The performance and state policies of higher education in Illinois

Callan, Patrick M

Finney, Joni E

Perna, Laura W

English

ScholarlyCommons@Penn

University of PennsylvaniaScholarlyCommonsGSE Publications Graduate School of Education11-2011The Performance and State Policies Of HigherEducation in Illinois: Insights From a Five‐StatePolicy Review ProjectLaura W. PernaUniversity of Pennsylvania, lperna@gse.upenn.eduJoni E. FinneyUniversity of Pennsylvania, jonif@gse.upenn.eduPatrick M. CallanFollow this and additional works at: http://repository.upenn.edu/gse_pubsPart of the Higher Education CommonsThis paper is posted at ScholarlyCommons. http://repository.upenn.edu/gse_pubs/355For more information, please contact repository@pobox.upenn.edu.Recommended CitationPerna, L. W., Finney, J. E., & Callan, P. M. (2011). The Performance and State Policies Of Higher Education in Illinois: Insights From aFive‐State Policy Review Project. Forum on the Future of Public Education, Retrieved from http://repository.upenn.edu/gse_pubs/355The Performance and State Policies Of Higher Education in Illinois:Insights From a Five‐State Policy Review ProjectAbstractThe performance and state policies of higher education in Illinois.DisciplinesEducation | Higher EducationThis presentation is available at ScholarlyCommons: http://repository.upenn.edu/gse_pubs/355The Performance and State Policies  Of Higher Education in Illinois: Insights from a Five-‐State Policy Review Project Laura W. Perna Joni Finney Patrick Callan  With Assistance from: Michael Armijo, Jamey Rorison, Awilda Rodriguez   November 2011 Measuring Up ? Biennial state-‐by-‐state report card ? Identifies  state  performance  on  indicators  of:  ? Preparation  ? Participation  ? Completion  ? Affordability  ? Benefits  ? Does  not  reveal:    ? Reasons  for  high  or  low  performance  ? Reasons  for  changes  in  performance  What We Know about  State Higher Education Performance Conceptual Model Federal  Government Overarching Research Question:  What is the relationship between state policy and higher education performance? 1.    What  is  the  performance  of  higher  education?  How  has  performance  changed  over  time?      2.    What  is  the  context  that  informs  higher  education  performance?    How  are  aspects  of  context  changing?    How  does  the  state  context  influence  the  policy  options  considered?    3.    What  policy  levers  have  been  used?          4.    What  is  the  relationship  between  policy  levers  and  higher  education  performance?      Research Questions 5  States    ? Georgia  ? Illinois  ? Washington  ? Texas  ? Maryland  Data  Sources  ? Quantitative  data    ? Reports  and  documents  ? Interviews  Data  Analysis  ? Case  study  report  for  each  state  ? Cross-­‐case  analysis   5 Methods:  Case Study Research Number of Interviewees Per State Perspective GA IL WA TX MD State Higher Education Leadership 18 13 22 9 14 State Political Leadership 4 5 8 10 4 Institutional Leadership 6 6 8 8 4 K-‐12 and P-‐16/P-‐20 Education Leadership 4 1 2 1 1 Business/Research/Philanthropic Leadership 1 1 4 2 1 Other Participants 3 3 4 4 1 TOTAL 36 29 48 34 25 Increase in Degrees Required to Reach  International Competitiveness Goals by 2020   State Current % of Adults with College Degrees  Annual Percentage Increase Required Georgia 36% 10.0% Illinois 41% 5.4% Maryland 44% 5.1% Texas 33% 11.5% Washington 42% 6.2% Total ? U.S. 38% 7.9% Annual Increase in Degrees for 55% of 25-‐ to 64-‐Year Olds ?????????????????????????????????????? Source:  Kelly, P. (2010). Projected degree gap: Percent of 25 to 64 year olds with associate degrees or higher. National Center for Higher Education Management Systems, Unpublished table. Roles of Different Sectors In  ?????????????????????????????????????? State Public 4-‐year Public 2-‐year Private NFP Private  For-‐Profit Georgia 41% 37% 10% 12% Illinois 15% 60% 13% 12% Maryland 36% 49% 9% 6% Texas 30% 55% 6% 9 Washington 38% 51% 7% 4% Total ? U.S.  31% 44% 13% 12% Distribution of Total 12-‐month Unduplicated Undergraduate Headcount: 2008-‐09  Source: Integrated Postsecondary Education Data System (IPEDS). 2009  Enrollment Survey.  Retrieved from http://nces.ed.gov/ipeds/datacenter/login.aspx  Degree Shortfalls Without  Educating Adults?   State Need to Educate Adults? Georgia Yes Illinois Maryland Yes Texas Yes Washington 32 of 50 states cannot reach international competitiveness goals without increasing degree attainment among adults Source: Council for Adult and Experiential Learning (2008). Adult learning in Focus: National and state-‐by-‐state data.  Retrieved from http://www.cael.org/pdfs/State_Indicators_Monograph Higher Education Performance in Illinois ? Declines in performance since mid-‐to late-‐1990s ? Gaps in performance within the state: ? Lower in Chicago ? Lower for Blacks and Hispanics than Whites ? Lower for those with low-‐ than high-‐ family income High School Graduation Rates in Illinois Increased Somewhat   0102030405060708090100Education Week Illinois Board of EducationPercentage 1998 2002 2008 2010 Sources: Education week (2011), ???????????????????????http://www.edweek.org/ew/dc/index.html; Illinois State Board of Education,  http://webprod.isbe.net/ereportcard/publicsite/getSearchCriteria.aspx   But, College Participation in Illinois Declined 50% 44% 44% 20%25%30%35%40%45%50%55%60%1992 1994 1996 1998 2000 2002 2004 2006 2008MHECMedianNationalAverageIllinois Chance for College in Illinois by Age 19, 1992-‐2008   Source:  Mortenson, T. (2010).  Postsecondary education opportunity, http://www.postsecondary.org/statereportslist.asp?subcat2=IL. College Affordability in Illinois Has Declined  -‐7% 100% 38% -‐20%0%20%40%60%80%100%Median FamilyIncomePublic 4-‐YearTuitionPublic 2-‐YearTuitionPercentage Change in Constant Dollars, 1999 -‐ 2009 Source: National Center for Public Policy and Higher Education (2011). Affordability and transfer: Critical to increasing baccalaureate degree completion. San Jose, CA: Author. College Completion in Illinois Has Increased but Remains Below Top States 55% 52% 24% 30% 59% 56% 25% 29% 0%20%40%60%80%100%Illinois Nation Illinois NationPercentage Change in Completion Rates, 1998 to 2009 1998 2009Six-‐??????????????????????? Completion Rates Three-‐Year Associate Degree  Completion Rates Sources: NCHEMS, Six-‐year ???????????????????????????????????????, http://www.higheredinfo.org/dbrowser/?level=&mode=definitions&state=0&submeasure=27; and NCHEMS, Three-‐year graduation rates for associate students, http://www.higheredinfo.org/dbrowser/index.php?submeasure=24&year=2008&level=&mode=definitions&state=0. Outcomes are Lower for Blacks and Hispanics than Whites in Illinois 49.6% 28.1% 17.6% 0%10%20%30%40%50%60%White Non-‐Hispanic Black Non-‐Hispanic Hispanic54,572 more degrees needed for Blacks to reach parity with Whites in degree attainment 121,809  more degrees needed for Hispanics to reach parity with Whites in degree attainment Percentage of Adults Age 25 to 34 in Illinois With at Least  ????????????????????????????  Source: National Center for Higher Education Management Systems (2007). Educational Attainment by State, Age, Race, and Gender 1990-‐2000,  www.higheredinfo.org/analyses Importance of Improving Performance in Illinois: Workforce Demands 148,000 418,000 0100,000200,000300,000400,000500,000No More than H.S. Some PostsecondaryEducationNumber New Jobs Projected Growth in Jobs in Illinois By Level of Education Required: 2008 to 2018 Source:  Carnevale, A., Smith, N., & Stroh., J. (2010). Help wanted: Projections of Jobs and Education Requirements through 2018. Washington, DC: Georgetown Univ. Importance of Improving Performance in Illinois: Demographic Trends 12% 15% 15% 15% 34% 27% 0%5%10%15%20%25%30%35%40%Black HispanicRacial/Ethnic Composition of Population: 2009 U.S. Illinois ChicagoSource:  U. S. Census Bureau, American Community Survey Demographic  and Housing Estimates, 2005-‐2009 Need to Improve Performance in Chicago Chicago is home ??????????????????????population ??????????????????????????????????????????????-‐roads in the areas that need improvement ? the low percentage of 18 to 24 year olds enrolled in college, for example ? ??????????????????????????????????????whole population of the state is projected to ??????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????? (State Policy Expert)  Need to Improve Performance in Context of Fiscal Resource Constraints ? Declines in state revenues =   Declines in higher education appropriations  ? Temporary tax increase approved, January 2011 ? State budget cuts projected to continue due to projected structural deficits Structural Budget Deficits = More Cuts 20 -‐2.1 -‐2.2 -‐2.3 -‐2.3 -‐2.4 -‐2.6 -‐2.7 -‐2.9 -‐3.0 -‐3.3 -‐3.5 -‐3.5 -‐3.8 -‐4.1 -‐4.6 -‐4.7 -‐4.8 -‐4.9 -‐5.0 -‐5.1 -‐5.2 -‐5.4 -‐5.7 -‐5.7 -‐5.8 -‐5.8 -‐6.0 -‐6.2 -‐6.3 -‐6.3 -‐6.7 -‐6.7 -‐6.8 -‐7.2 -‐7.4 -‐7.8 -‐8.0 -‐8.1 -‐8.1 -‐8.5 -‐8.5 -‐8.5 -‐8.7 -‐8.9 -‐9.1 -‐9.4 -‐9.5 -‐9.7 -‐10.6 -‐10.8 -‐10.9 -‐12-‐10-‐8-‐6-‐4-‐20MarylandMaineVermontNew JerseyConnecticutNew HampshireRhode IslandNorth DakotaWisconsinMassachusettsMichiganWyomingCaliforniaOhioDelawareKansasOregonVirginiaNew YorkMinnesotaWest VirginiaPennsylvaniaIllinoisAlaskaNebraskaMontanaUnited StatesLouisianaIndianaHawaiiOklahomaNew MexicoMissouriKentuckyIowaSouth DakotaWashingtonFloridaSouth CarolinaArkansasGeorgiaColoradoTennesseeNorth CarolinaIdahoUtahArizonaNevadaAlabamaTexasMississippiProjected State and Local Budget Deficit  as a Percent of Revenues, 2016 Source: Boyd, D. (2009).  Unpublished analyses conducted for the National Center for Higher Education Management Systems.  Explanations for Performance in Illinois State Planning and Leadership: Inability to establish shared goals and priorities  Strategic Use of Available Fiscal Resources: Failure to allocate available resources strategically to meet state goals & priorities Clearly defined and shared statewide goals and priorities for higher education in Illinois? ?????????-‐year strategic plan:  The Public Agenda for College and Career Success ? Comprehensive BUT does not identify priorities or specific measures   Forces contributing to lack of shared statewide goals: ? End of ??????????????????? ? Political corruption and inattention to higher education by state leaders  ? Lack of accountability for higher education performance ? Challenges coordinating across sectors and levels System of Systems Dissolved Illinois Board of Higher Education, created 1961 ? Before 1995:  ? ??????????????????????????????????? ? ??????????????????????????????????????????????????? ? Example of success:  Priorities, Quality & Productivity Initiative ? After 1995 Reorganization:  ? Works with leaders of 9 systems and universities ? Focus:  respond to Legislature, generate reports, perform regulatory responsibilities  ? Signals of challenges:  ? ??????????????????????????????????????? ? High rates of turnover of executive director and chair  Political Corruption & Inattention to Higher Education by State Leaders Perception:  Limited capacity for state higher education leadership  ? Last governor to actively support higher education served more than 10 years ago ? Legislature partisan, lacking consistent and substantive leadership ? State higher education agencies and institutions act independently ? Appointments to higher education boards of questionable caliber Actors perceive limited state capacity to establish shared goals and priorities for improving higher education: ???????is almost no identifiable intentional public policy toward Illinois higher education at this moment. ????????????????????????????????????????????????????????????????????????????????????????????????????????????had anybody in the General Assembly that cares about higher education policy. And quite honestly, we have not had the capacity within the Illinois Board of Higher Education to lead on higher education ???????? (Institutional Leader)    Higher education perceived to be  low priority for Governors  over past decade: ??????Blagojevich was Governor, he had an anti-‐higher ??????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????????fire. He really set higher education back in a big way?? (State Policy Expert)  Lack of Accountability for Higher Education Performance in Illinois Incentives for institutions to improve performance ? At time of our data collection:  ? None ? Some state leaders interested but skeptical that possible ? Recent developments:  ? Higher Education Finance Commission report, November 2010 ? Performance funding bill passed and signed ? IBHE charged with developing implementation proposal   Use of available data to identify & achieve state priorities ? Some strengths ? High School Feedback Reports ? Weaknesses ? Use of data (Education Sector, Data Quality Campaign) ? Beginning Illinois Longitudinal Data System     Challenges Coordinating Across Education Sectors and Levels High school -‐ college curricular alignment  ? Exam required for high school graduation ? Some institutions have set cut scores ? PARCC state  Transfer and articulation   ? Illinois Articulation Initiative, 1993 ? Some success ? but challenges remain  Role of P-‐20 structure ? In statute (2007) ? No funding ? No appointments until 2010  Dimensions of Strategic Allocation  Of Available Resources ? Policy Shift Away from Need-‐Based Student Aid ? Declining Support for Students in Independent Sector ? Lack of Planned Approach to Tuition  ? State Appropriations Not Aligned with State Priorities  Policy Shift Away from Need-‐Based Student Financial Aid ? Strong historic commitment to need-‐based aid (MAP) ? Shortfalls in funding in recent years ? General Assembly reduced funding for MAP by           $200 million in July 2009; funding restored ? Continued shortfalls:  Available $$ awarded on first-‐come, first-‐served basis ? IBHE identified options to improve use of MAP funds ? No consensus on how to proceed Declining Support for Students in Independent Sector Historically:   ? MAP and other state grants used to promote enrollment in private colleges and universities  More recently: ? Some programs cut ? MAP remains primary lever BUT declining share of MAP $$ go to students in this sector Lack of Planned Approach to Tuition Individual institutions set own tuition  ? Tuition = increasing share of educational costs Truth in Tuition Policy, effective 2004-‐05 ? ?Puts 4 years of tuition increases in every single year???????????????? State leaders frustrated by rate of tuition increases AND lack of links between appropriations, aid, and tuition  State Appropriations Not Aligned with State Priorities ? State appropriations for higher education increasing at slower rate in Illinois than nationally ? No incentives for performance in funding formula ? Support for research eliminated (State Matching Grant) ? Lack of resources to expand pilot programs (College and Career Readiness Pilot Act, Baccalaureate Completion Grants) ? ?????????????????????????????????????????????requests BUT not effective in holding line on cuts Conclusions For Illinois ? Need for improved performance ? More funding is not enough  ? Performance declining before economic downturn ? Need to develop policy leadership capacity  ? Some promising steps:  Higher Education Finance Commission report ? Reform MAP ? Performance funding requirement ? Question:  State leaders able to achieve consensus on statewide goals and priorities, coordinate and collaborate, and strategically use available resources?  

The Performance and State Policies Of Higher Education in Illinois: Insights From a Five‐State Policy Review Project

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The Performance and State Policies Of Higher Education in Illinois: Insights From a Five‐State Policy Review Project

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