Regional universities: report and recommendations [1989]

REGIONAL UNIVERSITIES: REPORT AND RECOHMKNDATIONS

INTRODUCTION

Origins

The immediate origins of this report can be found in three distinct but

related activities undertaken by the Board of Regents during the recent past.

In September. 1987. the Board endorsed a recommendation by the Chancellor that

a Special Funding Initiative be proposed to the Governor and the Legislature

for support of certain new programs within the University System. One of the

premises on which the Special Funding Initiative was based involved a more

concerted effort to develop interinstitutional cooperation in the various

regions in the state. In January. 1988. the Board initiated a long-range

planning process for the University System. One of the purposes of this

planning was to identify important needs for public higher education services

within the state that were not being adequately met. and to develop the means

for responding to these needs. In March. 1988. the Board initiated a study to

determine whether there should be a consolidation or merger of Armstrong State

College and Savannah State College and of Albany State College and Darton

College.

In May. 1988. the Board ap~roved the recommendation of the Chancellor
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that there not be a merger in either instance. but that there be developed "a

formal structure" in both Savannah and Albany "to promote the services offered

by the institutions in each city" and that a concerted and concentrated effort

be made to develop "a sectional response to area needs in public higher

. . . education.

" On that occasion the Board also approved a motion by

Mr. Gigni11iat of Savannah providing

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as part of the Chancellor's further study and recommendations for area consortia of institutions and in concert with the current University .System long-range planning effort. a university-level delivery system of higher education services on a regional basis in the southern part of the state be considered.
The Planning Process These developments came after more than a decade of planning. debate. and
special studies about how to meet higher educational needs in the southern
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region. and particularly in the southeast and in Savannah. This report. and its two authors. are thus following some pathways that have been carefully surveyed and explored from several perspectives over the course of a number of years. It is also the case that many changes -- planned and unplanned -- have occurred. and some new elements have emerged. The most immediate and conspicuous of these changes is that the recent actions of the Regents have produced a period of intense study and planning by the institutions most affected throughout the southern region of Georgia and by the office of the Chancellor and other institutions as well. This planning. which has continued on into the spring of 1989. has mapped some new pathways and presented some new ideas and viewpoints. More important. the planning process has been given added substance because of the Chancellor's "Special Funding Initiative." This new program has brought ab9ut significant inter-institutional activity
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through its applied research and development centers. its teaching centers. and its foreign language and culture centers.
From the beginning of this planning. two sections have been identified as making up the southern region: a southeastern section and a southwestern section. Planning proceeded among two sets of institutions in the two sections. In the southeast. Armstrong State College and Georgia Southern College were the two leading and most active participants. with Savannah State

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College a sometime participant; and two two-year colleges. Brunswick and East Geor~ia. were also actively involved. along with the Skidaway Institute of Oceanography. Valdosta State College and Albany State College were the senior colleges involved in the plans developed in the southwest. though Albany State (like Savannah State) distanced itself from the plan put forward by a consortium that included these two-year colleges: Darton. Bainbridge. South Georgia. Waycross. and Abraham Baldwin Agricultural College. It must be noted that between these two sections into which the south was divided for the planning of the regional university concept. there are disputed border zones -- notably in the Brunswick and Camden county area.
Ancillary Questions This intense planning process of 1988-89 brought forward a number of
proposals and recommendations that. although they raise some important educational policy questions. are not intrinsic to the regional university concept itself. They include the effectiveness of the Regents Engineering Transfer Program and the related and larger issue of whether a new school of engineering is needed. the (already referred to) question of settling some disputed boundaries of institutional service areas. and the role of the Skidaway Institute. However important these and some other related policy
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questions generated by these plans may be. they are beyond the scope of the inquiry the Chancellor requested.
The Multi-Institutional Approach What has been most conspicuous and most significant in this planning
process in both the southeast and the southwest has been its regional and multi-institutional character. The Chancellor's admonition that there be a

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"sectional response to area needs in public higher education" has been the context in which the entire effort has moved forward.
Preparing the Report In preparing this report. the consultants had access to all of the
planning documents developed during 1988-89. as well as to recent written statements of some of the participating senior college presidents that have elaborated on or modified the plans. Further. the consultants were given comprehensive data about all of the participating senior institutions. including information about their faculties and recent faculty appointments. libraries. degree programs. accreditation reports. admissions. enrollments. and student data. Jointly or singly the consultants visited Valdosta State College. Albany State College. Georgia Southern College. Armstrong State College. and Savannah State College. Conferences were held in Atlanta with the presidents of Augusta College. Columbus College. Georgia College. and Kennesaw State College; and of Abraham Baldwin Agricultural College. Brunswick College. Darton College. East Georgia College. South Georgia College. and Waycross College. In addition to the campus visits. there were conferences in Atlanta with the presidents of Albany State College. Armstrong State College. Georgia Southern College. Savan~ah State College. and Valdosta State College.
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The consultants conferred also 'with the Chancellor. the Executive Vice Chancellor. the Vice Chancellor for Academic Affairs. and the Vice Chancellor for Research and Planning. In all instances. full and complete cooperation and complete freedom in the conduct of this study were given. The usual author's acknowledgement thus applies with particular force: Whatever merits are found in the report are due in significant measure to the administrators and faculty who gave assistance and who provided data; but whatever defects and errors are contained are the responsibility of the authors.

- 5The report is in three parts. The first is a presentation of some criteria that the consultants believe are particularly appropriate for determination of "regional University" status. The consultants have not presumed. in this regard. to have amended the Board of Regents procedures and criteria for "changing the mission and/or status of an institution." Instead. reference is made to what appear to be common practices nationwide. and to those criteria that are of special pertinence to the planning that has gone forward in response to the May 1988 action of the Regents. Then. following the lead given in the organization of the planning process in the University System. findings and recommendations are presented for the two groups of studies and institutions. Part two will address the southeastern section of the south Georgia region. and part three will address the southwestern section.
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I
CRITERIA FOR REGIONAL UNIVERSITY STATUS Introduction
The Board of Regents presently has policies which recognize institutions by type. Universities are recognized as Type I. with two categories -comprehensive and special purpose. The development of and recognition as a regional university would be a new category with a requirement for a carefully defined mission. different from but complementary to existing types of institutions in the University System.
A review of Section 206 of the Board's policies indicates the procedure and criteria for "Changing the mission and/or status of an institution." Among the factors in the needs assessment section are: qualitative criteria; expenditure per EFT student; recommended student populations; and community interest. Another significant factor in this section is the documentation on impact on other institutions. One of the standards that has been most visible is the EFT standard of 7500 for eligibility to move from Type II to Type I.
As the national level. many of the baccalaureate and higher degree awarding state colleges and universities belong to the American Association of State Colleges and Universities. the membership of which is typically characterized as comprehensive ~Fate colleges and universities. By and large.
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the mission definition of these'institutions includes both the traditional arts and sciences programs as well as applied and professional fields of study. Many had their start as institutions to educate teachers and still have a significant share of enrollment in education. As comprehensive institutions. they focus primarily upon the teaching mission. with applied areas of research and service. frequently to serve a defined regional area of their state. In this latter role. the mission statements often refer to the

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institution as- a regional college or regional university. The "regional" des;gnation in this context refers typically to the scope of off-campus programs and to the content and focus of public service and applied research programs. The institutions are thus essentially state institutions. as their names almost always indicate. enrolling students without reference to region. The use of the terms "regional" and "service area." thus has a particular and somewhat restricted thrust.
In any event. the terms regional and comprehensive are often intertwined in describing state institutions which have a predominantly teaching mission. have a mix of liberal arts and professional programs (almost always teacher education. and business). graduate work in several. mostly applied. fields. and an outreach and service component usually defined as continuing education to a prescribed geographical area. These institutions have. in many instances. changed names in several states from "college" to "university" without changing the basic mission and without compromising the regional service role.
The historic development of comprehensive regional institutions has been generally to add programs in business and allied health to its base in arts and sciences and education and. sometimes. within an overall state plan for higher education. add specialty fields to serve regional needs. Often. these
i degree programs are considered'for master's level developm~nt and. less frequently. doctoral work in applied areas -- traditionally in education.
The Issue The Georgia Board of Regents. in calling for a study to meet the needs in
the southern part of the state in 1988. clearly had in mind the evaluation of regional service. the kind comprehensive institutions typically focus upon.

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Within its classification structure. the Board has defined types of institutions. yet without a specific focus upon the regional college or university.
This issue cannot be addressed for the southern part of the state without looking at the state as a whole. For. as noted in the Regents' own policies. impact upon other institutions must be considered whenever a change in classification is considered.
A Proposal 1. The Mission Statement for a Regional College or University Should Contain: a. A predominate teaching mission and degree program authorization similar to senior colleges. b. New undergraduate degree programs which fit into the approved institutional mission statement and which meet demonstrated state and/or regional needs as defined in the Board of Regents Master Plan. c. Applied research to focus upon defined regional needs. d. Admissions and placement standards for undergraduate students which reflect some ~efocusing of faculty effort and assignment on
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applied research goals and graduate level instruction. e. Graduate program development in fields where there is a base of
institutional strength. a demand which makes the delivery of programs cost effective. and in disciplines which focus on applied regional needs. There are anticipated to be a few. selected master's degrees fitting these criteria and perhaps doctoral programs of a non-PhD nature where there is sufficient, sustainable demand for employed professionals.

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2. Applied Research -- (Projects. Centers or Institutes) A Board-designated regional institution may apply for and be funded
for non-degree research or service centers or projects. as Regents' categorical funding is available for this purpose. Research should be applied in nature. focusing upon needs within the defined service area and should contain. wherein possible. matching funds from within the region. Lines. or parts of lines. of academic positions may be assigned to this function for Board-approved projects or centers.
Service activities. likewise. may be approved and funding matched as in in-service workshops (non-degree) for school personnel. Normally. the Regents should expect each such center/project to have a director. part of whose assignment is to this activity. part to other academic functions of the institution. There should be an advisory board to the director with a proportion of those members not from within the institution. An annual evaluation should be conducted by an external reviewer and an annual report. including the evaluation. should be provided to the President and the Chancellor. 3. Service Areas and Off-Main Campus Delivery of Degree Programs
Since the regional institutions may have. for some purposes. geographic service areas. it is important that any such region be clearly
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defined for these purposes'by the Regents. It should also be specified that existing Type I universities. whether research universities or special purpose. are statewide in their missions of service. research and continuing education. and may be called upon to offer programs in the service area of a regional university.
Further. the Regents should call upon the Chancellor to adopt a review and approval procedure for initiating and for terminating degree

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programs in locations other than the campus of the degree-granting institution. Other state institutions within the region should have the opportunity to comment upon the proposal and. where appropriate and costeffective. should be encouraged to share. as a cooperating institution. in the use of facilities. faculty. courses. and library. 4. Doctoral Programs
Advanced graduate-level programs may be approved by the Regents for regional institutions. but not research intensive PhD programs. A clear example would be the EdD designed to meet the needs of employed professionals within the school system. These programs can be of two types:
a. A Cooperative Degree. There are existing models of this degree involving a senior college and a university. The preferred model is one which utilizes faculty from both universities and provides the "place-bound" student the opportunity to complete the entire program (including residency) at the participating location. The advantage of this model is one of quick response. when needed. and the flexibility to test the market to determine if a self-contained, stand-alone program could be sustained over time. Second, it permits the participating insti~ution to develop its faculty, library, and
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support activities under guidance from a successful program. There should be a defined role for graduate faculty on the regional campus to include a share of the instruction and membership on doctoral committees. b. Stand Alone Degree
The Regents may authorize a regional institution to offer the non-PhD doctoral degree if and when substantial faculty and

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institutional strengths are evaluated to invest in a high-quality program. Further. there must be a sustainable need demonstrated to project the program as cost-effective. The evidence in 1989 suggests that only the doctorate in education may meet that test.
When the needs of the students are evaluated. the cooperative doctoral degree can be. and frequently is. cost-effective and efficient when the entire program can be completed at a participating location. 5. Needs Assessment During periodic updates of the Board of Regents Master Plan. a Board policy should require all state institutions within a defined service region to meet and cause evaluations to be made of existing programs and applied research and service within that region. Requests for new or improved activities should be considered both as a part of the planning process and at the regular budget and program update decisions by the Board.

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II
THE SOUTHEASTERN SECTION The Plans
There is a need for a regional university in this southeastern section. It is clear that educational services and programs needed in this section are in some instances not now being adequately met. The principal problem is not so much the non-availability of degree programs because for the most part the needed programs are there at one or more of the institutions in the section. The problem now is principally how to find a structure that can marshall resources and organize an effective response. Thus. the questions are: How can the institutions of the University System in that section be more effectively organized to offer these needed services and programs? Should one or more of the senior colleges be made regional universities? Should a different institution be defined as the regional university? Finding the right answers is made more complicated by the dual character of this geographical section of Georgia. It is made up of large rural areas and of the rapidly growing Savannah metropolitan area as well. Each presents its particular kind of challenges.
This dual character. the identified educational needs of the region, the historical legacy of past plans and conflicts. and the present configuration
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of the University System institutions in this section all combined to bring forth initially from most participating institutions a plan for a multi-campus regional university. As initially developed, the proposal was, in effect, for a multi-campus system within the multi-campus University System. The president of the regional university would be at Georgia Southern College in Statesboro. There would be a provost as the chief administrative officer of the campus there and at Armstrong State, at Georgia Southern, and at East

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Georgia. Brunswick. and the Skidaway Institute. There would also be a "provost for university-wide academic programs." and this officer and the campus provosts would report to the President who would report to the Chancellor. Savannah State College declined to accept this kind of administrative structure. so it remained on the organization chart as a separate but cooperating entity.
Major modifications in this "system within a system" model were put forward later by some individual presidents. The modifications were decidedly toward what one called a "shared campus concept" in which institutional identity remained more firmly intact. though another president referred to his suggestions as a "way-station" on the road to the multi-campus system in the plan of September 30. 1988. It is not necessary to try to describe further that plan or the subsequent modifications. All the proposals maintained an inter-institutional character. rather than what one president called the "elevation approach" of simply changing the titles of some "senior colleges" to "universities." The proposals in their various forms have been marked -perhaps necessarily so. given the multi-campus involvements -- by considerable complexity or even intricacy in the structures for administration and governance that they have included. In addition to the multi-campus emphasis, apart from the call for an engin~ering school. the plans at all stages have
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focused more on graduate educat~on. seeing the needs in this area as paramount and as those that the existing institutional arrangements are less able to meet. and identifying the Savannah area as the focus of the problem.
That these graduate education needs. as well as undergraduate needs and various service and research needs, can be better met by arrangements for inter-institutional cooperation is apparent. Inter-institutional solutions will help to prevent unnecessary duplication. They will make it possible to

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build on existing strengths and resources in the institutions -- and these are considerable. They will make it possible to realize some economies of scale. Thus. while it would not be accurate to represent that the educational needs of this section can be inexpensively met. they can be met in an efficient manner that should not penalize other institutions in the University System or other regions of the state. Higher education is not inexpensive. but the returns are substantial and the costs of its neglect are high and far-reaching in their effects.
Some Guiding Principles While inter-institutional responses are required. it is important that
two compelling considerations guide the development of those responses. First. Georgia has for decades been served by a multi-campus governance and administrative structure in public higher education that is designed precisely to insure that all state needs for higher education are met. insofar as resources are available. as efficiently as possible. and that the public interest is paramount over institutional interests and aspirations. The solution to the problems of the southern region of the state. and the need for one or more regional universities will not be found in compromising this basic, existing condition. Instead. the solution will be better found in the
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Second. it is also the case that educational needs must be met and educational services provided through institutions. It is through strong institutions that the public is best served, and planning should balance the need for cooperation with the need for strong institutional faculties and programs. Obviously at any given time there will be differences among individual institutions in their overall strengths and in their readiness for new responsibilities.

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With these principles in mind. the following steps are recommended as a plan. for a regional university in the southeast section.
Recommendation One Georgia Southern College should be made a regional university and
designated Georgia Southern University. This recommendation is based on an assessment of the institution in several key areas: its overall enrollment level. its admissions standards. the strengths of the faculty and the proportion of the faculty holding the terminal degree. the scope of its undergraduate programs. the scope and productivity of its graduate programs. its library collection. the research activity of its faculty. its public service programs. and the accreditation status of the institution and its professional programs. By all of these standards. Georgia Southern meets or exceeds the standards for a regional university as that term is commonly used in American higher education.
No other institution in the southeastern region meets this test. Accordingly. in making this designation of regional university status for Georgia Southern. the Chancellor and the Board of Regents would. first. be acknowledging the attainments and the stature of the institution itself. Further. they would be assigning to Georgia Southern University the
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responsibility. under the direct'ion of the Chancellor. for assuming leadership in providing educational services throughout the southeast region in cooperation with the other institutions of the University System. particularly Armstrong State College and Savannah State College. Georgia Southern has developed already effective means for providing educational services to rural areas in this section. University status can augment and expand these services. but little is required in new organizational arrangements to

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accomplish this. It is in Savannah that new approaches are essential. and here. the two senior colleges of the University System in the city have important contributions to make.
Recommendation Two To respond to the needs for graduate education in the southeastern
section. and to provide a mechanism for determining the most appropriate division of labor among the senior institutions there. the Southeastern Georgia Regional Graduate Center should be established. The Dean of the Center would be the Dean of the Graduate School of Georgia Southern University. who would be appointed by the Chancellor on nomination of the President of Georgia Southern. In making a nomination. the President would consult with the presidents of Armstrong State College and of Savannah State College. The appointment would be for a five-year term. but with no restriction upon reappointment for additional terms. The Dean would have offices in Savannah as well as in Statesboro and would be responsible for the administration of the applied research and service centers and related activities established under the Special Funding Initiative.
An associate graduate dean would be appointed for campus operations at Georgia Southern and for each of the other two member institutions.in the
i Southeastern Regional Graduate 'Center: Armstrong State and Savannah State. The administrative board of the Center would be made up of faculty members from the three institutions -- Georgia Southern University and Armstrong State College and Savannah State College. The members would be appointed by the dean for designated terms from a list of nominees submitted by the president of each institution. In consultation with this board, the Dean of the Southeastern Georgia Regional Graduate Center would establish standards and

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procedures for the appointment of a single graduate faculty from among the thre~ senior institutions.
This structure would leave unchanged the present programs and administrative arrangements in undergraduate education at Georgia Southern University. Armstrong State College. and Savannah State College. Moreover. sound and effective program arrangements are in place for the three senior institutions to offer baccalaureate programs at the two-year colleges. and there is no need to make changes in these arrangements. There are some territorial questions that need to be resolved. but those are a separate issue.
Recommendation Three It is in offering graduate programs that new arrangements and policies
are necessary. For Georgia Southern University. existing arrangements in the operation of its master's programs on campus should proceed without any significant change under the direction of the regional dean and the associate dean. For off-campus programs in the southeastern section. except in the Savannah area. Georgia Southern University would continue essentially the same responsibilities it has today in master's programs for school teachers and administrators. in other professional master's degree programs. and master's
I programs in the arts and sciences. Graduate faculty from the other institutions in the regional center could. of course. be called up to take part. as additional resources might be needed.
It is in the Savannah area of this southeastern section that the regional graduate dean would have major responsibilities. Here is the crunch of the problem.

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For an initial five-year period. it is recommended that the following be the ~asic division of responsibilities for the participating institutions in the Savannah area:
(1) Armstrong State College currently is authorized to offer the master of science in nursing and the master's in health sciences. It would have responsibility for programs in the health professions. including the two currently offered and additional master's programs for which a need is identified and which are approved by the Regents. Armstrong State also offers the master's in education (M.Ed.). along with an M.A. in history. It would also have responsibility for the master's in education. with participation as determined to be needed by the Dean of the Regional Center of Georgia Southern in educational specialties it may not now offer. For subject area specialties for secondary teachers in the arts and science disciplines. both Georgia Southern and Savannah State could contribute. Armstrong State could also have responsibility for offering the master's in criminal justice.
(2) Savannah State College currently is authorized to offer the master of business administration. the master of social work. and the master of public administration. It would have responsibility for all three of these degree programs.
(3) Georgia Southern University currently offers a wide range of master's
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degree programs in the arts and sciences. in business administration. in public administration. in nursing. and in education. It would have responsibility for master's programs in the Savannah area that it is authorized to offer and which are not offered by either of the other two institutions. In addition. if it is determined that the Ed.D. should be authorized in the Savannah area. or elsewhere in the southeast section. that should be the responsibility also of Georgia Southern.

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Comments and Conditions In all of these areas it should be emphasized that the faculty involved
would all be members of the graduate faculty of the Southeastern G~orgia Regional Graduate Center. The primary institutional responsibilities outlined above would thus not preclude the involvement of other participating institutions. as appropriate and as needed. in these programs. It is recommended. moreover. that the Dean of the Regional Center make extensive use of the Coastal Center in Savannah in making programs available to citizens in the area. That Center should probably be the location of the administrative offices of the Regional Center.
In making these recommendations about a division of labor in this proposed Southeastern Georgia Regional Graduate Center. the consultants are saying. in effect. that some major features of the desegregation plan adopted by the Regents in 1979 should continue to be supported. It was that plan which assigned to Savannah State College the responsibility for business administration. while closing its teacher education program. and to Armstrong State College the responsibility for teacher education while closing its business administration programs. Racial duality persists. of course. if measured solely by enrollment statistics. but in fact profound change has occurred. The program movements were themselves rather drastic measures. and it took some years for the institutions to approach the levels of enrollment they had in the 1970s. Further program shifts at this time. or the reestablishment now of duplicative programs. would disrupt changes that have taken some years to accomplish.
This continuation of these institutional arrangements within the regional center context is recommended. as has been noted. for a five-year period. This limited term of years is attached for these reasons:

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This report has noted earlier the importance of building on established institutional strengths. It has noted impressive advances made at Georgia Southern College -- changes so impressive that it is recommended it"be made Georgia Southern University with primary responsibility for the Regional Graduate Center. Similarly. it is clear that. in the health professions. Armstrong State College has developed substantial strength. In the field of business administration. there is a more complicated situation. and this has become a major focus of interest. Here also Georgia Southern has built a strong program. accredited at both the baccalaureate and the master's level by the American Assembly of Collegiate Schools of Business (AACSB).
At Savannah State College. however. accreditation by AACSB has not been attained. and it is clear that it will take some time to attain it. The standards for accreditation of its undergraduate program could probably be soon met. but AACSB will not separately accredit the undergraduate program if the MBA is also offered. Nevertheless. the gains at Savannah State are striking. A strong dean of business has been appointed. The strength of the faculty is growing. A new building has just been finished. Certainly in its faculty and its administration. the School of Business at Savannah State is fully racially integrated. Any observer cannot but be struck by the strong commitment of the institution to have a School of Business of high quality.
AACSB accreditation has its critics (see. !.~.. the article by Kurt
Sandho1tz in the Wall Street Journal. May 1. 1989) and. like any accreditation measure. it has its shortcomings . But it is a good standard. it is widely recognized and accepted by the higher education community. An AACSBaccredited school of business is needed for many reasons in Savannah. and it is needed by Savannah State College. Indeed. that attainment now seems essential if the proposed (and current) assignment of responsibility for

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business education is to be sustained. Five more years seems a reasonable time in which to bring it about. This approach can better serve the educational needs of the entire Savannah community because it accepts now long-standing agreements made about responsibilities within that city. and it respects the integrity of both Savannah State College and Armstrong State College. institutions that. as recently as May of 1988. the Regents agreed should be continued as separate institutions with the University System.
There is another important educational issue that must be noted in reference to the Savannah situation. The Regional Graduate Center concept. as defined in this report. depends upon strong participating institutions with commitments to support graduate education with all that these commitments entail. At Savannah State College the most recent data indicate that a large majority of the first-time full-time freshmen were in Developmental Studies. This compares with about forty per cent for all the senior colleges combined. and about one-third or less for Armstrong State and for Georgia Southern. The Developmental Studies program is a key element in the Regents' program to insure equal access to higher educational opportunity and to increase the enrollment of minority and disadvantaged students. It is central to the deep commitment that Savannah State has to serve disadvantaged black youth.
A strong business school with an outstanding graduate program is faced with serious problems. however. in simultaneously carrying out the teaching. service. and research programs called for in the MBA in an institutional setting that involves major commitments to remedial instruction of undergraduates. This is true in all other areas of graduate education. Issues of scale are important in making judgments about being able effectively to meet both sets of commitments. This matter requires careful oversight by the Chancellor as well as by Savannah State College and the Regional Center.

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Savannah State's ability to serve the area in the manner it aspires to. and in a way the area is entitled to expect. in business education and in other areas of graduate education. may call for a reconsideration of priorities. It is also true that the Chancellor can give great assistance to the institution in building ties in the community that will support not only business education but other graduate programs as well. Five years affords a reasonable time in which to see how the factors can best be dealt with.
Conclusion The plan presented here is only an outline. It will have to be filled in
by the responsible officers of the University as it is carried forward. To give stability and continuity. it is recommended that the divisions of labor set out here be sustained for the first five years. During that fifth year. however. there should be a thorough assessment of the Regional Graduate Center and of the institutional missions in support of the Center. by the Chancellor and the Board of Regents.
The consultants believe that the recommendations set out here. if conscientiously administered and supported. can meet for the immediate future the aspirations and needs in the southeast that led to the planning of a regional university.

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III THE SOUTHWESTERN SECTION The Plans The well-developed demographic and economic analysis of this section described the lower participation rates in higher education than the average for the state and the anticipated benefits of economic development through higher investments in two- and four-year institutions. It is clear that community and regional development flourish now in areas where the State has invested in higher education. It is less clear that a multi-institution consortium. with a significant development of new degree programs at several levels. responds best to the regional university concept. The needs assessment for the region. which includes Abraham Baldwin Agricultural College. Albany State. Bainbridge. Darton. South Georgia.
Valdosta State and Waycross. focused upon program delivery of B.A./B.S. programs at the two-year college sites and several master's programs. and three doctoral programs in Education. Public Administration. and a generic teaching program called the Doctor of Arts. which is thought to be most relevant to community college or junior college programs.
The confederated university or consortium concept appeared to have three maj or goals:
(1) Increased opportunity for programs thought to be in high demand by making existing degrees accessible at secondary locations and starting many new programs ?esigned to attract new students.
(2) Developing applied research through graduate degree programs to solve regional problems.
(3) Using the Center or Institute Model to deliver services within the region. driven in no small measure by the investment in graduate education and research.

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It has been proposed. in this plan. that the strength of the seven institutions working together will create better regional planning. This will
. also provide an opportunity to select strengths as needed from the group. giving a larger resource base that can be applied to regional needs than any single institution acting alone could offer. Subsequent to the original Southwestern Plan. Albany State developed and submitted a supplemental document to the Chancellor. detailing in its own way how it reviewed regional needs and how it could best use its resources to respond as a regional institution.
The consultants note that each institution would remain as a single entity within the University System. yet would form a council to develop regional needs assessment. construct a budget. and petition the Regents for those resources which would implement the regional mission. as viewed collectively.
Much of the energy and enthusiasm which appeared to guide the development of the consortium plan stemmed from the lack of a State university in the southern part of the state. The regional university concept presented an opportunity for faculty planning and to visualize how the region could be a stronger sector with investments in education. social service. health activities. government. and business support.
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Each participant has made a contribution to the plan with some of the significant factors growing out of what typically has done best: adding new programs to meet the needs of society as perceived by the institutions; and planning for enrollment growth through these programs.
One characteristic of regional universities which has not been fully visualized. from faculty and academic leaders with whom the consultants interacted. is the use of parts of faculty lines or time to invest in public

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service projects. Such projects are a normal function of a university and are best developed through proposals to meet a targeted need, assigned by a dean or department head as part of a faculty member's workload and evaluated as part of the annual evaluation. These non-credit, non-degree activities are an essential part of university activity and often contribute (as in the case of agricultural extension from a College of Agriculture) more to area economic development and service than degree programs. A more focused vision of these kinds of services would be helpful in assessing how a college could respond to this particular mission as a regional institution.
The needs analysis has pointed up several applied research areas worthy of faculty investment of time. Among them are dealing with the school dropout issue and learning disabilities among school children, creating mechanisms for identification of and referral of clients for social service needs, and studies for land-use planning and environmental control. In each of these areas, an interdisciplinary team could be assembled to bring special talents together to bear upon real local problems. Further, this project research has all the potential to involve student assistants. Each also has the potential to generate matching funds, external to the institution. Again, the lack of opportunity to develop these kinds of proposals in the past has limited the vision in the proposal of what options are "out there." The need is high, and the talent bank is available. What is now needed is the ability and direction to make it work.
The faculty view, as expressed to the consultants, was to concentrate on additional degree programs, as if that would somehow make enrollment, economic development and applied research work. While some talented new faculty positions can assist in this matter, it is not at all clear to the consultants that expansion of degree offerings addresses the regional service model as

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much as some investment in applied research and service projects. Part of this concern stems from the broad array of program development without the specific focus thought to address regional needs.
Regional Planning Within The System One of the strengths of a single state university system is that planning
can be accomplished regionally or statewide during the same time frame and using the same methodology. This regional example attests to this strength. The rural nature of this section of the state and the significant distances between and among campuses make each institution very aware of the heavy investment in time for students who travel great distances for their education. Each participant in this plan has the interest of the regional and its particular locale clearly in mind.
The question before the Regents is whether this particular response and this array of programs. applied research and service. at a cost in excess of $15 million. is the most efficient and effective way to meet regional needs within the available higher education resources.
Recommendation One The confederated universitYjor consortium concept. as presented in this
plan. is not supported. While the concept of regional planning. within the University System is
sound. the management and coordination of programs and services already exist with the Board of Regents. In any state university system. priority choices must be made to focus scarce resources on a few. well-chosen targets of opportunity. This plan. perhaps because of the participation role of the several institutions. has attempted to respond to too many needs. start too

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many new programs. build upon too many faculty interests in developing degree programs. one level higher than presently authorized.
Many successful regional universities have a smaller agenda. focus resources more narrowly. and have a mission focus more pronounced on applied research and service functions and less on new program development than envisioned in this proposal.
It is unlikely the Board of Regents could support the overly ambitious program expansion. which would perhaps weaken several of the institutions by stretching existing and marginally funded new programs. As this would occur. the desire to cooperate would likely subside.
Recommendation Two The goals of program delivery to secondary locations. selecting applied
research projects and using centers to deliver services which have been identified. are indeed appropriate for a regional university. The Southwest area of the state is a large and diverse enough region to benefit from these goals.
The consultants are not able to determine whether additional bachelor's degree programs are needed from the review and whether upper division programs should be implemented at two-year college sites, but it would appear that the Master's of Social Work could be developed in the region with periOdic secondary site delivery with assistance from social service agencies and hospitals for clinical settings and contributions from adjunct staff. Further. the doctoral degree in education (EdD), now delivered in a cooperative fashion at Valdosta State. should continue. as it is meeting a regional need and the numbers of public school and college personnel are such that the enrollment should be sustained over time. Development of a doctoral

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program in public administration is not supported. Development of the Doctor of Arts degree is not recommended. Recommendation Three
Both two-year and four-year colleges in the region should have service to the public schools as a major mission to meet the needs of their region.
High schools' retention rates and graduate rates are low in the region compared to state and national data. All state institutions of higher education can assist in regional development by interfacing with the K-12 school system to provide services designed to address this need. Examples of supportive activities are:
a. Involving college students as "peer counselors" for high school students. identifying values of education. opportunities for posthigh school experiences. and support for remaining in and succeeding in high school. The College Compact model headquartered in Providence. Rhode Island. is an excellent model for student volunteerism which should be evaluated and considered.
b. Regular visits by high school students to area colleges for "college days." workshops. year-long proj ects for talent students. etc should be developed.
c. College faculty participation in public school programs. including curriculum discussions (~.~ math faculty discussing how high school courses mesh with college courses) should be regularized.
Some of these activities are taking place now or are being considered. However. the need is so great to invest time and effort to improve the supply line for college that each institution in the region should have as part of its evaluation by the Regents how they have been able to improve graduation rates in school districts nearby.

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Recommendation Four Valdosta State. as a single institution. is ready in many respects to
assume a position as a regional university within the southwestern section. and to target its resources on selected applied research and service projects. However. its current enrollments do not meet the standard set by the Regents in Section 206. Further. the recent loss of AACSB accreditation of the School of Business is added cause for concern. and it is apparent also that much more can be done by the School of Education to develop cooperative programs with the public schools in that section and to promote applied research programs that will benefit the schools.
The setting of an enrollment target as the criterion for change in institutional classification may have created the wrong kind of motivation for growth and service. Size is an important consideration. but the Regents may wish to revisit this particular standard in the light of the "criteria" proposed in this report. or of other and additional criteria. That review would afford time for Valdosta State to accomplish improvements in its School of Business and in its School of Education. and to review its admissions practices and the scale of its developmental studies effort. and further consideration could then be given to changing Valdosta State College to Valdosta State University. The fonsultants believe this change could be usefully accomplished in the near future.
Albany State similarly cannot now meet the enrollment standard in Section 206. Its present size is such that it could not sustain university-level responsibilities in a way that could achieve any economies of scale. and in many areas its size precludes its having the depth and breadth of faculty resources that would be needed. Possibilities of cooperative programs involving Valdosta State and Albany State should be further explored. and

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efforts should be made by Albany State to strengthen its current program offerings.
Conclusion The consultants believe that the criteria outlined in this report. and
the specific proposals made for the southeastern and southwestern sections of the southern region of Georgia. are responsive to the principal issues that were identified in the planning process that has gone forward since January of 1988. The tasks before the Chancellor and the Regents. and the participating institutions. are difficult. but success in carrying out these tasks will have a substantial effect on the continuing progress of the University System of Georgia. The task of building regional universities will be best carried out if done in accordance with principles set out in the basic statement of policy adopted by the Regents in 1932:
While the traditions. the welfare and the prestige of the several branches of the system will be an object of care on the part of the Board. all of their problems are to be finally resolved by the answer to the question: What will best serve the educational interests of the State as a whole? With this as the paramount consideration. the constant aim of this body will be to establish and maintain a system of higher education that will command the sympathy and support of our educational leaders. and at the same time successfully meet our needs by offering the young men and women of Georgia the maximum of education.
I To accomplish this result.' the Regents will. after careful study. take such steps that to them seem best to coordinate and unify these institutions so that they will be related in purpose and regulated in scope. The only competition in which these schools will hereafter engage will be for preeminence in service and scholarship.
June 5. 1989