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...California community college system reduced transfers to the universities. The research shows that because instruction and student support services suffer when the budget is reduced, fiscal contraction can hamper the ability of community colleges to provide universal access.
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State revenue shortfalls, the result of the most recent economic recession, are prevalent throughout the nation. In order to cope with these shortfalls, many states are choosing to reduce spending in public programs and services, including higher education. After nearly a decade of abundant resources, many higher education institutions face a grave fiscal situation. In January 2002, The Chronicle of Higher Education reported that 36 states were anticipating budget deficits in 2003, and many had also reduced their higher education budgets mid-year (Hebel, Schmidt, & Selingo, 2002). In 2003, the University of Nebraska responded to declining state support by slating some of its academic programs for elimination and releasing some tenured faculty (Fogg, 2003). The state of Virginia cut the operating budget of its community colleges by 8% in 2002 and is expected to cut an additional 10% this year (Larose, 2003). In California, the state's record budget deficit has resulted in cumulative cuts of nearly 10% to the nation's largest community college system (Hebel, 2003; Mills, 2003).
Given the cyclical nature of economies, periods of reduced funding for public higher education should be expected, but they are not inconsequential, particularly for community colleges. The effects of budget reductions in state funding--whether large or small--are more profound in community colleges than in four-year colleges and universities primarily because the community college revenue stream is more homogeneous and dependent on state revenues (de la Garza, 2000; Education Commission of the States, 2000). Additionally, the community college emphasis on teaching to the exclusion of research activities results in few, if any, alternative revenue sources available to offset the impact of reduced state appropriations (de la Garza, 2000; Hebel, 2003; Mills, 2003).
Currently, the problem of reduced state revenue for community colleges is compounded further by enrollment increases. Rooney (2002) reports record enrollment increases in community colleges across the nation as students struggle to find affordable higher education. He also reports that enrollment increases of between 4% and 9% for fall 2002 were common in some state community college systems. Decreased state revenues, coupled with increased demand for instruction, have left many community colleges under escalating pressure to resolve the problem of serving more students with fewer resources.
Today's convergence of reduced state appropriations and increased demand for community college instruction is threatening colleges' ability to adhere to their missions and purposes, and arguably the problem is greater than ever before. Given these circumstances, an examination of the impact of prior fiscal crises on the missions of universal access and student support services is particularly relevant. This article looks to the past to illustrate the impact of fiscal contraction on access to community college instruction and support services, and explores previous responses to budget reductions, in particular enrollment management practices. Finally, the article discusses the impact of fee increases in the early 1990s on the California community college system in order to illustrate potential detrimental effects of increasing the cost of attendance on the missions of access and transfer.
Community Colleges' Mission, Students and Services
The impact of fiscal contraction on community college students cannot be fully appreciated without first understanding the students historically served by community colleges and their needs. In general, the student population at community colleges has been shaped by an expansive definition of access--one that encompasses the broad aspects of geography, affordability, academic preparation, educational objectives, and historic underrepresentation. Cohen and Brawer (2003) attribute the community college tradition of universal access to the American philosophy of opportunity for advancement for all individuals, regardless of social stratum, and to the mid-twentieth century initiative to establish localized institutions serving all of the educational needs of their surrounding communities. The pursuit of universal access and tradition of community service has resulted in community colleges enrolling a broad spectrum of students not likely to be served by other segments of the higher education system.
Students Served
In 1999-2000, a substantial proportion of all undergraduate students (42%) were enrolled in community colleges (Hoachlander, Sikora, & Horn, 2003). Among these enrollees, a sizeable number were from ethnic backgrounds considered historically underrepresented in higher education. In 2000, the National Center for Education Statistics reported that the percentage of minority students enrolled in community colleges was slightly over 34%, compared to less than 25% at four-year colleges and universities (Snyder, 2003). Hispanic and African American students comprised 14% and 12% of community college enrollment, respectively, compared to 7% Hispanic enrollment and 10% African American enrollment in four-year institutions. Further, the proportion of those who are first-generation college students or who require remedial coursework is substantial. A recent study of high school graduates entering community colleges reports that 30% have test scores reflecting mathematics competencies at the level of basic arithmetic operations, and 44% possess only fundamental reading comprehension skills with little analytical capacity (Hoachlander, Sikora, & Horn, 2003). Clearly, open access...
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