Higher education system governance: an exploratory study of presidential decision making in the kentucky community and technical college system

History of Higher Education Systems

Similar to the classification of segmented and comprehensive systems outlined by Lane (2013), McGuinness (2013) distinguishes between a consolidated system and a flagship system to explain state approaches to the creation of a formal system structure. A

consolidated system is the result of a merger of previously existing campuses under a new central administration, whereas a flagship system results “from the extension of an established campus in a system either by the creation of new campuses or the absorption of old ones” (p. 47). According to McGuinness, systems were established as a means to address duplication among colleges and universities in order to contain competition, political power and influence, and an imbalance of resources. Still, states have enacted legislation over the last several decades to create higher education systems in response to specific state issues within the particular economic, political, and social landscape at that time. However, despite the specific state context, higher education systems were designed to serve state needs. Thus, to understand the governance of higher education systems, they must be situated in histories of their creation and the corresponding context of the state.
McGuinness (2013) provides the most recent and thorough history and evolution of higher education consolidated systems, which he suggests has been the most common developmental pattern over the past century. Patterns of consolidation include the transfer of separate colleges governed by a state board to that of a new consolidated system under a single board and executive, the consolidation of separately governed colleges and universities with flagship systems, or the consolidation of existing flagship and consolidation systems. The evolution of consolidated systems has occurred in designated periods, though McGuinness argues the periods overlap with no distinct beginning or ending. These historical periods include: (a) the progressive era (1880s to 1920s), marked by the centralization of state government; (b) the consolidation era (1920s to 1940s), characteristic of efforts to insulate higher education from direct political control and
influence; (c) the capacity building, expansion, and standardization era (1940s to 1970s), involving consolidation as a means to provide access through the creation of statewide coordinating or governing structures; (d) the rise of decentralization (1980s), involving increased institutional autonomy and flexibility; and, (e) restructuring amid a changing state role (1990s to 2003), during which decentralization continues but with new funding and accountability mechanisms to address interstate competition. The historical evolution of higher education systems indicates that periods of governance change are marked by periods of transitions in states. These periods of transition result in increased pressure on systems to address a public agenda, whether it be associated with economic development, educational attainment, workforce preparation, or overall state performance measures.