t i s s u g g e s te d t h a t c e r t a i n o f t h e r o l e s and f u n c t i o n s a r e i d e n t i f i e d w ith a n " e x p e r t " im age o f t h e a g e n c y . O th e rs may be c l a s s i f i e d a s b e in g m ore r e l e v a n t t o a n a g e n c y e m p h asis u p o n t h e l e a d e r s h i p a s p e c t s * F o r e x am p le , i n n o v a t i o n , lo b b y in g o r a d v o c a c y , a s w e l l a s b e in g t h e " l e a d e r " o f h i g h e r e d u c a t i o n i n t h e s t a t e s u g g e s t a n a c t i v e , a g g r e s s i v e a g e n c y i n s e e k in g t o in f lu e n c e * O th e r r o l e s an d f u n c t i o n s , su c h a s th o s e r e l a t i n g t o r e s e a r c h o r a d v is o r y p e rfo rm a n c e s i n r e s p e c t t o G o v ern o r an d L e g i s l a t u r e a p p e a r to s t r e s s th e " e x p e r t " im age to a g r e a t e r d e g r e e . I t i s n e x t a p p r o p r i a t e t o c o n s i d e r some o f t h e ways i n w h ich p e rs o n s b e l i e v e t h e C a l i f o r n i a ag en c y s h o u ld p e r fo rm i n i t s r e l a t i o n s h i p s w ith p o l i t i c a l a c t o r s an d i n s t i t u t i o n s o f s t a t e g o v ern m en t i n c l u d i n g th e t o o l s an d s t r a t e g i e s o f i n f l u e n c e w h ic h i t c o u ld em ploy. C H A PT E R V III EXPECTATIONS OF PERFORMANCE FOR THE CALIFORNIA AGENCY The re v ie w i n C h a p te r IV o f t h e s t e p s l e a d in g to th e re c o m m e n d a tio n f o r a c o o r d i n a t i n g ag en cy f o r h ig h e r e d u c a t i o n i n C a l i f o r n i a d i s c l o s e d t h e r e was i n i t i a l l y no c l e a r c o n c e p ti o n o f t h e ways i n w h ich t h e ag en cy s h o u ld s e e k to make i t s i n f l u e n c e f e l t i n th e p o l i t i c a l m i l i e u . F u r t h e r t h e p e r c e p t i o n s o f t h e ag en c y h e l d by i n d i v i d u a l s c l o s e to t h e C o u n c il a n d s t a t e g o v ern m en t a p p e a r to s u g g e s t t h a t th e C o u n c il i s n o t s e e n a s a s i g n i f i c a n t f o r c e I n h i g h e r e d u c a t i o n , b u t n e v e r t h e l e s s i s r e c o g n iz e d a s h a v in g c o n t r i b u t e d I n some d e g re e t o p u b l i c p o l i c y d e v e lo p m e n t o n a num ber o f s p e c i f i c I s s u e s . I t i s v iew ed a s p r o v i d in g some d e g re e o f e x p e r t i s e i n t h e d e c is io n - m a k in g p r o c e s s a n d s e r v e s a s one a r e n a f o r t h e d i s c u s s i o n o f i s s u e s to w a rd t h e d e v elo p m e n t o f c o n s e n s u s and a g re e m e n t. I s t h i s p e rfo rm a n c e p a t t e r n a d e q u a te a s s e e n by I n t e r e s t e d I n d i v i d u a l s ? What m a jo r c h a n g e s , i f a n y , a r e r e q u i r e d to make t h e C a l i f o r n i a C o u n c il m ore e f f e c t i v e w i t h i n t h e p o l i t i c a l p r o c e s s ? I n t h e f o llo w in g p a g e s , a s p e c t s o f t h e p r o c e s s o f C o u n c il r e l a t i o n s h i p s w i t h t h e l e g i s l a - 230 231 t i v e - e x e c u t i v e and t h e h i g h e r e d u c a ti o n s y s te m s a s t h e y come i n t o c o n t a c t w i t h i n t h e p o l i t i c a l c o n t e x t a r e d i s c u s s ed f u r t h e r . The d i s c u s s i o n i s fo c u s e d u p o n t h e e x t e n t to w h ic h kmowledgaable p e rs o n s b e l i e v e t h e C o u n c il s h o u ld s e e k p a s s a g e o f s p e c i f i c l e g i s l a t i v e p r o p o s a l s o f b e n e f i t to h i g h e r e d u c a t i o n , th e p o s t u r e t h e a g en c y s h o u ld t a k e i n r e s p e c t to t h e o f f i c e o f t h e G o v e rn o r, r e l a t i o n s h i p s w ith t h e L e g i s l a t u r e ’ s J o i n t C om m ittee o n H ig h e r E d u c a tio n , and t h e e x t e n t to w h ich t h e C o u n c il s h o u ld c o o p e r a te w ith o t h e r h i g h e r e d u c a ti o n l o b b i e s . A c o n c lu d in g p o r t i o n o f th e c h a p t e r re v ie w s t h e p e r c e i v e d n eed f o r change w i t h i n t h e o r g a n i z a t i o n , i t s s t r u c t u r e o r f u n c t i o n . S u p p o rt f o r L e g i s l a t i o n ; A p p r o p r ia te P e rfo rm a n c e s I n l a r g e p a r t t h e p e r c e p t i o n s o f t h e h i g h e r e d u c a t i o n a g e n c y w i t h i n t h e c o n te x t o f t h e s t a t e g o v ern m en t d e c i s io n -m a k in g p r o c e s s may be th e r e s u l t o f t h e ways i n w hich t h e a g e n c y i s s e e n t o c o n d u c t i t s e l f i n i n f l u e n c i n g p a s s a g e o f l e g i s l a t i o n . D u rin g i n t e r v i e w s , a n e f f o r t was made to i d e n t i f y t h e l i m i t s i n d i v i d u a l s b e li e v e d to be o p e r a t i v e o n t h e Coun c i l I n r e s p e c t to i t s s u p p o r t f o r s p e c i f i c l e g i s l a t i v e p r o p o s a l s . I n t e r v i e w e e s w ere a s k e d i f th e y b e l i e v e d t h e Coun c i l s h o u ld t a k e p o s i t i o n s s u p p o r t i n g o r o p p o s in g s p e c i f i c l e g i s l a t i v e p r o p o s a ls ? They w ere a l s o r e q u e s t e d to r e p l y to a s e r i e s o f q u e s t i o n s — v a r i e d t o th e c ir c u m s ta n c e s — d e s ig n e d 232 to d e te rm in e how a g r e s s i v e a n a g e n c y su c h a s t h e C o u n c il s h o u ld he i n s e e i n g t h a t i t s p o s i t i o n o n l e g i s l a t i o n i s made known, and w hat m ethods i t s h o u ld u s e . N e a rly a l l p e rs o n s in te r v ie w e d b e l i e v e d i t a p p ro p r i a t e f o r th e C a l i f o r n i a C o u n c il t o ta k e p o s i t i o n s on s p e c i f i c l e g i s l a t i v e p r o p o s a l s and i n so d o in g I n d i c a t e s u p p o r t o r o p p o s i t i o n ( f o r t y - o n e o f f o r t y - s i x p e rs o n s r e s p o n d i n g ) H o w e v e r , s e v e r a l i n d i v i d u a l s q u a l i f i e d t h e i r r e s p o n s e by n o t i n g t h a t p o s i t i o n s s h o u ld be t a k e n o n m ajo r q u e s t i o n s on ly * A num ber i n d i c a t e d t h a t a d o p t i o n o f p r i n c i p l e s o r a g e n e r a l s e r i e s o f s t a te m e n t s w h ic h m ig h t be a p p l i e d t o i n d i v i d u a l p i e c e s o f l e g i s l a t i o n was p r e f e r a b l e to fo rm a l a c t i o n e n d o r s in g o r o p p o s in g a m e a s u re . Though m ost p e rs o n s f a v o r e d t h e C o u n c il m aking s t a te m e n t s r e l a t i v e to l e g i s l a t i v e m e a s u re s , i n d i v i d u a l s i n te r v ie w e d i n t h e c o u rs e o f t h e s tu d y a p p e a re d to ta k e som ewhat d i f f e r i n g p o s i t i o n s a s t o t h e e x t e n t to w hich t h e C o u n c il and i t s s t a f f s h o u ld a c t i v e l y s e e k t o make th e p o s i t i o n s o f t h e C o u n c il known i n t h e l e g i s l a t i v e a r e n a . To d e te rm in e d i f f e r i n g a p p ro a c h e s a s e r i e s o f q u e s t io n s w ere a s k e d m ost in te r v ie w e e s d e s ig n e d to draw from them t h e -* \A re v ie w o f t h e C o u n c il r e c o r d s th r o u g h 196? shows no a c t i o n e n d o rs in g o r o p p o s in g a s p e c i f i c p i e c e o f l e g i s l a t i o n . A t t h e March 1968 m e e tin g , a c t i o n s w ere ta k e n o n s p e c i f i c l e g i s l a t i v e p r o p o s i t i o n s f o r t h e f i r s t tim e . Some a c t i o n s o f t h e C o u n c il, h o w ev er, have b e e n t a k e n w h ich e s t a b l i s h e d b a s e s f o r p o s i t i o n s o n b i l l s a s n e e d e d . 233 a c t i o n s o r p r o c e d u re s th e y b e l i e v e d a p p r o p r i a t e t o a n a g e n c y su c h a s th e C o u n c il i n m aking i t s p o s i t i o n o n a b i l l known, o r i n s e e k in g to h av e a p i e c e o f l e g i s l a t i o n e n a c te d to c a r r y o u t some rec o m m e n d atio n o f t h e a g e n c y . R e sp o n se s t o t h e q u e s t i o n s i n d i c a t e d two g e n e r a l d i s p o s i t i o n s : one w h ich m ig h t be c o n s id e r e d a n a g g r e s s i v e a p p ro a c h a s o p p o sed t o a n o th e r w h ic h i s more p a s s i v e i n n a t u r e . Of th o s e r e s p o n s e s w h ic h c o u ld be c l a s s i f i e d , s e v e n t e e n p e rs o n s te n d e d to d e s c r i b e a n a g g r e s s i v e p a t t e r n o f a c t i o n s a s b e in g a p p r o p r i a t e , w h ile t w e n t y - f i v e i n d i c a t e d m ore p a s s i v e c o u rs e s o f a c t i o n w ere t h e more d e s i r a b l e . T hose r e s p o n s e s w h ich w ere c l a s s i f i e d a s " a g g r e s s iv e " i n n a t u r e te n d e d to d e s c r i b e a c t i o n s i n s e e k in g a b i l l ' s p a s s a g e w h ich c o u ld be a s c r i b e d to an y o t h e r lo b b y in g g ro u p , th o u g h n e a r l y a l l i n d i v i d u a l s s t a t e d i n g e n e r a l te rm s t h a t t y p i c a l , " h a r d - s e l l " lo b b y in g a c t i v i t i e s w e re n o t a p p r o p r i a t e f o r t h e C o u n c il. The a g g r e s s i v e a t t i t u d e b a s e d o n r e s p o n s e s i n i n te r v ie w s c o u ld be sum m arized much as f o llo w : To a c t i v e l y s e e k a p p e a ra n c e s b e f o r e c o m m itte e s o n m a t t e r s o f c o n c e rn ; To f i n d a u t h o r s f o r l e g i s l a t i o n i f r e q u i r e d ; c l o s e l i a i s o n w ith c o m m ittee c h a irm e n and k e y s t a f f ; c o n t a c t b e tw e e n C o u n c il members and k e y l e g i s l a t o r s on m a jo r i s s u e s ; i n a d d i t i o n , fo rm a l t r a n s m i t t a l o f a c t i o n s , p u b l i c a t i o n o f r e p o r t s , and t h e l i k e . The more p a s s i v e a p p ro a c h a p p a r e n t i n r e s p o n s e s o f some I n te r v ie w e e s c o u ld be d e s c r i b e d much as f o l lo w s : 23^ F o rm a l t r a n s m i t t a l o f C o u n c il p o s i t i o n s a n d s t a f f s t u d i e s ; t o make s t a f f a v a i l a b l e f o r comment i n l e g i s l a t i v e h e a r i n g s w hen c a l l e d u p o n ; r e s p o n s e to l e g i s l a t i v e o r e x e c u t i v e r e q u e s t s f o r a d v i c e ; p u r s u i t o f t h e in d e p e n d e n t e x p e r t c o n c e p t; p e rh a p s I n d i r e c t a s s i s t a n c e to l e g i s l a t o r s a n d s t a f f o n m a jo r q u e s t i o n s w hen r e q u e s t e d . R e s p o n s e s I n d i c a t e t h a t no d e a d l i n e s o f d e m a rc a t i o n c a n be d e s c r i b e d b e tw e e n two a c t i v e a p u r s u i t o f i n t e r e s t s w i t h i n t h e l e g i s l a t i v e h a l l s , o r to o p a s s i v e a o n e . T h e re does a p p e a r g e n e r a l a g re e m e n t t h a t I t i s n o t d e s i r a b l e ( e v e n i f f e a s i b l e ) f o r t h e C o u n c il and i t s s t a f f t o "w ork1 1 a l l members o f t h e L e g i s l a t u r e o n a q u e s t i o n o f c o n c e rn t o t h e C o u n c il and h i g h e r e d u c a t i o n . Some p e r s o n s s u g g e s t th e re may be m ore l i m i t a t i o n s o n t h e C o u n c il p r o c e d u r e s when i t i s i n o p p o s i t i o n t o a m e a su re t h a n i n s i t u a t i o n s when i t f a v o r s a p r o p o s i t i o n . One i n d i v i d u a l n o te d t h a t o n ce a l e g i s l a t o r i s o p p o se d by a C o u n c il r e p r e s e n t a t i v e o n h i s b i l l t h e n h e w i l l n e v e r a g a i n lo o k u p o n t h e C o u n c il a s t h e ” e x p e r t ” . T h e re i s a l s o g e n e r a l a g re e m e n t t h a t I t i s i n a p p r o p r i a t e f o r a n ag en c y s u c h a s t h e C o u n c il t o engage i n l o g r o l l i n g t a c t i c s i n c o n j u n c t i o n w ith o t h e r i n t e r e s t s . S im i l a r l y , C o u n c il s t a f f s h o u ld n o t en g ag e i n lo b b y in g a c t i v i t i e s o n b e h a l f o f a p a r t i c u l a r l e g i s l a t o r an d h i s b i l l i n t h e a b s e n c e o f a p o s i t i o n o n t h e i s s u e by t h e C o u n c il. F i n a l l y I t i s c l e a r from s t a t e m e n t s made I n i n t e r - 235 v ie w s t h a t t h e r e h a s b e e n l i t t l e i n d i c a t i o n t h a t t h e Coun c i l o r i t s s t a f f h a s o v e r - s t e p p e d t h e bounds o f p r o p r i e t y a s s e e n by t h e p a r t i c u l a r i n d i v i d u a l . Many o f t h o s e p e r s o n s h e r e c l a s s i f i e d a s o f m ore a g g r e s s i v e v i e w s , te n d e d t o s u g g e s t a m ore a c t i v e l o b b y in g a c t i v i t y f o r t h e C o u n c il was a p p r o p r i a t e o n m a jo r I s s u e s t h a n h a s b e e n t h e c a s e to d a t e . R e l a t i o n s h i p s w i t h t h e L o b b ie s f o r H ig h e r E d u c a tio n The c o o r d i n a t i n g a g e n c y u n d e r c e r t a i n c ir c u m s ta n c e s m ig h t e n h a n c e i t s s t a k e i n t h e p o l i t i c a l p r o c e s s by co o p e r a t i n g w i t h th e l o b b i e s o f o t h e r h i g h e r e d u c a t i o n s y s te m s o r a s s o c i a t i o n s . O r i t may s e e k t o become t h e d o m in a n t lo b b y f o r h i g h e r e d u c a t i o n , i f n o t t h e o n ly o n e , i n t h e s t a t e c a p i t a l . A s e r i e s o f q u e s t i o n s was a s k e d many o f t h e p e r s o n s i n t e r v i e w e d t o e x p l o r e t h e i r i m p r e s s io n s o f t h e h i g h e r ed u c a t i o n i n t e r e s t s 1 lo b b y in g a c t i v i t i e s and t h e r o l e s w h ic h t h e y b e l i e v e d th e C o u n c il s h o u ld p l a y i n r e s p e c t to t h o s e l o b b i e s . N e a r ly a l l i n d i v i d u a l s r e s p o n d in g a g r e e d t h a t t h e r e a r e , i n f a c t , h i g h e r e d u c a t i o n ,,l o b b i e s ,t a n d t h a t f u r t h e r , t h e C o u n c il i s c o n s i d e r e d t o be o n e o f t h o s e l o b b i e s . (T h is i s som ew hat c o n t r a d i c t o r y t o t h e f i n d i n g s i n r e s p e c t t o r o l e p e rfo rm a n c e p r e s e n t e d i n C h a p te r V I I . T h e re i s a t w ork a n a m b iv a le n t c o n c e p ti o n o f w h a t c o n s t i t u t e s a lo b b y a n d w hat 236 does n o t . ) Most p e rs o n s a g re e d t h a t t h e r e was some c o m p e ti t io n among th e I n d i v i d u a l h i g h e r e d u c a t i o n i n t e r e s t s th o u g h i t does n o t a p p e a r to o o b v io u s . Each h i g h e r e d u c a ti o n sy s te m lo b b y i s s e e n to be p u r s u in g i t s own c o n c e rn s a s a r u l e a n d , sa v e f o r a s u b t l e v y in g f o r g r o s s a l l o c a t i o n o f fu n d s i n r e s p e c t to t h e a n n u a l b u d g e t, d i r e c t c o n f l i c t h a s n o t o f t e n b een p e r c e i v e d t o h av e o c c u r r e d to d a t e . Few c r i t i c i s m s w ere v o ic e d c o n c e rn in g t h e C o o r d in a t in g C o u n c i l 's a c t i v i t i e s v i s - a - v i s t h e o t h e r h i g h e r e d u c a t i o n i n t e r e s t s . M o st, h o w ev er, n o te d t h a t p e rh a p s g r e a t e r c o o p e r a t i v e e f f o r t s c o u ld o c c u r . The m a jo r q u a l i f i c a t i o n t o su c h e f f o r t s , i n t h e o p i n io n o f a num ber o f p e r s o n s , i s t h e need f o r c o n se n s u s i n o r d e r t o hav e t h e c o o p e r a t i v e e f f o r t s s u c c e e d . One p e r s o n s t a t e d t h a t th e C o u n c il c o u ld n o t a f f o r d to be p la c e d i n a p o s i t i o n o f o p p o s in g a c t i o n s o f r e p r e s e n t a t i v e s o f one q u a r t e r o f i t s m em b ersh ip . A ls o , a n o th e r n o te d t h a t t h e C o u n c il s h o u ld n o t be p la c e d i n a p o s i t i o n o f lo b b y in g f o r a m a t t e r o f c o n c e rn t o o n ly one h i g h e r ed u c a t i o n s y s te m . The C o u n c i l 's r o l e i n r e s p e c t to e n c o u r a g in g t h e p a s s a g e o f l e g i s l a t i o n e s t a b l i s h i n g th e new j u n i o r c o l l e g e b o a rd was c i t e d a s a good exam ple o f t h e C o u n c il c o o p e r a t i n g w ith a num ber o f i n t e r e s t e d g r o u p s . The a n n u a l f a c u l t y s a l a r y i n c r e a s e q u e s t i o n was n o te d by some a s a n exam ple 237 w h e re g r e a t e r c o o p e r a t i v e e f f o r t s c o u ld o c c u r i n t h a t a s a r u l e th e s t a t e c o l l e g e s h av e l o b b i e d f o r i n c r e a s e s g r e a t e r t h a n t h o s e recom m ended by t h e C o u n c il. An o v e r a l l su m m atio n o f o p i n i o n s u g g e s t s t h a t th e C o u n c il c o u ld p u rs u e a som ewhat m ore a g g r e s s i v e r o l e among t h e h i g h e r e d u c a ti o n i n t e r e s t s , b u t t h a t i n so d o in g d i r e c t c o n f l i c t w i t h any s i n g l e sy ste m lo b b y m ust be a v o id e d . J o i n t Committee o n H igh er E d u c a tio n I n t h e wake o f s t u d e n t d e m o n s tr a ti o n s o n t h e U n iv e r s i t y o f C a l i f o r n i a a t B e r k e le y cam pus i n l a t e 1 9 6 4 , l e g i s l a t i v e i n t e r e s t d e v e lo p e d to w a rd I n v e s t i g a t i n g a s p e c t s o f t h e a d m i n i s t r a t i o n a n d o p e r a t i o n o f h i g h e r e d u c a t i o n . The r e s u l t o f l e g i s l a t i v e d i s c u s s i o n d u r i n g t h e 1965 l e g i s l a - o t i v e s e s s i o n was A ssem bly C o n c u rre n t R e s o l u t i o n 156 w h ic h c r e a t e d a J o i n t C om m ittee on H ig h e r E d u c a tio n d i r e c t e d , i n p a r t , t o " a s c e r t a i n , s t u d y and a n a l y z e a l l t h e f a c t s r e l a t i n g t o t h e d e v e lo p m e n t o f h i g h e r e d u c a t i o n u n d e r t h e M a s te r P l a n , to r e - e v a l u a t e t h e P l a n ’ s re c o m m e n d a tio n s , a n d t o e x p lo r e t h e n e e d s o f h i g h e r e d u c a t i o n to I 98 O. R e p o r t o f t h e C om m ittee was t o h a v e b e e n ma.de t o t h e 1967 L e g i s l a t u r e . The C o m m itte e ’ s c r e a t i o n a n d i t s c h a rg e n o t i c e a b l y d i d n o t r e f e r t o q u e s t i o n s o f s t u d e n t u n r e s t . ^ P i l e d w i t h t h e S e c r e t a r y o f S t a t e , J u l y 1 , 1965» C h a p te r 2 1 6 . 238 A f t e r some i n i t i a l m e e tin g s t h e C o m m ittee, c h a i r e d by S p e a k e r o f t h e A ssem bly J e s s e U n ru h , becam e r e l a t i v e l y i n a c t i v e . The C o m m ittee, a s one o f i t s c o n t r a c t c o n s u l t a n t s o b s e r v e d , e x i s t e d m o s tly i n t h e m ind o f i t s c h a i r m an .^ I n t h e 1967 s e s s i o n t h e l i f e o f t h e C om m ittee was e x te n d e d a n d i t s c h a rg e b ro a d e n e d t o i n c l u d e th e q u e s t i o n o f t u i t i o n c h a r g e s and t h e i r e f f e c t s . A p r e l i m i n a r y r e p o r t was to be made i n 1968 o n t h e m a t t e r o f t u i t i o n w i t h a f i n a l r e p o r t s c h e d u le d f o r 1969* W ith l e g i s l a t i v e a c t i o n c o n t i n u i n g i t s e x i s t e n c e , a n d w ith t h e f i l l i n g o f v a c a n c i e s i n m em b ersh ip a t t h e end o f th e 1967 S e s s i o n , t h e C om m ittee becam e m ore a c t i v e . S p e c i a l r e p o r t s w e re c o m m issio n e d r e g a r d i n g t h e econom ic im p a c t o f h i g h e r e d u c a t i o n o n t h e s t a t e , h i g h e r e d u c a t i o n o p p o r t u n i t i e s f o r t h e d i s a d v a n t a g e d , d e v e lo p m e n t o f a m odel f o r s t u d i e s o f c o l l e g e d r o p - o u t s a n d a s t u d y o f t h e f i n a n c i n g o f p r i v a t e h i g h e r e d u c a t i o n i n C a l i f o r n i a . A s p e c i a l a u d i t was b e in g c o n d u c te d a s w e l l o n t h e a c c o u n ts o f th e U n i v e r s i t y o f C a l i f o r n i a u n d e r a u s p i c e s o f t h e J o i n t Com m i t t e e . I t was g e n e r a lly r e c o g n iz e d t h a t th e J o i n t Committee 3 R em arks o f A l f r e d E. B a x te r t o t h e A s s o c i a t i o n o f I n d e p e n d e n t C a l i f o r n i a C o lle g e s a n d U n i v e r s i t i e s m e e tin g , S a n F r a n c i s c o H i l t o n I n n , Novem ber 2 8 , 1967* (N o te s ta k e n by t h e a u t h o r ) . A A ssem b ly C o n c u rre n t R e s o l u t i o n 1 6 , f i l e d w ith th e S e c r e t a r y o f S t a t e , May 2 , 19&7» C h a p te r 6 9 . 239 was c o n c e rn e d w ith a num ber o f s u b j e c t s to w a rd w h ic h th e C o u n c il had d i r e c t e d i t s a t t e n t i o n , o r c o u ld be e x p e c te d to do s o . R e f l e c t i n g t h i s , th e q u e s t i o n o f t h e r e l a t i o n s h i p o f t h e C o u n c il t o th e Com m ittee was r a i s e d a t m e e tin g s o f t h e b o a rd . F o r e x a m p le , a t t h e O c to b e r 30* 1967 m e e tin g o f t h e C o u n c il C om m ittee on R e l a t i o n s h i p s and P r o c e d u r e s , t h e C o u n c il D i r e c t o r s u g g e s te d t h a t t h e C om m ittee m ig h t w is h to m eet w i t h t h e J o i n t Com m ittee to w a rd d ev elo p m e n t o f p r o c e d u r e s f o r s h a r i n g o f s t a f f . T h is was g e n e r a l l y d is c o u r a g e d i n d i s c u s s i o n . One member o f th e C o u n c il r e p r e s e n t i n g a sy ste m o f h ig h e r e d u c a tio n s t a t e d t h a t i n h i s o p i n io n th e C o o r d in a tin g C o u n c il had a n in d e p e n d e n t r e s p o n s i b i l i t y an d t h a t i t s h o u ld n o t a p p r o p r i a t e l y become t h e s t a f f t o a l e g i s l a t i v e c o m m itte e .^ The e x i s t e n c e o f th e J o i n t C om m ittee on H ig h e r Edu c a t i o n c o u ld be v ie w e d a s d y s f u n c t i o n a l t o th e C o u n c il. I t s a c t i v i t i e s a s th e y a p p e a re d i n t h e w i n t e r o f 1968 o v e r - l a p p e d a num ber o f s u b j e c t s u n d e r s tu d y by t h e C o u n c il, e s p e c i a l l y i n th e e y e s o f l e g i s l a t o r s a n d l e g i s l a t i v e s t a f f . The q u e s t i o n o f th e r e l a t i o n s h i p b e tw e e n t h e Com m i t t e e and t h e C o u n c il p r o v id e s one f o c a l p o i n t u p o n w hich t o a s s e s s t h e C o u n c il i n th e p o l i t i c a l p r o c e s s a n d th e ways i n w h ich i n d i v i d u a l s b e l i e v e t h e C o u n c il s h o u ld p e rfo rm 5 N o te s ta k e n a t th e m e e tin g by t h e a u t h o r . 2^0 g iv e n th e e x is t e n c e o f a j o i n t l e g i s l a t i v e com m ittee d e v o t ed to h ig h e r e d u c a tio n m a tte r s . I n te r v ie w e e s were asked w h at, in t h e i r o p in io n , i s th e r e l a t i o n s h i p betw een th e J o in t Committee on H igh er E d u ca tio n ( th e Unruh Committee) and th e C ou n cil? D uring th e co u rse o f th e q u e s tio n in g an e f f o r t was made to d e t e r mine i f th e in d iv id u a l c o n sid e r e d th e c o n tin u e d e x is t e n c e o f th e J o i n t Committee i n any way due to th e f a i l u r e o f th e C o u n cil a lo n g w ith h ig h e r e d u c a tio n to d e a l w ith c e r t a i n key i s s u e s . Most I n d iv id u a ls in d i s c u s s i o n o f th e r e l a t i o n s h i p s betw een th e C ou ncil and th e J o in t Committee r e f l e c t e d an u n c e r ta in t y as to th e pu rp oses and e v e n tu a l outcom es o f th e C om m ittee’ s a c t i v i t i e s . A lso g e n e r a l ly n oted was th e f a c t t h a t th e C om m ittee’s purpose had e v o lv e d from an i n i t i a l fo c u s on I n v e s t i g a t i o n o f stu d e n t and f a c u l t y u n r e s t to one more com prehensive i n n a tu r e . The p o l i t i c a l u s e s o f th e Committee by S p eak er Unruh w ere n oted i n some i n t e r v ie w s . One l e g i s l a t i v e s t a f f member s u g g e s te d t h a t th e la c k o f o v e r t d e s c r i p t io n o f th e Committee p u rp oses made i t d i f f i c u l t to s u g g e s t th e r e l a t i o n s h i p betw een th e C ou n cil and th e Comm ittee— th e r e l a t i o n s h i p th en becom es, he n o te d , w h atever anyone wanted i t to b e. The m a jo r ity o f p erson s in t h e i r o b s e r v a tio n s con cern in g th e J o in t Committee and th e C o o r d in a tin g C o u n cil i n d i c a te d t h a t th e c o n tin u ed e x is t e n c e o f th e Committee was n o t 241 n e c e s s a r i l y th e r e s u l t o f th e f a i l u r e o f th e C ou n cil to a c t on c e r t a i n q u e s t io n s . O fte n n o te d i n t h i s r e s p e c t were th e p o l i t i c a l a s p e c t s o f th e Committee and th e in c r e a s in g v i s i b i l i t y o f h ig h e r e d u c a tio n i s s u e s in p u b lic d i s c u s s i o n . I n a d d it io n , i t was n o te d th a t th e C ou ncil I t s e l f was under stu d y and t h a t t h i s n e c e s s a r i l y would be done in any e v e n t by a l e g i s l a t i v e i n v e s t i g a t i n g com m ittee or a s i m i la r g ro u p . A number n o ted t h a t in t h e i r m inds, i t was q u it e a p p r o p r ia te f o r two groups to be s tu d y in g th e same problem s presum ably from d i f f e r e n t v ie w p o in t s . As one in te r v ie w e e p u t i t , th e J o in t Committee and th e C ou n cil a r e lo o k in g a t th e same t e r r a i n , bu t w ith d i f f e r e n t maps. Some i n d iv i d u a l s , how ever, d id view th e e x is t e n c e o f th e Committee to b e , in e f f e c t , a condem nation o f th e C o u n c il. I n t h e i r v ie w , th e C ou n cil through more a g g r e s s i v e a c t io n s and a t t e n t i o n to major i s s u e s w ould have p r e c lu d e d th e need f o r th e J o in t Committee— a t l e a s t in th e form in to w hich i t had e v o lv e d a t th e tim e d a ta was g a t h e r ed f o r t h i s su r v e y . For th e m ost p a r t , in t e r v ie w e e s ten d ed to s u g g e s t th a t th e b e s t p o stu r e fo r th e C ou n cil in r e s p e c t to th e J o i n t Committee was one o f l i m i t e d c o o p e r a tio n in c lu d in g a p p r o p r ia te r e sp o n s e s to r e q u e s ts o f th e Com m ittee. Most I n d iv id u a ls appeared to p la c e th e i n i t i a t i v e w ith th e Committee f o r e x ch a n g e s. A m in o r ity , o f t e n th o s e s e e i n g the 2k 2 J o in t Committee a s th e r e s u l t o f f a i l u r e s on .the p a r t o f th e C o u n o il, recommended much g r e a te r c o o p e r a tiv e e f f o r t s w ith th e em phasis on C ouncil i n i t i a t i v e to u rge i t s s e r v i c e s on t h e J o in t Committee and i t s s t a f f . R esp on ses ten d ed to i n d i c a t e , as w e l l , t h a t th e Unruh Committee i s n o t view ed as a permanent body su ch as th e J o in t L e g i s l a t i v e Budget Committee under w hich th e C a lif o r n ia L e g i s l a t i v e A n a ly st and h i s s t a f f f u n c t io n . The im p r e ssio n g a in e d from a r e v ie w o f r e sp o n s e s i s one o f c o n s id e r a b le u n c e r ta in t y co n cern in g th e J o in t Com m itte e and i t s im pact on h ig h e r e d u c a tio n as su ch , as w e l l a s upon th e C ouncil in p a r t i c u la r . Most in te r v ie w e e s im p lie d th e y know too l i t t l e o f th e p la n s o f th e Committee and , most p a r t i c u l a r l y , i t s chairm an, to a n t i c i p a t e o u t comes and t h e i r im pact on th e C o u n c il. C o n seq u en tly , th e p r e s c r i p t i o n s fo r C ou n cil conduct were g e n e r a lly o f a cau t i o u s n a tu re w ith th e i n i t i a t i v e to be l e f t to th e l e g i s l a t o r s . R e la tio n s h ip s w ith th e O f f ic e o f Governor R o u t in iz a t io n o f r e l a t io n s h ip s w ith th e Governor and h i s im m ediate s t a f f may be more d i f f i c u l t to a c h ie v e f o r th e h ig h e r e d u c a tio n agency th an r e l a t i o n s h i p s w ith th e L e g i s l a t u r e . The s t y l e o f o p e r a tio n o f th e p a r t i c u la r Gov e r n o r , h i s o f f i c e o r g a n iz a t io n , h i s a t t i t u d e toward h ig h e r e d u c a tio n a r e l i k e l y to a f f e c t th e r e l a t i o n s h i p s . 2^3 In th e cou rse o f in te r v ie w s c o n c e r n in g th e C a lif o r n ia ag en cy , th e in d iv id u a ls were asked what in t h e i r v ie w sh ou ld he th e proper r e l a t i o n s h i p o f th e C a lif o r n ia C ou n cil and th e Governor and h i s o f f i c e . Many o f th e r e sp o n s e s to th e q u e s t io n s u g g e s te d th a t somewhat g r e a t e r i n i t i a t i v e was r e q u ir e d t o d e v e lo p s a t i s f a c t o r y r e l a t io n s h ip s w ith th e Governor and h is o f f i c e th an i s th e c a se w ith th e L e g is la t u r e and i t s s t a f f . T h is p o in t was s t r e s s e d p a r t i c u l a r l y in r e s p e c t to th e Reagan a d m in is t r a t i o n . The C ouncil P r e s id e n t and D ir e c to r sh ou ld s e e k c o n ta c t w ith th e G overnor h im se lf on o c c a s io n - - b u t as one p erso n n o ted n o t w a ste h i s tim e . C o n tin u in g r e l a t i o n s sh o u ld e x i s t w ith th e G overn or's o f f i c e s t a f f a s s ig n e d to e d u c a tio n m a tte r s . One p e r so n s u g g e s te d th a t d evelop m en t o f good r e l a t io n s h ip s may be d i f f i c u l t b ecau se th e C ou n cil s t a f f i s view ed as a r i v a l to th e s t a f f o f th e G overnor’s o f f i c e . A nother p o in te d o u t t h a t though th e members o f th e C ou n cil can be c l o s e to th e G overnor, th e D ir e c to r o f th e s t a f f c o u ld n o t a f f o r d to become too i d e n t i f i e d w ith th e a d m in is t r a t i o n and sh o u ld n o t se r v e on b o d ie s su ch as th e Governor's C ab in et w ith departm ent heads who own t h e i r app ointm en ts d i r e c t l y to th e G overnor. S e v e r a l p erson s in d ic a t e d some c o n cern w ith th e p o s tu r e o f th e Governor i n r e s p e c t to h i s d i r e c t a p p o in te e s on th e C o u n c il— p u b lic members and p r iv a t e c o l l e g e and u n lv e r - s i t y r e p r e s e n t a t i v e s . Once a p p o in te d i t was s u g g e s te d t h a t th e C o u n c il member be c o n s id e r e d a s a r e p r e s e n t a t i v e o f t h e p u b l ic r a t h e r t h a n o f t h e G o v e rn o r— th o u g h i t i s u s u a l l y r e c o g n iz e d t h a t t h e a p p o in te e p r o b a b ly w i l l s h a r e t h e g e n e r a l p h i l o s o p h i c a l a p p ro a c h e s a s t h e p a r t i c u l a r G o v ern o r who a p p o in t s him . I t was n o te d by one h i g h e r e d u c a ti o n s t a f f p e r s o n t h a t w ith a co m m issio n su c h a s i s th e C a l i f o r n i a C o o r d in a tin g C o u n c il, one c o u ld n o t e x p e c t a c o m p le te “hands o f f " p o l i c y a s w ith j u d i c i a l a p p o in tm e n ts , n o r o n t h e o t h e r h a n d s h o u ld one a n t i c i p a t e a "h an d s on" a p p ro a c h a s i n t h e c a s e o f e x e c u ti v e d e p a rtm e n t h e a d s . The com m ission member i s som ewhere i n b e tw e e n w h ere c o m p le te d i s i n t e r e s t i n t h e G o v e rn o r’s w is h e s i s n o t p o s s i b l e , b u t n e i t h e r s h o u ld t o t a l r e s p o n s i v e n e s s be dem anded. A member o f th e C o u n c il s u g g e s te d t h a t a n a p p r o p r i a t e r e s p o n s e to th e G o v e rn o r s h o u ld be t o l i s t e n to h i s o p i n i o n , b u t n o t t o f e e l bound by h i s w is h e s . R e sp o n se s t a k e n a s a w hole s u g g e s t t h e n eed f o r th e C o u n c il t o p u rs u e a more a c t i v e r o l e i n s e e k in g to a d v is e t h e G o v e rn o r and h i s s t a f f . I t i s s u g g e s te d t h a t t h i s r o l e may be p e rfo rm e d th ro u g h c o n ti n u i n g s t a f f c o n t a c t , w i t h th e D i r e c t o r t a k i n g a n a c t i v e p a r t , an d C o u n c il member c o n t a c t w ith t h e G overnor h i m s e l f o n k ey i s s u e s . Changes i n S t r u c t u r e o r F u n c tio n Im provem ent i n t h e p e rfo rm a n c e o f a s t a t e h i g h e r 2^5 e d u c a ti o n ag en c y may be p e r c e i v e d a s p o s s i b l e o n ly i f s t r u c t u r e a n d / o r f u n c t i o n s a r e c h a n g e d . I n t h e c a s e o f t h e C a l i f o r n i a C o o r d in a tin g C o u n c il, th e a g e n c y h a s a l r e a d y u n d e rg o n e one s t r u c t u r a l change w i t h t h e a d d i t i o n o f t h r e e p u b l i c members to th e body i n 1965* T h is ch an g e may n o t be th e l a s t . “T h e re h av e b e e n s t r o n g rum ors o f r e o r g a n i z a t i o n o f t h e C o o r d in a tin g C o u n c il t o g iv e i t b r o a d e r r e g u l a t o r y p o w e rs, a p u b l i c m a j o r i t y , a s w e l l a s c o n s t i t u t i o n a l d e s i g n a t i o n . ” ^ A t t h e c o n c l u s i o n o f i n t e r v i e w s m ost p e r s o n s w ere a s k e d i f th e y b e l i e v e d t h e C o u n c il s h o u ld be ch an g ed i n any way: i n te rm s o f i t s m em b ersh ip , f u n c t i o n a l r e s p o n s i b i l i t i e s o r i f i t s h o u ld be e l i m i n a t e d . No p e r s o n i n te r v ie w e d s t a t e d t h a t t h e C o u n c il s h o u ld be e l i m i n a t e d a lth o u g h one l e g i s l a t o r s u g g e s te d t h e p o s s i b i l i t y t h a t th e s t a f f o f t h e C o u n c il c o u ld be p la c e d w i t h i n t h e L e g i s l a t u r e ’s s t r u c t u r e . R e sp o n se s i n d i c a t e d no c l e a r c o n s e n s u s a s t o w h e th e r chang es i n m em bership o r f u n c t i o n ^Jam es G. P a l t r i d g e , C a l i f o r n i a 's C o o r d in a tin g Coun c i l f o r H ig h e r E d u c a tio n (B e rk e le y : U n i v e r s i t y o f C a l i f o r n i a C e n te r f o r R e s e a rc h and D evelopm ent i n H ig h e r E d u c a tio n , 19 6 6 ) , p . 1 1 7 . P a l t r i d g e i n p a r t b a s e s t h i s s t a te m e n t o n t h e a n t i c i p a t e d outco m es o f t h e J o i n t C om m ittee o n H ig h e r E d u c a tio n s t u d i e s an d o n th e C a l i f o r n i a C o n s t i t u t i o n a l R e v i s i o n C om m ission’ s w o rk . The C o n s t i t u t i o n a l R e v is io n Com m is s i o n h a s s i n c e d e f e r r e d c o n s i d e r a t i o n o f h i g h e r e d u c a t i o n m a t t e r s i n l a r g e m easu re t o a w a it t h e f i n d i n g s o f t h e J o i n t C o m m ittee, due i n 19^9 • s h o u ld be m ade. S e v e n te e n o f t h e g ro u p f a v o r e d some member s h i p a d ju s tm e n t s , tw e n ty -tw o d i d n o t . S i m i l a r l y , s e v e n te e n f a v o r e d a change i n f u n c t i o n a n d t w e n t y - s i x d i d n o t a t th e p r e s e n t tim e .'* (Some p e rs o n s r e p l i e d o n ly to t h e q u e s t i o n o f f u n c t i o n , o t h e r s g a v e r e s p o n s e s t h a t c o u ld n o t be c l a s s i f i e d . ) The l e g i s l a t i v e and l e g i s l a t i v e - e x e c u t i v e s t a f f g ro u p in g a p p e a re d to f a v o r m em bership change to a l e s s e r e x t e n t t h a n t h e s y s te m s t a f f m em bers, C o u n c il members and C o u n c il s t a f f ta k e n a s a g ro u p . F iv e o f t h e fo rm e r g ro u p , (G roup I ) f a v o r e d m em bership m o d i f i c a t i o n , t h i r t e e n d i d n o t . I n th e l a t t e r g ro u p in g , (G roup I I ) s i x t e e n f a v o r e d change w h ile n in e w ere s a t i s f i e d w i t h p r e s e n t a r r a n g e m e n ts . I n r e s p e c t to f u n c t i o n a l c h a n g e s , th e two g ro u p s com pared s i m i l a r l y . I n Group I , f i v e f a v o r e d f u n c t i o n a l c h a n g e , t h i r t e e n d id n o t . The o t h e r s d i v id e d tw e lv e f o r and t h i r t e e n o p p o sed o n th e same i s s u e . I t s h o u ld be n o te d t h a t C o u n c il s t a f f members w ere u n a n im o u sly i n f a v o r o f f u n c t i o n a l change an d f i v e to one i n f a v o r o f m em bership m o d i f i c a t i o n s . Though t h e f o r e g o i n g shows t h a t a num ber o f p e rs o n s v iew some ch an g e s a s d e s i r a b l e , th e k in d s o f m o d i f i c a t i o n n e ed e d w ere c l e a r i n o n ly v e r y few c a s e s . A m em bership 7 ' I n a l l , tw e lv e p e rs o n s gave s p l i t r e p l i e s e i t h e r f a v o r i n g m em bership change and n o t i n f u n c t i o n , o r v i c e v e r s a . change m ost o f t e n m en tio n e d was e i t h e r t h e a d d i t i o n o f more p u b l i c members to g iv e t h i s b lo c g r e a t e r c o n t r o l o v e r t h e C o u n c il, o r a c h ie v e m e n t o f t h e same ends by r e d u c in g th e m em bership on th e C o u n c il o f sy ste m r e p r e s e n t a t i v e s ( o r a l t e r n a t i v e l y c o n ti n u i n g th e m em bership a s now c o n s t i t u t e d b u t l i m i t i n g th e s y s te m r e p r e s e n t a t i v e s ' v o te s to one p e r s y s t e m ) . F u n c t io n a l ch an g es m e n tio n e d in c lu d e d g i v i n g t h e C o u n c il a g r e a t e r r o l e i n r e s p e c t t o t h e b u d g e t-m a k in g p r o c e s s o r a more e x te n s i v e re v ie w o v e r new aca d em ic p r o g ra m s, A num ber o f p e rs o n s s t a t e d t h a t th e f u n c t i o n a l a s s ig n m e n t by s t a t u t e was s u f f i c i e n t , b u t t h a t ( a s one p e r s o n n o te d ) th e C o u n c il 's p ro c e d u r e s w ere a t f a u l t r a t h e r t h a n th e f u n c t i o n a l s t a t e m e n t . The n e ed f o r b e t t e r s t a f f w ork was m e n tio n e d by two l e g i s l a t o r s a s w e l l a s o t h e r s a s b e in g more im p o r ta n t t h a n fo rm a l change o f f u n c t i o n . An e f f o r t was made to d e te rm in e i f t h o s e p e r s o n s who r a t e d th e C o u n c i l 's p e rfo rm a n c e low i n r e s p e c t to S t a t e gov ern m en t te n d e d to d e s i r e m em bership o r f u n c t i o n a l changes m ore g e n e r a l l y t h a n t h o s e p e rs o n s g i v i n g h i g h e r p e rfo rm a n c e g r a t i n g s . Some s l i g h t te n d e n c y was n o te d i n t h i s a n a l y s i s : t e n p e rs o n s r a t i n g C o u n c il p e rfo rm a n c e a s " h ig h " o r "medium" d e s i r e d a change i n m em b ersh ip , and e ig h t e e n d id n o t , w h ile See C h a p te r V II f o r p e rfo rm a n c e r a t i n g d i s c u s s i o n . f i v e p e rs o n s r a t i n g t h e C o u n c il "low " i n p e rfo r m a n c e w ith s t a t e g o v e rn m e n t d e s i r e d a ch an g e and s i x d i d n o t . A s i m i l a r p a t t e r n i s n o te d i n r e s p e c t to t h e n e ed f o r f u n c t i o n a l c h a n g e : e le v e n p e r s o n s r a t i n g t h e C o u n c il " h i g h 1 1 o r "medium" i n p e rfo rm a n c e w ith s t a t e g o v e rn m e n t th o u g h t a f u n c t i o n a l ch an g e was n e c e s s a r y and s i x t e e n d i d n o t . Of th o s e p e rs o n s r a t i n g t h e C o u n c i l ’ s p e rfo rm a n c e "low " f i v e b e l i e v e d f u n c t i o n a l m o d i f i c a t i o n d e s i r a b l e a n d f i v e d id n o t . The one p e r s o n r a t i n g t h e C o u n c il " i n e f f e c t i v e " d i d n o t s u g g e s t a f u n c t i o n a l c h a n g e . What may be o f g r e a t e s t s i g n i f i c a n c e i n t h i s v iew o f r e s p o n s e s i s t h e p r o p o r t i o n o f p e r s o n s i n t e r v i e w e d , who a l t h o u g h n o t e x h i b i t i n g to o g r e a t a d i s s a t i s f a c t i o n w ith t h e C a l i f o r n i a a g e n c y , n e v e r t h e l e s s th o u g h t some c h a n g e s i n o r g a n i z a t i o n o r f u n c t i o n w ere c a l l e d f o r . M ost i n t e r v i e w e e s i n t h e i r r e s p o n s e s , r e g a r d l e s s o f t h e i r s p e c i f i c v iew o f c h a n g e s n e e d e d , i f a n y , i n d i c a t e d a g e n e r a l u n e a s e w ith t h e s t r u c t u r e a s i t e x i s t s and t h e ways i n w h ic h e x i s t i n g f u n c t i o n s a r e b e in g p e rfo rm e d . B ut p r e s c r i p t i o n s f o r a c t i o n w ere n o t c l e a r l y a r t i c u l a t e d i n m ost i n s t a n c e s . C H A PTER IX SUMMARY OP FINDINGS: THE CALIFORNIA AGENCY FOR HIGHER EDUCATION IN THE POLITICAL PROCESS The h i s t o r i c a l d e v e lo p m e n ts l e a d i n g f i r s t t o C a l i f o r n i a ' s M a s te r P l a n f o r H ig h e r E d u c a tio n recom m ending t h e c r e a t i o n o f a c o o r d i n a t i n g a g e n c y f o r h i g h e r e d u c a t i o n and t h e e v e n ts s u r r o u n d i n g a d o p ti o n o f a s t a t u t e c a l l i n g f o r su c h a n a g e n c y h av e b e e n exam ined* The r e c o r d o f t h e C a l i f o r n i a a g e n c y , 1959 t o 1 9 6 7 , h a s b e e n c o n s i d e r e d w i t h em p h a s i s p l a c e d u p o n t h e exch an g e o f fo rm a l a d v ic e b e tw e e n t h e l e g i s l a t i v e - e x e c u t i v e and t h e c o o r d i n a t i n g a g e n c y . A lso c o n s i d e r e d h a v e b e e n t h e a v e n u e s o p e n to t h e a g e n c y i n s e e k i n g to i n f l u e n c e t h e p o lic y - m a k in g p r o c e s s o f s t a t e g o v e rn m ent a s d e v e lo p e d fro m a d e s c r i p t i o n o f a c t i o n s , p r o c e d u r e s a n d p o l i c i e s o f t h e C a l i f o r n i a C o u n c il, a n d a n e x p l o r a t i o n o f e v e n ts a s s o c i a t e d w ith s i x i s s u e s o f c o n c e r n t o i t a s i t h a s s o u g h t t o i n f l u e n c e t h e p o l i t i c a l p r o c e s s . The p e rfo rm a n c e o f t h e C o u n c il, a s s u g g e s t e d i n th e h i s t o r i c a l an d d e s c r i p t i v e m a t e r i a l p r e s e n t e d , l e a d i n d i v i d u a l s c l o s e l y i n v o lv e d i n t h e p o l i c y d e v e lo p m e n t p r o c e s s to h o ld p e r c e p t i o n s o f t h e ag en c y a s i t e x i s t s a s w e l l a s e x p e c t a t i o n s o f t h e ways i n w h ic h i t s h o u ld p e rfo r m and th e 250 r o l e s I t s h o u ld p l a y . T h ese p e r c e p t i o n s a n d e x p e c t a t i o n s h a v e b e e n c o n s i d e r e d a s d e r i v e d fro m d a t a c o l l e c t e d i n s e m i - s t r u c t u r e d i n t e r v i e w s i t u a t i o n s . The r e s u l t a n t body o f m a t e r i a l may be d i s t i l l e d i n t o a s e r i e s o f f i n d i n g s c o n c e r n in g t h e C a li f o r n ia , a g e n c y f o r h i g h e r e d u c a t i o n an d i t s p e rfo rm a n c e s w i t h i n C a l i f o r n i a s t a t e g o v e rn m e n t. T h ese f i n d i n g s may be s t a t e d a s f o l lo w s : 1 . The y e a r 1968 i s a n a p p r o p r i a t e p o i n t i n tim e to exam ine and a s s e s s t h e C a l i f o r n i a C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a tio n . I t h a s r e a c h e d a s t a g e o f s u f f i c i e n t m a t u r i t y , w i t h a s u b s t a n t i a l r e c o r d o f a c t i o n s so t h a t ju d g m ents may be made o f i t s e f f e c t i v e n e s s i n i n f l u e n c i n g t h e d e v e lo p m e n t o f p u b l i c p o l i c y a f f e c t i n g h i g h e r e d u c a t i o n . A new p h a s e i n t h e C o u n c i l 's d e v e lo p m e n t may be now b e g in n in g i n p a r t due t o a new a d m i n i s t r a t i o n i n t h e G o v e r n o r 's o f f i c e , em erg en ce o f m a jo r p o l i t i c a l a n d f i n a n c i a l p r e s s u r e s o n t h e i n s t i t u t i o n s o f p u b l i c h i g h e r e d u c a t i o n a s a w h o le , an d a s e r i e s o f c h a n g e s i n t h e I n t e r n a l o r g a n i z a t i o n o f t h e a g e n c y w h ic h h a v e o c c u r r e d d u r i n g 1967 a n d t h e f i r s t p o r t i o n o f 1 9 6 8 . The f a c t t h a t a new p e r i o d f o r t h e C o u n c il may be a t h a n d i s f u r t h e r j u s t i f i c a t i o n f o r a c l o s e e x a m in a tio n o f t h a t w h ic h h a s gone b e f o r e and r e s u l t a n t i n d i v i d u a l a t t i t u d e s to w a rd t h e a g e n c y . 2 . The S u rv e y Team f o r t h e C a l i f o r n i a M a s te r P l a n f o r H ig h e r E d u c a tio n i n 1959» i n recom m ending t h e c r e a t i o n 251 o f a c o o r d i n a t i n g "board f o r t h e p u b l ic sy ste m s o f h i g h e r e d u c a ti o n , em p h asized a d v is o r y f u n c t i o n s f o r t h e b o a rd to w a rd s t a t e o f f i c i a l s a s w e ll as to w a rd t h e c o l l e g e and u n i v e r s i t y g o v e rn in g b o a r d s . T h ere was n o t , h o w e v er, ex t e n s i v e c o n s i d e r a t i o n o f t h e ways and means by w h ich t h e new ag en c y w ould e f f e c t i v e l y convey i t s a d v ic e s o r s e e k to i n f l u e n c e p u b l i c p o lic y - m a k e r s o n b e h a l f o f h i g h e r e d u c a t i o n ' s i n t e r e s t . 3 . The C a l i f o r n i a L e g i s l a t u r e i n e n a c ti n g t h e s t a t u t e to e s t a b l i s h t h e C o o r d in a tin g C o u n c il made ch an g es i n t h e M a ste r P l a n rec o m m e n d atio n s w h ich te n d e d to rem ove t h e ag en c y from t h e c o n t e x t o f h i g h e r e d u c a ti o n to a s i g n i f i c a n t - d e g re e a n d , a t t h e same tim e , made i t m ore in d e p e n d e n t , i f n o t c l o s e r to s t a t e g o v e rn m e n t. The a d d i t i o n o f m ore p u b l i c r e p r e s e n t a t i o n o n t h e ag en cy b o a rd i n 19^5 c o n tin u e d to em p h asize t h i s i n t e n t . The C o o r d in a tin g Agency was s e e n a s a s o l u t i o n to c e r t a i n p ro b lem s o f c o n c e rn t o l e g i s l a t o r s and t h e e x e c u t i v e . The w ish e s o f p u b l i c o f f i c i a l s to a v o id t h e e s t a b l i s h m e n t o f u n n eed ed i n s t i t u t i o n s o f h i g h e r e d u c a ti o n r e s u l t i n g from c o n f l i c t s o f i n t e r e s t s w i t h i n t h e l e g i s l a t i v e h a l l s w ere o f s i g n i f i c a n c e i n l e a d i n g to l e g i s l a t i v e - e x e c u t i v e e n d o rse m e n t o f t h e c o o r d i n a t i n g a g e n c y p r o p o s i t i o n . S i m i l a r l y , l e g i s l a t i v e c o n c e rn o v e r f u n c t i o n a l r e s p o n s i b i l l - - t i e s a s s i g n e d t o t h e two s e n i o r p u b l i c sy ste m s o f h i g h e r e d u c a ti o n was o f im p o rta n c e i n th e a c c e p ta n c e o f t h e c o o r- 252 d i n a t i n g mecha.nism* 5 . A re v ie w o f t h e r e c o r d f o r th e C o o r d in a tin g C o u n c il from 1959 th ro u g h 1967 shows t h a t i n r e l a t i v e l y few i n s t a n c e s hav e th e L e g i s l a t u r e o r G o v e rn o r f o r m a l ly s o u g h t t h e a d v ic e o f t h e c o o r d i n a t i n g b o d y . L e g i s l a t i v e i n t e r e s t to w a rd t h e a g e n c y h a s te n d e d to em p h asize q u e s t i o n s r e l a t i n g t o th e l o c a t i o n o f new c o l l e g e s and u n i v e r s i t i e s . I n t u r n , C o u n c il a d v ic e g i v e n to t h e l e g i s l a t i v e - e x e c u ti v e h a s r e l a t e d g e n e r a l l y t o t h i s q u e s t i o n o r to f i n a n c i a l m a t t e r s i n c l u d i n g f a c u l t y s a l a r y u n i t s . C e r t a i n o t h e r s p e c i a l s t u d i e s h ave b e en p r e p a r e d f o r t r a n s m i t t a l t o t h e l e g i s l a t i v e - e x e c u t i v e on t h e C o u n c il ’ s own i n i t i a t i v e , w ith th o s e r e l a t i n g to j u n i o r c o l l e g e s p r o b a b ly h a v in g t h e m ost im p a c t. 6 . A number o f t o o l s and s t r a t e g i e s d e s ig n e d to i n f l u e n c e t h e p o l i t i c a l p r o c e s s may be p o t e n t i a l l y em ployed by t h e C a l i f o r n i a a g e n c y . They a r e much s i m i l a r to th o s e em ployed by any i n t e r e s t g ro u p i n s e e k in g to make i t s d e s i r e s f e l t i n p o l i c y o u tc o m e s. The t o o l s an d s t r a t e g i e s to be u s e d i n c l u d e : a d v ic e s f o r m a l ly t r a n s m i t t e d ; a p p e a r a n c e s o f s t a f f an d b o a rd members b e f o r e l e g i s l a t i v e and o t h e r s t a t e c o m m itte e s; in fo r m a l c o n t a c t s b etw een b o a rd members an d s t a t e o f f i c i a l s ; u s e o f a g e n c y l e g i s l a t i v e - e x e c u ti v e l i a i s o n p e r s o n n e l on a c o n t i n u i n g b a s i s ; d e v e lo p m ent o f c l o s e r e l a t i o n s h i p s b e tw e e n s t a f f members a n d l e g i s l a t o r s and t h e i r s t a f f s , and c o o p e r a t i v e e f f o r t s w ith 253 o t h e r h i g h e r e d u c a ti o n a s s o c i a t i o n and s y s te m a d v o c a te s . Some a v en u e s o f i n f l u e n c e a r e , h o w e v er, e f f e c t i v e l y p r e c lu d e d to t h e C o u n c il due t o l a c k o f h o m o g e n ie ty o f i t s c o n s t i t u e n c y , l i m i t a t i o n s c a u se d by th e C o u n c i l ’ s a d v is o r y s t a t u s . 7 . The re v ie w o f p o t e n t i a l a v e n u e s f o r i n f l u e n c e an d c o n s i d e r a t i o n o f a s p e c i f i c c a s e s p a n n in g t h e p e r i o d o f t h e C o u n c il’s e x i s t e n c e s u g g e s t t h a t th e a g e n c y h a s s o u g h t to u s e t o o l s an d s t r a t e g i e s o f i n f l u e n c e w h ic h e n c o u ra g e i t s p e r c e p t i o n a s a n " e x p e r t " o n h i g h e r e d u c a ti o n m a t t e r s . I n so d o in g , i t h a s n o t d e l i b e r a t e l y s t i m u l a t e d r e q u e s t s f o r a d v ic e so t h a t i t m ig h t e n h an c e t h a t im ag e. The ag en c y h a s s t r e s s e d c o n ti n u i n g l e g i s l a t i v e l i a i s o n a c t i v i t y and h a s e n c o u ra g e d a r o u t i n i z a t i o n o f r e l a t i o n s h i p s w ith th e L e g i s l a t u r e an d some e x e c u ti v e a g e n c i e s . C o n tin u in g r e l a t i o n s h i p s w i t h th e G o v ern o r an d h i s im m e d ia te s t a f f hav e b e e n more d i f f i c u l t t o m a i n t a i n . I n d i v i d u a l l e g i s l a t o r s h a v e b e en s o u g h t o u t a s " f r i e n d s a t c o u r t" and c l o s e p e r s o n a l r e l a t i o n s h i p s have b e e n d e v e lo p e d among C o u n c il s t a f f an d l e g i s l a t o r s an d t h e i r s t a f f s . C o u n c il members h a v e s o u g h t to i n f l u e n c e l e g i s l a t o r s d i r e c t l y o n b e h a l f o f Coun c i l i n t e r e s t s o n ly on o c c a s i o n . F i n a l l y , t h e ag en c y h as a tt e m p t e d , o n a l i m i t e d s c a l e , to s e e k t h e s u p p o r t o f o t h e r h i g h e r e d u c a ti o n i n t e r e s t s i n i t s a tt e m p t s t o i n f l u e n c e th e p o l i t i c a l p r o c e s s . T h is i n t e r e s t s u p p o r t may n o t be f o r t h com ing e v e n th o u g h t h e i n t e r e s t i n q u e s t i o n may h a v e b een 2 5 * 1 - a p a r t y to t h e d e v e lo p m e n t o f t h e C o u n c i l 's p o s i t i o n o n t h e m a t t e r th r o u g h i t s r e p r e s e n t a t i o n o n t h e b o a rd . 8 . R e s u l t s o f i n t e r v i e w s w ith p e r s o n s c l o s e l y c o n c e r n e d w ith t h e p o l i t i c a l p r o c e s s and f a m i l i a r w ith t h e C o u n c il an d i t s o p e r a t i o n s s u g g e s t a n im age o f a r e l a t i v e l y p a s s i v e g r o u p , a s p i r i n g m o s tly to s p e c i a l i z e d e x p e r t r o l e s an d seld o m to w a rd a c t i v i t i e s w h ic h s u g g e s t l e a d e r s h i p f o r h i g h e r e d u c a t i o n i n t h e s t a t e . The a g e n c y i s v ie w e d , a s w e l l , a s b e in g o f m o d e ra te o r l i m i t e d e f f e c t i v e n e s s i n i t s p e rfo rm a n c e i n t h e c o n te x t o f s t a t e g o v e rn m e n t. T hese p e r c e p t i o n s a r e b a s e d u p o n a r e l a t i v e l y c l e a r view o f t h e C o u n c i l 's a c t i v i t i e s i n r e s p e c t to t h e l e g i s l a t i v e - e x e c u t i v e . The i n d i v i d u a l c o n c e p tio n s o f t h e agen cy s u g g e s t th a t i t i s s e e n p e rf o rm in g r o l e s su c h a s t h a t o f a m e d ia to r o f c o n f l i c t s , a n e x p e r t a d v i s o r to L e g i s l a t u r e and G o v e rn o r, an d a spokesm an f o r h i g h e r e d u c a t i o n . On th e o t h e r h a n d i t i s n o t p e r c e i v e d as p e rf o rm in g a l e a d e r s h i p r o l e , a s a n a r b i t r a t o r o f c o n f l i c t s , o r a s a l o b b y i s t f o r h i g h e r e d u c a t i o n . In _ te r m s o f f u n c t i o n s p e rfo rm e d , th e C o u n c il i s v iew ed a s c o n d u c tin g r e s e a r c h an d a s e n h a n c in g th e im age o f h i g h e r e d u c a ti o n , b u t i s n o t s e e n a s f u n c t i o n i n g a s i f i t w e re a n i n v e s t i g a t i n g c o m m itte e , a n a d m i n i s t r a t i v e a g e n c y , a s o u r c e o f in n o v a t i v e i d e a s , o r as a n e x t e n s i o n o f t h e e x e c u ti v e b u d g e t o f f i c e . 9 . The n e ed and d e s i r a b i l i t y o f t h e C a l i f o r n i a a g e n c y to s e e k t o i n f l u e n c e t h e outco m es o f d e c i s i o n s i n 2 55 t h e p o l i t i c a l m i l i e u i s r e c o g n iz e d by m ost i n d i v i d u a l s . H ow ever, t h e d e g re e o f i n t e n s i t y w ith w h ich t h e C o u n c il s h o u ld p u r s u e i t s i n t e r e s t s an d o b j e c t i v e s i s n o t g e n e r a l l y a g r e e d u p o n . A s s o c i a t i o n w i t h o t h e r i n t e r e s t s i n p r e s e n t a t i o n o f p ro g ram s i s a c c e p t e d , b u t t h e C o u n c il, i n v iew o f many, w ould be p r e c lu d e d from p a r t i c i p a t i n g i n l o g - r o l l i n g e f f o r t s among t h e s e v e r a l i n t e r e s t s . I n th e o p i n io n o f o b s e r v e r s , t o d a te th e C o u n c il a p p e a rs t o hav e p u r s u e d a c o u rs e o f p r o p r i e t y i n i t s l e g i s l a t i v e - e x e c u t i v e r e l a t i o n s h i p s , i f i t h a s n o t b e e n to o u n d e r - a c t i v e . R e l a t i o n s h i p s w i t h th e o f f i c e o f t h e G o v ern o r a r e s e e n to r e q u i r e a g r e a t e r i n i t i a t i v e t h a n t h o s e w ith t h e L e g is la tu r e ,* and t h i s i n i t i a t i v e has n o t b e en a p p a r e n t to d a t e i n any m arked d e g r e e . 1 0 . T h ere i s a p p a r e n t l y l i t t l e i n t e r e s t i n e l i m i n a t in g t h e C a l i f o r n i a a g e n c y . H ow ever, a s u b s t a n t i a l num ber o f p e rs o n s (th o u g h n o t t h e m a j o r it y ) b e l i e v e t h a t C o u n c il m em bership s h o u ld be c h a n g e d , g e n e r a l l y I n t h e d i r e c t i o n o f p r o v i d i n g m ore p u b l i c r e p r e s e n t a t i o n o n t h e b o a rd so t h a t i t w i l l c o n s t i t u t e a m a j o r i t y . S i m i l a r l y , some b e l i e v e th e f u n c t i o n s o f t h e C o u n c il s h o u ld be m o d if ie d . A g e n e r a l u n e a s e w ith s t r u c t u r e and f u n c t i o n i s e x h i b i t e d , b u t s p e c i f i c p r e s c r i p t i o n s f o r change and t h e i r r e s u l t s a p p e a r t o be d i f f i c u l t f o r m ost i n d i v i d u a l s to a r t i c u l a t e . A re t h e above g e n e r a l f i n d i n g s u n iq u e t o t h e C a l i f o r n i a a g en c y ? An e x a m in a tio n o f t h e p a t t e r n s o f r e l a t i o n - s h i p s w ith s t a t e g o v e rn m e n ts and h ig h e r e d u c a t i o n c o o r d i n a t in g b o d ie s i n o t h e r s t a t e s may be u s e f u l . T h is re v ie w may be s u g g e s t i v e o f c o n c lu s io n s w h ich may be g e n e r a l l y a p p l i e d to c o o r d i n a t i n g b o a rd s a s th e y p a r t i c i p a t e i n t h e d e v e lo p m ent o f p u b l i c p o l i c y c o n c e rn in g h i g h e r e d u c a t i o n . PART III PATTERNS OP LEGISLATIVE-*.. SCUTIVE AND HIGHER EDUCATION AGENCY RELATIONSHIPS AMONG THE STATES CHAPTER X AN OVERVIE1 // OF COORDINATING AGENCY FORMS AND FUNCTIONS: A NATIONAL SURVEY M arked v a r i a t i o n i s n o te d among th e fo rm s o f h i g h e r e d u c a t i o n a g e n c ie s fo u n d i n t h e s e v e r a l s t a t e s . T hese a g e n c ie s a r e a s s i g n e d f u n c t i o n s r a n g i n g from t o t a l a d m in is t r a t i v e c o n t r o l o v e r a l l p u b l i c i n s t i t u t i o n s o f h i g h e r e d u c a t i o n t o p u r e l y a d v i s o r y r e s p o n s i b i l i t i e s w i t h l i t t l e o r no r e g u l a t o r y a u t h o r i t y . G e n e r a l i z a t i o n c o n c e r n in g t h e a c t i v i t i e s o f t h e s e c o o r d i n a t i o n m echanism s o n a n a t i o n a l b a s i s i s t h e r e f o r e m ost d i f f i c u l t . T h e re a r e , h o w e v e r, some b r o a d c l a s s i f i c a t i o n s i n t o w h ich i n d i v i d u a l s t a t e fo rm s may be p l a c e d a n d w i t h i n e a c h c l a s s i f i c a t i o n some g e n e r a l i z a t i o n s may be m ad e. The t h i r t y - n i n e s t a t e s w h ich ( a s o f J u l y 196?) b a d e s t a b l i s h e d by s t a t u t e o r c o n s t i t u t i o n a l s t a t e m e n t h i g h e r e d u c a t i o n a g e n c ie s may be p l a c e d i n t h r e e g e n e r a l c l a s s i f i c a t i o n s a s f o l lo w s : 1 . C o n s o lid a te d G o v e rn in g B o a rd (W ith i m p l i c i t o r e x p l i c i t c o o r d i n a t i o n r e s p o n s i b i l i t i e s ) A la s k a M ontana N o r th D a k o ta A r iz o n a G e o rg ia O re g o n 258 F l o r i d a Idaho Kans a s Iowa M i s s i s s i p p i Nevada 259 Rhode I s l a n d S o u th D ak o ta ( F o u r te e n i n a l l ) 2 . C o o r d in a tin g Board ( A d v is o ry , r e g u l a t o r y , o r m ix ed f u n c t io n ) A rk a n sa s C a l i f o r n i a C o lo rad o C o n n e c tic u t I l l i n o i s K en tu ck y M ary lan d M a s s a c h u s e tts M in n e so ta M is s o u r i New H am pshire New J e r s e y New M exico N o rth C a r o lin a Ohio Oklahoma S o u th C a r o li n a T en n e sse e T exas U tah V i r g i n i a W is c o n s in (T w enty-tw o i n a l l ) 3 . S t a t e Board o f E d u c a tio n (P e rfo rm in g some c o o r d i n a t i o n t a s k s ) M ic h ig a n New Y ork P e n n s y lv a n ia T h is d i v i s i o n , a s d i s c u s s e d i n C h a p te r I I I , i s t h a t d e v e lo p e d by R o b e rt 0 . B e rd a h l f o r h is s tu d y o f S ta te w id e S y stem s o f H ig h e r E d u c a tio n , The c o o r d i n a t i n g b o a rd fo rm i s e m p h a size d I n some d e g re e i n t h i s s tu d y i n t h a t th e C a l i f o r n i a a g e n c y , s u b j e c t T h re e s t a t e s ( In d ia ,n a , N e b ra s k a , and W ashington) h a v e v o l u n t a r y a s s o c i a t i o n s w h ic h p e rfo rm some c o o r d i n a t i o n f u n c t i o n s . E ig h t s t a t e s have no agency o r a s s o c i a t i o n : A labam a, D e la w a re , H a w a ii, L o u i s i a n a , M ain e, V erm o n t, W est V i r g i n i a and Wyoming. 260 to d e t a i l e d e x a m in a tio n i n i t s r e l a t i o n s h i p s w i t h s t a t e g o v e rn m e n t, i s o f t h i s fo rm . F u rth e rm o re t h e c o n s o l i d a t e d g o v e r n in g h o a rd form h a s p ro v e d to be t h e d e s i r e d p a t t e r n o f e a r l i e r d e c a d e s and t h e c o o r d i n a t i n g b o a rd c o n c e p t t h e m ore p o p u l a r o n e i n t h e 1 9 5 0 ’ s I 9 6 0 ' s . T a b le V i l l u s t r a t e s some o f t h e g e n e r a l c h a r a c t e r i s t i c s o f t h e i n d i v i d u a l s t a t e a g e n c ie s h a v in g c o o r d i n a t i o n r e s p o n s i b i l i t i e s . As t o t a l l y s a t i s f a c t o r y n a t i o n a l s u r v e y s o f s t r u c t u r e a n d f u n c t i o n s a r e n o t a v a i l a b l e , t h i s t a b u l a t i o n s h o u ld be c o n s i d e r e d o n ly a s b e in g i l l u s t r a t i v e o f 2 g e n e r a l p a t t e r n s . . . The l i s t i n g shows t h a t o f t h e tw e n ty -tw o a g e n c ie s o f t h e c o o r d i n a t i n g b o a rd form o n ly t h r e e have a m a j o r i t y o f i n s t i t u t i o n a l l y - r e l a t e d m em bers. I n a l l , tw e lv e b o a rd s h a v e some h i g h e r e d u c a t i o n r e p r e s e n t a t i o n . Lay m em b ersh ip ^ I n t h e a u t h o r 's o p i n i o n no s a t i s f a c t o r y , u p - t o - d a t e summary o f i n d i v i d u a l c o o r d i n a t i n g f u n c t i o n s h a s b e e n p r e p a r e d . The t a b l e h e r e shown h a s b e e n d e v e lo p e d fro m two s o u r c e s : P u b l i c A f f a i r s R e s e a rc h C o u n c il o f L o u i s i a n a , I n c . C b o id ln a tio n a n d P l a n n i n g . L o u i s i a n a H ig h e r E d u c a tio n 3. ( B a to n R ouge, L o u is ia n a ,: The C o u n c il, S e p te m b e r 1966) , and fro m R o b e rt L . W il l ia m s , L e g a l B ases o f C o o r d in a tin g B o ard s o f H ig h e r E d u c a tio n i n T h ir t y - N i n e S t a t e s (C h ic a g o , I l l i n o i s : The C o u n c il o f S t a t e G o v e rn m e n ts, S e p te m b e r 1 9 6 7 ) . W i l l i a m 's w o rk i s b a s e d o n s t a t u t e s an d t h e f o r m e r o n q u e s t i o n n a i r e s . W illia m ’ s summary t a b l e c o n t a i n s e r r o r s e v e n i n te rm s o f h i s own summary o f la w s . I n a d d i t i o n t h e r e a r e c o n t r a d i c t i o n s b e tw e e n t h e P .A .R . sum m aries a n d W i l l i a m s ’ . A d ju s tm e n ts w e re m ade, a s th e y a p p e a re d a p p r o p r i a t e i n p a r t b a s e d o n r e s p o n s e s t o th e s u rv e y f o r t h i s s t u d y . A m ore c o n s i s t e n t an d c o m p re h e n s iv e n a t i o n a l s u r v e y i s much n e e d e d . 261 i s t h e a lm o s t u n i v e r s a l r u l e f o r t h e c o n s o l i d a t e d g o v e rn in g b o a rd fo rm o f ag en cy a s w e ll a s i n t h e c a s e s o f t h e t h r e e s t a t e b o a rd s o f e d u c a ti o n c h a rg e d w i t h c o o r d i n a t i o n . A l l c o n s o lid a .te d g o v e rn in g b o a rd s may be n e c e s s a r i l y c l a s s i f i e d a s h a v in g "m anagem ent" r e s p o n s i b i l i t i e s . Two o f th e t h r e e s t a t e b o a rd s may be s i m i l a r l y d e s i g n a t e d i n r e s p e c t t o o v e r a l l f u n c t i o n s . Ten c o o r d i n a t i n g b o a r d s , h o w e v e r, h av e f u n c t i o n s w h ic h a r e p r i m a r i l y a d v i s o r y i n n a t u r e , t h e b a la n c e may be c a t e g o r i z e d as m anagem ent b o a rd s i n m ost 3 m a jo r r e s p e c t s . I t i s n o t e s s e n t i a l h e r e to c o n s i d e r a l l th e v a r i o u s k in d s o f a c t i v i t i e s h i g h e r e d u c a ti o n a g e n c ie s may p e r f o r m i n r e s p e c t t o p l a n n i n g , c o o r d i n a t i o n , r e g u l a t i o n o r c o n t r o l . T a b le V d o e s , h o w e v e r, sum m arize t h r e e g e n e r a l k in d s o f r e s p o n s i b i l i t i e s w h ic h hav e m a jo r im p o rt i n c o n s i d e r i n g t h e a g e n c y * s r e l a t i o n s h i p s w ith s t a t e g o v e rn m e n t: r e v ie w and comment o n h i g h e r e d u c a t i o n b u d g e ts , w h e th e r o r n o t th e a g e n c y i s c h a rg e d w i t h p r e s e n t a t i o n o f a com bined b u d g e t r e q u e s t f o r h i g h e r e d u c a t i o n , and t h e e x t e n t t o w h ich t h e a g e n c y r e v i e w s , and a p p r o v e s , e s t a b l i s h m e n t o f new a c a d e m ic p r o g r a m s . The summary show s t h a t o f t h e t h i r t y - n i n e a g e n c ie s 3 T h e se a r e c l a s s i f i c a t i o n s made by W illia m s a n d i n t h e a b s e n c e o f o t h e r s a r e t h e b e s t a v a i l a b l e t o d a t e . The b a s i s f o r h i s d e s i g n a t i o n s a r e h o w e v e r, n o t a lw a y s c l e a r . TABLE 5 CHARACTERISTICS OF STATE HIGHER EDUCATION AGENCIES STATE Coord. Board Form Estab. Membership No• Inst• Other General Function Reviews Present No New Rep. Advisory Management Budgets Consol. Budget or Equivalent Progr. With out Ap, Arkansas 1961 10 — (10) X X X — California 1960 18 (12) (6) X X — — Colorado 1965 7 — (7) X X X X Connecticut 1965 16 (4) (12) X X — X Illinois 1961 13 (5) (8) X X — X Kentucky 1966 15 (6) (9) X X — Maryland 1965 9 — (9) X — — - Massachusetts 1965 11 (5) (6) X X — X Minnesota 1965 18 (10) (8) X — — Missouri 1963 10 (4) (6) X X — New Hampshire 1963 9 (6) (3) X — — M New Jersey 1966 15 (6) (9) X X X y ON A TABLE 5, continued CHARACTERISTICS OF STATE HIGHER EDUCATION AGENCIES STATE Coord. Board Form Estab. No. Membership Inst. Other Rep. General Advisory Function Management Reviews Budgets Present Consol. Budget or Equivalent No New P rogr. With out A p -. New Mexico 1951 11 tur n (11) X X X — N. Carolina 1955 15 (7) (8) X X — Ohio 1965 9 — (9) X X — X Oklahoma 1941 9 — (9) X . X X X S. Carolina 1966 7 — (7) X X — X Tennessee 1967 9 — (9) X X — X Texas 1955 18 — (18) X X — X Utah 1959 11 (5) (6) X X X X Virginia 1956 10 — (10) X X — X Wisconsin 1955 17 (8) (9) X X X X Governing Bd. Form Alaska 1935 8 - - (8) X X X X Arizona 1945 10 — (10) X X X X Florida 1905 9 — (9) X X X X Idaho 1912 9 (1) (8) X X X X Kansas 1913 9 — (9) X X X X to Georgia 1931 15 — (15) X X X V O N A STATE Govern. Bd. TABLE 5, continued CHARACTERISTICS OF STATE HIGHER EDUCATION AGENCIES Estab. Membership Present No New Form No. Inst. Rep. Other General Advisory Function Management Reviews Budgets Consol. Budget or Equivalent Progr. With out Apt Iowa 1909 9 — (9) X X X X Mississippi 1944 13 — (13) X X X X Montana 1889 11 — (11) X X X X Nevada 1864 9 — (9) X X X X N. Dakota 1938 7 — (7) X X X X Oregon 1929 9 MM (9) X X X X Rhode Island 1939 9 - (9) X X X X S. Dakota 1897 7 - (7); X X X X State Board Form Michigan 1965 8 (8) X X „ New York 1961a 15 --------- (15) X — — MM Pennsylvania 1966 17 MM (17) X X — — aDate of effective inplementation of long-standing authority 265 a l l "but f o u r h a v e some r e s p o n s i b i l i t i e s i n r e s p e c t to t h e r e v ie w o f i n s t i t u t i o n a l b u d g e ts . T h is r e v ie w may be l i m i t e d ( a s i s t h e c a s e i n C a l i f o r n i a ) o r i t may e n t a i l t h e pow er t o r e d u c e i n s t i t u t i o n a l b u d g e t r e q u e s t s b e f o r e t h e y a r e s u b m i tt e d t o t h e s t a t e b u d g e t-m a k in g b o d i e s . The c o n s o l i d a t e d g o v e r n in g b o a rd s by t h e i r n a t u r e h a v e maximum r e s p o n s i b i l i t i e s to w a rd t h e r e v ie w , s u b m is s io n a n d d e f e n s e o f p r o p o s a l s on b e h a l f o f t h e i n s t i t u t i o n s a d m i n i s t e r e d by th em . H ow ever, t h e summary t a b l e i n d i c a t e s t h a t o n l y a few c o o r d i n a t i n g b o a rd s have s i m i l a r p o w e rs, s p e c i f i c a l l y , 4 s e v e n o f tw e n ty - tw o . None o f t h e s t a t e b o a rd s o f e d u c a t i o n h a v e s u c h r e s p o n s i b i l i t i e s . .A pproval o f t h e e s t a b l i s h m e n t o f m o s t, i f n o t a l l , new p ro g ram s i n p u b l i c c o l l e g e s an d u n i v e r s i t i e s i s l i k e w is e r e l e v a n t to c o n s i d e r i n g a g e n c y - s t a t e g o v e rn m e n t r e l a t i o n s h i p s . A g a in a l l g o v e r n in g b o a rd fo rm s a r e c h a rg e d w i t h u l t i m a t e new p ro g ra m a p p r o v a l . Some t h i r t e e n c o o r d i n a t i n g b o a rd s hav e t h i s a u t h o r i t y a s w e l l , b u t none o f t h e s t a t e b o a rd s h a v e t h i s p o w er. T h is b r i e f summary i l l u s t r a t e s some m a jo r d i f f e r e n c e s among t h e c o o r d i n a t i n g b o a rd fo rm s o f a g e n c y i n te rm s 4 O th e r s t a t e a g e n c ie s s u c h a s t h o s e o f O hio a n d T ex as h a v e a u t h o r i t y f o r b u d g e t r e v ie w a n d re c o m m e n d a tio n t h a t i n t h e i r e f f e c t a p p e a r ta n ta m o u n t t o p r e s e n t a t i o n o f a c o n s o l i d a t e d b u d g e t. 2 66 o f m anagem ent r e s p o n s i b i l i t i e s , i n f l u e n c e u p o n b u d g e t o u t comes and new p ro g ram e s t a b l i s h m e n t . The h i g h e r e d u c a t i o n a g e n c y w i t h c o n s i d e r a b l e b u d g e t-m a k in g a u t h o r i t y a n d c o n t r o l o v e r a c a d e m ic p ro g ra m d e v e lo p m e n t may f i n d i t s l e g i s l a t i v e - e x e c u t i v e r e l a t i o n s h i p s o f a much d i f f e r e n t o r d e r t h a n does t h e a g e n c y w i t h l e s s e r a u t h o r i t y and e s s e n t i a l l y a d v i s o r y t a s k s . A s p e c ts o f t h i s q u e s t i o n a r e c o n s i d e r e d , b a s e d on r e s u l t s o f a n a t i o n a l s u r v e y . I n o r d e r t o d e v e lo p a p e r s p e c t i v e o f t h e c ir c u m s ta n c e s o f h i g h e r e d u c a t i o n a g e n c y o p e r a t i o n s i n t h e c o n t e x t o f t h e g o v e rn m e n ts o f t h e r e s p e c t i v e s t a t e s , a s t r u c t u r e d q u e s t i o n n a .i r e was p r e p a r e d and s e n t to t h e c h i e f e x e c u t i v e o f f i c e r s o f t h e t h i r t y - n i n e s t a t e a g e n c i e s . T h is q u e s t i o n n a i r e c o n ta in e d a num ber o f q u e s t i o n s s i m i l a r i n n a t u r e to t h o s e a s k e d o r a l l y i n i n t e r v i e w s i n t h e C a l i f o r n i a i n v e s t i g a t i o n an d w e re d e s ig n e d to d e v e l o p , i n so f a r a s p o s s i b l e , a s t a t e m e n t o f t h e p e r c e p t i o n s o f e a c h s t a t e a g e n c y h e l d by i t s own c h i e f s t a f f . The q u e s t i o n s r e l a t i n g t o p e r c e p t i o n s w e re s u p p l e m e n te d by o t h e r s d e s ig n e d t o d e v e lo p a p i c t u r e o f t h e budget m ak in g p r o c e s s i n t h e s t a t e and t h e a g e n c y ’ s r o l e i n t h a t p r o c e s s . A s e r i e s o f i n q u i r i e s w e re a l s o made w h ich w e re in te n d e d t o e x p lo r e t h e p r o c e d u r e s o f t h e c o o r d i n a t i n g o r g o v e r n in g b o a rd u s e s i n i t s l e g i s l a t i v e - e x e c u t i v e r e l a t i o n s h i p s a n d t h o s e f a c t o r s w h ic h a p p e a r t o be m o st im p o r t a n t i n a c h i e v i n g s a t i s f a c t o r y r e s u l t s . ( A d d i t i o n a l s e r i e s 267 o f q u e s t i o n s w e re a sk e d "but a r e n o t r e p o r t e d h e re a s th e y c o n c e rn th e a g e n c y i n i t s r e l a t i o n s h i p s w ith th e i n s t i t u t i o n s o f h i g h e r e d u c a t i o n .) The q u e s t i o n n a i r e was d e v e lo p e d by t h e a u th o r i n a s s o c i a t i o n w i t h R o b e rt B e rd a h l an d was d i s t r i b u t e d by th e A m erican C o u n c il on E d u c a tio n a s p a r t o f B e rd a h l* s S tu d y o f S ta te w id e S y stem s o f H ig h e r E d u c a tio n . I n C h a p te r XI r e s u l t s o f t h e s u rv e y a r e p r e s e n t e d , b a s e d u p o n t a b u l a t e d r e p l i e s . R esp o n ses w e re r e c e i v e d from a l l o f t h e c o o r d i n a t i n g b o a rd fo rm a g e n c ie s w ith t h e e x ce p t i o n o f New J e r s e y , S o u th C a r o li n a , and T e n n e s s e e . ( A ll a r e new a g e n c i e s . ) R e p l i e s w ere a l s o r e c e i v e d from a l l c o n s o l i d a t e d g o v e rn in g b o a rd s s a v e th o s e o f Iow a, N evada and Rhode I s l a n d . The t h r e e b o a rd s o f e d u c a ti o n c h a rg e d w ith c o o r d i n a t i n g r e s p o n s i b i l i t i e s each re s p o n d e d . I n t h e p r e s e n t a t i o n o f d a t a , i n d i v i d u a l s t a t e s a r e n o t i d e n t i f i e d i n r e s p e c t to t h e p ro m ise o f c o n f i d e n t i a l i t y a t th e tim e o f th e q u e s t i o n n a i r e 's d i s t r i b u t i o n . I n m ost i n s t a n c e s r e s p o n s e s a r e p r e s e n t e d f o r th e two m ajo r g ro u p s o f a g e n c ie s : th o s e o f c o o r d i n a t i n g b o a rd fo rm and t h o s e o f c o n s o l i d a t e d g o v e rn in g b o a rd s t r u c t u r e . R e p li e s from th e t h r e e s t a t e b o a rd s a r e t a b u l a t e d w ith t h e c o o r d i n a t i n g b o ard g ro u p due t o t h e g e n e r a l s i m i l a r i t i e s b e tw e e n th e two c l a s s i f i c a t i o n s a n d t h e k in d s o f t a s k s p e rfo rm e d by t h e a g e n c i e s . I n t h e f i r s t g r o u p in g , t h e r e f o r e , a r e t a b u l a t e d a n sw e rs from 268 some tw e n ty -tw o c o o r d i n a t i n g b o a rd s and s t a t e b o a rd s ; an d i n th e s e c o n d , r e p l i e s from t e n c o n s o l id a te d g o v e rn in g b o a r d s . ^ ■^Montana's r e p l y c o u ld n o t be t a b u l a t e d . The C a l i f o r n i a r e p l y i s i n c lu d e d i n t h e f o llo w in g so t h a t th e m a t e r i a l may be r e p r e s e n t a t i v e o f t h e t o t a l n a t i o n a l p a t t e r n . C om parisons a r e made b e tw ee n t h i s n a t i o n a l p a t t e r n and th e C a l i f o r n i a c a s e i n t h e c o n c l u s i o n . I n a s e n s e t h i s com pares C a l i f o r n i a w ith a g r o u p in g o f w hich i t i s a l s o a s m a ll p a r t . F o r e a s e o f p r e s e n t a t i o n , th e C a l i f o r n i a c a se h a s n o t b e e n rem oved f o r n a t i o n a l d a t a when c o m p a riso n s a r e m ade, a s w ould not m a t e r i a l l y m odify t h e g e n e r a l f i n d i n g s and w ould o n ly l e a d to a m ore c o m p lic a te d p r e s e n t a t i o n . (The a u t h o r d id n o t p a r t i c i p a t e i n t h e c o m p le tio n o f th e C a l i f o r n i a r e s p o n s e .) C H A PT E R XI HIGHER EDUCATION AGENCIES AND STATE GOVERNMENTS; ROLES AND FUNCTIONS PERFORMED I t h a s b e e n s u g g e s te d t h a t t h e h i g h e r e d u c a t i o n a g e n c y i n t h e c o u r s e o f p u r s u i n g i t s i n t e r e s t s w i t h i n t h e p o l i t i c a l p r o c e s s p e rf o rm s c e r t a i n p o l i t i c a l l y - r e l e v a n t r o l e s a n d f u n c t i o n s . T hese may p e rh a p s be d i c t a t e d by t h e s t r u c t u r e o f s t a t e g o v e rn m e n t, t h e i n d i v i d u a l a c t o r s c o n c e r n e d , and t h e c o l l e g i a t e i n s t i t u t i o n s w h ic h a r e t h e c o n s t i t u e n t s o f t h e h i g h e r e d u c a t i o n agency * I n a n a t t e m p t t o exam ine i n g r o s s te rm s t h e p o l i t i c a l a s p e c t s o f h i g h e r e d u c a t i o n c o o r d i n a t i o n o n a n a t i o n a l b a s i s , a n e f f o r t i s h e r e made t o ju d g e t h e e x t e n t to w h ich p o l i t i c a l l y - r e l e v a n t r o l e s a n d f u n c t i o n s a r e p e r fo rm ed by t h e c o o r d i n a t i n g a g e n c i e s o f a l l t y p e s t o g e t h e r w i t h some o f t h e c ir c u m s ta n c e s I n w h ic h e: changes b e tw e e n a g e n c y an d t h e o f f i c i a l s and d e p a r tm e n ts o f s t a t e g o v e rn m en ts o c c u r . The e x t e n t to w h ic h common p a t t e r n s a r e a p p a r e n t I s n o t e d , a s w e l l a s m a jo r d i v e r g e n c i e s * R o le s P e rfo rm e d I n q u e s t i o n n a i r e s s e n t t o h i g h e r e d u c a t i o n a g e n c i e s 269 th r o u g h o u t th e c o u n tr y a s e r i e s o f q u e s t i o n s w e re a s k e d d e s ig n e d t o i d e n t i f y t h e r o l e s a n d f u n c t i o n s t h e s e a g e n c i e s p e rfo r m i n t h e p o l i t i c a l c o n t e x t , a t l e a s t i n t h e o p i n i o n o f th e o f f i c i a l s o f t h o s e a g e n c i e s , 1 R e s u l t s a r e sum m arized i n T a b le s VI a n d V II* F in d in g s o f t h e s u r v e y t e n d to show t h a t m o st h i g h e r e d u c a t i o n a g e n c ie s may be c o n s i d e r e d a s p e r f o r m in g a n a d v o c a te o r l o b b y i s t r o l e f o r h i g h e r e d u c a t i o n , th o u g h some s i x o f t h e a g e n c ie s o f t h e c o o r d i n a t i n g b o a rd g r o u p in g a r e n o t v ie w e d a s p e rf o r m in g i n t h i s c a p a c i t y by t h e i r s t a f f o f f i c e r s . S i m i l a r l y two o f t h e g o v e r n in g b o a rd s a r e n o t t h o u g h t to a c t a s l o b b y i s t s f o r t h e i r h i g h e r e d u c a t i o n s y s te m . B o ard s o f b o th t y p e s t e n d t o be c o n s i d e r e d t o be p e r f o r m in g a s t h e l e a d e r o f h i g h e r e d u c a t i o n i n t h e r e s p e c t i v e s t a t e s ( th o u g h a few q u a l i f i e d t h e i r r e s p o n s e s i n te rm s o f " a " l e a d e r o f h i g h e r e d u c a t i o n ) • The r o l e o f n e x p e r t 1 1 a d v i s o r o n h i g h e r e d u c a t i o n m a t t e r s , t o b o th l e g i s l a t u r e s a n d g o v e r n o r s , i s commonly n o te d a s b e in g a r o l e p e rfo rm e d by t h e h i g h e r e d u c a t i o n a g e n c y o f e i t h e r g e n e r a l t y p e . Many b o a rd s a r e c o n s i d e r e d to be p e r f o r m in g a s t h e p r im a r y sp o k esm an f o r h i g h e r e d u c a t i o n i n t h e i r 1 S ee C h a p te r V II f o r a d i s c u s s i o n o f t h e u s e o f ’’r o l e " a n d t h e h i g h e r e d u c a t i o n a g e n c y a s w e l l a s f o r a d i s c u s s i o n o f t h e i n d i v i d u a l p o l i t i c a l l y r e l e v a n t r o l e s a n d f u n c t i o n s h e r e p r e s e n t e d . 271 TABLE 6 POLITICALLY-RELEVANT ROLES, STATE HIGHER EDUCATION AGENCIES ROLES COORDINATING BOARD FORMa GOVERNING BOARD FORMb P e rfo rm s Does N ot P e r fo r m s Does N ot i P e r fo r m P e rfo rm ; a . L o b b y i s t f o r h i g h e r e d u c . 15 b . L e a d e r o f H ig h e r e d u c , 16 Co E x p e rt a d v i s o r t o : 1 . L e g i s l a t u r e ^ 2 . G o v e rn o r 20 d . A r b i t r a t o r o f C o n f l i c t s 7 e* M e d ia to r o f C o n f l i c t s 19 f . Spokesm an f o r h i g h e r e d u c . 15 6 8 2 4 9 2 9 1 1 8 2 14 6 4 1 6 4 6 9 1 a 19 c o o r d i n a t i n g b o a rd s r e p l y i n g a n d 3 s t a t e b o a rd s o f e d u c a t i o n . ^10 c o n s o l i d a t e d g o v e rn in g b o a rd s r e p l y i n g . 2 ?2 TABLE 7 POLITICALLY-RELEVANT FUNCTIONS, STATE HIGHER EDUCATION AGENCIES FUNCTIONS COORDINATING BOARD FORMa GOVERNING BOARD FORMb Does Not Does N ot P e rfo rm s P e rf o rm P e rfo rm s P e r fo r m a . I n n o v a t i o n f o r H ig h e r Eduo. 18 k 6 k b . I m a g e - B u ild in g l^ 7 7 3 c . R e s e a rc h 18 3 k 6 ; d . E x te n s io n o f b u d g e t o f f i c e 2 18 10 j e . L e g i s l a t i v e I n v e s t i g a t i o n 3 18 1 9 f . A d m i n i s t r a t i v e ■ Agency 5 Ik 5 5 ! g . A d m i n i s t r a t i v e - A d v iso ry i n ! C o m b in a tio n 20 2 k 6 a 19 c o o r d i n a t i n g b o a rd s r e p l y i n g a n d 3 s t a t e b o a rd s o f e d u c a ti o n . ^10 c o n s o l i d a t e d g o v e rn in g b o a rd s r e p l y i n g . 273 r e s p e c t i v e s t a t e s . H ow ever, t h e c o o r d i n a t i n g b o a rd g ro u p i n c l u d e s some s i x c a s e s w here t h e l a t t e r r o l e i s n o t s e e n a s a p p l i c a b l e , w h ile o n ly one c o n s o l i d a t e d g o v e rn in g b o a rd c a n be so c l a s s i f i e d . The m a j o r i t y o f th e g o v e rn in g b o a rd s a r e p e r c e i v e d a s p e rf o r m in g a r o l e o f a r b i t r a t o r o f h i g h e r e d u c a ti o n c o n f l i c t s o n o c c a s i o n , ( I n t h i s c o n n e c tio n t h e q u e s t i o n n a i r e made c l e a r t h a t " a r b i t r a t i o n " m u st r e s u l t i n b in d in g d e c i s i o n s . ) H ow ever, t w o - t h i r d s o f t h e c o o r d i n a t i n g b o a rd g r o u p in g d id n o t se e t h e i r a g e n c y i n t h i s r o l e . The m e d ia to r c h a r a c t e r i z a t i o n , w h ere t h e e m p h asis i s p la c e d u p o n n e g o t i a t i o n , c o n se n s u s a n d com prom ise, i s s e e n a s a p p r o p r i a t e t o n e a r l y a l l c o o r d i n a t i n g b o a r d s . H ow ever, f o u r o f t h e g o v e rn in g b o a rd s a p p a r e n t l y a r e n o t v iew ed a s p e rfo r m in g i n t h i s c a p a c i t y . F u n c tio n s P e rfo rm e d M ost b o a rd s o f th e c o o r d i n a t i n g form a r e r e p o r t e d t o p e rfo rm a f u n c t i o n l e a d i n g t o some i n n o v a t i o n f o r h i g h e r e d u c a t i o n i n t h e i r s t a t e s . H ow ever, f o u r o f t h e t e n c o n s o l i d a t e d g o v e rn in g b o a rd s i n t h e s u r v e y a r e n o t c o n s i d e r e d t o be p u r s u in g t h i s f u n c t i o n . Some t w o - t h i r d s o f t h e c o o r d i n a t i n g b o a rd s a r e view ed a s en g ag ed i n a c t i v i t i e s w h ic h c an be r e l a t e d t o a n im a g e - b u ild in g o r p u b l i c r e l a t i o n s f u n c t i o n o f h i g h e r e d u c a t i o n . A s i m i l a r p r o p o r t i o n o f t h e g o v e r n in g b o a rd g ro u p a r e s e e n s i m i l a r l y . The 274 f u n c t i o n o f r e s e a r c h i s e m p h a size d w ith m ost c o o r d i n a t i n g h o a rd fo rm s , h u t t h e m a j o r i t y o f g o v e rn in g b o a rd s a r e n o t th o u g h t t o p e rfo rm a s r e s e a r c h g ro u p s f o r h i g h e r e d u c a tio n . O nly two b o a rd s o f e i t h e r ty p e a r e v iew ed a s fu n c t i o n i n g a s a n e x t e n s i o n o f t h e b u d g e t o f f i c e o f t h e i r s t a t e . S i m i l a r l y b o a rd s a r e se ld o m s a i d t o f u n c t i o n a s th o u g h th e y w ere l e g i s l a t i v e i n v e s t i g a t i n g c o m m ittee s f o r h i g h e r e d u c a t i o n . I n r e p l i e s t o q u e s t i o n s r e l a t i n g to w h e th e r o r n o t t h e a g e n c y c o u ld be c h a r a c t e r i z e d a s adm in i s t r a t i v e i n n a t u r e o r a m ix tu r e o f a d v i s o r y an d a d m l n l s t r a r t i v e f u n c t i o n s , i t a p p e a r s few c o o r d i n a t i n g b o a rd s a r e p e r c e i v e d a s p e rf o r m in g p r i m a r i l y i n a n a d m i n i s t r a t i v e c a p a c i t y . H ow ever, n e a r l y a l l c o n s i d e r t h a t t h e y p e rfo rm a d v i s o r y f u n c t i o n s m ixed w ith t h o s e w h ich a r e a d m i n i s t r a t i v e . The c o n s o l i d a t e d g o v e rn in g b o a rd s te n d e d t o d i v i d e b e tw e e n t h e two c h a r a c t e r i z a t i o n s . The c o o r d i n a t i n g b o a rd fo rm o f a g e n c y , r e s p o n s e s to o t h e r q u e s t i o n s i n d i c a t e d , i s som ewhat m ore l i k e l y t o be c o n s id e r e d by i t s c h i e f s t a f f p e r s o n n e l a s b e in g a s s o c i a t e d w ith s t a t e g o v e rn m e n t, r a t h e r t h a n h i g h e r e d u c a t i o n . Some s t a t e s i n d i c a t e d a n a s s o c i a t i o n w ith b o th o f t h e s e c t o r s s u g g e s t i n g a p l a c i n g o f t h e a g e n c y b e tw e e n h i g h e r e d u c a ti o n an d s t a t e g o v e rn m e n t. G o v e rn in g b o a rd s a r e t y p i c a l l y v iew ed a s a s s o c i a t e d w ith h i g h e r e d u c a ti o n r a t h e r t h a n w ith s t a t e g o v e rn m e n t. A d v iso ry a n d M a n a g e ria l R e s p o n s i b i l i t i e s 275 A n a l y s i s o f t h e d a t a r e v e a l s t h a t t h e r e a r e some im p o r ta n t d i f f e r e n c e s i n p e r c e i v e d r o l e s and f u n c t i o n s o f c o o r d i n a t i n g a g e n c ie s w ith p r i m a r i l y a d v i s o r y r e s p o n s i b i l i t i e s i n c o m p a ris o n w ith t h o s e h a v in g t a s k s c h a r a c t e r i z e d a s b e in g l a r g e l y m a n a g e r ia l i n n a t u r e . (T a b le V I II sum m a r iz e s r e s p o n s e s i n t h e s e t e r m s . ) ^ The ag en cy a s s i g n e d a d v is o r y t a s k s a p p e a rs t o a l e s s e r e x t e n t to be v iew ed a s p e rfo rm in g th e l o b b y i s t o r a d v o c a te r o l e t h a n t h e a g en c y h a v in g m a n a g e r ia l r e s p o n s i b i l i t i e s . S i m i l a r l y p e rfo rm a n c e o f t h e spokesm an an d a r b i t r a t o r r o l e s a r e e n c o u n te r e d to a l e s s e r d e g re e i n a d v is o r y a g e n c ie s t h a n i n t h o s e w h ich a r e m a n a g e r i a l . I n a d d i t i o n , t h e a d v is o r y body may p e rfo rm a n i n n o v a t i o n f u n c t i o n o r o n e o f im a g e - b u ild in g f o r h i g h e r e d u c a ti o n o n ly t o a l i m i t e d e x t e n t . T h ese d i f f e r e n c e s t e n d to s u g g e s t t h a t th e a d v is o r y a g e n c y w i l l be l e s s l i k e l y t h a n t h e b o a rd w i t h m a n a g e r ia l r e s p o n s i b i l i t i e s t o em p h asize l e a d e r s h i p - o r i e n t e d r o l e s and f u n c t i o n s . I t w i l l s t r e s s t h o s e d e s ig n e d t o i n c r e a s e t h e O ^ G o v ern in g b o a rd s a r e m a n a g e r ia l by d e f i n i t i o n . Ad v i s o r y an d m a n a g e r ia l a g e n c ie s among t h o s e o f t h e c o o r d i n a t i n g b o a rd o r s t a t e b o a rd o f e d u c a ti o n form s w ere i d e n t i f i e d u s i n g W illia m s* d e s i g n a t i o n s . S ee R o b e r t L . W illia m s , L e g a l B a se s o f C o o r d i n a t i o n B o ard s o f H ig h e r E d u c a tio n i n T h ir t y - N i n e S t a t e s (C h ic a g o . I l l i n o i s : The C o u n c il o f S t a t e G o v ern m en ts, S e p te m b e r 1967). 276 TABLE 8 POLITICALLY-RELEVANT ROLES AND FUNCTIONS AS PERFORMED BY ADVISORY AND MANAGERIAL STATE COORDINATING AGENCIES3- ROLES ADVISORY P e rfo rm s Does Not P e rfo rm MANAGERIAL P e rfo rm s Does N ot P e rfo rm a . L o b b y is t b . L e a d e r c . E x p e rt A d v is o r 1 . L e g . 2 . G ov. d . A r b i t r a t o r e . M e d ia to r f . Spokesm an FUNCTIONS a . I n n o v a t i o n b . I m a g e - b u il d i n g c . R e s e a r c h d . B u d g et O f f i c e e . L e g . I n v e s t . f . A d m i n i s t r a t i v e g . M ixed: ad m in . a d v i s o r y 4 5 7 7 1 7 4 5 5 8 1 2 2 5 3 1 1 8 1 5 4 4 1 8 7 7 11 11 12 13 6 12 12 13 9 1 1 2 1 2 13 1 1 1 6 3 1 9 11 7 a 9 a d v i s o r y a g e n c i e s , 13 m a n a g e r i a l . I n c l u d e s s t a t e b o a rd s o f e d u c a t i o n w ith c o o r d i n a t i n g r e s p o n s i b i l i t i e s . 277 e x p e r t image o f th e a g e n c y . N e v e r t h e le s s , an d p erh a p s m ost im p o r t a n t ly , a number o f t h e s o - c a l l e d a d v is o r y a g e n c ie s do p erfo rm r o l e s and f u n c t i o n s s i m i l a r to t h o s e o f m a n a g e r ia l a g e n c i e s . Thus t h e a d v is o r y a g e n c y may n o t be l e s s a c t i v e i n i t s program t o i n f lu e n c e p o lic y -m a k e r s s im p ly b e c a u se o f i t s s t a t u t o r y l i m i t a t i o n s ; o th e r f a c t o r s may b e a t w ork . The c o m p o s itio n o f th e m em bership o f th e a g e n c y 1s b oard may a f f e c t i t s p erfo rm a n ce i n th e a r e n a o f s t a t e g o v e rn m e n t. I f h ig h e r e d u c a tio n r e p r e s e n t a t io n i s p r e s e n t o n t h e b o a rd , t h e n a r e a g e n c y f u n c t io n s and r o l e s m o d ifie d t o a n y d e g r ee ? (T a b le IX su m m arizes r e s p o n s e s in t h e s e t e r m s .) D ata te n d to I n d ic a t e t h a t I n s t i t u t i o n a l r e p r e s e n t a t i o n on th e c o o r d in a t in g board i t s e l f d o e s n o t seem t o h ave a s i g n i f i c a n t r e l a t i o n s h i p t o th e p o l i t i c a l l y - r e l e v a n t r o l e s and f u n c t io n s p erfo rm ed by th e a g e n c y . The a g e n c y w ith c o l l e g i a t e members o n i t s b oard i s p e r c e iv e d a s p erh ap s l e s s o f t e n t o be th e spokesm an f o r h ig h e r e d u c a tio n i n t h e s t a t e th a n I s t h e a g en cy w ith o u t su c h r e p r e s e n t a t io n o n i t s b o a r d . On t h e o t h e r h an d , m ore a g e n c ie s e n c o m p a ssin g I n s t i t u t i o n a l r e p r e s e n t a t io n a r e s e e n a s en g a g ed in im a g e -b u ild in g f u n c t i o n f o r h ig h e r edu c a t i o n th a n I s th e c a s e f o r th e o t h e r g r o u p in g . I f , h o w ev e r, t h e f a c t o r o f I n s t i t u t i o n a l r e p r e s e n t a - t i o n i s c o u p le d w ith a d v is o r y r e s p o n s i b i l i t i e s th e n t h e r e 278 TABLE 9 POLITICALLY-RELEVANT ROLE3 AND FUNCTIONS AS PERFORMED BY STATE COORDINATING AGENCIES WITH INSTITUTIONAL AND ALL LAY REPRESENTATION INST. REP. NO INST. REP. ROLES P e rfo rm s Does N ot P e rfo rm s P e rfo rm Does N ot P e r f o r m a . L o b b y is t 7 3 8 3 b . L e a d e r 8 2 8 2 c . E x p e r t A d v is o ry 1 . L e g . 2 . Gov. 10 10 1 1 9 10 1 d . A r b i t r a t o r 3 7 k 7 e . M e d ia to r 8 1 11 - f . Spokesm an 5 5 11 - FUNCTIONS a . I n n o v a t i o n 9 2 9 2 b . I m a g e - b u ild in g 9 2 6 5 c . R e s e a r c h 10 1 9 1 d . B udget O f f i c e - 10 2 8 e . L e g . I n v e s t . 1 9 2 9 f . A d m i n i s t r a t i v e 3 6 3 8 g . M ixed: ad m in , an d a d v i s o r y 10 1 11 a E le v e n a g e n c y b o a rd s w i t h i n s t i t u t i o n a l m em bers, 11 w i t h o u t . I n c l u d e s s t a t e b o a rd s o f e d u c a t i o n w i t h c o o r d i n a t i n g r e s p o n s i b i l i t i e s . T h ree b o a rd s h a v e a m a j o r i t y o f i n s t i t u t i o n a l r e p r e s e n t a t i v e s : C a l i f o r n i a , M in e s o ta a n d New H a m p sh ire . The l a t t e r b o a rd h a s minimum r e s p o n s i b i l i t i e s . 279 Is an indication of some significant differences. (Table X presents responses in terms of selected roles and func tions.) In all there are six coordinating boards haring Institutional representatives with responsibilities pre dominately advisory in nature. When these six cases are compared with the balance of the coordinating board form grouping (sixteen boards, Including the three state boards of education) it is found that institutional representative advisory boards divide equally in respect to the performance of the lobbyist role while the great majority of the other boards, whether of advisory or managerial responsibilities, are seen to perform this role. Only one of the six in the former group performs the spokesman role, while all of the other coordinating boards replied that their agency could be described as a spokesman for higher education on some occasions. The institutional representative/advisory agency is less likely to perform the arbitrator role according to replies and may be somewhat less disposed to perform innovation functions. Further study is required to explore the relation ships between agency membership, advisory assignment and 280 TABLE 10 SELECTED POLITICALLY-RELEVANT ROLES AND FUNCTIONS PERFORMED BY STATE COORDINATING AGENCIES WITS INSTITUTIONAL MEMBERSHIP AND ADVISORY FUNCTIONS AS COMPARED TO ALL OTHER AGENCIES8- ROLE OR FUNCTION I n s t . : A d v iso ry P e rfo rm s R e p ./ B oard Does Not P e rfo rm A l l O th e r C oor d i n a t i n g B oards P e rfo rm s Does Not P e rfo rm a . L o b b y is t 3 3 12 3 b . L e a d e r 4 2 12 2 c . A r b i t r a t o r 1 5 6 8 d . I n n o v a t i o n 4 2 14 2 e . Im a g e -B u ild in g 4 2 10 5 f . Spokesm an 1 5 15 - a 6 i n s t i t u t i o n a l r e p . / a d v i s o r y b o a rd s ; 16 o t h e r s . I n c l u d e s s t a t e b o a rd s o f e d u c a ti o n w ith c o o r d i n a t i o n r e s p o n s i b i l i t i e s . 281 t o t a l im p a ct o f t h e a g e n c y . ^ The r e s u l t s h e r e c i t e d a r e a t b e s t s u g g e s t iv e o f what may be t h e c a s e . Summary I f th e t y p i c a l s t a t e h ig h e r e d u c a tio n a g e n c y i n i t s r e l a t i o n s h i p s w ith govern m en t w e re t o be c h a r a c t e r iz e d b a sed on r e s p o n s e s i n t h i s s tu d y i t c o u ld be s t a t e d t h a t t h e a g e n c y f o r c o o r d in a t io n g e n e r a l l y p u r su e s r o l e s t o em p h a size i t s e x p e r t n e s s in h ig h e r e d u c a tio n m a t t e r s . A t t h e same tim e i t i s a c t i v e on b e h a lf o f h ig h e r e d u c a t io n i n a d v o c a tin g o r lo b b y in g f o r h ig h e r e d u c a t io n , s e e k s t o a c t a s le a d e r o f h ig h e r e d u c a t io n , and a s a sp okesm an f o r i t s i n t e r e s t s , and a tte m p ts t o be a s o u r c e o f in n o v a t iv e i d e a s . The a g e n c y i s n o t o f t e n v ie w e d a s a n arm o f t h e L e g is la t u r e o r t h e s t a t e ' s b u d g e t o f f i c e , and i s g e n e r a l l y th o u g h t to be f u l f i l l i n g b o th a d v is o r y and a d m in is t r a t iv e f u n c t io n s a t o n c e . I t i s l i k e l y t o be i n a b e t t e r p o s i t i o n to m e d ia te d is p u t e s among h ig h e r e d u c a tio n i n t e r e s t s th a n to a r b i t r a t e them and hand down d e c i s i o n s . W hether o f t h e c o o r d in a t in g board o r c o n s o lid a t e d g o v e r n in g board fo rm , th e o v e r a l l c h a r a c t e r i z a t i o n i s r e l a t i v e l y s i m i l a r . I f a c o o r d in a t in g b o a r d , I t may be th o u g h t ^On a n a t i o n a l b a s is t h e q u e s t io n o f who s h o u ld be i n t h e m a j o r it y — h ig h e r e d u c a t io n r e p r e s e n t a t iv e s o r l a y mem bers— I s a lm o st m oot In t h a t o n ly t h r e e c a s e s e x i s t w h ere t h e r e i s a m a jo r ity o f c o l l e g i a t e r e p r e s e n t a t i v e s . T h is , o f c o u r s e , I n c lu d e s C a l i f o r n i a . 282 t o be more a p a r t o f s t a t e g o v ern m en t o r a b u f f e r b e tw e e n s t a t e a g e n c ie s and t h e c o l l e g i a t e i n s t i t u t i o n s an d sy ste m s; w h i l e , i f a g o v e r n in g b o a rd , t h e t y p i c a l a g e n c y w i l l t e n d t o be more i d e n t i f i e d w ith t h e i n s t i t u t i o n s . I n a l l t h e r e i s s u g g e s te d a s u b s t a n t i a l l y s i m i l a r p e rfo rm a n c e p e r c e p t i o n f o r h i g h e r e d u c a ti o n c o o r d i n a t i n g b o a rd s o f a l l ty p e s n a t i o n a l l y i n r e s p e c t to t h e r o l e s and f u n c t i o n s s u g g e s t e d i n t h i s s tu d y a s b e in g p o l i t i c a l l y - r e l e v a n t . T h is i s n o t to s a y t h a t t h e t o t a l im p a c t o f e a c h b o a r d does n o t v a ry o v e r a w id e s p e c tru m . At l e a s t two v a r i a b l e s s h o u ld be n o te d : w h e th e r t h e b o ard h a s a d v is o r y o r m a n a g e r ia l t a s k s , a n d w h e th e r t h e board i n c l u d e s I n s t i t u t i o n a l m em bers. T h ese f a c t o r s may te n d t o m odify t h e o v e r a l l c h a r a c t e r i z a t i o n t o some d e g r e e . F i r s t , th e h i g h e r e d u c a ti o n a g e n c y o f t h e c o o r d i n a t i n g b o a rd form a s s i g n e d p r e d o m in a te ly a d v is o r y t a s k s , I s som ewhat l e s s l i k e l y to be s e e n a s p e r f o r m in g th o s e r o l e s a n d f u n c t i o n s d i r e c t e d to w a rd a c t i v e an d a g g r e s s i v e e f f o r t s t o i n f l u e n c e th e o u tco m es o f p u b l i c p o l i c y d i s c u s s i o n i n t h e l e g i s l a t i v e - e x e c u t i v e c o n t e x t . S e c o n d , t h e f a c t a lo n e t h a t i n s t i t u t i o n s a r e r e p r e s e n t e d o n a p a r t i c u l a r b o a rd , d o e s n o t a p p e a r t o m a rk e d ly a f f e c t t h e k in d s o f r o l e s a n d f u n c t i o n s p e rfo rm e d by a n a g e n c y . B u t t h e r e I s a s u g g e s t i o n t h a t th e c o o r d i n a t i o n m echanism w ith a b o a rd com posed i n p a r t o f i n s t i t u t i o n a l r e p r e s e n t a t i v e s and h a v in g a d v is o r y r e s p o n s i b i l i t i e s r a t h e r t h a n m a n a g e r ia l ones w i l l be l e s s l i k e l y to p u rs u e t h e m ore a g g r e s s i v e r o l e s and f u n c t i o n s , i . e . , lo b b y in g f o r h i g h e r e d u c a tio n * s b e n e f i t , a n d a c t i n g a s t h e spokesm an f o r c o l l e g i a t e i n t e r e s t s . T h is i s n o t , h o w e v er, c l e a r l y d e m o n s tr a te d by t h e d a t a and r e q u i r e s f u t u r e s t u d y . C H A PTER XII HIGHER EDUCATION AGENCIES AND STATE GOVERNMENTS PATTERNS AND CIRCUMSTANCES OF RELATIONSHIPS The B u d g e t R eview a n d P r o c e s s Much o f t h e b u s i n e s s o f c o o r d i n a t i n g a g e n c ie s f o r h i g h e r e d u c a t i o n r e l a t e s to q u e s t i o n s r e g a r d i n g t h e f i n a n c i a l s u p p o r t f o r h i g h e r e d u c a t i o n . N a t i o n a l l y a l l b u t f o u r a g e n c ie s p l a y some r o l e i n comment a n d r e v ie w o f t h e f i n a n c i n g n e e d s o f h i g h e r e d u c a t i o n . ■ * * G o v e rn in g b o a rd s o f h i g h e r e d u c a t i o n n e c e s s a r i l y p e rfo r m i n t e n s i v e re v ie w s an d a r e a c t i v e l y e n g a g e d i n t h e d e f e n s e o f p r o p o s a l s b e f o r e t h e L e g i s l a t u r e a n d e x e c u t i v e d e p a r t m e n t s . A t l e a s t s e v e n o f t h e c o o r d i n a t i n g b o a rd fo rm o f h i g h e r e d u c a t i o n a g e n c ie s p r e s e n t a c o n s o l i d a t e d b u d g e t o r I t s e q u i v a l e n t o n b e h a l f o f i n s t i t u t i o n s . O th e r s a d v i s e , comment a n d / o r recom m end. I n v iew o f t h e s t r e s s l a i d o n f i n a n c e s f o r h i g h e r e d u c a t i o n i n t h e t a s k s o f h i g h e r e d u c a t i o n a g e n c i e s , t h e r e l a t i o n s h i p s b e tw e e n t h e h i g h e r e d u c a t i o n a g e n c y a n d th o se ■^See T a b le V, C h a p te r X. 285 o f f i c i a l s a n d o f f i c e s c o n c e rn e d w i t h t h e d e v e lo p m e n t a n d a p p r o v a l o f t h e l e v e l o f f u n d in g f o r p u b l i c h i g h e r e d u c a t i o n i n s t i t u t i o n s w e re e x p lo r e d i n a s e r i e s o f q u e s t i o n s p o se d t o s t a t e a g e n c y s t a f f s . Of t h e t h i r t y - t w o s t a t e s h a v in g h i g h e r e d u c a t i o n a g e n c i e s , a n d f o r w h ic h d a t a was s e c u r e d by q u e s t i o n n a i r e , o n l y f i v e s t a t e d t h a t e x t e n s i v e g u b e r n a t o r i a l an d e x e c u tiv e d e p a r tm e n t r e v ie w an d r e v i s i o n s o f b u d g e ts f o r p u b l i c h i g h e r e d u c a t i o n d i d n o t o c c u r b e f o r e t h e i r p r e s e n t a t i o n t o th e s t a t e d L e g i s l a t u r e . T h ese f i v e s t a t e s h a d a c o o r d i n a t i n g b o a rd fo rm o f a g e n c y . I n d i v i d u a l s c o m p le tin g t h e q u e s t i o n n a i r e w ere q u e r i e d a s w e l l , o n how t h e y w ou ld a s s e s s t h e e f f e c t i v e n e s s o f t h i s e x e c u t i v e r e v ie w i n r e s p e c t t o h i g h e r e d u c a t i o n b u d g e t s . I n ju d g in g t h i s e f f e c t i v e n e s s , t h e y w e re a s k e d t o assum e t h a t e f f e c t i v e n e s s i s r e l a t e d i n p a r t to t h e d e g re e to w h ic h t h e p o s i t i o n s o f t h e b u d g e t o f f i c e o n p a r t i c u l a r q u e s t i o n s a r e u p h e ld t h r o u g h o u t l e g i s l a t i v e c o n s i d e r a t i o n o f t h e b u d g e t a n d f i n a l a p p r o v a l by t h e G o v e rn o r. R e s p o n s e s fro m t e n a g e n c ie s c l a s s i f i e d i n t h e c o o r d i n a t i n g b o a rd g r o u p in g 2 i n d i c a t e d t h a t t h e b u d g e t o f f i c e r e v ie w a s d e f i n e d was " v e r y e f f e c t i v e ” . F o u r c o n s o l i d a t e d g o v e rn in g b o a rd s t a t e s r e a c h e d a s i m i l a r c o n c l u s i o n . S ix 2I n c l u d e s s t a t e b o a rd s o f e d u c a t i o n w i t h c o o r d i n a t i o n f u n c t i o n s . 286 r e s p o n s e s from c o o r d i n a t i n g b o a rd form s t a t e s an d f o u r fro m t h o s e w ith g o v e rn in g b o a rd s i n d i c a t e d t h a t th e r e v iew was " m o d e r a te ly e f f e c t i v e ” • T h re e c o o r d i n a t i n g b o a rd r e p l i e s an d one g o v e r n in g b o a rd a n sw e r i n d i c a t e d t h a t t h e b u d g e t re v ie w was o f " l i m i t e d e f f e c t " • None s t a t e d t h a t 3 "no e f f e c t " was p e r c e i v e d . R e sp o n d e n ts w ere a l s o a sk e d i f t h e i r s t a t e m ain t a i n e d a p e rm a n en t l e g i s l a t i v e f i s c a l o f f i c e r ( l e g i s l a t i v e a n a l y s t o r a u d i t o r ) who p r o v id e s a d v ic e to t h e L e g i s l a t u r e o n b u d g e ta r y and o t h e r m a t t e r s in d e p e n d e n tly o f t h e e x e c u t i v e a g e n c i e s . I f t h i s w ere t h e c a s e , r e p l i e s w ere s o u g h t c o n c e r n in g th e e x t e n t and d e p th o f t h e re v ie w i n r e s p e c t t o t h e b u d g e ts f o r h i g h e r e d u c a tio n a n d a judgm ent a s t o t h e e f f e c t i v e n e s s o f t h a t re v ie w . T w e n ty -fo u r s t a t e s h a v in g h i g h e r e d u c a t i o n a g e n c ie s an d r e s p o n d in g t o t h e q u e s t i o n n a i r e h a d a l e g i s l a t i v e f i s c a l o f f i c e r o f some s o r t . Of t h e s t a t e s n o t h a v in g su c h a n o f f i c i a l , s i x w ere c o o r d i n a t i n g b o a rd form s t a t e s , a n d two h ad c o n s o l i d a t e d g o v e rn in g b o a rd s f o r h ig h e r e d u c a t i o n . R e sp o n se s from s i x o f th e tw e n ty - f o u r s t a t e s h a v in g l e g i s l a t i v e f i s c a l o f f i c e r s i n d i c a t e d t h a t t h e o f f i c e r ' s 3tw o o f t h e f i v e s t a t e s i n d i c a t i n g no e x t e n s i v e r e v iew n e v e r t h e l e s s gave r a t i n g s . One s t a t e n o t in g i n t e n s i v e r e v ie w d i d n o t g iv e a r a t i n g . re v ie w was i n t e n s i v e an d d e t a i l e d . T h ese s i x a r e c l a s s i f i e d a s c o o r d i n a t i n g b o a rd form s t a t e s . A n o th e r f i v e c o o r d i n a t i n g b o a rd fo rm s t a t e a g e n c ie s a n d two o t h e r s o f t h e g o v e rn in g b o a rd form r e p o r t e d t h a t i n t h e i r s t a t e s th e re v ie w was c o n f in e d to g r o s s am ounts o n l y . The b a la n c e r e p o r t e d t h a t o n ly c e r t a i n a s p e c t s w ere r e v ie w e d . I n r a t in g th e e f f e c t i v e n e s s o f t h e r e v ie w , f o u r c o o r d i n a t i n g b o a rd o f f i c i a l s and two g o v e rn in g b o a rd o f f i c i a l s I n d i c a t e d t h e re v ie w was i n p a r t r e l a t e d t o th e d e g re e t o w h ic h th e reco m m en d atio n s o f t h e f i s c a l o f f i c e r w e re t a k e n i n t o a c c o u n t d u r i n g c o n s i d e r a t i o n o f t h e b u d g e t p r o p o s a l . S ix c o o r d i n a t i n g b o a rd r e p l i e s i n d i c a t e d I t was " m o d e r a te ly e f f e c t i v e " a s d i d t h r e e g o v e rn in g b o a rd r e s p o n s e s . P o u r c o o r d i n a t i n g b o a rd s fo u n d i t o f " l i m i t e d e f f e c t ” a s d id one g o v e rn in g b o a rd ; one c o o r d i n a t i n g b o a rd r e p l i e d t h a t t h e r e was "no e f f e c t ” . To d e te rm in e t h e e x t e n t t o w hich t h e s t a t e h i g h e r e d u c a ti o n a g en c y Is a c t i v e i n t h e p r o c e s s o f t h e p r e p a r a t i o n and p r e s e n t a t i o n o f b u d g e ts o f p u b l i c h i g h e r e d u c a t i o n , t h e o f f i c i a l s c o m p le tin g q u e s t i o n n a i r e s w ere a l s o a s k e d to I n d i c a t e w h ic h o f a s e r i e s o f s t a te m e n t s i n t h e i r o p i n io n a p p l i e d t o t h e i r s i t u a t i o n . T hese s t a te m e n t s a r e a s f o llo w s w ith t h e num ber o f r e p l i e s i n d i c a t e d . 288 A p p lie s tcv A p p lie s t o C oord. Bd. Gov. Bd. a . The a g e n c y p la y s a m a jo r r o l e I n t h e b u d g e t d e v elo p m e n t p r o c e s s and h a s th e r e s p o n s i b i l i t y t o m o d ify , i f r e q u i r e d , th e p r o p o s a l s o f t h e i n s t i t u t i o n s ( o r sy s te m s ) b e f o r e p r e s e n t a t i o n to t h e e x e c u ti v e and L e g i s l a t u r e . 8 8 b . The a g e n c y p r e s e n t s t h e b u d g e ts f o r a l l ( o r m ost a l l ) p u b l i c i n s t i t u t i o n s and d e fe n d s t h e r e q u e s t s d u r in g t h e b u d g e t d e v e lo p m en t p r o c e s s b e f o r e t h e L e g i s l a t u r e . 8 7 c . The a g e n c y a s s i s t s t h e i n s t i t u t i o n s i n t h e i r p r e s e n t a t i o n s an d d e f e n s e o f t h e i r b u d g e ts d u r in g t h e d e v e lo p m e n t p r o c e s s an d b e f o r e t h e L e g i s l a t u r e . 6 3 d . The a g en c y r o l e i s g e n e r a l l y c o n f in e d t o r e v ie w o f b u d g e t p r o p o s a l s b e f o r e t h e i r p r e s e n t a t i o n o f t h e e x e c u ti v e an d to g i v i n g o f a d v ic e t o i n s t i t u t i o n s ( o r sy s te m s ) o n t h e n eed f o r c h a n g e s . No f o r m a l p r e s e n t a t i o n by t h e ag en c y i s made t o t h e L e g i s l a t u r e o n t h e b u d g e ts f o r h ig h e r e d u c a tio n . A p p lie s t o no s t a t e s e . The p a t t e r n s u g g e s te d i n "d" w ith t h e e x c e p t i o n t h a t a p r e s e n t a t i o n o f a d v ic e o r comments o n t h e bud g e t i s made to t h e L e g i s l a t u r e . 3 f . The a g e n c y p la y s no r o l e I n t h e p r e p a r a t i o n o r p r e s e n t a t i o n o f h i g h e r e d u c a t i o n b u d g e ts . 3 II I n c l u d e s r e s p o n s e s from s t a t e b o a rd s o f e d u c a ti o n 289 N ot a l l s t a t e s r e p l i e d i n t h e ab o v e f o r m a t and s e v e r a l r e p l i e d t o m ore t h a n on e o p t i o n . T hose r e p l i e s i n d i c a t i n g t h a t t h e d e s c r i p t i o n i n " a ” was a p p r o p r i a t e , te n d e d t o s t a t e t h a t 1 1 b" was a p p r o p r i a t e a s w e l l , a n d i n some i n s t a n c e s " c M . O th e r s t a t e a g e n c i e s , g e n e r a l l y o f t h e c o o r d i n a t i n g b o a rd fo rm , r e p l i e d t h a t t h e i r r o l e s w ere u n c e r t a i n , o r a s y e t to o i l l - d e f i n e d f o r c a t e g o r i z a t i o n . S t i l l o t h e r s re s p o n d e d w i t h s p e c i f i c p r o c e d u r e s w h ich c o u ld n o t e a s i l y be c a t e o g r i z e d . A s i m i l a r s e r i e s o f q u e s t i o n s was a l s o a s k e d c o n c e r n i n g t h e r o l e o f t h e a g e n c y i n r e s p e c t to t h e d e v e lo p m en t a n d a p p r o v a l o f c a p i t a l o u t l a y p r o j e c t s f o r p u b l i c h i g h e r e d u c a t i o n i n s t i t u t i o n s ( o r s y s t e m s ) .^ I n d i v i d u a l s c o m p le tin g t h e q u e s t i o n n a i r e w e re a s k e d t o I n d i c a t e w h ic h o f t h e f o l l o w i n g s t a t e m e n t s a p p ly : A p p lie s t o ^ A p p lie s t o C o o rd . Bd. Gov. Bd. a . The a g e n c y p la y s a m a jo r r o l e w ith t h e r e s p o n s i b i l i t y to m o d ify , i f r e q u i r e d , i n s t i t u t i o n a l ( o r sy ste m ) r e q u e s t s f o r c a p i t a l c o n s t r u c t i o n b e f o r e p r e s e n t a t i o n t o t h e e x e c u ti v e L e g i s l a t u r e . 6 7 b . The a g e n c y p r e s e n t s t h e c a p i t a l o u t l a y r e q u e s t s f o r m ost o r a l l p u b l i c I n s t i t u t i o n s t o t h e e x e c u t i v e a n d t h e L e g i s l a t u r e , and d e fe n d s t h e s e r e q u e s t s . 5 8 ^ C a p i t a l o u t l a y p r o j e c t s w e re d e f i n e d t o be s i n g l e b u i l d i n g s o r p r o j e c t s a s o p p o se d t o t h e a u t h o r i z a t i o n o f new c o l l e g e s o r c am p u se s. 290 A p p lie s to A p p lie s t o C oord. Bd* Gov. Bd. c . The a g e n c y r o l e I s g e n e r a l l y c o n fin e d t o re v ie w o f p r o p o s a ls f o r c o n s t r u c t i o n a n d / o r l o n g - r a n g e c a p i t a l o u t l a y p ro gram s b e f o r e t h e i r p r e s e n t a t i o n t o th e e x e c u ti v e and L e g i s l a t u r e and t o t h e g i v in g o f a d v ic e t o th e i n s t i t u t i o n s o r s y s te m s on t h e n e e d f o r c h a n g e s . The a g e n c y makes no f u r t h e r fo rm a l p r e s e n t a t i o n . 1 d . The p a t t e r n s u g g e s te d i n 1 1 c ” w ith t h e e x c e p tio n t h a t a p r e s e n t a t i o n o f a d v ic e o r com m ents o n c a p i t a l o u t l a y p r o j e c t s I s made to t h e L e g i s l a t u r e . 2 2 e . The a g e n c y a s s i s t s t h e i n s t i t u t i o n s ( o r sy s te m s) i n t h e i r p r e s e n t a t i o n s to th e e x e c u tiv e and L e g i s l a t u r e o n t h e n eed f o r th e p r o j e c t . f . The a p p r o v a l o f c a p i t a l o u t l a y p r o j e c t s i n g e n e r a l i s con s i d e r e d a n o n - p o l i t i c a l m a t t e r i n t h e L e g i s l a t u r e w ith p r o j e c t s a p p ro v e d a s recom mended s u b j e c t to a v a i l a b i l i t y o f f i n a n c i n g . g . The a g e n c y p la y s no r o l e i n t h e p r e p a r a t i o n o r p r e s e n t a t i o n o f p r o p o s a l s f o r c a p i t a l o u t l a y . A g a in m ost s t a t e s I n d i c a t i n g t h a t "b" was t h e p a t t e r n a l s o I n d i c a t e d t h a t " a ” was a p p l i c a b l e a s w e l l . I n d i v i d u a l c ir c u m s ta n c e s w ere n o te d i n some r e p l i e s . F o r e x am p le, o n e c o o r d i n a t i n g b o a rd a g e n c y h e a d s t a t e d t h a t /T I n c l u d e s r e s p o n s e s fro m s t a t e b o a rd s o f e d u c a ti o n . 291 h i s a g e n c y , th o u g h n o t f o r m a l l y c h a rg e d w i t h a p p r o v a l o f c a p i t a l o u t l a y p r o j e c t s , h a d p la y e d i n r e c e n t tim e s a n im p o r ta n t r o l e d u e t o t h e I n t e r e s t o f t h e G o v e rn o r i n s e c u r i n g t h e a g e n c y 's a d v i c e . Some f u r t h e r i n d i c a t i o n o f t h e o v e r a l l im p o rta n c e o f t h e h i g h e r e d u c a t i o n a g e n c y i n t h e b u d g e t d e v e lo p m e n t p r o c e s s may be s e e n i n n o t i n g t h e f o r m a l an d in f o r m a l con t a c t s b e tw e e n t h e a g e n c y a n d k e y o f f i c i a l s . To a s s e s s t o w h at e x t e n t t h i s may o c c u r , a g e n c ie s w e re a s k e d f i r s t to i n d i c a t e how o f t e n t h e i r s t a f f d i r e c t o r h a d m et w ith t h e S t a t e ' s G o v e rn o r t o d i s c u s s m a t t e r s r e l a t i n g t o e d u c a t i o n s i n c e J a n u a r y 19&7 (m o st r e p l i e s w e re made i n D ecem ber 1967 ) . O ver t h e y e a r 's p e r i o d th e f o l l o w i n g was i n d i c a t e d : D i r e c t o r o f D i r e c t o r o f C o o rd . B d .7 Gov. Bd. Met w ith G o v e rn o r o n No o c c a s i o n s 1 Met w ith G o v e rn o r o n 1 -2 o c c a s i o n s ^ M et w ith G o v e rn o r o n 3 ” 5 o c c a s i o n s ^ 6 M et w ith G o v e rn o r o n 6 -1 0 o c c a s i o n s 7 ^ Met w ith G o v e rn o r m ore t h a n 11 o c c a s i o n s 6 A g e n c ie s w e re a l s o q u t i e d a s t o w h e th e r t h e s t a t e ' s c h i e f f i s c a l o f f i c e r o n o c c a s i o n m e e ts w i t h th e 7 'I n c l u d e s r e s p o n s e s o f s t a t e b o a rd s o f e d u c a t i o n . 292 a g e n c y board to d i s c u s s th e f in a n c in g l e v e l f o r h ig h e r e d u c a t io n , and i f h e d o e s s o , how c o u ld th e d i s c u s s i o n be c h a r a c te r iz e d ? R e s u lt s show t h a t th e c h i e f s t a t e f i s c a l o f f i c e r i s more l i k e l y to m eet w it h a g o v e r n in g b oard th a n a c o o r d in a t in g board: S e v e n r e p l i e s from g o v e r n in g board form a g e n c ie s in d ic a t e d t h a t su ch a s o f f i c i a l had m et w ith t h e i r b oard w h ile o n ly n in e o f t h e c o o r d in a tin g board form g r o u p in g r e p o r te d t h i s o c c u r r e d . I n a l l , s i x t e e n a g e n c ie s r e p o r te d su ch m e e tin g s d id n o t o c c u r . When d i s c u s s i o n s do o c c u r , t h r e e o f th e c o o r d in a t in g board s t a t e a g e n c ie s in d ic a t e d t h a t th e r e i s f i r s t a p r e s e n t a t io n by th e b u d g e t o f f i c e r and th e n a r e a c t i o n from Board m em bers. The b a la n c e o f b o th c o o r d in a tin g b oard form a g e n c ie s and c o n s o lid a t e d g o v e r n in g b oard s I n d ic a t e t h a t th e r e i s an e x te n d e d d i s c u s s i o n among a l l p a r t i e s when th e f i s c a l o f f i c e r m ee ts w ith th e b o a r d . In fo r m a l c o n t a c t s a r e r e p o r te d more o f t e n . Twenty c o o r d in a t in g board a g e n c ie s r e p o r t t h a t d i r e c t , in fo r m a l c o n t a c t s a r e th e r u l e b etw een c h i e f f i s c a l o f f i c e r s and th e a g e n c y s t a f f d i r e c t o r . Of two g o v e r n in g b o a r d s , e ig h t r e p o r t s i m i l a r l y . C o n ta c ts b e tw e en board members and th e f i s c a l o f f i c e r , h o w ev e r, a re n o t a p p a r e n tly th e r u le : fo u r c o o r d in a t in g board a g e n c ie s and fo u r g o v e r n in g boards s t a t e t h a t In fo rm a l c o n t a c t s a r e th e r u le among th e c h ie f f i s c a l o f f i c e r and in d iv id u a l b oard members su ch a s th e 293 b o a r d 's p r e s i d e n t . H ow ever, th e b a la n c e ( t w e n ty - fo u r ) o f th e a g e n c y r e p l i e s i n d i c a t e t h a t su ch i s n o t th e c a s e . A g e n e r a l d e s c r i p t i o n o f t h e h ig h e r e d u c a t io n a g e n c y w i t h i n th e b u d g e t-m a k in g p r o c e s s o f s t a t e g o v e r n m ent ca n o n ly be s t a t e d i n g r o s s term s due to t h e v a r ia t i o n s s t a t e - b y - s t a t e . O v e r a ll, i t may be o b s e r v e d from th e f o r e g o in g t h a t m ost s t a t e a g e n c ie s f o r h ig h e r e d u c a t i o n f i n d th e m s e lv e s i n a s i t u a t i o n w here t h e r e i s co n s i d e r a b l e r e v ie w o f th e b u d g e ts f o r c o l l e g i a t e i n s t i t u t i o n s on t h e p a r t o f t h e c h i e f f i s c a l o f f i c e r f o r th e s t a t e and h i s s t a f f . T h is r e v ie w i s u s u a l l y s e e n t o be o f c o n s id e r a b le e f f e c t i v e n e s s . F u r th e r m o r e , th e m a j o r it y o f c o o r d in a t in g a g e n c ie s a r e i n s t a t e s w h ere t h e r e i s some l e g i s l a t i v e f i s c a l o f f i c e r in d e p e n d e n t o f t h e e x e c u t iv e d e p a r tm e n ts . H ow ever, r e v ie w c o n d u c te d by t h i s o f f i c e r i s n o t l i k e l y t o be d e t a i l e d and i n t e n s i v e n or i s i t g e n e r a l ly p e r c e iv e d a s h a v in g g r e a t e f f e c t i n term s o f b u d g e ta r y o u tc o m e s. The c o n s o lid a t e d g o v e r n in g b oard form o f h ig h e r e d u c a t io n a g e n c y i s u n d e r s ta n d a b ly more a c t i v e i n b u d g e t- m aking and i n d e f i n i n g c a p i t a l o u t l a y p r o j e c t s th a n a r e c o o r d in a t in g b o a rd s a s a r u l e . H ow ever, a m in o r it y o f c o o r d in a t in g b o a rd s p la y a s i m i l a r , a c t i v e r o l e . O th ers p erfo rm s p e c i a l t a s k s i n c e r t a i n c o n t e x t s o r t h e i r u lt im a t e r e s p o n s i b i l i t i e s i n th e b u d g e t-m a k in g p r o c e s s f o r h ig h e r e d u c a t io n h ave y e t to be f u l l y d e te r m in e d . 29^ C o n ta c ts b e tw e e n s t a t e g o v e rn o rs a n d a g e n c y s t a f f h e a d s a p p e a r t o be common and i n some i n s t a n c e s r e l a t i v e l y f r e q u e n t . S i m i l a r l y , a g en c y h e a d s m eet w ith c h i e f f i s c a l o f f i c e r s i n n e a r l y a l l i n s t a n c e s , th o u g h fo rm a l an d i n f o r m al c o n t a c t b e tw ee n t h e b u d g e t d i r e c t o r s and b o a rd members i s n o t t h e r u l e . C irc u m s ta n c e s o f B udget Review I n c o n s i d e r a t i o n o f t h e s t a t e h i g h e r e d u c a ti o n a g en c y a n d i t s r e l a t i o n s h i p s t o t h e b u d g e t-m a k in g p r o c e s s i t may be o b s e r v e d t h a t w hat makes f o r a s t r o n g and s u c c e s s f u l a g e n c y i n one c o n te x t may n o t do so i n a n o t h e r . To i l l u s t r a t e , th e s i t u a t i o n s o f t h e e i g h t c o o r d i n a t i n g b o a rd fo rm a g e n c ie s w h ic h i n d i c a t e d i n t h e q u e s t i o n n a i r e s t h a t t h e y a r e p e rf o r m in g s i g n i f i c a n t a n d m a jo r r o l e s i n th e b u d g e t p r e p a r a t i o n and p r e s e n t a t i o n p r o c e s s , w ere a n a ly z e d i n te rm s o f (1 ) w h e th e r th e s t a t e b u d g e t o f f i c e e x t e n s i v e l y re v ie w e d h i g h e r e d u c a ti o n b u d g e ts ; (2 ) t h e r a t e d e f f e c t i v e n e s s o f t h a t o f f i c e ; (3) w h e th e r th e s t a t e h a s a l e g i s l a t i v e f i s c a l o f f i c e r in d e p e n d e n t o f t h e e x e c u t i v e , and (4 ) t h e r a t e d e f f e c t i v e n e s s o f t h a t o f f i c e r i n i n f l u e n c i n g b u d g e t o u tc o m e s . The r e s u l t s a r e shown o n t h e f o l lo w in g p a g e . STATE BUDGET OFFICER EFFECTIVENESS REVIEWS HIGHER OF REVIEWS EDUC. BUDGETS A* No B Yes Moderately Effective C No D Yes Very Effective E No F Yes Moderately Effective G* No H* Yes Very Effective *Advisory as compared to managerial responsibilities HAS LEGISLATIVE EFFECTIVENESS FISCAL OFFICER OF REVIEWS Yes Very Effective Very Yes Effective Yes Not Effective on II.E. No Yes Limited Effective Moderately Yes Effective Yes Moderately Effective Moderately Yes Effective 296 F or c o m p a riso n a s i m i la r a n a l y s i s was made i n r e s p e c t to t h e s i t u a t i o n s o f e i g h t o th e r c o o r d in a t in g b oard form s t a t e s i n w h ich th e a g e n c y in d ic a t e d some l e s s e r d e g r e e o f r e s p o n s i b i l i t y and a c t i v i t y i n r e s p e c t t o th e b u d g e ts f o r h ig h e r e d u c a tio n o r s t a t e d t h a t th e a g e n c y r o l e had n o t y e t b e e n f u l l y d e f i n e d . R e s u lt s a r e show n o n th e f o l lo w in g p a g e . The f a c t t h a t th e c o o r d in a t in g a g e n c y may p u r su e a m ajor and prim ary r o l e in r e s p e c t to t h e d e v e lo p m en t and d e f e n s e o f h ig h e r e d u c a tio n b u d g et c a n n o t c l e a r l y be r e l a t e d t o any p a r t i c u l a r s i t u a t i o n . T h ere i s som e su g g e s t i o n t h a t a m ajor r o l e may more o f t e n o c c u r i n in s t a n c e s w h ere th e s t a t e b u d g e t o f f i c e d o e s n o t i n t e n s i v e l y r e v ie w h ig h e r e d u c a tio n p r o p o s a ls — t h i s , o f c o u r s e , may be a r e s u l t o f t h e v e r y e x is t e n c e o f th e a g e n c y and o f t h e q u a l i t y o f i t s own r e v ie w s o f i n s t i t u t i o n a l p r o p o s a ls b e f o r e p r e s e n t a t io n t o th e e x e c u t iv e and L e g i s l a t u r e . There i s a l s o a n i n d i c a t i o n t h a t w h ere a g e n c ie s e x i s t i n s t a t e s w it h e f f e c t i v e s t a t e b u d g et r e v ie w s t h e r e i s l e s s l i k e l i hood o f a c l e a r l y s t a t e d p rim a ry b u d g et-m a k in g f u n c t i o n f o r th e a g e n c y . A g a in , th e l a c k o f a g e n c y s t r e n g t h i n t h e a r e a may r e s u l t i n th e s t r o n g e r b u d g e t o f f i c e , th o u g h p resu m a b ly th e c o o r d in a t in g a g e n c y i s t h e la t e - c o m e r in b u d g e t r e v ie w and b u d g e t-m a k in g . L e g i s l a t i v e - E x e c u t i v e R e la t io n s h ip s STATE BUDGET OFFICER EFFECTIVENESS HAS LEGISLATIVE REVIEWS HIGHER OF REVIEWS FISCAL OFFICER EDUC. BUDGETS I Yes Very Yes Effective J No — Yes K* Yes Limited Effectiveness No L* Yes Moderately Effective Yes M* Yes Moderately Effective Yes N Yes Very Effective No 0 Yes Very Effective No P Yes Very Effective Yes Advisory as compared to managerial responsibilities. EFFECTIVENESS OF REVIEWS Very- E f f e c t i v e Limited Effectiveness Moderate Effectiveness Limited Effectiveness Moderately Effective 298 The p a t t e r n o f h ig h e r e d u c a t io n a g e n c y and l e g i s l a t i v e - e x e c u t i v e r e l a t i o n s h i p s may v a r y i n g r e a t d e g r e e a c r o s s th e c o u n tr y j u s t a s t h e i n t e r n a l dyn am ics o f L e g i s l a t u r e s and e x e c u t iv e a g e n c ie s may d i f f e r from on e s t a t e t o a n o th e r e v e n th o u g h t h e fo r m a l s t r u c t u r e s may a p p e a r t o be th e sam e. Through a s e r i e s o f q u e s t i o n s , e f f o r t h a s b e e n made t o e x p lo r e th e p a t t e r n s o f r e l a t i o n s h i p s b e tw e en t h e agency and th e l e g i s l a t i v e - e x e c u t i v e o f e a ch s t a t e a s v ie w e d by th e s t a f f o f th e a g e n c y . An e f f o r t was made t o i d e n t i f y som e o f t h e p r o c e s s e s by w h ic h th e a g e n c y i n ea ch s t a t e s e e k s to i n f l u e n c e , a s w e l l a s th e fo r m a l and in fo r m a l s t r u c t u r e i n w h ich t h e s e o c c u r . A gency and L e g i s l a t i o n . R e sp o n se s t o q u e s t io n n a ir e s i n d ic a t e d t h a t m ost h ig h e r e d u c a t io n a g e n c y b oard s o n o c c a s i o n ta k e p o s i t i o n s c o n c e r n in g s p e c i f i c p i e c e s o f l e g i s l a t i o n r e l a t i n g i n m ost in s t a n c e s t o a broad sp ectru m o f h ig h e r e d u c a t io n m a tte r s a s th e y a r e in tr o d u c e d b e fo r e in d iv i d u a l s t a t e l e g i s l a t u r e s . I n a l l s e v e n t e e n o f t h e c o o r d in a t in g board form a g e n c ie s in d ic a t e d t h a t t h i s o c c u r r e d a s d id n in e o f th e c o n s o lid a t e d g o v e r n in g b o a r d s . F iv e o f t h e c o o r d in a t in g b o a rd s s a i d one o f th e g o v e r n in g b o a rd s a p p a r e n tly do n o t ta k e su ch a c t i o n . (One a g e n c y o f f i c i a l r e p l i e d t h a t h is b oard d id n o t ta k e p o s i t i o n s on l e g i s l a t i o n b u t d id sp o n so r i t . ) 299 N e a r ly a l l "boards, h o w ev er, may ad op t g e n e r a l p r in c i p l e s w h ich may " b e a p p lie d to th e m e r its o f p en d in g l e g i s l a t i o n (tw e n ty o f tw e n ty -o n e r e p l i e s from c o o r d in a t in g "boards and n in e o f t e n g o v e r n in g b o a r d s .) C o n sid e r a b le p o l i c y d i f f e r e n c e s a r e n o te d r e g a r d in g t h e a g en cy s t a f f d i r e c t o r ta k in g p o s i t i o n s on s p e c i f i c p i e c e s o f l e g i s l a t i o n a p a r t from , o r in th e a b se n c e o f , a b oard s ta t e m e n t . E le v e n o f tw e n ty -tw o c o o r d in a tin g board h e a d s may do s o , and fo u r o f t e n c o n s o lid a t e d g o v e r n in g b o a rd a g e n c ie s . I n o r d e r to e x p lo r e th e p r o c e s s o f board e n d o r s e m ent o f a p r o p o s it io n r e q u ir in g s t a t u t o r y ch an ge and th e b o a r d ’ s and i t s s t a f f ' s su b se q u e n t a c t i o n s , a h y p o t h e t ic a l s i t u a t i o n was s u g g e s te d and a s e r i e s o f a l t e r n a t i v e a c t io r s s e t f o r t h w h ich m ig h t be a n t i c ip a t e d g iv e n a p a r t i c u la r s t a t e a g e n c y s i t u a t i o n . The s i t u a t i o n s u g g e s te d w as: Your board h a s j u s t ta k e n a c t i o n recom m ending t h a t th o s e s t a t e c o l l e g e s w h ich w ere fo r m a lly norm al s c h o o ls sh o u ld be a llo w e d t o g r a n t d o c to r a t e d e g r e e s . T h is h as b een p r e v io u s ly a u t h o r iz e d . A s t a t u t o r y change i s r e q u ir e d . How w ou ld you a n t i c i p a t e t h a t th e a g e n c y and i t s s t a f f w ou ld p r o c e e d to Im plem ent th e recommen d a tio n ? The a l t e r n a t i v e a c t i o n s s u g g e s t e d and r e p l i e s made a r e sum m arized a s fo llo w s : ® O °One s t a t e a g e n c y d id n o t r e p ly to an y a l t e r n a t i v e . Some a g en cy r e p l i e s w ere made o n ly t o c e r t a i n a l t e r n a t i v e s . 300 Yes No U n c e r t a i n The a g en c y d i r e c t o r (a n d C oord, s t a f f ) w ould s e e k o u t a B o ard 8 l e g i s l a t o r i n t e r e s t e d i n s p o n s o r in g t h e b i l l t o Gov. a u t h o r i z e a w a rd in g th e B oard 7 d o c t o r a t e b . The s t a t e c o l l e g e s w ould C oord. n o rm a lly s p o n s o r su c h a B oard 9 6 b i l l w i t h ag en c y s u p p o r t , g o v. B oard 2 8 The a g en c y d i r e c t o r (an d s t a f f ) w ould a c t i v e l y lo b b y f o r t h e b i l l ' s p a ssa g e * C oord. B oard 11 8 Gov. B oard 6 2 d . Members o f t h e b o a rd w ould l i k e l y c o n t a c t l e g i s l a t o r s i n o r d e r t o a s s i s t i n the- p a s s age o f t h e b i l l . e . Members o f t h e b o a rd , r a t h e r t h a n ag en cy s t a f f , w ould p a r t i c i p a t e th r o u g h o u t t h e p r o c e s s o f t h e b i l l ' s i n t r o d u c t i o n an d c o n s i d e r a t i o n . C oord. B oard 10 G ov. B oard 10 C oord. B oard 2 Gov. B oard 1 12 7 3 1 f . The ag en c y d i r e c t o r and Coord, s t a f f w ould l i m i t t h e i r B oard r o l e t o t h e m aking o f i m p a r t i a l s t a te m e n t s Gov. o n ly o n r e q u e s t . B oard 12 6 R e sp o n se s to t h i s s e r i e s o f q u e s t i o n s s u g g e s t t h a t , a s a r u l e , t h e ag en c y d i r e c t o r o f a c o n s o l i d a t e d g o v e rn in g b o a rd t o g e t h e r w i t h h i s s t a f f c o u ld be e x p e c te d to s e e k o u t a l e g i s l a t o r t o i n tr o d u c e a b i l l o f im p o rta n c e to h i s b o a rd . I n s t a t e s h a v in g c o o r d i n a t i n g b o a rd s t h e i n s t i t u t i o n s b e n e f i t i n g from t h e h i g h e r e d u c a ti o n ag en c y b o a r d 's 301 a c t i o n m ig h t " b e e x p e c t e d to s p o n s o r t h e l e g i s l a t i o n w it h t h e hoard c a s t i n a s u p p o r t in g p o s i t i o n . T h is i s n o t l ik e ' 1 y to o c c u r i n s i t u a t i o n s o f s t a t e s h a v in g c o n s o lid a t e d g o v e r n in g h o a r d s . I n a m a jo r ity o f I n s t a n c e s w here t h e r e i s a c o o r d in a t in g h o a r d , th e a g e n c y d i r e c t o r and h i s s t a f f m ig h t be a n t i c i p a t e d t o p la y a n a c t i v e r o l e in lo b b y in g f o r b o a r d - d e v e lo p e d and e n d o r se d l e g i s l a t i o n . S i m i l a r l y g o v e r n in g board s t a f f h ead s w o u ld p erfo rm an a c t i v e r o l e . I n m ost c a s e s , members o f c o o r d in a t in g h o a rd s w ou ld he e x p e c te d to c o n t a c t l e g i s l a t o r s on t h e b e h a lf o f t h e p a s s a g e o f k ey l e g i s l a t i o n . T h is a p p e a r s to o c c u r i n a l l i n s t a n c e s w here t h e r e e x i s t s a c o n s o lid a t e d g o v e r n in g h o a r d . T h is in v o lv e m e n t, h o w e v e r , w ou ld p r o b a b ly be on e o f o c c a s io n a l c o n t a c t . The a g e n c y s t a f f w ou ld f o l l o w th e l e g i s l a t i o n th r o u g h t h e L e g is la t u r e and t o th e G o v ern o r* s d e s k . I n t h e c a s e o f fo u r c o o r d in a t in g b o a r d s and tw o o f t h e g o v e r n in g b o a r d s , th e a g e n c y d i r e c t o r and h i s s t a f f w ou ld p la y a v e r y l i m i t e d r o l e i n th e s u p p o r t o f t h e l e g i s l a t i o n e n d o r se d by t h e b o a r d . A n a ly s is o f r e p l i e s te n d s t o i n d ic a t e t h a t i n t h e s e s i t u a t i o n s th e board members w o u ld p la y th e a c t i v e r o l e i f on e i s t o b e p la y e d . The s t a t e a g e n c y p e r s o n n e l r e p l y i n g t o t h e q u e s t i o n n a ir e w ere a l s o a sk e d w h at w ould be l i k e l y t o o c c u r s h o u ld t h e board n o t h ave ta k e n a p o s i t i o n on th e q u e s t io n o f th e s t a t e c o l l e g e s a w a rd in g a d o c t o r a t e d e g r e e , b u t 302 i n in s t a n c e s when t h e a g en cy d i r e c t o r and i t s s t a f f had s t u d ie d t h e m a tte r and had d e v e lo p e d a p o s i t i o n fa v o r in g t h e p r o p o s it io n . A ssum ing th e l e g i s l a t i o n had b e e n in tr o d u c e d , and t h e l e g i s l a t o r a sk ed th e h ig h e r e d u c a tio n a g e n c y s t a f f f o r a i d , r e p l i e s in d ic a t e t h a t none o f th e s t a t e a g e n c ie s * h e a d s w ou ld a c t i v e l y lo b b y f o r th e b i l l e v e n on th e l e g i s l a t o r ’s r e q u e s t . M ost a g e n c y d i r e c t o r s w ou ld make i t c le a r t o th e l e g i s l a t o r t h a t th e a g e n c y s t a f f c o u ld o n ly p r o v id e in fo r m a tio n on an im p a r t ia l b a s i s p en d in g a p o s i t i o n by t h e a g en cy b o a rd . H ow ever, o n ly t h r e e a g e n c ie s w ould s e e k t o a v o id c o m p le te ly a l l a p p ea ra n ces o f s u p p o r tin g th e l e g i s l a t i o n in c lu d in g th e r e f u s i n g to a s s i s t th e l e g i s l a t o r in any w ay. O n ly two o f t h o s e r e sp o n d in g in d ic a t e d t h a t th e a g e n c y w ou ld o p p o se t h e l e g i s l a t i o n u n t i l t h e i r b o a rd had a c t e d . A gency b e fo r e th e L e g i s l a t u r e . The i n t e r e s t s o f th e h ig h e r e d u c a tio n a g e n c y may be p r e s e n te d to l e g i s l a t o r s in a v a r i e t y o f ways a s w e l l a s an e f f o r t made to d e te r m in e how l e g i s l a t o r s may r esp o n d to m a tte r s o f c o n c e r n t o th e a g e n c y . R e sp o n ses t o t h e q u e s t io n n a ir e i n d ic a t e th a t in th e c a s e o f n in e s t a t e s w ith th e c o o r d in a t in g board form o f h ig h e r e d u c a tio n a g e n c y , th e a g en cy d i r e c t o r a lo n e g e n e r a l l y makes p r e s e n t a t io n s to l e g i s l a t i v e co m m ittees and i n d iv id u a l l e g i s l a t o r s o n b e h a lf o f th e a g e n c y . T h is o c c u r s 303 i n h a l f o f th e s t a t e s r e sp o n d in g w ith a c o n s o lid a t e d g o v e r n in g hoard form . I n m ost i n s t a n c e s , s t a t e a g e n c y s t a f f o r hoard members may d is c u s s m ajor p o l i c y q u e s t io n s and i s s u e s w ith in d iv id u a l l e g i s l a t o r s p r io r t o h oard d e c is io n when t h e r e i s a l e g i s l a t i v e i n t e r e s t i n th e m a tte r : s e v e n t e e n c o o r d in a t in g hoard a g e n c ie s so r e p o r t a s do s e v e n c o n s o lid a t e d g o v e r n in g h o a r d s . F iv e o f th e fo r m e r , and th r e e o f t h e l a t t e r form o f s t a t e a g e n c y i n d ic a t e t h i s d o es n o t o c c u r . O v e r a ll* in l e s s th a n h a l f o f th e s t a t e s w ith c o o r d in a t in g b oard s do members o f t e n c o n t a c t l e g i s l a t o r s . T h is o c c u r s i n h a l f o f th e in s t a n c e s w here t h e r e a r e co n s o l i d a t e d g o v e r n in g b o a r d s . I n o n ly on e i n s t a n c e , a c o o r d in a t in g b o a r d , i s i t r e p o r te d t h a t a g e n c y s t a f f and hoard t members a r e seld om in c o n t a c t w ith th e l e g i s l a t o r s . I n t h i s c a s e m a tte r s r e q u ir in g a c t i o n a r e b ro u g h t to l e g i s l a t i v e a t t e n t i o n th ro u g h th e G overn or. fo d e te r m in e th e em p h asis p la c e d on th e m a in ten a n ce o f r e l a t i o n s h i p s , a g e n c ie s w ere a sk ed t o i n d ic a t e th e number o f m an -years i n a g en cy s t a f f tim e d e v o te d t o l e g i s l a t i v e - e x e c u t i v e l i a i s o n f o r y e a r s in w h ich t h e r e i s a g e n e r a l l e g i s l a t i v e s e s s i o n . R e sp o n ses r e c e iv e d w ere d i s t r i b u t e d a s f o llo w s on th e n e x t p a g e . M an-Years C oord, Bd 30^ G ov. Bd. 0 - .2 5 3 2 . 2 6 -.5 0 8 3 . 51 - 1 .0 0 1 3 1 . 01- 1 .5 0 1 . 51- 2 .0 0 4 2 .0 1 - 2 .5 0 1 No r e s p o n s e or n o t a p p lic a b le (5 ) (2 ) From t h i s d i s t r i b u t i o n , th e s t a t e a g e n c y t y p i c a l l y d e v o te d a b o u t o n e - h a lf m an -year o r l e s s o f i t s s t a f f tim e to l e g i s l a t i v e and e x e c u t iv e l i a i s o n m a t t e r s , th ou gh i t i s im p o r ta n t to n o te t h a t f i v e c o o r d in a t in g board a g e n c ie s d e v o te s t a f f tim e e q u iv a le n t to b etw een on e and a h a l f to two and a h a lf m a n -y e a r s. L e g i s l a t i v e - e x e c u t i v e l i a i s o n may be a s s ig n e d to s e v e r a l s t a f f p e r s o n s . T a b u la tio n o f r e s u l t s to a q u e s tio n c o n c e r n in g th e number o f i n d iv id u a ls p a r t i c i p a t i n g i n t h i s a c t i v i t y i n a y e a r in w h ich th e r e i s a l e g i s l a t i v e s e s s i o n sh o w s: S t a f f A s s ig n e d C oord. Bd. G ov. Bd. 0 -1 h 1 2 k 1 3 ^ 2 k 4 305 S t a f f A s s ig n e d 5 6-10 C oord. Bd G ov. Bd. 1 3 1 1 1 0 -1 5 1 No r e s p o n s e o r n o t a p p l i c a b l e (3) (2 ) Though an a g e n c y may h ave s e v e r a l s t a f f members in v o lv e d i n l e g i s l a t i v e - e x e c u t i v e l i a i s o n , o n ly e ig h t c o o r d in a t in g b oard form a g e n c ie s and f o u r g o v e r n in g b o a rd s r e p o r t i n d i v id u a ls b e lo w t h e d i r e c t o r l e v e l h a v in g a c o n t in u in g l i a i s o n r e s p o n s i b i l i t y . W ith one e x c e p t io n , t h e s e s t a t e s in v o lv e d h ave medium to l a r g e p o p u la t io n s . P rob lem s o f L e g i s l a t i v e L i a i s o n . The s t a t e a g e n c ie s w ere q u e r ie d i n th e form o f an o p e n -e n d ed q u e s t io n a b o u t th e m ost s i g n i f i c a n t p rob lem s f a c in g th e a g e n c y . One d i r e c t o r i n r e s p o n s e s t a t e d t h a t t h e g r e a t e s t p rob lem he b e l i e v e d h i s n ew ly e s t a b l i s h e d a g e n c y f a c e d was th e n eed t o d e v e lo p among l e g i s l a t o r s and o t h e r s an a w a r e n e ss o f h i s g r o u p 's e x i s t e n c e . C o n tin u ed d i f f i c u l t y w it h o t h e r h ig h e r e d u c a t io n I n t e r e s t s w ere c i t e d a s w e l l . The d i r e c t o r o f a c o o r d in a t in g board c h a r g ed w it h a n e x t e n s i v e r o l e in b u d g e t r e v ie w and p r e s e n t a t io n t o th e L e g is la t u r e o b s e r v e d t h a t h i s s t a t e ' s L e g i s l a t u r e may p la c e to o g r e a t a r e l i a n c e o n th e c o o r d in a t in g b o a r d 's p o s i t i o n and n o t g i v e enough c r e d e n c e t o i n s t i t u t i o n a l p o s i t i o n s . T h is i n tu r n p l a c e s a b u rd en on th e s t a f f 306 c h i e f to p r o j e c t a good "image" i n th e l e g i s l a t i v e co n t e x t . On th e o th e r han d, a n o th e r s t a t e a g e n c y d i r e c t o r s t r e s s e d th e n eed f o r th e L e g is la t u r e to d e v e lo p c o n fid e n c e in board recom m end ation s r a th e r th a n t h o s e o f th e c o l l e g e s o r o t h e r g r o u p s . The o b s e r v a t io n was n o te d i n o th e r r e p l i e s . A n oth er r e p ly in d ic a t e d t h a t l a c k o f board p r e s t i g e , s t a f f l i m i t a t i o n s and a l i m i t e d k n ow led ge o f th e im p act o f l e g i s l a t i o n in g e n e r a l red u ced th e e f f e c t i v e n e s s o f th e s t a t e a g e n c y . A lso s t r e s s e d i n comments was th e n eed to d e v e lo p b e t t e r com m u n ication w ith l e g i s l a t u r e s i n o r d e r t o o v e r come i n d if f e r e n c e to th e c o o r d in a t in g b oard a g en cy and h ig h e r e d u c a t io n . O th ers n o te d l e g i s l a t i v e r e lu c t a n c e to g r a n t pow ers to th e a g e n c y . F i n a l l y , on e h ig h e r e d u c a tio n s t a f f d i r e c t o r i n a la r g e s t a t e , n o te d t h a t th e L e g i s l a tu r e a p p ea red t o b e l i e v e th e a g e n c y sp o n so r e d to o much l e g i s l a t i o n and was n o t s u f f i c i e n t l y c r i t i c a l o f t h e i n s t i t u t i o n s c o o r d in a te d . A gency and G overnor The h ig h e r e d u c a tio n a g e n c y may, d ep en d in g o n th e c o n t e x t , s t r e s s th e p a t t e r n o f r e l a t i o n s h i p s w ith th e s t a t e ’ s G overnor p erh a p s to a g r e a t e r e x t e n t th a n t h o s e w it h th e L e g i s l a t u r e . 307 A number o f q u e s t io n s w ere a sk e d to d e te r m in e w h at e f f o r t s a r e made to in f l u e n c e t h e G overnor and w h at co n t i n u in g s t r a t e g i e s and t o o l s w ere em p lo y ed . T w elve a g e n c ie s o f th e c o o r d in a t in g b oard form and f i v e c o n s o lid a t e d g o v e r n in g b o a rd s r e p o r te d t h a t th e d i r e c t o r a lo n e g e n e r a l ly makes a l l m ajor p o l i c y p r e s e n t a t i o n s t o th e G overnor and o t h e r e x e c u t iv e d ep a rtm en t h ea d s ( o r w ith th e a s s i s t a n c e o f s t a f f w it h o t h e r s t a t e o f f i c l a l s o n m a tte r s su ch a s t h e b u d g e ts f o r h ig h e r e d u c a t i o n ) . O n ly on e c o o r d in a t in g b o a r d , b u t t h r e e g o v e r n in g board form a g e n c ie s , r e p l i e d t h a t a s a r u le members o f t h e b oard I t s e l f d i s c u s s p o l i c y m a tte r s w ith t h e G overnor r a th e r th a n t h e a g e n c y d i r e c t o r o r s t a f f . F i n a l l y in two i n s t a n c e s o f c o o r d in a t in g b o a rd s and t h r e e o f g o v e r n in g b o a rd s i t was r e p o r t e d t h a t a g e n c y s t a f f , a s w e l l a s t h e d i r e c t o r , o f t e n m eet w ith t h e G overnor and e x e c u t iv e d ep a rtm en t h e a d s . A gency s t a f f o r board members a r e r e p o r te d to d i s c u s s m ajor p o l i c y q u e s t io n s and i s s u e s w ith th e G overnor o r h i s r e p r e s e n t a t iv e s p r io r t o b oard d e c i s i o n s when th e G overn or h a s an i n t e r e s t , i n much th e same p r o p o r tio n a s i n t h e c a s e o f d i s c u s s i o n s w it h l e g i s l a t o r s i n a d v a n ce o f b o a rd a c t i o n s . S e v e n te e n c o o r d in a t in g b oard r e p l i e s i n d i c a t e t h a t d i s c u s s i o n s do o c c u r , a s do t h o s e o n e ig h t co n s o l i d a t e d g o v e r n in g b o a r d s . F iv e c o o r d in a t in g b o a rd s and tw o g o v e r n in g b o a rd s r e p o r t th e y do n o t . 308 The h ig h e r e d u c a tio n a g e n c y i n m ost s t a t e s p o t e n t i a l l y may becom e th e c h i e f s o u r c e o f s t a f f a id to t h e G overnor on h ig h e r e d u c a t io n m a t t e r s . O nly s e v e n o f th e s t a t e s r e p o r t t h a t th e G overnor In t h e i r s t a t e has t h e e q u iv a le n t o f a c a b in e t s e c r e t a r y f o r e d u c a t io n ( s i x o f t h e s e i n th e c o o r d in a t in g b oard g r o u p in g ) w h ile th e b a la n c e do n o t r e p o r t su ch a n o f f i c e r ( t w e n t y - f i v e i n n u m b er). Of t h e s e v e n in s t a n c e s w h ere a c a b in e t s e c r e t a r y e x i s t s , s i x in d ic a t e d th e p o r t io n o f tim e d e v o te d to h ig h e r e d u c a tio n m a t t e r s — th r e e s t a t e d t h a t i t was l e s s th a n t w e n t y - f i v e p e r c e n t and t h r e e b e tw e e n t h a t f i g u r e and f i f t y p e r c e n t . P rob lem s i n d e a l in g w ith th e G overnor and h i s o f f i c e o w ere c i t e d i n some s t a t e a g e n c y r e p l i e s . One c o o r d in a t in g b oa rd form a g e n c y r e s p o n s e in d ic a t e d t h a t th e G overnor o f t h e s t a t e and h i s s t a f f had f a i l e d t o a c c e p t th e b oard a s th e m ajor e x p e r t and sp okesm an on h ig h e r e d u c a t io n m a t t e r s . A n o th e r r e p ly in d ic a t e d t h a t a r e c e n t G overnor had n o t lo o k e d o n t h e a g e n c y a s th e c h i e f p la n n e r and c o o r d in a t o r . L ack o f co m m u n ica tio n and t u r n - o v e r i n th e G o v e r n o r 's o f f i c e w ere c i t e d a s d i f f i c u l t i e s by o t h e r s t a t e s . A gen cy and O th er H ig h e r E d u c a tio n I n t e r e s t s ^ In o n ly on e c a s e , t h a t o f a c o o r d in a t in g b o a r d , was i t r e p o r te d t h a t members o f t h e b oard had te n d e r e d r e s i g n a t i o n s b e fo r e th e e x p i r a t i o n o f t h e i r term s a t th e b e g in n in g o f t h e a d m in is t r a t io n o f a new G o v ern o r. 309 The h ig h e r e d u c a t io n a g e n c y may f i n d t h a t i t i s e n g a g ed i n c o n d u c tin g i t s l e g i s l a t i v e - e x e c u t i v e r e l a t i o n s h ip s a lo n g w ith o t h e r h ig h e r e d u c a tio n i n t e r e s t g ro u p s in c lu d in g i n s t i t u t i o n s , h ig h e r e d u c a t io n sy s te m s and o t h e r a s s o c i a t i o n s su ch a s t h o s e com posed o f f a c u l t y m em bers. F o u r te e n o f tw e n ty -tw o o f th e c o o r d in a t in g b oard form a g e n c ie s r e p o r t t h a t r e p r e s e n t a t iv e s o f i n s t i t u t i o n s o r sy s te m s f o r w h ich t h e board i s r e s p o n s i b l e , a c t i v e l y e n g a g e in a d v o c a c y o r in fo r m a tio n a c t i v i t i e s b e f o r e th e L e g i s l a t u r e o f th e p a r t i c u l a r s t a t e . T h ree o f th e t e n c o n s o lid a t e d g o v e r n in g b o a rd s r e p ly in g i n d i c a t e t h a t t h i s o c c u r s i n t h e i r s i t u a t i o n . I n t e n I n s t a n c e s ( a l l in c o o r d i n a t in g b oard form s t a t e s ) th e i n s t i t u t i o n s o r sy s te m s r e t a i n s t a f f on a c o n t in u in g b a s is d u r in g l e g i s l a t i v e s e s s i o n s a t t h e s t a t e c a p i t a l . The l e g i s l a t i v e a c t i v i t i e s o f h ig h e r e d u c a tio n r e p r e s e n t a t i v e s from i n s t i t u t i o n s c o o r d in a te d g e n e r a l ly o c c u r w ith t h e a g e n c y ’ s f u l l k n ow led ge and c o o p e r a t io n in b o th th e c o o r d in a t in g b oard s t a t e s a s w e l l a s In g o v e r n in g b o a rd I n s t a n c e s . A s s o c ia t i o n s o f f a c u l t y members do n o t o f t e n ap p ea r d u r in g l e g i s l a t i v e s e s s i o n s i n th e s t a t e s s u r v e y e d . F our c o o r d in a t in g b oard a g e n c ie s r e p o r t t h a t f a c u l t y s e n a t e o r o t h e r f a c u l t y a s s o c i a t i o n r e p r e s e n t a t iv e s a p p ea r b e f o r e l e g i s l a t i v e c o m m ittee s and c o n t a c t l e g i s l a t o r s on m a tte r s o f c o n c e r n t o them . One g o v e r n in g b oard n o t e s t h a t t h i s 310 o c c u r s . C o m p e titio n among h ig h e r e d u c a tio n l o b b ie s i s n o te d i n tw e lv e s t a t e s w ith c o o r d in a t in g b o a r d s and two w it h g o v e r n in g b o a r d s . F i n a l l y t h i r t e e n o f th e c o o r d in a t in g b oard s a r e conr s id e r e d t o be t h e p rim ary sp okesm an f o r h ig h e r e d u c a tio n i n t h e i r s t a t e s e v e n th o u g h o t h e r h ig h e r e d u c a t io n r e p r e s e n t a t i v e s may a p p ea r b e f o r e t h e l e g i s l a t u r e and e x e c u t iv e a g e n c ie s from tim e to t im e . N in e o f t h e g o v e r n in g b oard s s t a t e th e s a m e .^ E lem e n ts o f S u c c e s s f u l L e g i s l a t i v e - E x e c u t i v e R e la t io n s h ip s To g a in a d d i t io n a l p e r s p e c t iv e i n d i v i d u a l s w ere a sk e d to c o m p le te a c h e c k - l i s t i n d i c a t i n g th e im p o r ta n c e t h e y p la c e d o n a number o f d i f f e r e n t e le m e n ts w h ic h c o u ld l e a d t o s u c c e s s f u l r e l a t i o n s h i p s b e tw e en t h e a g e n c y and t h e l e g i s l a t i v e - e x e c u t i v e . T h ese s ta te m e n t s and t h e w e ig h t in g i n d i c a t i n g by th e s t a t e a g e n c ie s a r e sh ow n in T a b le X I. A f a v o r a b le G overn or and L e g i s l a t u r e a r e s e e n as k e y to s u c c e s s f u l r e l a t i o n s h i p s w ith s t a t e g o v e r n m e n ts, th o u g h i f th e a u ra o f p a r t is a n s h ip i s p r e s e n t , i n r e s p e c t ^ R e s p o n s e s i n t h i s c o n t e x t a r e s i m i l a r t o th o s e c i t e d in C h ap ter X I: f i f t e e n c o o r d in a t in g b o a rd s and n in e g o v e r n in g b o a rd s c o u ld be c o n s id e r e d a s p e r fo r m in g th e "spokesm an" r o l e . TABLE 11 ELEMENTS OF SUCCESSFUL RELATIONSHIPS HIGHER EDUCATION AGENCY AND LEGISLATIVE— EXECUTIVE (32 Agencies Surveyeda) ELEMENT VERY IMPORTANT OF SOME OF LITTLE CLEARLY DAMAGING TO IMPORTANCE IMPORTANCE GOOD RELATIONSHIPS a. Governor favorable to agency 30 2 b. Legislature favorable to agency c. Members of Board active in partisan affairs d. Members of Board non partisan e. Agency staff leadership active in partisan political affairs f. Staff of agency non partisan > g. President of Board of same party as the Governor h. President of Board of same party dominating Legislature i. Members of executive branch such as Gov., Lt. Gov., ex officio members on Board 1 6 8 15 31 1 3 14 15 15 10 7 1 3 26 25 3 4 3 12 16 1 2 12 16 1 TABLE 11, continued ELEMENTS OF SUCCESSFUL RELATIONSHIPS HIGHER EDUCATION AGENCY AND LEGISLATIVE— EXEC UTIVE (32 Agencies Surveyed®) ELEMENT VERY IMPORTANT OF SOME OF LITTLE CLEARLY DAMAGING TO IMPORTANCE IMPORTANCE GOOD RELATIONSHIPS j. State Superintendent of public education on Board k, Legislators as ex officio members on Board 1, Favorable image of agency in press and other media 1 1 21 6 3 11 15 15 m. Board members perceived to be persons of high prestige 27 aIncludes all agency forms. Pattern of responses not significantly different by form of agency. Not all agencies responded to each element. 312 313 to b o a rd members o r s t a f f , i t i s v iew ed a s a n e g a t i v e f a c t o r t o r e l a t i o n s h i p s . I t i s , h o w e v er, n o te d t h a t t h e r e may be some v a lu e s i n h a v in g t h e p r e s i d e n t o f t h e b o a rd o f t h e same p o l i t i c a l p a r t y a s t h e G o v e rn o r a n d / o r o f t h e p a r t y d o m in a tin g t h e s t a t e ’ s L e g i s l a t u r e . The G o v ern o r o r L i e u t e n a n t G o v ern o r s e r v i n g on t h e s t a t e a g e n c y b o a rd I s o f t e n v iew ed a s dam aging t o good r e l a t i o n s h i p s o r o f l i t t l e im p o rta n c e and i n some i n s t a n c e s dam aging t o r e l a t i o n s h i p s . S i m i l a r l y , l e g i s l a t i v e member s h i p o n t h e b o a rd I s view ed a s n o t b e in g u s e f u l , i f n o t dam ag in g . F i n a l l y , t h e s u rv e y i n d i c a t e s t h a t a f a v o r a b l e im age I n p r e s s and o t h e r m ed ia i s ra n k e d h ig h i n im p o rta n c e t o th e a g e n c y i n t h e p o l i t i c a l p r o c e s s ; and t h e f a c t t h a t members s h o u ld be p e r c e iv e d a s p e rs o n s o f h ig h p r e s t i g e I s a lm o s t u n i v e r s a l l y c o n s id e r e d t o be v e r y im p o r ta n t to t h e a c h ie v e m e n t o f s u c c e s s f u l r e l a t i o n s h i p s i n s t a t e g ov ern m en t f o r t h e a g e n c y . Summary I n su m m arizin g t h e f o r e g o i n g i t may be n o te d t h a t t h e p a t t e r n s o f r e l a t i o n s h i p s w hich em erg e, a s b a se d up on e v id e n c e c o l l e c t e d i n t h i s s u r v e y , a r e r e l a t i v e l y s i m i l a r w h e th e r t h e c o o r d i n a t i n g b o a rd form o f h i g h e r e d u c a ti o n a g e n c y i s c o n s id e r e d o r t h e c o n s o l i d a t e d g o v e rn in g b o a r d . The t y p i c a l h i g h e r e d u c a t i o n a g e n c y b o a rd t a k e s 31^ p o s i t i o n s o n l e g i s l a t i o n p e n d in g b e f o r e t h e s t a t e ' s la w m a k e rs . I n a b o u t h a l f o f t h e s t a t e s , t h e s t a f f d i r e c t o r i n d e p e n d e n t l y may t a k e p o s i t i o n s i n t h e a b s e n s e o f b o a rd s t a t e m e n t . I f a b o a r d b e l i e v e s a p a r t i c u l a r ite m o f l e g i s l a t i o n I s r e q u i r e d , b o a rd members an d t h e s t a f f w i l l s e e k o u t a l e g i s l a t o r t o i n t r o d u c e t h e b i l l i f n e c e s s a r y , th o u g h t h i s i s som ew hat l e s s l i k e l y t o o c c u r i f t h e b o a rd I s o f t h e c o o r d i n a t i n g fo rm . I n t h e p u r s u i t o f a l e g i s l a t i v e p ro g ra m an d e f f o r t s t o i n f l u e n c e t h e l e g i s l a t o r s a n d t h e e x e c u t i v e o n m a t t e r s o f c o n c e rn t o t h e a g e n c y , i t i s l i k e l y t h a t t h e s t a f f p l a y s t h e m a jo r r o l e w i t h a s s i s t a n c e , o n o c c a s i o n , fro m members o f t h e b o a r d , i n c o n t a c t i n g i n d i v i d u a l o f f i c i a l s d i r e c t l y . The h i g h e r e d u c a t i o n a g en c y s t a f f w i l l t y p i c a l l y p l a y a v e r y c a u t i o u s r o l e i n r e s p o n s e t o l e g i s l a t i v e r e q u e s t f o r s u p p o r t o n q u e s t i o n s n o t y e t a c t e d u p o n by t h e b o a rd e v e n th o u g h t h e s t a f f may f a v o r t h e p r o p o s i t i o n . D i s c u s s i o n o f p o l i c y q u e s t i o n s w i t h i n t e r e s t e d l e g i s l a t o r s a n d t h e G o v ern o r may v e r y w e l l o c c u r i n a d v a n c e o f a c t i o n t a k e n by t h e b o a rd o n a p a r t i c u l a r m a t t e r o f p u b l i c c o n c e r n . The a g e n c y c h a rg e d w i t h h i g h e r e d u c a t i o n c o o r d i n a t i n g w i l l a s s i g n s t a f f t o l e g i s l a t i v e - e x e c u t i v e d e p a r tm e n t l i a i s o n th o u g h t h e e x t e n t o f tim e ex p en d ed may n o t be g r e a t a n d t y p i c a l l y t h e a g e n c y s t a f f h e a d w i l l p e rf o rm t h e r e s p o n s i b i l i t y o n a c o n t i n u i n g b a s i s . I n p u r s u i n g i t s r e l a - 315 t l o n s h i p s i n th e s t a t e p o l i t i c a l m i l i e u , th e a g en c y p r o b a b ly w i l l be c o n f r o n te d w ith o t h e r h i g h e r e d u c a ti o n i n t e r e s t s a t w ork, th o u g h t h i s w i l l be o f much g r e a t e r c o n c e r n t o t h e c o o r d i n a t i n g b o a rd form a g e n c y , w h ere com p e t i t i o n among I n t e r e s t s i s m ore l i k e l y t o a p p e a r . F i n a l l y p a r t i s a n s h i p i n t h e c a s e o f b o a rd o r s t a f f i t s e l f i s n o t b e l i e v e d to be c o n t r i b u t o r y to s u c c e s s f u l l e g i s l a t i v e - e x e c u t i v e r e l a t i o n s h i p s , th o u g h t h i s may n o t be t h e c a s e f o r t h e p r e s i d e n t o f th e b o a rd . A f a v o r a b l e p r e s s i s i n d i c a t e d a s d e s i r a b l e . C H A PT E R X III CONCLUSIONS The p rim a ry fo c u s o f t h i s s tu d y h a s b e e n t o exam ine th e p r o c e s s th r o u g h w h ich t h e ag en c y c h a rg e d w i t h th e c o o r d i n a t i n g o f p u b l i c h i g h e r e d u c a ti o n i n s t i t u t i o n s ( o r sy s te m s) i n t e r a c t s w ith th e l e g i s l a t i v e - e x e c u t i v e b o d ie s o f s t a t e g o v e rn m e n t. I t h a s b e e n a n I n v e s t i g a t i o n o f one a s p e c t o f th e p o l i t i c a l p r o c e s s . The ways i n w hich h i g h e r e d u c a ti o n c o o r d i n a t i n g a g e n c ie s s e e k to i n f l u e n c e p o lic y - m a k e r s i n g o v ern m en t have b e e n e x p lo r e d u s i n g t h r e e b o d ie s o f d a t a : h i s t o r i c a l m a t e r i a l r e l a t i n g to t h e C a l i f o r n i a C o u n c il f o r H ig h e r E d u c a tio n ; r e s u l t s o f i n te r v ie w s w ith I n d i v i d u a l s f a m i l i a r w ith t h e o p e r a t i o n o f t h e C a l i f o r n i a a g e n c y , and d a t a from a n a t i o n a l s u r v e y o f h i g h e r e d u c a ti o n a g e n c i e s . T hrough i n v e s t i g a t i o n o f th e C a l i f o r n i a e x p e r ie n c e a n e f f o r t h a s b e e n made t o i d e n t i f y t h e t o o l s an d s t r a t e g i e s o f i n f l u e n c e em ployed i n t h e a g e n c y 's a t t e m p t t o i n f l u ence s t a t e p o l i c y o u tc o m e s. I n t e r v i e w d a t a i n C a l i f o r n i a s e r v e d to i d e n t i f y c e r t a i n p o l l t i c a l l y - r e l e v a n t r o l e s and f u n c t i o n s w ith t h e C a l i f o r n i a C o o r d in a tin g C o u n c il f o r H ig h e r E d u c a tio n p e rfo rm s a s w e ll a s t h o s e w hich i t d o e s 316 317 n o t . A lso c o n s id e r e d w e re t h e e x p e c t a t i o n s f o r a c t i o n h e l d by i n d i v i d u a l s c o n c e rn e d w ith t h e C o u n c i l 's f u t u r e . The f i n d i n g s o f t h e C a l i f o r n i a i n v e s t i g a t i o n w e re s u p p l e m en ted w i t h n a t i o n a l d a t a o n r o l e s and f u n c t i o n s p e rfo rm e d by o t h e r s t a t e a g e n c ie s a s w e ll a s i n f o r m a ti o n r e l a t i n g t o th e p r o c e s s e s a n d c ir c u m s ta n c e s o f a g e n c y i n t e r a c t i o n w ith t h e r e s p e c t i v e s t a t e g o v e rn m e n ts . F in d in g s F in d in g s o f t h e C a l i f o r n i a i n v e s t i g a t i o n an d t h e n a t i o n a l s u r v e y may be sum m arized i n t h e f o l l o w i n g s t a t e m en ts : C o n c e rn in g t h e C a l i f o r n i a C o o r d in a tin g C o u n c il f o r H ig h e r E d u c a ti o n ; 1 . The y e a r 1 9 68 i s a n a p p r o p r i a t e p o i n t i n tim e t o c o n s i d e r t h e C a l i f o r n i a C o u n c il. I t i s a m a tu re a g en c y e n t e r i n g a new p h a se o f d e v e lo p m e n t due t o i n t e r n a l changes a s w e l l a s e x t e r n a l f o r c e s a f f e c t i n g t h e w hole o f h i g h e r e d u c a ti o n i n t h e s t a t e . 2# T hose p e r s o n s r e s p o n s i b l e f o r t h e c r e a t i o n o f t h e C o u n c il and f o r s e t t i n g f o r t h i t s t a s k s d i d n o t c o n s i d e r t o any s i g n i f i c a n t d e g re e t h e ways i n w h ich t h e a g e n cy c o u ld a c h ie v e t h o s e t a s k s i n t h e p o l i t i c a l a r e n a . 3 . The s t a t u t e e s t a b l i s h i n g t h e C o u n c il an d s u b s e q u e n t c h a n g e s i n m em bership o n t h e b o a rd I n d i c a t e a l e g i s l a t i v e i n t e n t to make t h e a g en c y in d e p e n d e n t fro m h i g h e r 318 e d u c a ti o n i f n o t more c l o s e l y i d e n t i f i e d w ith s t a t e g o v e rn m ent. I n r e l a t i v e l y few I n s t a n c e s h a v e th e C a l i f o r n i a L e g i s l a t u r e and G o v e rn o r s o u g h t t h e a d v ic e and recom m enda t i o n o f t h e C o u n c il; t h e C o u n c il I t s e l f , h ow ever, h a s a d v is e d o n a num ber o f m a t t e r s o n I t s own i n i t i a t i v e . 5* The C o u n c il h a s u s e d t o o l s an d s t r a t e g i e s o f I n f l u e n c e s i m i l a r to t h o s e em ployed by m o st I n t e r e s t groups. I n i t s l e g i s l a t i v e - e x e c u t i v e r e l a t i o n s h i p s t h e r e h a s been a n e f f o r t to e n c o u ra g e a p e r c e p t i o n o f t h e C o u n c il a s an " e x p e r t ” o n h i g h e r e d u c a ti o n m a t t e r s . 6 . I n d i v i d u a l s c o g n iz a n t o f C o u n c il a c t i v i t i e s In th e p o l i t i c a l a r e n a t e n d t o se e t h e a g e n c y as p e rfo rm in g r o l e s a n d f u n c t i o n s c o n s i s t e n t w i t h t h i s " e x p e r t" im age, r a t h e r t h a n t h o s e w hich w ould i n d i c a t e l e a d e r s h i p f o r h i g h e r e d u c a t i o n i n t h e s t a t e . I n a l l , th e C o u n c il is s e e n t o be o f l i m i t e d , o r m o d e ra te , e f f e c t i v e n e s s I n th e c o n d u c t o f I t s r e l a t i o n s h i p s w ith s t a t e g o v e rn m e n t. 7o A g e n e r a l u n e a s e i s e x h i b i t e d by t h o s e c l o s e l y f a m i l i a r w ith t h e C o u n c i l 's o p e r a t i o n s e s p e c i a l l y i n r e s p e c t t o i t s s t r u c t u r e a n d f u n c t i o n . H ow ever, s p e c i f i c p r e s c r i p t i o n s f o r change and t h e i r a n t i c i p a t e d outco m es a r e n o t w e l l a r t i c u l a t e d . C oncerning C o o r d in a tin g A g en cies Throughout th e C ountry: 1 . R e sp o n se s t o a s u rv e y o f t h i r t y - t w o o f t h i r t y - 319 n in e a g e n c ie s c h a r g e d w ith t h e c o o r d i n a t i n g o f h i g h e r edu c a t i o n program s i n d i c a t i n g t h a t , n a t i o n a l l y , a g e n c ie s n o t o n ly p u rs u e r o l e s a n d f u n c t i o n s e m p h a siz in g t h e im age o f " e x p e r t ’* o n h i g h e r e d u c a ti o n m a t t e r s , b u t many a r e m ost a c t i v e o n b e h a l f o f h ig h e r e d u c a t i o n i n t e r e s t s i n t h e p o l i t i c a l p r o c e s s . L e a d e r s h ip r o l e s and f u n c t i o n s a p p e a r to be s t r e s s e d . T h is f i n d i n g i s m o d if ie d to some d e g re e by n o t i n g t h a t some c o o r d i n a t i n g b o a rd s h a v in g a d v is o r y f u n c t i o n s may be l e s s l i k e l y t o s t r e s s t h e l e a d e r s h i p a s p e c t s ; t h i s may b e somewhat m ore p ro n o u n c e d s h o u ld th e b o a rd be b o th a d v i s o r y i n r e s p o n s i b i l i t y an d i n c l u d e r e p r e s e n t a t i v e s o f h i g h e r e d u c a tio n i n i t s m em b ersh ip . 2 . Most c o o r d i n a t i n g a g e n c ie s p e rfo rm a c t i v i t i e s i n r e s p e c t to t h e re v ie w o f b u d g e ts f o r h i g h e r e d u c a t i o n an d th e y a r e n o r m a lly c o n d u c te d i n a s i t u a t i o n w h e re t h e r e i s c o n s i d e r a b l e b u d g e t e x a m in a tio n by t h e c h i e f f i s c a l o f f i c e r f o r th e s t a t e . T h ere a p p e a rs to be c o n s i d e r a b l e d e p en d e n ce on i n f o r m a l c o n t a c t s b e tw e e n ag en cy s t a f f and t h e s t a t e f i s c a l o f f i c i a l s i n t h e c o u r s e o f b u d g e t re v ie w an d p r e s e n t a t i o n . The a g e n c y 's r e s p o n s i b i l i t i e s from d a t a a t h a n d c a n n o t be d i r e c t l y r e l a t e d t o t h e e x t e n t o f dev e lo p m e n t o f t h e e x e c u ti v e o r l e g i s l a t i v e b u d g e t r e v ie w p r o c e s s e s . T h ere i s some s u g g e s t i o n t h a t i n s t a t e s w here b u d g e t o f f i c e e x a m in a tio n i s c o n s i d e r a b l e and w i t h su b s t a n t i a l e f f e c t , t h e r e w i l l be a l e s s e r r o l e f o r t h e c o o r d i n a t i n g a g e n c y t o p l a y . 320 3 . The p a t t e r n o f r e l a t i o n s h i p s w i t h th e l e g i s l a t i v e - e x e c u t i v e i s r e l a t i v e l y s i m i l a r w h e th e r t h e s t a t e a g en c y i s o f t h e c o o r d i n a t i n g b o a r d o r c o n s o l i d a t e d g o v e r n i n g b o a r d fo rm o f o r g a n i z a t i o n . P o s i t i o n s a r e t a k e n by th e b o a rd o n l e g i s l a t i o n ( o r a p p l i c a b l e p r i n c i p l e s a d o p te d ) a n d l e g i s l a t i v e p ro g ram s a r e d e f i n e d and p u r s u e d w ith a g e n c y s t a f f p l a y i n g a n a c t i v e r o l e . P o l i c y q u e s t i o n s may be d i s c u s s e d w i t h t h e G o v e rn o r o r L e g i s l a t o r s b e f o r e f i n a l b o a rd a c t i o n i s t a k e n o n a g iv e n m a t t e r . P a r t i s a n s h i p w i l l l i k e l y be m in im iz e d among b o a rd members a n d s t a f f th o u g h i t may be o f some im p o r ta n c e f o r t h e p r e s i d e n t o f t h e b o a rd t o be o f s i m i l a r p o l i t i c a l d i s p o s i t i o n a s t h e G o v e rn o r a n d / o r t h e d o m in a n t l e g i s l a t i v e p a r t y . A t t h e o u t s e t o f t h e s t u d y a s e r i e s o f h y p o th e s e s w e re s u g g e s t e d c o n c e r n in g t h e s t a t e h i g h e r e d u c a t i o n a g e n c y a n d i t s r e l a t i o n s h i p s w i t h s t a t e g o v e rn m e n t. The f i n d i n g s o f t h i s s t u d y may now be b r o u g h t t o b e a r o n t h e s e e x p e c t a t i o n s t o d e te r m in e w i t h i n t h e l i m i t s o f t h e d a t a p r e s e n t e d w h ich a p p e a r to be b o rn e o u t , w h ic h a p p e a r t o be u n t e n a b l e , and w h ic h s h o u ld be t h e s u b j e c t o f f u r t h e r i n - 1 v e s t l g a t i o n . A c a u t i o n a r y n o te m u st be s t a t e d i n c o n s i d e r i n g t h e e x t e n t to w h ich t h e s e h y p o th e s e s may be c o r r e c t . As t h e s e s t a t e m e n t s r e l a t e t o t h e ’’f l u x o f p o l i t i c a l e x p e r i e n c e ” i n t h e m a in , i t i s m ost d i f f i c u l t t o p r e s e n t a n y c l e a r p r o o f s o f v a l i d i t y . Though e f f o r t h a s b e e n made t h r o u g h o u t t h e s t u d y to c o l l e c t d a t a i n a c o m p a ra b le man n e r r e g a r d i n g s i m i l a r p ro b le m s a n d s i t u a t i o n s , an d q u a n t i t a t i v e r e s u l t s i n many i n s t a n c e s p r e s e n t e d , e x a c t n e s s 321 HYPOTHESIS I The a g e n c y f o r h i g h e r e d u c a ti o n c o o r d i n a t i o n em ploys t o o l s an d s t r a t e g i e s o f i n f l u e n c e v e ry much s i m i l a r to t h o s e o f any i n t e r e s t g ro u p i n s e e k in g to i n f l u e n c e p o lic y - m a k in g i n s t a t e gov ern m en t . The e x a m in a tio n o f t h e C a l i f o r n i a e x p e r ie n c e d i s c lo s e d t h e ag en c y a t t e m p t i n g to r o u t i n i z e l e g i s l a t i v e r e l a t i o n s h i p s * d e v e lo p c l o s e c o n t a c t s b e tw e e n s t a f f and l e g i s l a t o r s , a tt e m p t l e g i s l a t i v e l e g i t i m i z a t i o n o f i t s re c o m m e n d a tio n s, p e rfo rm e x p e r t s e r v i c e s c o n s i s t e n t w ith i t s s t a t u s a s a p u b l i c a g e n c y , a s w e ll a s o t h e r a c t i v i t i e s much a s any I n t e r e s t g ro u p s e e k in g t o i n f l u e n c e a c t o r s i n t h e p o l i t i c a l p r o c e s s . The n a t i o n a l s u r v e y I n d i c a t e s sim i l a r e f f o r t s i n m ost o t h e r s i t u a t i o n s . A. The t o o l s o f i n f l u e n c e a r e m ore l i m i t e d t h a n th o s e a v a i l a b l e to o t h e r i n t e r e s t s . W hile t h e h i g h e r e d u c a ti o n a g e n c y p e rfo rm s a c t i v i t i e s much a s o t h e r i n t e r e s t g ro u p s i t a p p e a r s t h e r e a r e some l i m i t a t i o n s i n t h e i r s c o p e . The C a l i f o r n i a exam ple s u g g e s ts t h a t c o m b in a tio n w i t h o t h e r i n t e r e s t s may n o t be s u c c e s s f u l p a r t i c u l a r l y i f l o g - r o l l i n g s h o u ld o c c u r a n d /o r th e a g e n c y com bines w i t h one h i g h e r e d u c a t i o n i n t e r e s t e x c lu d in g a n o t h e r . O th e r a c t i o n s su c h a s s u p p o r t f o r l e g - i s l a t o r s i n cam paigns o r s p e c i a l f a v o r s t o law m akers a r e s h o u ld n o t be assu m e d . C o n se q u e n tly t h e f o l lo w in g s h o u ld be c o n s id e r e d s im p ly s t a te m e n t s o f te n d e n c y r a t h e r t h a n p ro v e n f a c t . 322 p re s u m a b ly p r e c l u d e d fro m t h e c a t a l o g u e o f a p p r o p r i a t e a c t i o n s . O v e r a l l , h o w e v e r, a n a g e n c y d e v o te d to t h e c o o r d i n a t i o n o f h i g h e r e d u c a t i o n may be s a i d t o be q u i t e f r e e to p u r s u e i t s i n t e r e s t s i n t h e c o n t e x t o f s t a t e g o v e rn m e n t w i t h o n ly t h e m ost g e n e r a l c o n s t r a i n t s . B. The s t a t e h i g h e r e d u c a t i o n a g e n c y may be c o n s i d e r e d much a s w o u ld any lo b b y f o r a h i g h e r e d u c a t i o n i n t e r e s t . E v id e n c e c o l l e c t e d i n t h e C a l i f o r n i a s u r v e y w ould te n d to s u p p o r t t h e h y p o t h e s i s t h a t t h e h i g h e r e d u c a t i o n a g e n c y I s i n e f f e c t much l i k e a n y o t h e r lo b b y i n i t s a t t em pts t o i n f l u e n c e t h e l e g i s l a t i v e - e x e c u t i v e . The t e c h n i q u e s f o r i n f l u e n c e a r e c o m p a r a t i v e l y s i m i l a r ; t h e a g e n c y i s commonly p e r c e i v e d i n t h i s m an n e r. C. The m ore p a r t i s a n t h e a g e n c y b o a r d , t h e g r e a t e r t h e a b i l i t y t o i n f l u e n c e p o l i c y o u tc o m e s . N a t i o n a l d a t a i n d i c a t e t h a t p a r t i s a n s h i p o f t h e b o a rd (a n d s t a f f ) i s n o t p e r c e i v e d to be f u n c t i o n a l t o good r e l a t i o n s h i p s i n g o v e rn m e n t. H ow ever, t h i s may n o t a p p ly a s s t r i c t l y t o th e b o a rd c h a irm a n o r p r e s i d e n t i f he i s o f t h e sam e p a r t y a s t h e G o v e rn o r a n d / o r d o m in a n t l e g i s l a t i v e p a r t y . The C a l i f o r n i a exam ple w ould h e a r t h i s o u t . D. The h i g h e r e d u c a t i o n a g e n c y w i l l t e n d t o i d e n t i f y a s m a ll g ro u p o f l e g i s l a t o r s (a n d o t h e r k e y o f f i c i a l s i n s t a t e g o v e rn m e n t) who a r e s y m p a th e n tic t o t h e a g e n c y ’s i n t e r e s t s a n d who w i l l be c a l l e d u p o n t o c a r r y l e g i s l a t i o n o r o t h e r w i s e e s p o u s e t h e p ro g ra m o f t h e a g e n c y . The h i s t o r y o f t h e C a l i f o r n i a C o u n c i l ’s l e g i s l a t i v e - e x e c u t i v e r e l a t i o n s h i p s show s t h a t r e l a t i v e l y few l e g i s l a 323 t o r s have worked, c l o s e l y w ith t h e C o u n c il. T hese law m akers h a v e te n d e d to c a r r y m o st l e g i s l a t i o n o f i n t e r e s t to t h e C o u n c il a n d a p p e a r t o h a v e been t h e r e c i p i e n t s o f c o n s i d e r a b l e s t a f f a s s i s t a n c e an d a d v ic e o f a n in f o r m a l n a t u r e . I n m ost i n s t a n c e s c lo s e p e r s o n a l r e l a t i o n s h i p s h ave b e en d e v e lo p e d . E. In fo rm a l r e l a t i o n s h i p s a r e o f s i g n i f i c a n t im p o rta n c e i n th e p r o c e s s o f i n f l u e n c i n g t h e l e g i s l a t i v e - e x e c u t i v e . I n b o th th e C a l i f o r n i a i n v e s t i g a t i o n and t h e n a t i o n a l s u r v e y , e v id e n c e was fo u n d o f e x t e n s i v e in f o r m a l c o n t a c t s , g e n e r a l l y b e tw e e n ag en cy d i r e c t o r s and l e g i s l a t o r s and o t h e r o f f i c i a l s . I n m o st i n s t a n c e s s t a f f a r e a s s i g n e d l i a i s o n a c t i v i t i e s th o u g h o n ly i n a few c a s e s i s t h i s on a c o n ti n u i n g b a s i s f o r o t h e r th a n t h e a g e n c y ’ s e x e c u ti v e o f f i c e r . C o n ta c t b e tw e e n members o f b o a rd s and t h e G o v e rn o r and l e g i s l a t o r s i s common. The d a ta g i v e s t h e i m p r e s s io n t h a t in f o r m a l c o n t a c t s may be more e s s e n t i a l t h a n fo rm a l a d v ic e s i n a s s u r i n g t h a t t h e a g e n c y 's i n t e r e s t s a r e made known t o p o lic y - m a k e r s a n d th e p o l i c y m aking p r o c e s s outcom es a f f e c t e d . F u r t h e r s tu d y i s r e q u i r e d . HYPOTHESIS I I The c o o r d i n a t i n g agency f o r h ig h e r e d u c a ti o n w i l l s t r e s s r o l e s and f u n c t i o n s d e s ig n e d t o en h an ce i t s image a s a n " e x p e r t " on h i g h e r e d u c a ti o n m a t t e r s i n th e p o l i t i c a l c o n t e x t and c o n s e q u e n tly w i l l n o t empha s i z e a c t i o n s d i r e c t e d to w ard a n image o f th e ag en c y a s " l e a d e r " o f h i g h e r e d u c a ti o n i n t h e s t a t e . 324 R e s u l t s o f t h e C a l i f o r n i a s u rv e y i n d i c a t e d t h a t ''e x p e r t " r o l e s and f u n c t i o n s a r e em p h asized and th e a g e n cy i s n o t p e r c e iv e d a s b e in g t h e l e a d e r o f h ig h ' e d u c a t i o n , a l o b b y i s t o r a n a d v o c a te o f h ig h e r e d u c a tio n i n t e r e s t s , o r a s a s o u r c e o f in n o v a t i v e i d e a s f o r h i g h e r e d u c a t i o n . N a t i o n a l l y , b o th t h e " e x p e r t" r o l e s and f u n c t i o n s a s w e l l a s th o s e o f a l e a d e r s h i p n a t u r e a re s t r e s s e d . A. P e rfo rm a n c e o f p o l i t i c a l l y - r e l e v a n t r o l e s and f u n c t i o n s i s r e l a t e d t o th e fo rm o f a g e n c y b o a rd , i t s o v e r a l l t a s k s ( a d v i s o r y o r m a n a g e r i a l ) and t h e m em bership o f th e b o a rd i t s e l f . P e rfo rm a n c e o f p o l i t i c a l l y - r e l e v a n t r o l e s a n d f u n c t i o n s d o e s n o t a p p e a r to v a r y i n g r e a t m easure w h e th e r t h e ag en cy i s o f c o o r d i n a t i n g b o a rd form o r i s a c o n s o l i d a te d g o v e rn in g b o a rd . Among c o o r d i n a t i n g b o a rd s , i f th e t a s k s a re p r e d o m in a te ly a d v i s o r y , th e n t h e r e w i l l l i k e l y be g r e a t e r s t r e s s o n t h e " e x p e r t " a s p e c t s an d l e s s empha s i s p la c e d o n a c t i o n s d e s ig n e d to i n c r e a s e a l e a d e r s h i p im a g e. C o m p o sitio n o f t h e b o a rd may have l i t t l e r e l e v a n c e i n i t s e l f . How ever, c o o r d i n a t i n g a g e n c ie s w hich i n c l u d e i n s t i t u t i o n a l m em bership on t h e i r b o a rd a n d w ith a d v i s o r y f u n c t i o n s a p p e a r to be th e l e a s t l i k e l y t o p u rsu e a c t i v e , a g g r e s s i v e r o l e s an d f u n c t i o n s i n th e c o n t e x t o f s t a t e g o v e rn m e n t. F u r t h e r s tu d y i s r e q u i r e d f o c u s i n g o n a d v i s o r y a s p e c t s o f t h e b o a rd s and r e l a t i o n s h i p s to im po se on p o lic y - m a k in g . 325 HYPOTHESIS I I I I f t h e r e i s d i s s a t i s f a c t i o n w i t h th e p e r f o r m a n c e s o f t h e h i g h e r e d u c a t i o n a g e n c y i n r e s p e c t t o th e l e g i s l a t i v e - e x e c u t i v e t h e r e w i l l be a te n d e n c y f o r i n d i v i d u a l s to s e e k Im provem ents by recom m ending f o r m al c h a n g e s i n s t r u c t u r e and f u n c t i o n s f o r t h e a g e n c y . I n t h e C a l i f o r n i a e x a m in a tio n s i g n i f i c a n t num bers o f p e r s o n s i n te r v ie w e d w e re fo u n d t o b e l i e v e c h a n g e s s h o u ld be made e i t h e r i n t h e m em b ersh ip o f t h e b o a rd o r i t s s t a t u t o r y r e s p o n s i b i l i t i e s . Some te n d e n c y was n o te d t o s u g g e s t change t h e lo w e r t h e o v e r a l l p e r c e p t i o n o f t h e a g e n c y 's p e rf o r m a n c e . P r e s c r i p t i o n s f o r a c t i o n , h o w e v e r, w e re n o t w e l l a r t i c u l a t e d , i n d i c a t i n g a g r e a t d e a l o f a m b iv a le n c e o f a t t i t u d e to w a rd th e a g e n c y . T h e re i s a g e n e r a l i m p r e s s io n o f u n c e r t a i n t y a s t o t h e f u t u r e form s o f h i g h e r e d u c a t i o n s t r u c t u r e i n C a l i f o r n i a . The c a u s e s f o r t h i s I n c lu d e : t h e e x i s t e n c e o f th e L e g i s l a t u r e 's J o i n t C om m ittee o n H ig h e r E d u c a ti o n , i n t e r n a l p ro b le m s o f t h e U n i v e r s i t y o f C a l i f o r n i a , f i s c a l l i m i t a t i o n s p l a c e d o n th e s y s te m s , t h e c r e a t i o n o f t h e new b o a rd f o r t h e j u n i o r c o l l e g e s a t t h e s t a t e l e v e l , and t h e r e c e n t p r o j e c t i o n o f h i g h e r e d u c a t i o n m a t t e r s i n t o p u b l i c d i s c u s s i o n . HYPOTHESIS IV The c o n d u c t o f h i g h e r e d u c a t i o n i s b e co m in g i n c r e a s i n g l y p o l i t i c i z e d ; t h i s may make t h e c o o r d i n a t i o n o f i n s t i t u t i o n s a n d s y s te m s more d i f f i c u l t . The C a l i f o r n i a c a s e a p p e a r s t o o f f e r e v id e n c e t h a t , a t l e a s t i n t h a t s t a t e , h i g h e r e d u c a t i o n h a s become i n t e r j e c t e d i n t o p o l i t i c a l d i s c u s s i o n t o a much g r e a t e r d e g r e e 326 t h a n i n t h e p a s t . I t i s s u g g e s te d t h a t t h i s i s , i n p a r t , due t o c o l l e g e and u n i v e r s i t y e x p a n s io n and t h e c o n s e q u e n t demands u p o n t h e s t a t e f o r f i s c a l s u p p o r t . O th e r f a c t o r s c h i e f l y i n r e s p e c t t o s t u d e n t an d f a c u l t y c o n d u c t have e n t e r e d a s w e ll to h e i g h t e n p o l i t i c a l c o n c e rn . The C a l i f o r n i a a g e n c y ’ s h a n d li n g o f t h e tu itio n ~ ~ is s u e s u g g e s t s a p o s s i b i l i t y t h a t , a s i s s u e s become m a t t e r s o f e x t e n s i v e p o l i t i c a l c o n c e rn , t h e n t h e c o o r d i n a t i n g a g e n c y i s p r e c l u d ed from e f f e c t i v e a c t i o n . T h is may be more l i k e l y t o o c c u r i n i n s t a n c e s w here t h e r e a r e s t r o n g i n s t i t u t i o n a l o r sy ste m b o a r d s , an d w here t h e c o o r d i n a t i n g a g e n c y i s i n a p o s i t i o n b e tw e e n t h e m a jo r c o n te n d in g p a r t i e s . F u r t h e r s t u d y o f t h e q u e s t i o n i s r e q u i r e d . HYPOTHESIS V The h i g h e r e d u c a ti o n a g e n c y c l e a r l y i s i d e n t i f i e d a s a c r e a t u r e o f s t a t e g o v e rn m e n t r a t h e r t h a n h i g h e r e d u c a ti o n a s s u c h . F in d in g s o f t h i s s tu d y te n d to i n d i c a t e t h a t b o th n a t i o n a l l y , a s w e l l a s i n t h e C a l i f o r n i a e x am p le , c l e a r i d e n t i f i c a t i o n o f t h e c o o r d i n a t i n g ag en c y w i t h s t a t e g ov ern m en t i s n o t g e n e r a l l y t h e c a s e . The c o n s o l i d a t e d gov e r n i n g b o a rd i s c l o s e l y i d e n t i f i e d w i t h th e c o l l e g e s and u n i v e r s i t i e s ; th e c o o r d i n a t i n g b o a rd form may more l i k e l y be v iew ed a s in d e p e n d e n t o f e i t h e r one o r t h e o t h e r . A re a s f o r F u r t h e r I n v e s t i g a t i o n I n t h e f o r e g o i n g , a num ber o f a r e a s f o r f u r t h e r 327 s p e c i f i c s t u d i e s h a v e b e e n s u g g e s t e d . I n c o n c l u s i o n , s u b j e c t s o f g e n e r a l r e s e a r c h c a n be n o t e d . F i r s t , t h e n e e d f o r b e t t e r m e th o d o lo g ic a l a p p ro a c h e s i n su c h " i n t e r - o r g a n i z a t i o n " a n a l y s e s a s t h i s s t u d y a p p e a r s to be s h o u ld be s t r e s s e d . I n t h i s r e s e a r c h e f f o r t t h e u s e o f " r o l e s an d f u n c t i o n s " a s c r i b e d t o g ro u p s h a v e b e e n em ployed a s a d e v i c e , i n t h e a b s e n c e o f o t h e r t o o l s , t o c l a s s i f y p e r c e p t i o n s o f t h e c o o r d i n a t i n g m echanism b o th i n t h e C a l i f o r n i a exam ple a s w e l l a s n a t i o n a l l y . O th e r m ore s o p h i s t i c a t e d t o o l s s h o u ld be d e v e lo p e d w h ich may be r a p i d l y a p p l i e d to f u t u r e a n a l y s e s . P o l i t i c a l s c i e n t i s t s a s w e l l a s r e s e a r c h e r s from o t h e r d i s c i p l i n e s c o u ld p r o f i t a b l y e x p lo r e th e p r o c e s s o f r e l a t i o n s h i p s among and b e tw e e n g ro u p s i n a p o l i t i c a l c o n t e x t t o a much g r e a t e r e x t e n t t h a n a p p e a rs t o h a v e b e e n t h e c a s e . The r e l e v a n c e o f p r o c e d u r e to o u t come seem s a n I m p o r ta n t s u b j e c t to be c o n s i d e r e d i n a n o r g a n i z e d a n d c o m p re h e n s iv e m a n n e r. The v i a b i l i t y o f t h e c o o r d i n a t i n g m echanism f o r h i g h e r e d u c a t i o n s h o u ld c o n t i n u a l l y be e x a m in e d , n o t o n ly i n r e f e r e n c e t o t h e i n s t i t u t i o n s a n d s y s te m s c o o r d i n a t e d , b u t i n r e s p e c t to t h e b e n e f i t s t h e p u b l i c r e c e i v e s . D i f f e r e n c e s i n a g en c y fo rm s an d r e s p o n s i b i l i t i e s , a s w e l l a s t h e d i f f e r i n g p o l i t i c a l and s o c i a l c o n t e x t s i n i n d i v i d u a l s t a t e s , may l e a d t o a num ber o f d i f f e r e n t s o l u t i o n s . The i n v e s t i g a t i o n o f t h e C a l i f o r n i a e x p e r i e n c e s u g g e s t s t h a t i t s e n g in e f o r s u p e r v i s i n g t h e d e v e lo p m e n t o f 328 m a s s iv e h i g h e r e d u c a ti o n sy s te m s was p ro p o s e d and e s t a b l i s h e d w ith a l i m i t e d c o n c e p ti o n o f p r e c i s e l y w hat was to be d o n e , and how i t was t o be a c c o m p lis h e d . The u n e a s e e x h i b i t e d w ith t h e p r e s e n t s i t u a t i o n s u g g e s t s t h a t s a t i s f a c t o r y c o o r d i n a t i o n h a s n o t y e t r e s u l t e d , a t l e a s t i n th e m inds o f th o s e i n th e p o lic y - m a k in g p r o c e s s who h av e co n c e r n s a b o u t h i g h e r e d u c a t i o n . The d is a g r e e m e n t e x h i b i t e d i n C a l i f o r n i a a s w e ll a s n a t i o n a l l y a s t o w h a t in d e e d con s t i t u t e s " c o o r d i n a ti o n " I n d i c a t e s t h e r e q u ir e m e n t f o r con t i n u e d e x a m in a tio n o f t h e p re m is e s upon w h ic h a g e n c ie s have b e en c r e a t e d a n d th o s e p e r c e p t i o n s upon w h ich th e fo rm s and r e s p o n s i b i l i t i e s o f e x i s t i n g b o d ie s may be m o d if ie d . 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"E conom ics o f H ig h e r E d u c a tio n : Q u a l i t y and P e r s o n a l i s m ," D r a f t m a n u s c r i p t o f s t u d y s u p p o r te d by D a n f o r th F o u n d a tio n , 1967* (m im eo g rap h ed) G le n n y , Lyman A. Autonomy o f P u b l i c C o l le g e s : The C hallenge o f C o o r d i n a t i o n . New Y ork: M cG raw -H ill Book Com p a n y , 1959. ____________. " P o l i t i c s and C u r r e n t P a t t e r n s i n C o o r d i n a t i n g H ig h e r E d u c a ti o n ." i n Campus a n d C a p i t o l : H ig h e r E d u c a tio n a n d t h e S t a t e . E d i t e d by W. J o h n M i n t e r . B o u ld e r , C o lo ra d o : W e s te rn I n t e r s t a t e C om m ission f o r H ig h e r E d u c a tio n , November 1 9 6 6 , p p . 2 8 -4 8 . ____________. " T re n d s i n H ig h e r E d u c a t i o n ." i n F i n a n c i n g H ig h e r E d u c a t i o n . P r o c e e d in g s o f th e 1 5 t h A nnual L e g i s l a t i v e Work C o n f e re n c e , A s h v i l l , N o r th C a r o lin a , J u l y 2 7 -3 0 , 1 9 6 6 . A t l a n t a , G e o rg a : S o u t h e r n 336 R e g io n a l E d u c a tio n B o a rd , 1 9 6 6 . p p . 1-13* Gove, Sam uel K. " S ta te w id e S y stem s o f H ig h e r E d u c a tio n S t u d i e s : A Sum m ary," P r e p a r e d f o r th e E d u c a tio n C om m ission o f th e S t a t e s . D e n v e r, C o lo ra d o : The C om m ission, O c to b e r 30* 1 9 6 ? . (m im eographed) H e n d e rso n , A lg o . " S t a t e P la n n in g and C o o r d i n a t i o n ." E d u c a tio n a l R e c o r d , XL ( F a l l , 1 9 6 6 ) , 503“ 509« L a v e n d e r, H a ro ld W ade. "The New M exico B oard o f E duca t i o n a l F in a n c e : A S tu d y i n t h e C o n tr o l o f H ig h e r E d u c a tio n ," U n p u b lis h e d d o c t o r a l d i s s e r t a t i o n , U n i v e r s i t y o f New M exico, 1965* L ong, Emmett T h a d d e u s , J r . "The B ackground and E f f e c t s o f M ajo r S t u d i e s o f P u b l i c H ig h e r E d u c a tio n i n C a l i f o r n i a , 1 9 ^ 7 -6 2 ." U n p u b lis h e d d o c t o r a l d i s s e r t a t i o n , U n i v e r s i t y o f S o u th e r n C a l i f o r n i a , 1965- M cC o n n ell, T .R . "The C o o r d in a tio n o f S t a t e S ystem s o f H ig h e r E d u c a tio n ." i n E m erging P a t t e r n s i n A m erican H ig h e r E d u c a ti o n . E d ite d by L ogan W ilso n . Wash i n g t o n , D .C ." A m erican C o u n c il o n E d u c a tio n , 1965* p p . 1 2 9 -^ 1 . M a rsh , Owen R o b e r t. " C o o r d i n a t i o n o f S t a t e H ig h e r E duca t i o n i n I l l i n o i s : A Case S tu d y ." U n p u b lis h e d Doc t o r a l d i s s e r t a t i o n , I l l i n o i s S t a t e U n i v e r s i t y , 1 9 6 7 . M a r to ra n a , 3 .W ., an d H o l l i s , E r n e s t V. S t a t e B o ard s R es p o n s i b l e f o r H ig h e r E d u c a ti o n . U.S. O f f i c e o f Edu c a t i o n , C i r c u l a r No. 6 1 9 . W a sh in g to n , D .C .: U.S. G overnm ent P r i n t i n g O f f i c e , i 9 6 0 . M i l l e t t , J . D. " S t a t e P la n n in g f o r H ig h e r E d u c a tio n ." E d u c a tio n a l R e c o r d . XLVI (Summer, 1 9 6 5 )* 2 2 3 -3 0 . . " S ta te w id e P la n n in g and C o o r d in a tio n o f H ig h e r E d u c a tio n ." An a d d r e s s to th e 1 6 th A nnual L e g i s l a t i v e Work C o n fe re n c e , W hite S u lp h u r S p r i n g s , West V i r g i n i a , A u g u st 27* 196?* A t l a n t a , G eorga: S o u th e r n R e g io n a l E d u c a tio n B o a rd , 1 9 6 7 . M in te r , W. J o h n , e d . Campus a n d C a p i t o l : H ig h e r E d u c a tio n and t h e S t a t e . B o u ld e r, C o lo ra d o : W e ste rn I n t e r s t a t e C om m ission f o r H ig h e r E d u c a tio n , November 19 66. M oos, M alcolm and R o uke, F r a n c i s E . . The Campus and t h e S t a t e . B a ltim o r e , M a ry lan d : Jo h n s H opkins U n iv e r - 337 s i t y P r e s s , 1959• P a l t r i d g e , Jam es G. " O r g a n iz a t i o n a l Forms W hich C h a r a c t e r i z e S ta te w id e C o o r d in a tio n o f P u b l i c H ig h e r E d uca t i o n . B e r k e le y : U n i v e r s i t y o f C a l i f o r n i a , C e n te r f o r R e s e a rc h D evelopm ent i n H ig h e r E d u c a tio n , J u n e 1 9 6 5 * (m im eographed) P a l o l a , E r n e s t. " S ta tew id e P la n n in g i n H igh er E d u ca tio n ; A S tu d y o f P la n n e d O r g a n i z a t i o n a l C h an g e." P r o s p e c t u s f o r s t u d y . B e rk e le y : U n i v e r s i t y o f C a l i f o r n i a C e n te r f o r R e s e a rc h a n d D evelopm ent i n H ig h e r Edu c a t i o n , J a n u a r y 1 0 , 1 9 6 7 . (m im eographed) P o l l a c k , Myron F r a n k . " S t a t e S u rv e y s o f H ig h e r E d u c a tio n and R e s u l t a n t A c tio n : D i s c e r n i b l e P a t t e r n s and R e l a t i o n s h i p s . " U n p u b lish e d d o c t o r a l d i s s e r t a t i o n , S t a n f o r d U n i v e r s i t y , 1965* P u b l i c A f f a i r s R e s e a r c h C o u n c il o f L o u i s i a n a , I n c . C oor d i n a t i o n an d P l a n n i n g . L o u is ia n a H ig h e r E d u c a tio n : 3 . B a to n R ouge, L o u is ia n a : The C o u n c il, S e p te m b e r, 1 9 6 6 . S c o t t , K e ith L y l e . " V o lu n ta r y C o o r d in a tio n o f S t a t e H ig h e r E d u c a tio n i n C o lo ra d o : A Case S tu d y . U n p u b lis h e d d i s s e r t a t i o n , U n i v e r s i t y o f C o lo ra d o , 1964-. S t a r k e y , A l b e r t E d is o n . " S t a t e L e v e l E d u c a ti o n a l D e c i s i o n - M aking i n T e x a s ." U n p u b lish e d d o c t o r a l d i s s e r t a t i o n , U n i v e r s i t y o f T e x a s, 1 9 6 6 . W illia m s, R obert L. L eg a l B ases o f C o o r d in a tin g Boards o f H igh er E d u ca tio n in T h ir ty -N in e S t a t e s . ( C h ica g o : The C o u n c il o f S t a t e G o v ern m en ts, M id w e ste rn O f f i c e , S ep tem b er 1 9 6 ? . W h ite , C h a rle s H. "The K e n tu ck y C o u n c il o n P u b l i c H ig h e r E d u c a tio n : A n a ly s is o f a Change i n S t r u c t u r e . " P u b l i s h e d d i s s e r t a t i o n , The O hio S t a t e U n i v e r s i t y , 1 9 6 7 . W ilso n , L o gan, E d. E m erging P a t t e r n s i n A m e ric an H ig h e r E d u c a ti o n . W ash in g to n , D .C .: A m erican C o u n c il o n E d u c a tio n , 1 9 6 5 * ___________ . " S t a t e C o o r d i n a t i o n o f H ig h e r E d u c a tio n ." S p e e ch to t h e A s s o c i a t i o n f o r H ig h e r E d u c a tio n , W ash in g to n E d u c a tio n A s s o c i a t i o n , S e a t t l e , W a sh in g to n , Decem ber 2 , 1 9 6 6 . (m im eographed) 338 M a te r ia ls R e la t in g To The C a lif o r n ia C o o r d in a tin g C o u n cil f o r H igh er E d u c a tio n A. G e n e ra l B u t l e r , J o h n H. " C o o r d i n a t i o n a n d C o n tr o l o f S t a t e S u p p o r t ed I n s t i t u t i o n s o f H ig h e r E d u c a ti o n ." B u l l e t i n No. 1 . S t a t e C o u n c il, C a l i f o r n i a A s s o c i a t i o n o f S t a t e T e a c h e rs C o lle g e I n s t r u c t o r s , May 1929* (m im eo g rap h ed) C a l i f o r n i a ( S t a t e ) B oard o f E d u c a ti o n . M in u te s o f t h e B o a rd , M arch 1 3 , 1959* C a l i f o r n i a C o u n c il o n E d u c a tio n a l P l a n n in g an d C o o r d in a tio n . " S ta te m e n t o f B a s ic P r i n c i p l e s . . ." S a c ra m e n to (2); The. C o u n c il, 193^* (m im eographed) C a l i f o r n i a D e p a rtm e n t o f E d u c a tio n . A R e p o rt to t h e C a l i f o r n i a L e g i s l a t u r e o n t h e Need f o r J u n i o r C o lle g e F a c i l i t i e s D u rin g ¥he N ext T en Y e a r s , 1 9 6 5 -1 9 7 5 . S a c ra m e n to : The D e p a rtm e n t, J a n u a r y 19o5* C a l i f o r n i a . G o v e r n o r ’ s S u rv e y o n E f f i c i e n c y and C o s t Con t r o l . C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a t i o n . R e p o rt d e s i g n a t e d "W orking Copy, I n t e r n a l Use O n ly ." S a c ra m e n to : S t a t e o f C a l i f o r n i a , November 1 9 8 7 . C a l i f o r n i a L e g i s l a t u r e . O f f i c e o f th e L e g i s l a t i v e A n a l y s t . A n a ly s is o f t h e B udget B i l l . F o r y e a r s 1 9 6 1 -6 2 th r o u g h 1 9 6 7 -8 8 . S a c r a m e n to : J o i n t L e g i s l a t i v e B udget C o m m ittee. C a l i f o r n i a L e g i s l a t u r e . A ssem bly I n t e r i m C om m ittee o n Edu c a t i o n , S u b c o m m itte e o n P e r s o n n e l P ro b le m s . R e p o r t . A ssem bly I n t e r i m C om m ittee R e p o r t s , 1 9 6 3 - 1 9 8 5 * V o l. 1 0 , No. 17* J a n u a r y 1 9 6 5 * C a l i f o r n i a . M a s te r P l a n S u rv e y Team. A M a s te r P l a n f o r H igh er E d u ca tio n in C a l i f o r n i a , 1 9 6 0 -1 9 6 5 . Sacramen to : S t a t e Department o f E d u c a tio n , I 9 6 0 . C a l i f o r n i a . M in u te s . Ju n e 1 6 , 1959 to J a n u a r y 4 , i 9 6 0 . C a l i f o r n i a , U n i v e r s i t y o f . R e g e n ts . M i n u t e s . D ecem ber 1 8 , 1959* 339 G oons, A r t h u r G. "A S ta te m e n t R e g a rd in g T u i t i o n and P e e s i n t h e C a l i f o r n i a S t a t e C o lle g e s a n d th e U n i v e r s i t y o f C a l i f o r n i a . " S ta te m e n t to members o f t h e C o u n o il, F e b r u a r y 4 , 1 9 6 7 . (m im eographed) ___________ . S ta te m e n t t o J o i n t M e e tin g o f t h e S t a t e B o ard o f E d u c a tio n a n d t h e R e g e n ts o f t h e U n i v e r s i t y o f C a l i f o r n i a , D ecem ber 1 8 , 1959* (m im eo g rap h ed ) D e tu s c h , M onroe E . , A ubrey D o u g la s s , an d G eo rge D. S t r a y e r . A R e p o r t o f a S u rv e y o f t h e Meeds o f C a l i f o r n i a i n H ig h e r E d u c a ti o n . B e r k e le y : U n i v e r s i t y o f C a l i f o r n i a P r e s s , 1 9 4 8 . H o ly , T. C. " C a l i f o r n i a 's M a s te r P l a n f o r H ig h e r E d u c a tio n , 1 9 6 0 -1 9 7 5 ." J o u r n a l o f H ig h e r E d u c a t i o n . XXXII ( J a n u a r y 1 9 6 1 ) , 9 - 1 6 ^ . ___________ . "The C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a ti o n i n C a l i f o r n i a . " J o u r n a l o f H ig h e r E d u c a t i o n . XXXV ( J u n e , 1 9 6 4 ), 313-21* ___________ , an d H u b e rt H. S em ans. " C o o r d i n a t i o n o f P u b l i c H ig h e r E d u c a tio n i n C a l i f o r n i a . " J o u r n a l o f H ig h e r E d u c a tio n , XXVI (M arch 1955) » l 4 l ^ ? 7 ^ K e en e , Jam es W. " C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a tio n , A d v is o r o r B u r e a u ,” U n p u b lis h e d p a p e r , S c h o o l o f E d u c a tio n , U n i v e r s i t y o f C a l i f o r n i a a t B e r k e le y , J a n u a r y 7 , 1 9 6 6 . ( t y p e w r i t t e n ) M c C o n n e ll, T. R. A G e n e ra l P a t t e r n f o r A m e ric a n P u b l i c H ig h e r E d u c a t i o n . New Y ork: M cG raw -H ill Book Com p a n y , 1 9 6 2 . _ _ ___________, T. C. H o ly , and H. H. Sem ans. A R e s tu d y o f th e N eeds o f C a l i f o r n i a i n H ig h e r E d u c a t i o n . S a c ra m e n t o : C a l i f o r n i a S t a t e D e p a rtm e n t o f E d u c a tio n , 1955* M ed sk er, L e la n d L . a n d G eorge W. C la r k . S t a t e L e v e l G over n a n c e o f C a l i f o r n i a J u n i o r C o l l e g e s . B e r k e le y : U n i v e r s i t y o f C a l i f o r n i a C e n te r f o r R e s e a r c h a n d D evelopm ent i n H ig h e r E d u c a tio n , A u g u s t, 1 9 6 6 . P a l t r i d g e , Jam es G. C a l i f o r n i a 's C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a tio n , A S tu d y o f O r g a n i z a t i o n a l G row th a n d C h an g e. B e r k e le y : U n i v e r s i t y o f C a l i f o r n i a C e n te r f o r R e s e a r c h an d D ev elo p m en t i n H ig h e r Edu c a t i o n , 1 9 6 6 . 3^0 Sem ans, H. H. and T . G. H o ly . A S tu d y o f t h e Need f o r A d d itio n a l C e n te rs o f P u b lic H ig h er E d u c a tio n In C a l i f o r n ia . S acram en to: C a lif o r n ia S t a t e D e p a r t m ent o f E d u c a tio n , 1957* S m ith , D en n is E. "The C o o r d in a tin g C o u n c il f o r H ig h e r Edu c a t i o n : An O r g a n i z a t i o n a l S tu d y ." U n p u b lis h e d m a s te r s t h e s i s , U n i v e r s i t y o f C a l i f o r n i a a t B e r k e le y May 31» 1 9 6 6 . S p a l d in g , W i l l a r d B. " C a l i f o r n i a H ig h e r E d u c a tio n i n th e N ext D ecade: C h a lle n g e s an d P r o s p e c t s . ” S peech b e f o r e Town H a l l , Los A n g e le s , J a n u a r y 1 8 , 1 9 6 6 . (m im eographed) B. P u b lic a t io n s o f t h e C o u n c il A nn ual R e p o rt o f t h e D i r e c t o r , 1 9 6 3 .1 9 6 ^ . Number 1 0 1 3 . A u g u s t, 1 9 ^ 4 . B u d g et R eview i n P u b l i c H ig h e r E d u c a ti o n . Number 1 022. D ecem ber, 1 9^5• The B udget Review R o le o f th e C o o r d in a tin g C o u n c il f o r H ig h e r E d u c a ti o n . S t a f f R e p o rt 67-IO O 0 May 23, C a l i f o r n i a 's Needs f o r A d d i t io n a l C e n te rs f o r P u b l i c H ig h e r E d u c a tio n . Number 1014-. D ecem ber, 1 9 6 4 . A C om pariso n o f th e T r im e s te r an d F o u r - Q u a r te r C a le n d a rs f o r Y ear-B ound O p e r a t i o n o f P u b l i c H ig h e r E d u c a tio n . Number 1 0 0 9 . F e b r u a r y , 1 9 W . A C o n s i d e r a t i o n o f I s s u e s A f f e c t i n g C a l i f o r n i a P u b l i c J u n i o r C o lle g e s ’! Number 1 0 1 8 . A p r i l , 1 9 6 5 . An E v a l u a t i o n o f t h e T u i t i o n F r e e P r i n c i p l e i n C a l i f o r n i a P u b l i c H ig h e r E d u c a ti o n , Number 1 0 1 9 . May, 1 9 6 5 . F in a n c in g C a l i f o r n i a ’ s P u b l i c J u n i o r C o l l e g e s . Number 1 0 2 9 . J u n e , 1 9 6 7 . The M a ste r P l a n F iv e Y ears L a t e r . Number 1 0 2 ^ . M arch 1 9 6 6 . M in u te s . O c to b e r i 960 - F e b r u a r y 1 9 6 8 . 1963 R e p o r t o f t h e D i r e c t o r t o t h e C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a t i o n / Number 1 0 0 4 . A p r i l I 963T S c o p e . F u n c t i o n s a n d P r o c e d u r e s f o r t h e C o o r d i n a t i n g C o u n c il f o r H ig h e r E d u c a ti o n . Number 1 0 0 0 . May. 1962 ” . APPENDIXES APPENDIX A TABLE I ACTIONS OF THE CALIFORNIA LEGISLATURE RELATING TO THE CALIFORNIA COORDINATING COUNCIL FOR HIGHER EDUCATION 1 9 6 0 -1 9 6 7 Y e ar D i s p o s i t i o n and. Comment 1960 (B u d g e t S e s s i o n , Two E s t r a - o r d i n a r y S e s s i o n s a No m e a su re s r e l a t i n g d i r e c t l y t o t h e C o u n c il s a v e a c t c r e a t in g t h e a g e n c y . v 1961 ( G e n e r a l S e s s io n ) SCR 37 (R o d d a )— R e q u e s ts s t u d y R e p o rt t r a n s m i t t e d , o f S t a t e M e d ic a l e d u c a ti o n 1963* n e e d s . SB 1008 (R o d d a )— A p p r o p r i a t e s f u n d s f o r above s t u d y . SB 1269 ( M i l l e r ) — G iv es CCHE c e r t a i n r e s p o n s i b i l i t i e s r e g a r d i n g a p p r o v a l o f new J u n i o r c o l l e g e d i s t r i c t s . C o u n c il re v ie w s c a s e s a c c o r d i n g t o s t a t u t e , l a t e r a s k s d e l e t i o n o f s t a t u t e b e c a u s e r e v ie w s e e n t o be u n n e c e s s a r y . a T h is l i s t i n g i s b a s e d u p o n a s u rv e y o f t h e a n n u a l F i n a l C a le n d a r f o r L e g i s l a t i v e B u s in e s s and p e r i o d i c s t a f f r e p o r t s made to t h e C a l i f o r n i a C o u n c il . Numbers r e f e r t o r e g u l a r s e s s i o n u n l e s s p r e f a c e d by a n "x " f o r f i r s t e x t r a o r d i n a r y s e s s i o n o r "x x " f o r s e c o n d . 3^3 Year Disposition and Comment ACR 106 (H a n n a )— R e l a t i v e t o f a c u l t y S a l a r i e s and r e c r u i t m e n t ACR 133 ( F r a n c i s ) — S tu d y o f n eed f o r S t a t e c o l l e g e I n S a n M ateo C o u n ty . C a ll s f o r r e p o r t I n 1 9 6 3 . AB 12^6 (R a lp h Brown)— Ex te n d s p r o v i s i o n o f "Brown A ct" r e g a r d i n g o p e n m e e tin g s o f C o u n c il. C o u n c il s t u d i e s i n t h i s a r e a b e g in i n 1 9 6 2 . S tu d y in c lu d e d i n 1965 s u rv e y a f t e r 1963 r e p o r t o f Coun c i l r e q u e s t s d e la y . C o u n c il confo rm s to a c t . M e e tin g s i n e x e c u ti v e s e s s i o n h a v e c o n c e rn e d p e r s o n n e l o n l y . R e p o r t t r a n s m i t t e d , 1963. HR 125 (H a n n a )— C a lls f o r s t u d y o f c o n ti n u i n g e d u c a t i o n p ro g ra m s . 1962 (B u d g e t S e s s i o n , T hree E x tr a o r d i n a r y S e s s io n s ) SCR 26 (R o d d a )— E x te n d s tim e f o r m e d ic a l e d u c a t i o n s t u d y . (SCR 37» 1961) 1963 (G e n e ra l S e s s i o n , One E x tr a o r d i n a r y S e s s io n ) SCR 28 (R o d d a )— D evelopm ent R e p o rt t r a n s m i t t e d , o f a p l a n f o r d e n t a l e d u c a t i o n . 1 9 6 5 * R e p o rt t r a n s m i t t e d , 1 9 6 3 . SCR ^6 ( S t i e r n ) — R e q u est f o r a d v ic e o n l e v e l o f s t a t e su p p o r t f o r j u n io r c o l l e g e s . HR 419 ( F o u r n o y )—R e q u e s ts C o u n c il to k e e p A ssem bly I n t e r i m C om m ittee o n E duca t i o n c o n ti n u o u s l y In fo rm ed r e g a r d i n g a d d i t i o n a l c e n t e r s s t u d y . S e v e r a l a c t i o n s t a k e n . M ajo r s t u d y o f f i n a n c in g o f j u n i o r c o l l e g e s c o m p le te d i n 1 9 6 6 . I n t e r i m r e p o r t made t o 1963 L e g i s l a t u r e . F i n a l r e p o r t , 1965* Year Disposition and Comment HR 517 (C o lo g n e )— C o u n c il d i r e c t e d t o c o n s i d e r R i v e r s i d e C ounty i n 19 65 r e p o r t o n a d d i t i o n a l c e n t e r s . SR 144 ( S t i e r n ) — R e q u e s ts s tu d y o f U .C . campus i n S a n J o a q u i n V a lle y ; r e p o r t i n 1 9 6 5 . 1964 (B u d g e t S e s s io n , Two E x t r a o r d i n a r y S e s s io n s ) xSCR 24 ( M i l l e r ) — Commends C o u n c il f o r p la n s t o i n s t i t u t e y e a r - r o u n d o p e r a t i o n s o f s t a t e c o l l e g e s and U n i v e r s i t y . xAB 101 ( G a r r i g u s ) — A s s ig n s C o u n c il r e s p o n s i b i l i t y f o r a d m i n i s t e r i n g f e d e r a l a c t r e l a t i n g t o f a c i l i t i e s c o n s t r u c t i o n . xHR 244 (R y a n )— A sks s t a t e c o l l e g e s t o r e f r a i n from a c t i n g o n y e a r - r o u n d o p e r a t i o n s u n t i l l e g i s l a t i v e I n v e s t i g a t i o n . xSR 153 ( S u l l i v a n ) — Asks C o u n c il to s tu d y need f o r U .C. campus i n n o r t h e r n S a c ra m en to v a l l e y . 1965 (G e n e ra l S e s s io n ) SCR 51 ( M i l l e r ) — C o u n c il t o p r e p a r e a n n u a l r e p o r t o n f a c u l t y s a l a r i e s and b e n e f i t s . A re a c o n s id e r e d i n 1965 r e p o r t . A re a c o n s id e r e d i n 1965 r e p o r t . Coop e r a t i v e p ro g ram s w ith s t a t e c o l l e g e s i n a g r i c u l t u r e and h e a l t h s c i e n c e s u n d e r s tu d y th r o u g h 1967* R e s u l t o f C o u n c il s t u d y c a l l e d f o r i n M a s te r P l a n . Recom m ended q u a r t e r c a l e n d a r a s v e h i c l e . C o u n c il becom es " s t a t e com m ission" f o r H ig h e r E d u c a tio n F a c i l i t i e s A c t o f 1964. C h a p te r 9 4 , S t a t u t e s o f 1 9 6 4 . C o n f l i c t s w i t h i n t e n t o f SCR 24. I n c lu d e d i n 1965 r e p o r t t o L e g i s l a t u r e . Now a n a n n u a l r e p o r t o f t h e C o u n c il through comments made t o L eg i s l a t u r e i n e a r l i e r y e a r s p r i o r t o p a s s a g e o f r e s o l u t i o n . 346 Y ear Disposition and Comment SB 550 ( S t l e r n ) — I n c r e a s e s p u b l i c m em bership o n C o u n c il and o t h e r m o d i f i c a t i o n s i n p r o c e d u r e s . HR 621 ( B a r n e s ) — C o u n c il t o s tu d y f e e s t r u c t u r e f o r J u n i o r c o l l e g e s . HR 646 ( G a r r i g u s ) — C o u n c il t o s tu d y im p a c t o f f e d e r a l p ro g ra m s. 1966 (B u d g e t S e s s i o n , Two E x t r a o r d i n a r y S e s s io n s ) xHR 293 ( D u f f y ) — C o u n c il to s t u d y a g r i c u l t u r a l manpower p r o g ra m s . xHR 460 ( A l q u i s t ) — S tu d y o f co m p u ter u s e i n p u b l i c and p r i v a t e s c h o o l s . xHR 201 ( R u s s e l l ) — C o u n c il to s tu d y n e e d f o r new c o l l e g e i n S u n la n d -T u ju n g a -B u rb a n k a r e a . xSCR 8 an d SR 61 ( M i l l e r ) ~ C o u n c il t o s tu d y f e a s i b i l i t y and d e s i r a b i l i t y o f e l i m i n a t i o n o f lo w e r d i v i s i o n i n s t a t e c o l l e g e s a n d t h e U n i v e r s i t y . xSCR 14 a n d SR 80 ( S t l e r n ) — S tu d y o f s t a t e p ro g ram f o r j u n i o r c o l l e g e s * c a p i t a l o u t l a y . R e p o rt by J a n u a r y 3 0 , 1 9 6 7 . New members a p p o i n t e d . S e e P a l t r i d g e S tu d y . C h a p te r 1 7 ? 4 , S t a t u t e s o f 1965* R e p o rt t r a n s m i t t e d , J a n u a r y 1 9 6 7 . Con t a i n e d i n s t u d y o f j u n i o r c o l l e g e f i n a n c in g . R e p o r t n o t t r a n s m i t t e d . S c h e d u le d f o r p r e s e n t a t i o n t o May 1968 m e e tin g o f C o u n c il• R e p o rt fo rw a rd e d J a n u a r y , 1 9 ^ 7 . R e p o rt fo rw a rd e d , J a n u a r y , 1 9 6 7 . N ext a n n o u n ce d Coun c i l R e p o r t, 1 9 6 9 . R e p o rt b e f o r e Coun c i l , J a n u a r y 1 9 ^ 7 , no rec o m m e n d a tio n to d a t e . L e g i s l a t u r e so in fo rm e d . S tu d y fo rw a rd e d a s p a r t o f j u n i o r c o lle g e f i n a n c e s t u d y , J a n u a r y , 1 9 6 7 . 3^7 Y ear Disposition and Comment xSB 18 ( S t l e r n ) — P r o v i d e s f o r C o u n c il t o a d m i n i s t e r T i t l e I , H ig h e r E d u c a tio n A c t o f 1965 p r o g r a m s . xACR 4 ( A s h c r a f t ) — A sks f o r s t u d y o f new i n s t i t u t i o n i n n o r t h e r n S an D ieg o an d O range C o u n tie s i n c o n t e x t o f n e x t s t a t e w i d e r e v ie w . xAB ^5 ( G a r r i g u s ) - “P r e s i d e n t o f C o u n c il t o s e r v e d o n Edu c a t i o n C om m ission o f th e S t a t e s . C o u n c il Becomes " s t a t e co m m issio n " f o r T i t l e I a n d VI-A, C h a p te r 6 5 , S t a t u t e s o f 1 9 6 6 . N ext a n n o u n ce d Coun c i l R e p o r t, 1 9 6 9 * C o u n c il P r e s i d e n t a t t e n d s e a r l y m ee tin g ^ o f C om m ission. L a t e r m e a su re ch an g e s r e p r e s e n t a t i o n . Coun c i l n o t r e p r e s e n t e d . 1967 ( G e n e r a l S e s s io n ) AB 1 5 ^ 2 ( B r o n ) — R e li e v e s C oun- S u p p o r te d by C o u n c il, c i l f o r r e s p o n s i b i l i t y r e g a r d in g r e v ie w o f new j u n i o r c o l l e g e d i s t r i c t s . SB 669 ( S t i e r n ) — C r e a te s new b o a rd f o r j u n i o r c o l l e g e s a n d r e d e f i n e s j u n i o r c o l l e g e mem b e r s h i p o n C o u n c il. SR 210 ( D e u k m e jia n )— Asks C o u n c il t o s t u d y n e e d and v a l u e o f d o c t o r a t e i n a r t s d e g r e e f o r r e p o r t o f 1 9 6 9 * SR 2^9 ( D i l l s ) — R e q u e s ts Coun c i l t o i n c l u d e n e e d s o f s o u t h w e s t L os A n g e le s I n n e x t a d d i t i o n a l c e n t e r s s t u d y f o r r e p o r t i n 1 9 6 9 . L e g i s l a t i o n p a s s e d , C h a p te r 15^9» S t a t u t es o f 1 9 6 7 . S tu d y u n d e rw a y . N ext a n n o u n ce d R e p o r t, 1 9 6 9 . SR 396 (D e u k m e jia n )— D e c la r e s l e g i s l a t i v e i n t e n t t o g i v e e a r l y c o n s i d e r a t i o n t o C o u n c i l s and o t h e r re c o m m e n d a tio n s o n f a c u l t y s a l a r i e s . C o n s i s t e n t w ith C o u n c il Recom m e n d a tio n s . 3^8 Year Disposition and Comment HR 115 (D e d d ah )— R e q u e s ts N ext ann o u n ced r e p o r t , C o u n c il t o c o n s i d e r f e a s i - 1 9 6 9 . b i l i t y o f e s t a b l i s h i n g a new s t a t e c o l l e g e i n s o u t h e r n S an D iego C ounty i n n e x t a d d i t i o n a l c e n t e r s s t u d y . TABLE I I RECOMMENDATIONS OP LEGISLATIVE ANALYST REGARDING CALIFORNIA COUNCIL STUDIES AND INVESTIGATIONS2 1 R ecom m endations F or B udget Y ear 1 9 6 1 -6 2 D i s p o s i t i o n and Comment a . S tu d y th e s tu d e n t f e e problem s a t th e U n iv e r s it y and s t a t e c o l l e g e s , d e f in e th e n o n in s t r u c t io n - a l a c t i v i t i e s to be c o v e r e d and recommend an a p p r o p r ia te l e v e l o f f e e s to p r o v id e c o m p le te s e l f - f in a n c in g . b . S tu d y th e f e a s i b i l i t y o f I n c r e a s in g n o n - r e s id e n t t u i t i o n a t th e U n iv e r s it y and th e S t a t e c o l l e g e s and o f i n s t i t u t i n g an a p p r o p r ia te s tu d e n t f e e s f o r r e s i d e n t s t u d e n t s . R e p o r ts a d o p ted by C o u n c il J u ly 1962 and Sep tem b er 1 9 6 2 . R e p o r ts a d o p ted J u ly and Septem ber 1 9 6 2 . C onduct o r c a u se t o be c o n d u cte d a F in a l s e t o f s t a n d - th o ro u g h s tu d y le a d in g to t h e e s - a r d s a d o p ted S ep tem - ta b lis h m e n t o f co m p reh en siv e m ethods b e r 1 9 6 6 . o f m ea su rin g and e s t a b l i s h i n g s ta n d a r d s f o r i n s t r u c t i o n a l sp a c e u t i l i z a t i o n , in c lu d in g s c h e d u lin g p r o c ed u r es (Ways and Means R e s o l u t i o n ) . aR ecom m endations o f th e A n a ly s t r e g a r d in g th e b u d get f o r th e a g e n c y a r e n o t in c lu d e d . T h is t a b l e i s b a se d upon th e A n a ly s is o f th e B u d get B i l l f o r th e y e a r s I 96I - 6 2 . R ecord s o f t h e C o u n c il h ave b e e n u se d to d e te r m in e a c t io n s ta k e n , i f a n y . 349 Recommendations F o r B u d g et Y ear 1 9 6 2 -6 3 a . C o u n c il w ith U .C . and C .S .C . to s u b m it s t a t e m e n t o f p o l i c y o n d i v e r s i o n o f s t u d e n t s to J u n i o r c o ll e g e s * b . C o u n c il s h o u ld i n i t i a t e s t u d y o f s t u d e n t f e e p ro b le m s a n d recom mend a p p r o p r i a t e f e e s and a n n u a l r e v i s i o n s o f a l l f e e s I n c l u d i n g t h o s e f o r g r a d u a t e an d p r o f e s s i o n a l s c h o o l s . Re p o r t r e g a r d i n g s t a t e c o l l e g e n o n - r e s i d e n t t u i t i o n to 19&3 L e g i s l a t u r e . c . C o u n c il t o su b m it recom m enda t i o n s r e g a r d i n g f a c u l t y r e s e a r c h I n s t a t e c o l l e g e s . F o r B u d g e t Y ear 1963-64- a . Recommends t h a t C o u n c il e s t a b l i s h a c o m m itte e o n s e l e c t i o n , a d m i s s io n and r e t e n t i o n o f s t u d e n ts i n a c c o rd a n c e w ith M a s te r P l a n . R e p o rt t o 1964 L e g i s l a t u r e re c o m m e n d a tio n s a n d p r o g r e s s o n d i v e r s i o n o f s t u d e n t s an d g r e a t e r u n i f o r m i t y I n r e t e n t i o n p o l i c i e s and p r a c t i c e s . F o r B u d g et Y ear 1 9 6 4 -6 6 a . C o u n c il and s y s te m s o f h i g h e r e d u c a t i o n r e p o r t p r i o r t o 19&5 L e g i s l a t u r e s t e p s t a k e n t o a s s u r e d i v e r s i o n o f s t u d e n t s t o J u n i o r c o l l e g e s and i n c r e a s e d u n i f o r m i t y o f r e t e n t i o n s t a n d a r d s . Disposition and Comment C o u n c il r e p o r t a p p ro v e d D ecem ber 1963. R e p o rt t r a n s m i t t e d t o L e g i s l a t u r e d u r in g 1963 S e s s i o n . R e p o rt t r a n s m i t t e d M arch 19&2. C om m ittee e s t a b l i s h e d S e p te m b e r 19^3* b u t j l a t e r d is b a n d e d a n d r e p l a c e d by a g e n e r a l a d v i s o r y c o m m itte e onj s e v e r a l s u b j e c t a r e a s i R e p o r t c o m p le te d D ecem ber 1 9 6 2 . b . C o u n c il an d s y s te m s p r e p a r e p la n s R e p o r t t r a n s m i t t e d to im p lem en t y e a r - r o u n d o p e r a t i o n s M arch 1 9 6 4 . t o g e t h e r w ith c o s t e s t i m a t e s and t i m e t a b l e . C om plete by J u n e 1 9 6 4 . 350 B ecom m endations D i s p o s i t i o n an d Comment F o r B u d g et Y e a r 1 9 6 5 -6 6 R e p o r t t r a n s m i t t e d A u g u st 1 9 6 6 . R e p o r t t r a n s m i t t e d Novem ber 1 9 6 ? . R e p o r t c o m p le te d D ecem ber 19^7 i R e p o r t o n s t u d e n t a i d p ro g ra m s i n c l u d e d m a t e r i a l (S e p te m b e r 1 9 6 7 ) . P r o p o s a l madb t h a t a n n u a l in v e n t o r i e s a r e n o t n e e d e d . R e p o r t made i n Decemr b e r 1967 a n d F e b r u a r y o n f a c u l t y s a l a r i e s a n d b e n e f i t s . 1 9 6 8 . ( A c ti o n t a k e n by A ssem b ly Ways a n d Means C om m ittee d u r i n g c o n s i d e r a t i o n o f s t a t e b u d g e t ) . TABLE I I I ADVICES OF CALIFORNIA COUNCIL TO LEGISLATURE AND OTHER STATE OFFICIALS8- a T h is l i s t i n g h a s b e e n p r e p a r e d u s i n g t h e o f f i c i a l c o l l e c t i o n o f C o u n c il r e s o l u t i o n s and fro m m in u te s o f C o u n c il m e e t i n g s . a . R e p o rt t o 1967 L e g i s l a t u r e o n p r o g r e s s made i n a c h i e v i n g e n r o l l m e n t d i v e r s i o n . F o r B u d g et Y e a r 1 9 6 6 -6 7 No s p e c i f i c d i r e c t i o n s s t a t e d . F o r t h e B u d g e t Y ear 1 9 6 7 -6 8 a . U .C . a n d C o u n c il f o r m u la te c o n c i s e d e f i n i t i o n o f f a c u l t y w o rk lo a d a n d r e p o r t t o J o i n t L e g i s l a t i v e B u d g e t C om m ittee by N ovem ber 1 , 19&7. b . U .C . a n d C o u n c il d e v e lo p a v e r a g e c o s t - p e r - s t u d e n t d a t a a n d r e p o r t by Novem ber 1 , 19&7. c . C o u n c il a n d S t a t e S c h o l a r s h i p a n d L o a n C om m ission p r e p a r e a n n u a l i n v e n t o r y o f s t u d e n t a i d a v a i l a b l e f o r r e p o r t D ecem ber 1 o f e a c h y e a r . (D id n o t a p p e a r i n a n a l y s i s b u t a d o p te d by S e n . F in a n c e C om m ittee a lo n g w ith A n a l y s i s r e c o m m e n d a tio n s ) . d . C o u n c il t o i n c l u d e a d m i n i s t r a t i v e s a l a r i e s I n a n n u a l r e p o r t 351 A c tio n Taken Legislative Responses and Comment 1961 A d v ise s l e g i s l a t i v e c o m m ittee s o f C o u n c il I n t e n t i o n t o e x p re s s o p i n io n s o n a n y b i l l s c r e a t i n g new cam p u se s, ( F e b r u a ry 10) Recommends t o G o v ern o r and D i r e c t o r o f F in a n c e t h a t bond i s s u e be p l a c ed b e f o r e L e g i s l a t u r e and v o t e r s . ( November 21) 1262 Recommends to G o v e rn o r an d D i r e c t o r o f F in a n c e t h a t bond p r o p o s a l be p la c e d b e f o r e 1962 L e g i s l a t u r e ; r e a f f i r m s c o n c e rn f o r j u n i o r c o l l e g e n e e d s . ( J a n u a r y 24) Recommends a p p r o v a l o f ite m f o r s t a t e c o l l e g e f a c u l t y r e s e a r c h i n b u d g e t. (F e b r u a r y 21) Asks L e g i s l a t u r e t o r e s u b m it bond p r o p o s a l to e l e c t o r a t e . (Ju n e 27) R ecom m endation t h a t U .C . f a c u l t y r e c e i v e 8 .8 $ i n c r e a s e i n s a l a r i e s an d s t a t e c o l l e g e f a c u l t y 6 $ . (November 28) T ra n s m its comments o n l e v e l o f s u p p o r t f o r h i g h e r e d u c a t i o n . (Novem b e r 28) 1 2 & A d v ise s o n n eed f o r f a c u l t y s a l a r y i n c r e a s e o f a t l e a s t f o r U .C . and C .S .C . (November 28) R e p o rts i n 1963 and 1965 w ere t r a n s m i t t e d t o L e g i s l a t u r e on q u e s t i o n o f new c e n - j t e r s . A re a s c i t e d in! s p e c i f i c b i l l s w ere c o n s id e r e d i n th e conr t e x t o f t h e s e review s^ P r o p o s i t i o n 3 o n June! 5 , 1 9 6 2 , b a l l o t . F a i l e d to p a s s . R e a f firm s November 1961 a c t i o n . I te m n o t In c lu d e d I n f i n a l b u d g e t. P r o p o s i t i o n 1-A p l a c e d b e f o r e v o t e r s November 6 , 1 9 6 2 . P a s s e d . R e s u l t was 5$ i n c r e a s e f o r b o th . V a rio u s o u tc o m e s . I n c r e a s e s g r a n t e d f o r 1 9 6 3 -6 4 . G e n e r a lly c o n s i s t e n t w ith Coun c i l a c t i o n . A c t io n Taken Legislative Responses and Comment T r a n s m its comments o n l e v e l s o f s u p p o r t f o r h i g h e r e d u ca ti o n * (November 26) A d v is e s G overnor a n d L e g i s l a t u r e o f n eed to i n c r e a s e s t a t e s u p p o r t f o r j u n i o r c o ll e g e o p e r a t i o n s (D ecem ber 17) Comments o n d i v e r s i o n o f s t u d e n t s t r a n s m i t t e d i n r e s p o n s e t o L e g i s l a t i v e A n a l y s t r e q u e s t . (D ecem ber 17) 196** A sk s L e g i s l a t u r e t o d e c l a r e i t s ; i n t e n t t o s u p p o r t f u l l - y e a r o p e r a t i o n s a t f u l l l e v e l o f q u a l i t y ; a g e n c i e s c o n c e rn e d c o o p e r a t e i n m ak in g s t a t u t o r y c h a n g e a s t o p e r m i t j u n i o r c o l l e g e t o o p e r a t e y e a r - ro u n d * ( J a n u a r y 28) R e a f f i r m s i n t e n t i o n o f r e p o r t i n g o n n eed f o r a d d i t i o n a l c e n t e r s f o r h i g h e r e d u c a t i o n no l a t e r th a n J a n u a r y 1965 and s t a t e s b e f o r e t h i s tim e no r e s p o n s i b l e reco m m en d atio n s c a n be made* ( F e b r u a r y 25) A sk s L e g i s l a t u r e t o make f o r m a l ex p r e s s i o n o f i n t e n t to s u p p o r t y e a r - ro u n d o p e r a t i o n s . ( F e b r u a r y 25) A d v is e s t h a t a r e v i e w o f M a s te r P l a n w o u ld be p r e m a tu r e ; t h a t i f d e s i r e d i t w ould be more a p p r o p r i a t e l y done i n 1965 o r t h e r e a f t e r . (M arch 31) V a rio u s o u tc o m e s . Im m ed iate i n c r e a s e n o t f o r th c o m in g . R e p o rt t r a n s m i t t e d . SCR 2b r e s u l t e d d e c l a r i n g l e g i s l a t i v e s u p p o r t . H ow ever, AR Zbb a l s o a p p ro v e d a s k in g f o r r e v ie w o f a c t i o n s r e g a r d i n g s t a t e c o l l e g e s . R e p o rt t r a n s m i t t e d t o 1965 L e g i s l a t u r e . SCR 2b r e s u l t . (S e e a c t i o n o f J a n u a r y 28) I n r e s p o n s e to HR 112 c a l l i n g f o r M a ste r P l a n r e v i e w . M easu re was n o t a p p ro v e d . S t a f f r e p o r t p r e p a r e d i n im p le m e n ta tio n o f M a s te r P l a n , 1 9 6 6 . E x p r e s s e s a p p r e c i a t i o n f o r SCR 2b r e g a r d i n g y e a r - r o u n d o p e r a t i o n s . (May 2 6 ) No a c t i o n r e q u e s t e d . Action Taken 353 Legislative Responses and Comment A p p ro v a l o f comments o n l e v e l o f s u p p o r t f o r h ig h e r e d u c a ti o n . (November 2k) S ta te m e n t o f n eed f o r a d d i t i o n a l c e n t e r s . (November 2k) A d v is e s G o v e rn o r and L e g i s l a t u r e t h a t e f f e c t i v e s u p e r v i s i o n o f d e l i n a t i o n o f f u n c t i o n i s b e in g c a r r i e d o u t an d no s t a t u t o r y m o d i f i c a t i o n s a r e r e q u i r e d d u r in g t h e 1965 S e s s i o n . (D ecem ber 15) A d v ise s o n n e ed f o r f a c u l t y s a l a r y i n c r e a s e s o f a t l e a s t 10$ f o r U .C. an d C .S .C . (D ecem ber 15) S e r i e s o f rec o m m e n d atio n s r e q u i r i n g l e g i s l a t i o n o n d e n t a l e d u c a ti o n and l i c e n s u r e m a t t e r s . (D ecem ber 15) 1965 A d v ise 1965 L e g i s l a t u r e to s e p a r a t e a l l j u n i o r c o l l e g e s fro m h ig h s c h o o l o r u n i f i e d d i s t r i c t s ; a l l a r e a s o f s t a t e i n d i s t r i c t s ; a n d ch an g es i n d e f i n i t i o n o f a d u l t s f o r j u n i o r c o l l e g e a p p o r tio n m e n ts . ( F e b r u a r y 23) V a r io u s o u tc o m e s. S e r i e s o f b i l l s a p p ro v e d i n 1965 L e g i s l a t u r e s u b s t a n t i a l l y i n a c c o rd w ith re c o m m e n d a tio n s . No a c t i o n r e q u e s t e d . A p p r o p r i a t i o n o f 7$ f o r U .C . and 10$ f o r C .S .C . f a c u l t y . L im ite d im p le m e n ta t i o n . No s p e c i f i c r e s u l t s . M ost a r e a s a r e now i n j u n i o r c o l l e g e d i s t r i c t s . U n i f i e d dis-r t r i c t s w ith j u n i o r c o l l e g e s s t i l l e x is t.; D e f i n i t i o n o f a d u l t s c o n tin u e s t o re m a in t h e sam e. R e a ff irm s rec o m m e n d atio n s t h a t p o l i c y T o ta l f i s c a l a o f SCR 16 ( i 9 6 0 ) be c a r r i e d o u t by utonom y n o t y e t s t a t e — r e l a t e s to f i s c a l a u t h o r i t y a c h ie v e d , f o r s t a t e c o l l e g e s . ( F e b r u a r y 23) A d v ise s G o v e rn o r to d e d i c a t e a d d i - Not Im p le m e n ted , t i o n a l r e v e n u e s from n o n - r e s i d e n t t u i t i o n t o f a c u l t y s a l a r i e s and l i b r a r i e s . (M arch 30) A c t io n T aken 354 Legislative Responses and Comment A d v ic e t o L e g i s l a t u r e o n n e e d f o r a n d g e n e r a l l o c a t i o n o f new c e n t e r s f o r H ig h e r E d u c a ti o n . ( A p r i l 27) D i r e c t o r to i n i t i a t e c o n f e r e n c e s w i t h t h e D i r e c t o r o f F in a n c e and L e g i s l a t i v e A n a ly s t (a n d s y s te m r e p r e s e n t a t i v e s ) o n im provem en t o f p ro g ra m and p e rfo rm a n c e b u d g e t in g s y s te m s and p r o c e d u r e s f o r a n n u a l f a c u l t y s a l a r y r e p o r t . (J u n e 29) R e q u e s ts G o v e rn o r to d e s i g n a t e Coun c i l t o a d m i n i s t e r f e d e r a l p ro g ram s a f f e c t i n g two o r m ore s y s te m s o f h i g h e r e d u c a t i o n . (J u n e 29) O f f e r s c o o p e r a t i o n o f s t a f f w ith J t . Com. o n H ig h e r E d u c a tio n . (S e p te m b e r 28) T r a n s m i t t a l o f comments o n l e v e l o f s u p p o r t to G o v e rn o r a n d D e p a r t m ent o f F i n a n c e . (S e p te m b e r 28) R e q u e s ts D e p a rtm e n t o f F in a n c e to p r e p a r e c o l l e g e p r o j e c t i o n s to y e a r 200CI (N ovem ber 23) A sks G o v ern o r a n d L e g i s l a t u r e to a p p ro v e Z»5% U .C . an d 5*7% C .S .C . f a c u l t y s a l a r y i n c r e a s e s among o t h e r a d v i c e s . (N ovem ber 23) F u r t h e r s t a t e m e n t r e g a r d i n g n e ed f o r new c e n t e r s . (S e e a c t i o n o f November 2 4 , 1964) C o n fe r e n c e s h e l d . G o v e rn o r r e s p o n d s f a v o r a b l e , h o w e v e r, f i r s t g iv e s U .C . r e s p o n s i b i l i t y f o r a d m i n i s t r a t i o n o f S t a t e T e c h n ic a l S e r v i c e s A c t, P .L . 89- 129 (N ov. 1 9 , 1965) S t a f f l i a i s o n m a in t a i n e d o n o c c a s i o n a l b as i s . V a r io u s o u tc o m e s . P r o j e c t i o n s n o t p r e p a r e d t o M arch 1 9 6 8 , A p p r o p r i a t i o n c o n - s i s t a n t w ith rec o m m e n d a tio n s . 1966 A d v ic e t o G o v e rn o r r e l a t i v e to r e v ie w C o u n c il e v e n t u a l l y o f U n i v e r s i t y P l a n f o r T i t l e IV , s u c c e e d s to r e s p o n s i - H o u s in g A c t o f 1964 ( P .L . 89- I 8 2 ) . b i l i t y f o r T i t l e ( J a n u a r y 25) a d m i n i s t r a t i o n . P ro gram n o t fu n d e d u n t i l 1967- 68. Action Taken 355 Legislative Responses and Comment A d v ise s G o v ern o r an d L e g i s l a - P ro g ram I n s t i t u t e d , t u r e f o r n eed t o a p p ro v e a S t a t e G u a ra n te e d L oan P ro g ram u t i l i z i n g f e d e r a l f u n d s . ( J a n u a r y 25) Comments o n l e v e l o f s u p p o r t a s V a r io u s o u tc o m e s , shown i n G o v e rn o r1s b u d g e t t r a n s m i t t e d . ( F e b r u a r y 22) Recommends C a l i f o r n i a p a r t i c i p a - C a l i f o r n i a p a r t i c i - t i o n i n E d u c a tio n C om m ission o f p a te s * E n a b lin g t h e S t a t e s . (M arch 29) l e g i s l a t i o n a p p ro v e d S u p p o r ts L e g i s l a t i v e A n a ly s t rec o m - T o t a l o b j e c t i v e s n o t m e n d a tlo n s f o r g r e a t e r f i s c a l f l e x i - r e a l i z e d , b i l i t y f o r s t a t e c o l l e g e s . (M arch 29) R e q u e s ts G o v ern o r t o d e s i g n a t e a g e n - L im ite d im p le m e n ta - c l e s t o c o l l e g e d a t a r e l a t i v e t o t i o n . n u r s e s . (May 2^) A d v is e s L e g i s l a t u r e t h a t C o u n c il w i l l R e sp o n se t o A n a ly s t c o n tin u e t o e n c o u ra g e d i v e r s i o n o f rec o m m e n d a tio n i n s t u d e n t s ; t r a n s m i t t i n g r e p o r t to L e g - 1 9 6 5 -6 6 A n a l y s i s , i s l a t i v e A n a l y s t . (A u g u st 23) A d v is e s G o v e rn o r and L e g i s l a t u r e o f L e g i s l a t i o n e n a c te d , n e e d f o r in d e p e n d e n t J u n i o r c o l l e g e S .B . 669* Chap. 15^9 b o a r d . (S e p te m b e r 27) S t a t . o f 1 9 6 7 . T r a n s m its comments o n l e v e l o f s u p - V a r io u s o u tc o m e s , p o r t f o r h i g h e r e d u c a ti o n . (S e p te m b e r 2? a n d November 29) Recommends no ch an g es i n d e l i n e a t i o n To m eet s t a t u t o r y o f f u n c t i o n by 1967 L e g i s l a t u r e . r e q u ir e m e n t f o r (Novem ber 29) r e p o r t . A d v is e s G o vern or and L e g i s l a t u r e o f A p p r o p r i a t i o n o f 5% n e e d f o r f a c u l t y s a l a r y i n c r e a s e s o f f o r b o th s y s te m s . 8 . 5% C .S .C . an d 6 . 5% U .C . among o t h e r s . (November 29) 1967 356 Actions Taken Legislative Responses and Comment A d v is e s L e g is la t u r e o f r e p o r t o n e lim in a t io n o f lo w e r d i v i s i o n program s o n s e l e c t e d cam puses; d e f e r s recom m en d ation . (Jan u ary 6) T r a n s m itta l o f stu d y on a g r ic u l t u r a l b u s in e s s management c o u r s e s . (J a n u a ry 6) R e sp o n se to SCR 8, 1966 F i r s t E x t r a o r d i n a r y S e s s i o n . No a c t i o n t o M arch 1 9 6 8 , R e sp o n d in g to H.R. 293. 1966 F i r s t Ex t r a o r d i n a r y S e s s i o n . No f u r t h e r L e g i s l a t i v e a c t i o n . A d v is e s L e g i s l a t u r e t h a t U n i v e r s i t y o f C a l i f o r n i a E x te n s io n s h o u ld r e s u b m it i t s p r o p o s a l f o r S t a t e s u p p o r t . ( J a n u a r y 6) T ra n s m its sc o p e o f a p ro p o s e d com p u t e r s t u d y . ( J a n u a r y 6) R e q u e s ts L e g i s l a t u r e t o change p r o v i s i o n s o f E d u c a tio n Code r e l a t i n g t o re v ie w by C o u n c il o f new j u n i o r c o l l e g e d i s t r i c t p r o p o s a l s . ( J a n u a r y 3U) T ra n s m its r e p o r t o n j u n i o r c o l l e g e c a p i t a l o u t l a y m e th o d s, r e q u e s t e d by S .C .R . 14 (1966 F i r s t E x t r a o r d i n a r y S e s s i o n ) . ( J a n u a r y 30) Recommends ch an g es i n p r o v i s i o n o f E d u c a tio n Code r e g a r d i n g f e e s i n j u n i o r c o l l e g e s f o r n o n - i n s t r u c t i o n a l s e r v i c e s . ( J a n u a r y 30) A d v ise s G o v ern o r an d L e g i s l a t u r e o f n e ed t o m a i n t a i n l e v e l o f f u n d in g t o e n s u re q u a l i t y i n s t a t e c o l l e g e s an d u n i v e r s i t y . (F e b r u a r y 21) No ch an g e s o f m ethod o f s u p p o r t . R esp o n se t o H .R . ^60,| 1966 F i r s t E x t r a o r - j d i n a r y S e s s i o n . No I s u b s e q u e n t a c t i o n s , j 1 A .B . 15^2 was approv-j ed c a r r y i n g o u t i r e q u e s t . C h a p te r j 7 7 7 , S t a t u t e s o f 1967* S .B . 69 1. a p p ro v e d c a r r y i n g o u t p r o v i s i o n s and recommenda-! t i o n s . C h a p te r 1550,! S t a t u t e s o f 1 9 6 7 * No l e g i s l a t i v e im p le m e n ta tio n . A dopted in r e sp o n s e to G overnor*s h ig h e r e d u c a tio n su p p o r t p r o p o s a ls s u b s t a n t i a l l y r e d u c in g am ounts r e q u e s te d . 357 Actions Taken Legislative Responses and Comment A d v is e s G o v e rn o r an d L e g i s l a t u r e C o n s i s t e n t w i t h l e g - t h a t c a p i t a l o u t l a y p r o j e c t s n o t i s l a t i v e i n t e n t , f u n d e d b u t n e c e s s a r y t o m eet e n - C h a p te r 155$ S t a t u t e s r o l l m e n t s s h o u ld be fu n d e d fro m o f 1 9 6 6 . t l d e l a n d s o i l r e v e n u e s . ( F e b r u a r y 2 1 ). A d v is e s G o v e rn o r and L e g i s l a t u r e i t w ould b e i n a p p r o p r i a t e t o t a k e a c t i o n o n t u i t i o n a t 1967 S e s s i o n . ( F e b r u a r y 21) A d v is e s t h a t G o v e rn o r a n d L e g i s l a t u r e s h o u ld fu n d G r a d u a te F e llo w s h i p P ro g ra m a t p r o p o s e d l e v e l . (M arch 28) A d v is e s L e g i s l a t u r e t h a t p r o p o s a l s t o change c o n s t i t u t i o n a l n a t u r e and f u n c t i o n s o f g o v e rn in g b o a rd s s h o u ld a w a i t re c o m m e n d a tio n s o f t h e C o n s t i t u t i o n R e v i s i o n C om m ission. (M arch 2 8) Recommends m etho d o f f i n a n c i n g j u n i o r c o l l e g e s . (M arch 28) T r a n s m its f i r s t r e p o r t o n a l t e r n a t i v e p la n s f o r s t u d e n t a i d t o Gov e r n o r . (M arch 28) A d v is e s D e p a rtm e n t o f F in a n c e and D e p a rtm e n t o f E d u c a tio n o f d e s i r a b i l i t y o f c e r t a i n j u n i o r c o l l e g e l i b r a r y s p a c e u t i l i z a t i o n s t a n d a r d s . (M arch 28) No a c t i o n t a k e n . J)t. Com. o n H ig h e r E duca t i o n d i r e c t e d t o r e p o r t i n 1968 o n i s s u e . P ro g ra m f u n d e d , b u t a t l o w e r l e v e l t h a n p r o p o s e d by S t a t e S c h o l a r s h i p a n d L o an j C om m issio n. A t r e q u e s t o f S peaker) o f A ssem bly a n d who was C hairm an o f J t . Com. o n H ig h e r E duca t i o n , C om m ission p o s tr p o n e d c o n s i d e r a t i o n j o f h i g h e r e d u c a t i o n m a t t e r s to l a t e r date). S .B . 1^85 ( M i l l e r ) ! i n t r o d u c e d i n 1967 S e s s i o n i n c l u d i n g s i m i l a r p r o p o s a l s . D id n o t p a s s . S u b s e q u e n t r e p o r t s e n t t o G o v e rn o r i n S e p te m b e r 1 9 6 7 . S t a n d a r d s p r e v i o u s l y i n f a c e s i m i l a r to t h o s e a d o p te d . Recommends c e r t a i n c r i t e r i a t o G over- SB 669 a p p ro v e d i n n o r and L e g i s l a t u r e r e g a r d i n g f u n c - 1967 S e s s io n c a l l i n g t l o n s f o r p ro p o s e d b o a r d o f g o v e rn o r s f o r t h e B o a rd . B i l l f o r j u n i o r c o l l e g e s . (M arch 28) a s k s C o u n c il t o a d v is e L e g . o n f u n c t i o n a l ; Actions Taken Legislative Responses and Comment T r a n s m i t t a l o f r e p o r t o n a l t e r n a t i v e f i n a n c i a l a i d p l a n s to t h e G o v e rn o r. (S e p te m b e r 26) A d v ic e to s y s te m s r e l a t i n g to f a c u l t y w o r k lo a d — c o m p ly in g w i t h L e g i s l a t i v e A n a ly s t r e q u e s t . (O c to b e r 31) R eco m m en d atio n to G o v e rn o r an d L e g i s l a t u r e o n s a l a r y i n c r e a s e d 5*5$ f o r U .C . f a c u l t y an d 10$ f o r C .S .C . f a c u l t y . (D ecem ber 6) R eco m m en d atio n on s t a t e c o l l e g e a d m i n i s t r a t i v e s a l a r i e s I n r e s p o n s e to A ssem bly Ways and M eans C om m ittee a c t i o n d u r i n g 1967 S e s s i o n . (D ecem ber 6) A d v ic e t o s t a t e o f f i c i a l s and U .C . t h a t i t i s p re m a tu re t o b u d g e t f u n d s f o r v e t e r i n a r y m e d ic in e s c h o o l . (D ecem ber 6) A sk s L e g i s l a t u r e an d G o v ern o r t o c o n s i d e r b o n d is s u e f o r s t a t e c o l l e g e a n d U .C . f a c i l i t i e s i f f u n d s a r e n o t a v a i l a b l e o t h e r w i s e . (D ecem ber 6) A d v is e s L e g i s l a t u r e t h a t no c h a n g e s a r e n e c e s s a r y i n s t a t u t e i n r e s p e c t t o d e l i n e a t i o n o f f u n c t i o n s d u r i n g 1 9 6 8 S e s s i o n . (D ecem ber 6) Recommends t e c h n i c a l amendment i n E d u c a tio n Code r e g a r d i n g C o u n c il v o t i n g p r o c e d u r e s . (D ecem ber 6) d e l i n e a t i o n f o r r e p o r t by D ecem ber 1 9 6 8 . No s p e c i f i c p l a n e n d o r s e d by C o u n c il. L im ite d im p le m e n ta t i o n t o M arch 1 9 6 8 . G o v e rn o r* s 1 9 6 8 -6 9 p r o p o s a l s i n c l u d e s 7 .5 $ f o r C .S .C . an d 5% f o r U .C . O th e r l e g i s l a t i o n w ould a d o p t C o u n c il reco m m e n d a tio n . No a c t i o n to M arch 1 9 6 8 . F unds n o t I n c lu d e d i n G o v e rn o r* s b u d g e t. No a c t i o n to M arch 1 9 6 8 . A nnu al r e p o r t to L e g i s l a t u r e r e q u i r e d by D onahoe A c t . No a c t i o n r e q u e s t e d . B i l l i n t r o d u c e d i n 1965 S e s s i o n , S .B . 15^ ( S t i e r n ) . APPENDIX B PERSONS INTERVIEWED CONCERNING CALIFORNIA COORDINATING COUNCIL FOR HIGHER EDUCATION L o u is J . A n g e lo , C o o r d in a to r , A ssem b ly C om m ittee on Ways and Means D r. R ic h a r d A xen, P r o f e s s o r o f H ig h e r E d u c a ti o n , S a n F r a n c i s c o S t a t e C o lle g e D r. W illia m C. BarX, S t a n f o r d U n i v e r s i t y , member o f t h e j C o u n c il Roy M. B e l l , A s s i s t a n t D i r e c t o r , D e p a rtm e n t o f F in a n c e j D r. G eorge C. S . B en so n , P r e s i d e n t , C la re m o n t Mens* C o lleg e! and member o f t h e C o u n c il F a th e r C h a r le s S . C a s a s s a , S . J . , P r e s i d e n t , L o y o la U n lv e r -i s i t y o f L os A n g e le s and P r e s id e n t o f th e C o u n c il (F eb ru -, a r y 1 9 6 8 - ) L e s C ohen, D i r e c t o r f o r G o v e rn m e n ta l A f f a i r s , C a l i f o r n i a S t a t e C o lle g e s ( t o D ecem ber 1967) C liv e C on dren , A s s i s t a n t t o th e V ic e P r e s i d e n t — E d u c a tio n a l1 R e l a t i o n s , U n iv e r s i t y o f C a l i f o r n ia D r . A rth u r Go C oon s, P r e s id e n t o f t h e C o u n c il ( t o F eb ru a ry 1968) K en neth C ory, Member o f t h e A ssem b ly and fo rm er C o n s u lt a n t , A ssem b ly C om m ittee o n E d u c a tio n W i l l i s C u lv e r , C o n s u lta n t , S e n a te C om m ittee o n R even u e and T a x a tio n (W a lte r S t i e r n , Chairm an) D r. C h r is to p h e r D y e r -B e n n e tt, E x e c u tiv e S e c r e t a r y , A s s o c ia t i o n o f C a l i f o r n ia S t a t e C o lle g e P r o f e s s o r s Jerom e E v a n s, C o n s u lta n t, J o i n t C om m ittee o n H ig h e r Educa t i o n and form er s t a f f member, O f f i c e o f th e L e g i s l a t i v e 360 G eorge G elm an, member o f th e C o u n c il D r. James G ib so n , S e c r e ta r y f o r R e s e a r c h , O f f ic e o f th e G overnor J .S . G reen , member, G overnor*s Task F o rc e on E f f i c i e n c y and C o st C o n tro l L eroy F . G reen e, member o f th e A ssem b ly and C hairm an, A ssem b ly C om m ittee on E d u c a tio n D on ald L . G runsky, member o f th e S e n a te and fo rm er C h a ir - ! man, S e n a te F a c t F in d in g C om m ittee on E d u c a tio n H arry R. H aldem an, member o f t h e C o u n c il ( t o March 1 9 6 8 ) Joh n L . Harm er, member o f th e S e n a te j R o b ert L . H a r r is , P r in c ip a l B udget A n a ly s t , D epartm ent o f j F in a n ce D r. James J e n s e n , U n iv e r s it y o f C a l i f o r n ia , form er C o n su l- ! t a n t , S e n a te C om m ittee o n E d u c a tio n i C lin to n J o r d a n , O f f ic e o f th e L e g i s l a t i v e A n a ly s t D r. Frank K id n e r , V ic e P r e s id e n t — E d u c a tio n a l R e l a t i o n s , U n iv e r s it y o f C a lif o r n ia Eugene R. L e y v a l, C o n s u lta n t, A ssem bly C om m ittee on Ways and Means ! B e r t W. L e v i t , form er member o f th e C o u n c il Thomas M cG rath, A s s i s t a n t C h a n c e llo r , C a lif o r n ia S t a t e C o lle g e s D ean McHenry, C h a n c e llo r , U n iv e r s it y o f C a l i f o r n ia , S a n ta Cruz C h a rle s M. M c In ty r e , A s s o c ia t e H igh er E d u c a tio n S p e c i a l i s t , C o o r d in a tin g C o u n c il M ich a el M an ley, O f f ic e o f th e S p ea k er o f th e A ssem b ly A rth u r Marmaduke, E x e c u tiv e D ir e c t o r , C a lif o r n ia S t a t e S c h o la r s h ip and L oan C om m ission A lv in M. M arks, form er D epu ty D i r e c t o r , C o o r d in a tin g C o u n c il 361 F r a n k lin M. M a t s le r , C h ie f H ig h er E d u c a tio n S p e c i a l i s t , C o o r d in a tin g C o u n c il J a y M ic h e ls , S p e c i a l A s s i s t a n t t o th e P r e s i d e n t , U n iv e r s ity ; o f C a l i f o r n ia D r. L lo y d M e s s e r s m ith , E x e c u tiv e D i r e c t o r , C a l i f o r n ia J u n - ; i o r C o lle g e A s s o c ia t i o n M rs. E le a n o r e R . N e t t l e , member o f th e C o u n c il ( t o F eb ru ary 1968) D r. M organ O d e ll, E x e c u tiv e S e c r e t a r y , A s s o c i a t i o n o f In d e-i p e n d en t C a l i f o r n ia C o lle g e s and U n i v e r s i t i e s G ilb e r t O s t e r , C o n s u lt a n t, A ssem b ly C om m ittee o n E d u c a tio n | : A. A la n P o s t , L e g i s l a t i v e A n a ly s t ! j K en neth R . R e a rw in , member o f t h e C o u n c il A lb e r t S . R odda, member o f th e S e n a te and C hairm an, S e n a te | C om m ittee on E d u c a tio n Jo C. S ch eu erm an , C h ie f H ig h er E d u c a tio n S p e c i a l i s t , C oor- | d in a t in g C o u n c il R . K e ith S e x to n , A s s o c ia t i o n D ir e c t o r — F e d e r a l P ro g ra m s, C o o r d in a tin g C o u n c il W in f ie ld S h oem ak er, member o f t h e A ssem b ly and C hairm an, S u b co m m ittee on H ig h er E d u c a tio n , A ssem b ly Ways and Means C om m ittee W illia m J . S m ith , a d v o c a t e , C a lif o r n ia J u n io r C o lle g e F a c u lt y A s s o c ia t i o n W a lter W. S t l e r n , member o f th e S e n a te and fo rm er C hairm an, S u b com m ittee o n H ig h er E d u c a tio n , S e n a te F a c t F in d in g C om m ittee o n E d u c a tio n V ic t o r V . V e y s e y , member o f th e A ssem b ly D r . C o u rtla n d L . W ashburn, C h ie f H ig h er E d u c a tio n S p e c i a l i s t , C o o r d in a tin g C o u n c il D r. H arry R. W ellm an, A c t in g P r e s id e n t ( t o J a n u a ry 1 , 1 9 6 8 ) , U n iv e r s i t y o f C a lif o r n ia D r. R o b ert J . W ert, P r e s i d e n t , M ills C o lle g e and form er member o f th e C o u n c il and i t s P r e s id e n t 362 S t u a r t M. W h ite , P r e s i d e n t S t a t e C e n te r J u n i o r C o lle g e D i s t r i c t , a n d member o f t h e C o u n c il Dr* R o b le y L . W illia m s , P r e s i d e n t A cadem ic S e n a te , U n iv e r s i t y o f C a l i f o r n i a D r. H a r o ld W in k le r , E x e c u tiv e O f f i c e r , S e n a te C om m ittee on F in a n c e (G eorge M i l l i e r , J r . , c h a irm a n ) A lv a r Y e l v in g to n , C a l i f o r n i a S c h o o l B o ard s A s s o c i a t i o n and f o r m e r C o n s u l t a n t , S e n a te F a c t F i n d i n g C om m ittee o n E d u c a ti o n APPENDIX C POLITICAL ASPECTS OF THE COORDINATION OF HIGHER EDUCATION I n t e r v i e w I n s tr u m e n t I n t e r v i e w c ir c u m s ta n c e s : Name:_________ A f f i l i a t i o n : D a te :_________________________________ I n t r o d u c t o r y s t a t e m e n t to t h e e f f e c t : I am p r e s e n t l y a t w ork o n a s tu d y o f th e p o l i t i c a l a s p e c t s o f t h e c o o r d i n a t i o n o f h i g h e r e d u c a ti o n w ith p a r t i c u l a r em p h asis u p o n t h e r o l e s p la y e d by th e C a l i f o r n i a C o o r d in a tin g C o u n c il f o r H ig h e r E d u c a tio n i n r e s p e c t t o t h e L e g i s l a t u r e , th e G overno r an d t h e e x e c u ti v e a g e n c ie s and d e p a r tm e n ts . T h is s tu d y w i l l be my d i s s e r t a t i o n f o r th e d o c t o r a t e i n p o l i t i c a l s c i e n c e . R e s u l t s o f my w ork may, p e r h a p s , be r e p o r t e d to t h e C o u n c il f o r t h e i r In fo rm a t i o n . Though I am p r e s e n t l y a n em ployee o f t h e C o u n c il, t h e s tu d y i s my own and i n no way w i l l r e f l e c t e i t h e r t h e p o s i t i o n o f t h e C o u n c il I t s e l f o r o f t h e s t a f f . I w i l l make no d i r e c t q u o t a t i o n o r a t t r i b u t i o n w i t h o u t p r i o r a p p r o v a l fro m y o u . [ R e f e r to s p e c i a l q u e s t i o n s r e g a r d i n g C o u n c il f u n c t i o n s to be a s k e d o f C o u n c il members an d s e l e c t e d o t h e r p e r s o n s . P o i n t o u t t h a t r e s p o n s e s to t h e s e g e n e r a l q u e s t i o n s a r e f o r p u r p o s e s o f a r e p o r t o f t h e C o u n c il D i r e c t o r a n d a r e n o t r e l a t e d to t h e d i s s e r t a t i o n s t u d y . ] I h av e a num ber o f s p e c i f i c q u e s t i o n s r e l a t i n g to t h e C o u n c il and i t s a c t i v i t i e s ; I hope t h a t t h e s e w i l l a s s i s t i n b r i n g t o y o u r m ind e x p e r ie n c e s a n d view s r e l a t i n g t o th e C o u n c il. 363 3 6 k A s p e c ts to draw o u t d u r i n g c o u rs e o f I n t e r v i e w : Does in te r v ie w e e t e n d t o i d e n t i f y t h e C o u n c il w i t h p a r t i c u l a r s t a f f m em bers, C o u n c il members? (L e g . g ro u p ) Does t h e i n t e r v i e w e e make d i s t i n c t i o n s b e tw e e n t h e C o u n c il s t a f f an d t h e C o u n c il a s a b o a r d ? (B o th g ro u p s ) Does t h e i n t e r v i e w e e r e g a r d th e C o u n c il a s a p o t e n t i a l l y s i g n i f i c a n t f o r c e i n t h e p o l i t i c a l a re n a ? (B o th g ro u p s ) Does t h e i n t e r v i e w e e r e g a r d th e C o u n c il a s p o t e n t i a l l y a s i g n i f i c a n t f o r c e i n r e s p e c t to t h e h i g h e r e d u c a t i o n e s t a b l is h m e n t ? (B o th g ro u p s) I s t h e C o u n c il a n d i t s s t a f f r e g a r d e d f a v o r a b ly ? (B o th g ro u p s) I s t h e r e a l a c k o f o p i n io n c o n c e rn in g t h e C o u n c il and i t s s t a f f w hich s u g g e s t s l i t t l e p e r c e i v e d Im p act o f th e a g en c y ? (B o th g ro u p s ) I s t h e C o u n c il v iew ed a s a t h r e a t ? (E d u c . g ro u p ) * * * * * 1 . The C o u n c il c a n p r o b a b ly be v iew ed i n a num ber o f d i f f e r e n t w ay s. W hich o f t h e f o l lo w in g do you b e l i e v e c a n be a p p l i e d to t h e C o u n c il? YES NO UNCERTAIN a . A d v o cate o r l o b b y i s t f o r h i g h e r e d u c a t i o n ____ __ ___________ b . The l e a d e r o f h i g h e r ed u c a t i o n ____________________________ c . The e x p e r t a d v i s o r on h ig h e r e d u c a t i o n t o t h e L e g i s l a t u r e d . The e x p e r t a d v i s o r on h i g h e r e d u c a t i o n to t h e G overno r e . An a r b i t r a t o r o f h i g h e r e d u c a ti o n c o n f l i c t s w i t h ___ d e c i s i o n s b i n d in g o n t h e p a r t i e s 365 YES NO UNCERTAIN f . A m e d i a t o r o f h i g h e r e d u c a t i o n c o n f l i c t s to w a rd n e g o t i a t i n g , c o n s e n s u s , com pro m ise o r a g re e m e n t_____________ ____ __ ___________ g . A s o u r c e o f i n n o v a t i v e i d e a s f o r h i g h e r e d u c a t i o n ____ __ ___________ h . The e q u i v a l e n t o f a l e g i s l a t i v e i n v e s t i g a t i n g c o m m itte e s t a f f f o r h i g h e r e d u c a t i o n ____ ___________ i . A p u b l i c r e l a t i o n s v e h i c l e f o r h i g h e r e d u c a t i o n j . P r i m a r i l y a s a n a g e n c y o f S t a t e G overnm ent k . P r i m a r i l y a s a p a r t o f h i g h e r e d u c a t i o n 1 . Spokesm an f o r h i g h e r e d u c a t i o n m. A r e s e a r c h g ro u p n . An e x t e n s i o n o f t h e D e p a r t m ent o f F in a n c e o . An a d m i n i s t r a t i v e a g e n c y p . An a d m i n i s t r a t i v e a g e n c y i n some i n s t a n c e s , a n a d v i s o r y g ro u p i n o t h e r s O th e r v ie w s s u g g e s t e d ; 2 . Do you b e l i e v e t h a t m a jo r q u e s t i o n s c o n c e r n in g h i g h e r e d u c a t i o n w i l l be m a jo r i s s u e s i n t h e n e x t L e g i s l a t i v e s e s s i o n ? I n t h e n e x t e l e c t i o n ( p r im a r y a n d g e n e r a l ) ? YES NO UNCERTAIN N e x t S e s s i o n ___ N ex t E l e c t i o n W hat q u e s t i o n s and i s s u e s do you e x p e c t w i l l be co n s i d e r e d ? _______________________________________ _________ LEGISLATIVE GROUP ONLY (3 -5 ) Rave you b e e n c o n ta c te d by a C o u n c il s t a f f member? YES NO CAN1 T RECALL a . D u rin g p a s t S e s s io n ____ __ _______________ b . I n p r e v io u s y e a r s _______________ __ _______________ Have you b e e n c o n ta c t e d by a C o u n c il member o n a m a t t e r c o n c e r n in g t h e C o u n c i l 's p o s i t i o n o n a q u e s t i o n r e l a t in g t o h i g h e r e d u c a tio n ? a . D u rin g p a s t S e s s io n ____ __ _______________ b . I n p r e v io u s y e a r s ____ __ _______________ (P ro b e f o r names o f s t a f f m em bers, C o u n c il members) W ith w hat i s s u e s r e l a t i n g to h i g h e r e d u c a t i o n do you a s s o c i a t e t h e C o u n c il? a* e b . f c • S d . h Do you b e l i e v e t h e m oving o f t h e C o u n c il 's s t a f f o f f i c e s t o S a c ra m en to a y e a r an d a h a l f ago im p ro v ed r e l a t i o n s w ith t h e L e g i s l a t u r e and t h e G o v e r n o r 's o f f i c e , a n d o t h e r a g e n c ie s a s t h e L e g i s l a t i v e A n a ly s t and De p a rtm e n t o f F in a n c e ? ( I s I n te r v ie w e e aw are o f move?) YES NO NO OPINION Yes No D id t h e move i n y o u r o p i n i o n a f f e c t I n any way th e r e l a t i o n s h i p s o f th e C o u n c il an d t h e c o ll e g e s a n d u n i v e r s i t i e s ? I f s o , how w ould you d e s c r i b e t h e e f f e c t ? 367 8 . Do you b e l i e v e t h e C o u n c il and i t s s t a f f have p la y e d s i g n i f i c a n t r o l e s i n r e s p e c t to t h e s e r e c e n t q u e s t i o n s o r i s s u e s c o n c e r n in g h i g h e r e d u c a tio n ? YES NO UNCERTAIN a* F a c u l t y s a l a r i e s ____ __ ___________ b . New c o l l e g e s o r U n i v e r s i t y cam puses_____________________________ __ ___________ c . J u n i o r c o l l e g e g o v e rn a n c e ___ __ ___________ d . F a c u l t y c o l l e c t i v e b a r g a i n in g ____ __ ___________ e . T u i t i o n an d s t u d e n t f e e s ____ __ ___________ f . H ig h e r e d u c a ti o n b u i l d i n g p ro g ram s an d bond I s s u e s ___ __ ___________ g . D evelopm ent o f p la n s to f i n a n c e h i g h e r e d u c a tio n o v e r t h e l o n g r u n ____ __ ___________ h . S tu d e n t u n r e s t ’ ____________ i . Y e a r-ro u n d o p e r a t i o n s j . Name change f o r S t a t e C o lle g e s t o S t a t e U n iv e r s i t y k . New form s o f o r g a n i z a t i o n f o r h i g h e r e d u c a ti o n 1 . S tu d e n t s c h o l a r s h i p p r o gram s m. S t a t e fu n d s f o r j u n i o r c o l l e g e c a p i t a l o u t l a y n . F e d e r a l p ro g ram s a i d i n g h i g h e r e d u c a ti o n o« A d m issio n s s t a n d a r d s 368 9 . What i n y o u r o p i n i o n i s t h e r e l a t i o n s h i p b e tw e e n th e J o i n t Com m ittee o n H ig h e r E d u c a tio n ( t h e U nruh Commit te e ) a n d th e C o u n c il? (P ro b e f o r o p i n i o n on w h e th e r t h e J o i n t C om m ittee was c r e a t e d b e c a u se o f f a i l u r e s o f C o u n c il o r h i g h e r edu c a t i o n t o r e s o l v e i s s u e s . What i s i n t e r v i e w e e 's b e l i e f a s t o t h e p u rp o s e o f t h e J o i n t C om m ittee?) 1 0 . Do you b e l i e v e t h e C o u n c il s h o u ld t a k e p o s i t i o n s su p p o r t i n g o r o p p o s in g s p e c i f i c l e g i s l a t i v e p r o p o s a l s ? YES NO UNCERTAIN I f s o , how do you b e li e v e t h e C o u n c il s t a f f ( o r membersj o f t h e C o u n c il? s h o u ld make t h e p o s i t i o n known?) I a . By f o r m a lly t r a n s m i t t i n g a c t i o n to t h e b i l l ' s a u t h o r a n d o t h e r s I n t e r e s t e d ___ _____ b . A p p e a r o n ly o n r e q u e s t to comment o n t h e b i l l c . A c t i v e l y s e e k a p p e a ra n c e s o n t h e b i l l t o lo b b y f o r i t — o r o p p o se i t ’ ____ __ ___________ O th e r ways i n w h ic h p o s i t i o n c a n be made known a p p ro p r i a t e f o r t h e C o u n c il: 1 1 . As a g e n e r a l r u l e , s h o u ld Coun c i l members o r s t a f f c o n s u l t w ith members o f t h e L e g i s l a t u r e p r i o r t o C o u n c il a c t i o n o n a n i s s u e w hich i s o f c o n c e rn t o l e g i s l a t o r s ? _ 1 2 , As a g e n e r a l r u l e , s h o u ld Coun c i l members o r s t a f f c o n s u l t w ith t h e G o vernor ( o r h i s s t a f f ) p r i o r t o a c t i o n o n an i s s u e o f i n t e r e s t to t h e G overnor? 369 YES 13* P l e a s e c o n s i d e r t h e f o l lo w in g h y p o t h e t i c a l s i t u a t i o n — The C o o r d in a tin g C o u n c il h a s d e te r m in e d by fo rm a l a c t i o n t h a t i t a d v is e s t h e L e g i s l a t u r e to a u t h o r i z e t h e S t a t e C o lle g e s t o g r a n t t h e d o c t o r a t e d e g re e i n c e r t a i n s p e c i f i c s u b j e c t a r e a s . How do you b e l i e v e t h e C o u n c il and i t s s t a f f s h o u ld p r o c e e d — a . S h o u ld t h e C o u n c il s t a f f s e e k o u t a L e g i s l a t o r to i n tr o d u c e th e b i l l ? ____ b . Would i t be p r e f e r a b l e f o r a member o f t h e C o u n c il su c h a s t h e C o u n c i l 's p r e s i d e n t to d i s c u s s t h e b i l l ’ s i n t r o d u c t i o n w i t h a L e g i s l a t o r ? ___ c . Would i t be p r e f e r a b l e i n t h i s s i t u a t i o n f o r t h e Coun c i l (a n d s t a f f ) t o w a i t f o r th e S t a t e C o lle g e s to s e e to th e b i l l ’ s I n t r o d u c t i o n and th e n s u p p o r t t h e b i l l ? _______ ____ d . S h o u ld th e C o u n c il a c t i v e l y lo b b y f o r th e b i l l ? ____ e . S h o u ld C o u n c il members c o n t a c t L e g i s l a t o r s t o e n c o u ra g e th e b i l l ’ s p a s s a g e ? ____ ( I f s o , s h o u ld t h i s o c c u r — a s a g e n e r a l r u l e _____ r a r e l y ) f . S h o u ld th e C o u n c il l i m i t i t s f u n c t i o n to t h e p r e s e n t i n g o f s t a te m e n t s o f C o u n c il p o s i t i o n on r e q u e s t ? ____ UNCERTAIN O th e r s u g g e s te d a p p ro a c h e s 370 1 ^ . C o n s id e r in g t h e same i s s u e , su p p o se t h e C o u n c il h a s made no s t a te m e n t o n t h e q u e s t i o n , b u t t h e s t a f f h a s s t u d i e d t h e m a t t e r and h a s p r e p a r e d a r e p o r t w h ic h i s a v a i l a b l e . What do you b e l i e v e t h e C o u n c il s t a f f r e s - i p o n se s h o u ld be i f a L e g i s l a t o r i n tr o d u c e d a b i l l on t h e m a t t e r and a s k e d f o r a s s i s t a n c e i n o b t a i n i n g th e b i l l ' s p a s s a g e ? YES NO UNCERTAIN i a . A t t h e l e g i s l a t o r ' s r e q u e s t , a c t i v e l y lo b b y f o r t h e b i l l . j b . Make i t c l e a r t h a t th e s t a f f c a n o n ly make i m p a r t i a l s t a t e m ents p e n d in g a p o s i t i o n o f j t h e C o u n c il. ____ __ ___________ c . A vo id a l l a p p e a ra n c e s o f s u p p o r t i n g t h e l e g i s l a t i o n i n c l u d i n g r e f u s i n g to a s s i s t t h e l e g i s l a t o r i n any w ay. d . P r o v id e t h e l e g i s l a t o r w ith f a c t s o n th e s u b j e c t o n l y . e . A c t i v e l y o p p o se t h e l e g i s l a t i o n p e n d in g a d e c i s i o n by t h e b o a r d . f . O th e r p o s s i b i l i t i e s su c h a s 1 5 . I n y o u r o p i n io n i s one o f t h e p u rp o s e s o f t h e C o u n c il to rem ove d i s c u s s i o n o f some i s s u e s (s u c h • ? new c o l l e g e l o c a t i o n s ) from t h e L e g i s l a t u r e , and i n s t e a d h av e them d i s c u s s e d a n d d e c id e d w i t h i n t h e C o u n c il? 1 6 . What a r e t h e k in d s o f d e c i s i o n s r e l a t i n g to h i g h e r edu c a t i o n w h ich s h o u ld be made by th e L e g i s l a t u r e and th e e x e c u tiv e a s e l e c t e d o f f i c i a l s o t h e r t h a n t h e c o l l e g e s th e m s e lv e s o r t h e C o u n c il? a . b . c . ' i 371 1 7 . What k i n d s o f d e c i s i o n s i n y o u r o p i n i o n a r e b e s t decid-* ed by t h e i n s t i t u t i o n s ( o r segm ent b o a rd s ) ? SL* b . c . 1 8 . F i n a l l y , w hat k in d s o f d e c i s i o n s do you b e li e v e s h o u ld ; be d e c id e d a t t h e C o u n c il l e v e l r a t h e r th a n by t h e se g ment o r t h e L e g i s l a t u r e a n d G o v ern o r? j a . b . c . (The above may be a m p l i f i e d t o I n d i c a t e t h e d i f f e r e n c e s o f o p i n io n a t w h ich l e v e l th e m a jo r p o l i c y d e c i s i o n s h o u ld be i m ade. P o i n t o u t u l t i m a t e a u t h o r i t y i n L e g i s l a t u r e , b u t I ; p o i n t o f e f f e c t i v e d e c i s i o n may be d e l e g a t e d de j u r e o r de | f a c t o .) 1 j 1 9 . (a) W h at, i n y o u r o p i n io n , s h o u ld be t h e p r o p e r r e l a t i o n s h i p o f th e C o u n c il a n d th e G o v e rn o r and h i s o f f ic e ? (b ) The D e p a rtm e n t o f F in a n c e ? a . : b . YES NO UNCERTAIN j Do you b e l i e v e t h i s r e l a t i o n s h i p now e x i s t s ? ____ __ ___________ 20. Do you b e l i e v e i t i s c o r r e c t to s a y t h a t t h e r e i s a lo b b y ( o r l o b b i e s ) o n h i g h e r e d u c a t i o n i n S a c ra m e n to ? _ _ _ ____ 2 1 . I f s o , do you c o n s i d e r t h e C o u n c il a p a r t o f t h i s lo b b y ? __ 2 2 . Do you b e l i e v e t h e r e i s compe t i t i o n a s a r u l e among t h e i n - d i v l s u a l h i g h e r e d u c a ti o n i n t e r e s t s i n r e l a t i o n s w ith t h e L e g i s l a t u r e ? (P ro b e th ro u g h t h e s e q u e s t i o n s i n t o image o f h i g h e r e d u c a t i o n l o b b i e s , p r o b le m s .) Observations: 372 23* Do you b e l i e v e t h e C o u n c il s h o u ld be ch an g e d i n a n y way? CHECK THOSE WHICH APPLY I f s o , how s h o u ld i t be ch an g ed — M em bership a . Expand p u b l i c m em bership ____ b . Add G o v ern o r on b o a rd ____ c . R educe i n s t i t u t i o n a l mem b e r s h i p an d expand p u b lic ___ d . Add l e g i s l a t o r s t o b o a rd ___ e . R educe p u b l i c members________ ____ f . Add f a c u l t y r e p r e s e n t a t i o n ____ g . E l e c t members ____ 0 t h e r _____________ E lim in a te ____ F u n c t io n a l Changes a . I n c r e a s e pow ers ____ b . Remove a d m i n i s t r a t i v e r e s p o n s i b i l i t i e s ______________________ c . D e c re a s e pow ers________________ ____ Changes______________________________ ________________________ {P robe f o r ways i n w h ic h ch ange t o be made* What k in d o f s u b s t i t u t i o n , e t c . , su ch a s i n c r e a s e d b u d g e t pow ers s u g g e s te d ? ) 373 YES NO Do you b e l i e v e t h a t l e g i s l a t i o n s h o u ld be in tr o d u c e d i n th e n e a r f u t u r e to a c c o m p lis h t h e c h an g e s you s u g g e s t? ___ __ 2 ^ . I f you w ere t o r a t e t h e Coun c i l ' s o v e r a l l p e rfo rm a n c e i n i t s r e l a t i o n s h i p s w ith S t a t e g o v e rn m e n t, a l l t h in g s c o n s i d e r e d , w hat w ould be y o u r r a t i n g ? H igh______ Medium Low I n e f f e c t i v e 25c I f you w ere t o r a t e t h e Coun c i l ' s p e rfp rm a n c e i n r e s p e c t to r e l a t i o n s h i p s w ith h i g h e r ed u c a t i o n i n g e n e r a l , a l l t h i n g s c o n s i d e r e d , w hat w ould be y o u r r a t i n g ? H igh Medium Low UNCERTAIN I n e f f e c t i v e APPENDIX D A Note on the Questionnaire and Definition of Terms Used The questionnaire is designed to apply to both the state higher education agency which is the governing board for the state’s individual public colleges and universities and for the coordinat ing board with responsibilities toward individual institutions (or systems) with their own governing boards of trustees In a few instances, questions apply to one form; this is so indicated or self- evident. In the questions the term “agency” is used as inclusive of board and staff taken together When distinctions are desired, “board” is used to apply to the members of the policy-making body itself. “Staff” 0 1 “agency staff” would be those employees of the board including the staffs direc tor “Higher Education” is used m the questions to refer to those institutions and systems coordinated (and/or governed) by the agency and, therefore, for the most pan refers to public higher education Please feel free to qualify or amplify your answers Checklists have been used on many questions to reduce the time necessary to complete the questionnaire and to facilitate compilation of findings This has, of course, the potential disadvantage of possibly leaving out a number of alternatives which may apply in your situation. Patterns of relationships with institutions may vary to an extent making it difficult to reply to some questions. For example, relationships may exist m one pattern for four-yeai colleges, in another for community colleges. In such cases, please respond m a manner reflecting the pattern as it exists most generally and indicate briefly what qualifications should be made Your response is gratefully appreciated, -1- Agency ________________________ State ________________________ Person completing form __________________________________ A General Characterization o f Agency 1.1 The following are a number of ways in which a state agency for higher education might be viewed or characterized. Which do you believe could usually be applied to your agency? (Please respond to each) YES NO a. Advocate or lobbyist for higher education_____________________ ______ ______ b. The leader of higher education______________________________________ ______ c. The expert advisor on higher education to the Legislature ______ ______ d. The expert advisor on higher education to the Governor________ ______ ______ e. An arbitrator of higher education conflicts with deci sions binding on the parties________________________________ _______________ f. A mediator o f higher education conflicts toward negotiat ing a consensus, compromise or agreement__________________ ______ ______ g. A source of innovative ideas for higher education______________ _______________ h. The equivalent o f a legislative investigating committee _______________ staff for higher education i. A public relations vehicle for higher education _______________ j. Primarily as an agency o f state government ______ ______ k. Primarily as a part of higher education _______________ 1 . The primary spokesman for higher education ______ ______ m. A research group _____ _________ n. An extension of the state budget office _____ _________ o. An administrative agency _______________ p. An administrative agency in some instances, an ______ ______ advisory group in others -2- 1.2 If you view your agency in other ways differently from those ways suggested in the above, please note t h e m : _______________________________________________________ 2.1 Since January 1967, on how many occasions has the agency director met with the Governor to discuss matters relating to education? No occasion s______ 1-2 occasions______ 3-5 occasions______ 6-10 occasions______ more than 11 occasions______ * * * * 3.1 Does your board take positions on specific pieces Yes o f legislation as introduced? No 3.2 If yes, does the board act on bills (such as those Yes dealing with new programs, new colleges, major No changes in finance, etc.) which concern higher education? 3 3 If the board takes a position to oppose a specific Yes legislative proposal, would the board members and: or No agency staff likely play an active role to defeat the measure? 4.1 Does the agency staff director take positions on specific Yes pieces of legislation as introduced apart from, or m the No absence of, board statement? 4.2 Does the board on occasion adopt general principles Yes which may be applied to the merits of pending legislation? No * * * * -3- B— 1. The Financing o f Higher Education 5.1 Does the state’s chief fiscal officer on occasion meet with Yes the board to discuss the financing level for higher education? No 5 .2 If so, how might this discussion be characterized? A presentation by the budget officer with reaction from board members A formal presentation with little or no discussion An extended discussion among all parties 5.3 Are direct, informal contacts the rule between the Yes chief fiscal officer and the agency staff director? No 5.4 Are informal contacts the rule among the chief fiscal Yes officer and individual board members such as the board No president? * * * * 6.1 In your state, does the Governor through his chief budget Yes officer (and department) extensively review and revise budgets No for public higher education institutions (or systems) before their presentation to the Legislature? 6.2 How would you assess the effectiveness of this review in respect to higher education budgets,assuming that effectiveness is related in part to the degree to which the positions o f the budget office on particular questions are upheld throughout the legislative consideration of the budget and approved by the Governor? Very effective Moderately effective . Limited effect No effect * * * * 7.1 Does your state Legislature maintain a permanent legislative Yes _____ analyst (legislative fiscal officer or auditor) who provides advice No _____ on budgetary and other matters independently of the executive agencies? 7.2 If so, how would you rate the extent and depth o f this review in respect to the budgets for higher education? A limited review confined to gross amounts only ______ An intensive, detailed review ______ A review of only certain aspects ______ 7.3 How would you assess the effectiveness of this review, assuming that effectiveness in part is related to the degree to which the recommendations of the analyst (or auditor) are taken into account during consideration of the budget? Very effective ______ Moderately effective ______ Limited effect ______ No effect ______ > f : * * * 8.1. Which of the following statements apply to the role o f your agency in respect to the prepara tion and presentation o f budgets for public higher education institutions or systems in your state? (Please check those which apply) a. The agency plays a major role in the budget development process and has the responsibility to modify, if required, the proposals o f the institutions (or systems) before presentation to the executive and Legislature. ______ b. The agency presents the budget(s) for all (or most all) public institutions and defends the and requests during the budget development process/before the Legislature. ______ c. The agency assists the institutions in their presentations and defense of their budgets dur ing the budget development process and before the Legislature.__________ ______ (continued) -5- d. The agency role is generally confined to review o f budget proposals before their presentation to the executive and to the giving o f advice to institutions (or systems) on the need for changes. No formal presentation by the agency is made to the Legislature on the budgets for higher education.______________________________ ____ e. The pattern suggested in “d” with the exception that a presentation o f advice or comments on the budget is made to the Legislature.__________________________ _____ f. The agency plays no role in the preparation or presentation o f higher education budgets. _____ g. If the pattern is not substantially similar to one o f the above possibilities, please briefly describe the process. sf: sf: : £ jfs 9.1 Do contacts between agency staff and board members on the Yes ______ one hand and executive personnel and legislators on the other No ______ relate primarily to matters concerning the budgets and financing o f higher education? # # * * 10.1 Which o f the following apply to the role of your agency in respect to the development and approval of capital outlay projects for public higher education institutions (or systems) in your state? (Consider capital outlay projects to be single buildings or projects as opposed to new colleges or campuses.) (Please check those which apply) a. The agency plays a major role with the responsibility to m odify, if required, institutional (or system) requests for capital construction before presentation to the executive and Legislature. ______ (co n tin u ed ) -6- b. The agency presents the capital outlay requests for m ost or all public institutions to the Executive and the Legislature, and defends these requests. ______ c. The agency role is generally confined to review o f proposals for construction and/or long-range capital outlay programs before their presentation to the executive and Legislature and to the giving of advice to the institutions (or systems) on the need for changes. The agency makes no further formal presentations. ______ d. The pattern suggested in “c” with the exception that a presentation of advice or comments on capital outlay projects is made to the Legislature. ______ e. The agency assists the institutions (or systems) in their presentations to the executive and Legislature on the need for the project. ______ f. The approval o f capital outlay projects in general is considered a non-political matter in your Legislature with projects approved as recommended subject to availability o f financing. ______ g. The agency plays no role in the preparation or presentation of proposals for capital outlay.____________________________________________________________________ h. If the pattern is not substantially similar to one o f the above possibilities, please briefly describe the process. * * * * B— 2. The Agency and Legislative-Executive Relationships 11.1 Which o f the following apply to the ways in which your agency proceeds in respect to matters before the Legislature in which you have an interest. (Please check those which apply) a. The agency director alone generally makes presentations to committees and individual legislators on behalf of the agency. ______ ( continued) -7- 12.1 13.1 b. Agency staff are assigned responsibilities for liaison with legislative committees and individual legislators with the agency director participating on occasion. ______ c. Members of the board itself often contact legislators. _____ d. The agency staff, staff director and board members are seldom in contact with the Legislature. ______ If this is the case, are matters requiring legislative Yes _____ action brought to legislative attention through the No _____ Governor o f your state? e. If legislative liaison is conducted in a manner substantially different than suggested in the above, please describe the process Do agency staff and/or board members discuss major policy questions and issues with individual legislators prior to board decision when there is legislative interest? Yes _____ No _____ 12.2 Do agency staff and/or board members discuss major policy questions and issues with the Governor or his representatives prior to board decisions when the Governor has an interest? Yes _____ No _____ * * * * Does the Governor o f your state have the equivalent o f a cabinet secretary for education? Yes ___ No ( continued) -8- 13.2 If so, what proportion of this person’s time would you estimate is devoted to higher education matters? Less than 25% . 25%— 49% 50%— 74% 75% or more * * * * 14.1 Which of the following apply to the ways in which your agency proceedsin-xespect to liaison activities with the Governor and the executive departments of your state? (Please check those which apply) a. The agency director alone generally makes all major policy presentations to the Governor and other executive department heads. ______ b. The agency director alone generally makes presentations to the Governor and executive department heads, but other agency staff work with state officials on matters such as the budgets for higher education. ______ c. As a rule members o f the agency board discuss policy matters with the Governor rather than the agency director or staff.______________________________ ______ d. Agency staff, as well as the agency director, often meet with the Governor and executive department heads, ______ e. If relationships with the Governor and the executive departments are conducted in a manner substantially different than is suggested by the above, please describe the process. _____________________________________________ * * * * 15.1 Are terms o f your board members staggered— (Please check those which apply) a. For all members ( co n tin u ed ) J b. For a majority o f members --------- c. For a minority of members ______ d. No, for terms run concurrently and are o f equal length ______ e. No, for there are no terms specified ______ *15.2 Have members o f your board who are gubernatorial appointees and who had unexpired terms, tendered early resignations because o f a change o f administration? Yes _____ No _____ *15.3 (If “no” skip to question 16.1.) If “yes;” were these resignations requested by the new administration? Yes _____ No _____ *15.4 Does it appear that such early resignations are or will be a common occurrence? Yes _____ No ____ * * * * 16.1 Please assume that the following is the situation: Your board has just taken action recommending that those state colleges which were formally normal schools should be allowed to grant doctorate degrees. This has not been previously authorized. A statutory change is required. How would you anticipate that the agency and its staff would proceed to implement the recommendation? (Please respond to each statement) YES NO UNCERTAIN a. The agency director (and staff) would seek out a _ __ ___ ____________ legislator interested in authoring the bill to authorize awarding the doctorate * Replies to these questions will not be identified by state or agency. (co n tin u ed ) -10- 17.1 YES NO UNCERTAIN b. The state colleges would normally sponsor ___ ____ ____________ such a bill with agency support c. The agency director (and staff) would ___ ___ ____________ actively lobby for the bill’s passage d. Members o f the board would likely contact ___ ___ ____________ legislators in order to assist in the passage o f the bill e. Members of the board, rather than agency ___ ____ ____________ staff, would participate throughout the process o f the bill’s introduction and consideration f. The agency director and staff would limit ____ ____ ____________ their role to the making o f impartial statements only on request * * * * Please assume the same matter regarding the awarding o f doctorates in state colleges is under discussion but no statement has been made by your board. However, the agency director and its staff have studied the matter and have developed a position favoring the proposal. Within your situation, what would be the likely response by the director and the staff to a request for assistance by a legislator who has introduced the bill to authorize the degrees? (Please respond to each) a. If the legislator requests, actively lobby for the bill b. Make it clear that the staff can only provide information impartially, pending a position of the board YES NO UNCERTAIN ( co n tin u e d ) -11- YES NO UNCERTAIN c. Avoid all appearances of supporting the_______________________ ___ ____________ legislation including refusing to assist the legislator in any way d. Provide the legislator with facts on the ___ ___ ____________ subject only e. Actively oppose the legislation pending a ____ ___ ____________ decision by the be ard f. Other possibilities such as: _______________________________________________ _ * * * * 18.1 During a year’s period in which there is a general legislative session, what is your best estimate of the man-years o f agency staff time devoted to legislative- executive liaison? (In determining the estimate consider interim hearings, budget negotiations, etc.) Man-years ____________ 18.2 What is the number of individuals who participate ____________ in this activity? 18.3 Do one or more individuals below the director level Yes _____ have a continuing legislative-executive liaison No responsibility? * * * * 19.1 What in your opinion are the major problems your agency has encountered in dealing with the Legislature? _____________________ __________ (co n tin u ed ) -12- 19.2 The Governor and executive departments? * * * * 20.1 Which of the following apply in your state concerning legislative activities conducted by higher education institutions (or systems) and other interest groups such as faculty associations? (Please check those which apply) a. Representatives of the institutions (or systems) for which your board ______ is responsible actively engage in advocacy or information activities before the Legislature. b. Faculty senate representatives appear before legislative com m ittees ______ and contact legislators during sessions on most issues o f concern to them. c. Representatives of associations of faculty members, other than academic ______ senates, appear before legislative committees and contact legislators during sessions on m ost issues o f concern to them d. The institutions (or systems) for which your board is responsible retain ______ staff on a continuing basis during legislative session at the state capitol for advocacy and information activities e. Though other higher education representatives may appear before the ______ Legislature and executive agencies from time to time, the agency is the primary spokesman for higher education. f. Legislative activities o f higher education representatives generally occur ______ with your agency’s full knowledge and cooperation (c o n tin u e d ) g. If the pattern of advocacy and information activities before the Legislature is not suggested in one of the above possibilities, please briefly describe what occurs 20.2 In your opinion, is there competition among the higher education lobbies in your state? Please briefly explain the reasons for your response. REMARKS Yes No -14- The following may contribute to successful relationships between your agency and the legislative-executive. Please indicate the degree of importance you attach to each state ment by checking the appropriate box. (Please respond to each) a. Governor favorable to the agency b. Legislature favorable to the agency c. Members o f the board active in partisan affairs d. Members o f the board non-partisan e. Agency staff leadership active in partisan political affairs f. Staff of agency non-partisan g. President o f board o f same party as Governor h. President o f board o f same party dominating Legislature i. Members o f executive branch such as Governor Lt. Governor ex officio members on board j. State Superintendent of public education on board k. Legislators as ex officio members on board 1 . Favorable image of agency in press and other media m. Board members perceived to be persons of high prestige n. Other factors, please specify: V ery Important |O f Some Importance O f Little Importance Clearly Damaging to Good Relationships 22.1 -15- C. The Agency and Higher Education The following may contribute to successful relationships between your agency and the educational institutions. Please indicate the degree o f importance you attach to each statement by checking the appropriate box. (Please respond to each) a. Agency director in close touch with institution (or system) chief officers b. Staff o f agency in close touch with institution (or system) staffs c. Staff o f agency former members of institution (or system) staffs d. Individual members o f board formally or informally identified with one particular institution (or system) e. Agency director primary spokesman for higher education in the state f. Statements of state officials including Governor stressing importance o f the agency g. Statements o f institution (or system) heads stressing importance o f the agency V ery Important O f Some Importance O f Little Importance C learly Damaging to Good Relationships h. Extensive use o f advisory committees to board composed of institutional representatives i. Favorable image o f agency in press and other media j. Board members perceived to be persons o f high prestige k. Other factors, please specify: -16- 23.1 The agency director may discuss higher education matters both formally and informally with a number of individuals and representatives o f groups. In your state such discussion commonly occurs between the agency director and which o f the following: (Please check those which apply) a. Heads o f individual institutions ______ b. Chief executive officers of multi-campus systems (if any) ______ c. Faculty members in institutions ______ d. Faculty association representatives ______ e. Faculty senate representatives ______ f. Administrative staffs of multi-campus systems (if any) ______ other than chief executive officer g. Administrative staffs o f institutions other than institution head ______ h. Student leaders ______ i. Individual members of institution governing board (or system) ______ other than members o f agency’s board 23.2 In your opinion, are there specific groups with which you believe greater communication would be desirable; if so what problems have you encountered (or anticipate) in develop ing such communication? ________________________________________________________ * * * * D. The Agency Staff 24.1 Please indicate the number o f professional staff members in your agency authorized for fiscal year 1967-68. Number o f Prof. Staff (co n tinu ed) -17- 24.2 What was the immediate prior association of your present professional staff members before they joined the agency? Number a. Employees o f higher education institutions_______________________________ b. Employees o f state government _________ c. Employees of a research and development organization _________ d. Business _________ e. Recent graduate _________ f. O t h e r _________________________________________________________________ 24.3 Of the above (24,2) persons, how many now hold doctorates? How many are actively pursuing doctoral studies? 2 4 .4 What is the employment status of the agency professional staff? (Check those which apply) a. Civil service, including director b. Civil service with director exempt c. Civil service with director and certain other top-level positions exempt d. All exempt e. Considered academic staff f. O t h e r _________________________________________ -18- E. The Agency and the Policy Development Process 25.1 In developing materials upon which your board may make major policy decisions, which of the following apply? (Please check those which apply) a. Generally, staff studies are prepared with the assistance and advice____________________ o f institutional (or system) representatives. b. Generally, staff studies are prepared without the assistance or__________________ _____ advice of institutional (or system) representatives. c. A staff position is generally presented to the board which may, or _____ may not, agree with the advice of institutional (or system) representatives. d. No position is reported to the board unless it represents a consensus o f _____ staff and institutional (or system) representatives’ views. e. In some cases a staff report and a dissenting institutional (or system) _____ report will be made to the board. f. In developing some reports, the staff in effect negotiates agreement —___ among the institutional representatives concerned. g. Few reports are developed by the staff for presentation to the board. _____ h. Institutional staff are often enlisted to assist in preparing staff reports. _____ i. The staff often relies on the use of consultants in preparing reports. _____ * * * * 26.1 Which o f the following apply to the process and circumstances o f board consideration o f a major policy decision? (Please check those which apply) a. The board will seldom depart from a staff recommendation.___________________ _____ b. The board often modifies staff recommendations. _____ c. The board assumes major differences among agency staff and others_________________ interested will have been resolved prior to board discussion, (co n tin u ed ) -19- d. Most board members tend to identify with a particular institution (or system). ______ “ " e . The board will hear formal presentations primarily from staff.--------------------------- --------- f. The board will hear formal presentations both from agency staff and___________ ______ institutional representatives* concerned with an issue on an equal basis. g. The board on occasion hears from faculty association representatives and on --------- occasion members of the general public. h. Legislators on occasion attend board meetings. ______ i. Legislators on occasion make presentations to the board. ______ j. The staffs o f the larger institutions (or systems) tend to compete with agency ______ staff in analyses o f problems and advice to the board. k. Officials o f the state budget office often attend meetings o f the board. ______ 1 . Faculty senate representatives often attend meetings. ______ m. Faculty association representatives often attend meetings. ______ n. Few persons other than board members and agency staff attend meetings. ______ * * * * 27.1 Which o f the following apply concerning the use of outside consultants to advise the agency? (Please check those which apply) a. Consultants are seldom employed. ______ b. Consultants are often used. ______ c. When employed, consultants generally advise agency staff on studies ______ or matters o f concern; they rarely are responsible for complete studies or surveys. d. Consultants may be retained to conduct surveys or studies and ______ their recommendations made known to the board, regardless o f a staff position. ( co n tin u e d ) e. Consultants are normally advisory to the agency staff, not the board itself. f. Consultants are retained on a continuing basis to advise on matters such as new programs, budget development, etc. g. Consultants are retained in lieu of permanent staff. h. Consultants are retained primarily to supplement existing staff expertise. i. Consultants are retained in many different capacities including most o f those mentioned above. j. Other uses for consultants by your agency not suggested in the above include: * * * * F. The Agency Board and Institutional Boards IF YOUR BOARD IS OF THE “GOVERNING” TYPE, YOU NEED NOT RESPOND TO THE FOLLOWING QUESTION. PLEASE SKIP TO QUESTION 29.1. 28.1 How would you compare the prestige and stature of your coordinating board with that of the boards charged with the operation o f the institutions of higher education (or system) for which your board is responsible? (In considering “prestige and stature” please take into account the board members as individuals, the general influence o f the several boards, whether appointment to one board is generally more sought after over others, etc.) (Please check the one which best applies) a. The coordinating board is clearly o f the greatest stature and prestige. ______ b. There is little difference among the boards in terms of stature and prestige. ______ ( continued) -21- c. The institutional (or system) governing boards have greater prestige and stature. d. The coordinating board has stature and prestige equal to or greater than some o f the governing boards, but appointment to the board o f the state university is most sought after. e. If the situation is substantially different than that suggested by one of the above alternatives, please indicate what is the case _____________________________ * * * * G. General Problems, The Agency and Higher Education 29.1 Please briefly describe the most important problems your agency faces today in its relationships with the public higher education institutions (or systems). (Consider, for example, problems o f definition o f roles, proper levels for decision-making, the planning function, budget review, etc.) -22- 30.1 Please characterize your relationships with private colleges and universities in your state. (In your reply you may wish to consider how their relationships have undergone change during the past five years and in what ways the relationships differ significantly from those with public institutions.) * * * * 31.1 Please indicate whether or not the following are accorded status in your state’s Constitution: Has Constitutional Status Statutory Only a. Statewide coordinating (governing) board _______ _______ b. State university (ies) _______ _______ c. State colleges _______ _______ d. Public community colleges _______ _______ 31.2 Are there particular problems for statewide planning and coordination which arise from the above pattern of constitutional status or lack thereof? -23- 32.1 Do you consider the legal powers of your agency (and board) sufficient to discharge assigned responsibilities? If not, what additional powers would you consider necessary, and do these require statutory changes? * * * * Thank you for your cooperation.

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