Historical Perspective on the Governance Structure of the

University System of Maryland

Statewide Commissions on Higher Education in Maryland

        Numerous statewide commissions have been appointed to study higher education in Maryland. Listed below is a brief summary of the recommendations made by some of these commissions as well as any significant changes made as a result of these recommendations. Although many of the commissions' recommendations were not directly adopted, these commissions have had a significant influence on the evolution of higher education policy in the Maryland.

1924 Janney Commission

        The Janney Commission recommended that the State continue to depend largely on private institutions to meet its educational needs and recommended against expanding the mission of the University of Maryland beyond its role as an agricultural college. The commission also recommended the creation of a statewide board to oversee higher education. The commission's recommendation to create a statewide oversight board was not adopted at that time.

1931 Shriver Commission

        The Shriver Commission recommended that the State phase out support for the independent colleges and recommended additional State support for the University of Maryland to expand its mission. In addition, the commission recommended that the State's two-year "normal schools" be expanded to offer baccalaureate programs. The commission's recommendations were not directly adopted.

1937 Soper Commission

        The Soper Commission focused on the adequacy of higher education for Maryland's African-American population. The commission recommended that the State acquire Morgan College (which was a private institution at that time) and that the Bowie and Coppin institutions (which were formerly two-year "normal schools") be expanded to four-year institutions. In addition, the commission urged the State to close the Princess Anne Academy of the University of Maryland because it was so poorly funded. For the most part, the commission's recommendations were not immediately adopted. However, the State provided a modest increase in funding to its historically black institutions, and Morgan College became a State institution in 1939.

1947 Marbury Commission

        The Marbury Commission recommended the following changes:

• establishing a statewide system of locally-controlled racially integrated two-year community colleges;
• expanding the University of Maryland College Park to 10,000 students;
• strengthening the medical and nursing colleges at the University of Maryland at Baltimore;
• enhancing funding and academic offerings at Morgan College;
• making Washington College a State institution and the Johns Hopkins Engineering School a State agency;
• abolishing the State's scholarship program;
• closing Princess Anne Academy of the University of Maryland, St. Mary's Female Seminary, Coppin State College, and Frostburg State College; and
• establishing a "State Board of Higher Education" to implement the commission's recommendations.

        The commission's recommendations were not immediately adopted. However certain recommendations were adopted in later years.

1955 Pullen Commission

        During a period of unprecedented enrollment growth, the Pullen Commission:

• reaffirmed the role of the community colleges as the primary means of meeting this growth;
• recommended expanding the public teachers colleges and liberal arts colleges into limited professional programs and graduate programs;
• recommended against establishing new campuses or branches in the Baltimore region;
• proposed the adoption of quantitative admissions standards at the public four-year institutions;
• recommended increased funding for public four-year institutions and a continuation of State scholarship programs for students attending independent colleges; and
• recommended a permanent "State Advisory Commission of Higher Education" to advise the Governor and the General Assembly.

        The commission's recommendations were not adopted at that time. However, the ideas put forth by the Pullen Commission had a significant impact on the evolution of higher education policy in Maryland.

1960 Warfield Commission

        The Warfield Commission recommended that the University of Maryland be expanded to cope with the continuing enrollment growth by building new university centers in the Washington/Frederick County region, the Central Eastern Shore, and the Greater Baltimore area. In addition the commission recommended transforming University of Maryland College Park to a campus with only upper-division and graduate programs. The commission's recommendations were not adopted at that time. However, the University of Maryland created the University of Maryland Baltimore County in 1966. This was the first public four-year institution created by the State.

1962 Curlett Commission

        The Curlett Commission recommended a "tripartite system" of public higher education comprised of the community colleges, the State colleges, and the University of Maryland. The commission's recommendations included:

• changing the State teachers colleges into comprehensive undergraduate liberal arts colleges offering limited graduate programs and creating a single State board of trustees to govern the State colleges and Morgan State University;
• establishing a division within the State Department of Education to coordinate the community colleges;
• maintaining the University of Maryland Board of Regents as it existed; and
• creating a statewide coordinating council for higher education charged with advising and statewide planning.

Most of the commission's recommendations were adopted in 1963. The State created the Advisory Council for Higher Education as the statewide coordinating council. The State colleges became liberal arts institutions under the governance of the Board of Trustees of the State Universities and Colleges and the community colleges were expanded throughout the State. In 1968 the Advisory Council's name was changed to the Maryland Council for Higher Education.

1975 Rosenberg Commission

        The Rosenberg Commission recommended the following changes in the structure of higher education in Maryland:

• abandoning the tripartite system by eliminating the statewide boards and creating individual institutional governing boards;
• creating a State-level coordinating board with considerable authority over the independent institutions and responsibility for planning, evaluating, budgeting, and developing programs for higher education;
• bringing the Baltimore institutions together into a super university governed by Morgan and developing Morgan as an urban-oriented and doctoral granting university;
• merging Salisbury State University and the University of Maryland Eastern Shore; and
• creating a State-level board for coordinating higher education with elementary and secondary education.

        Although most of the commission's recommendation were not adopted, in 1976 the State created a strengthened coordinating board. This new board, the State Board for Higher Education (SBHE), had the regulatory authority to approve new academic programs for public sector institutions and to make recommendations regarding new or significantly amended programs at independent institutions. In addition, SBHE had the power to authorize new degrees at all public independent institutions and could establish policies for the transfer of students between institutions. SBHE was responsible for developing and maintaining a plan for all postsecondary education, administering the State's program of aid to independent institutions, developing and monitoring the State's desegregation plan for public institutions, preparing a consolidated capital and operating budget for postsecondary education, and making recommendations concerning campus and agency budget requests.

1985 The Hoblitzell Commission

        The Hoblitzell Commission recommended that each public four-year campus have its own governing board, except the five campuses of the University of Maryland, which should remain under the governance of the University of Maryland Board of Regents. The commission recommended the creation of the Maryland Higher Education Commission (MHEC) as a State-level oversight agency with considerably more authority than the existing State Board for Higher Education. According to the Hoblitzell plan, MHEC would assume the duties of SBHE, the State Scholarship Board, and the Maryland Higher Education Loan Authority. Although the Hoblitzell plan was not adopted, the State passed legislation creating a stronger statewide coordinating agency and adopting several of the report's recommendations in 1988.

Activities Leading to the 1988 Restructuring of Higher Education

      In 1985 the State's public institutions were governed by four boards with little coordination at the statewide level. There was a sense that the individual institutions had failed to adopt differentiated missions and were trying to be all things to all students. The University of Maryland College Park had not achieved world-class status as a research university. In the Baltimore area, there were multiple institutions with little coordination and no comprehensive research university. As a result, there were concerns about perceived inefficiencies and duplicative programs. There were also concerns about the lack of enrollment by minority students in specific academic fields and concerns about access, retention, and advancement of minority students, especially from the undergraduate to the graduate and professional programs. In addition there were concerns about State funding for higher education and the high tuition rates charged to Maryland's residents.

        To address these issues, Governor Hughes appointed a commission chaired by Alan P. Hoblitzell, Jr., a Baltimore bank executive. The Hoblitzell Commission met for 15 months and issued a report in January 1987 which included 42 recommendations. The Hoblitzell report was released in 1987 just as Governor Schaefer took office. After receiving some negative reactions to the Hoblitzell report, Governor Schaefer delayed the issue of restructuring higher education until the 1988 legislative session.

        Prior to the 1988 session, Governor Schaefer met with the chancellors and presidents of the four-year institutions to solicit their feedback to the Hoblitzell report and seek their input in restructuring the governance of higher education. Following that meeting, John Toll, President of the University of Maryland, spearheaded a plan to restructure higher education. The "Toll Plan" recommended that all four-year public institutions, including Morgan State University and St. Mary's College, become part of the University of Maryland system. System governance would be the responsibility of the University of Maryland Board of Regents. Each campus in the system would have an advisory board with the powers delegated to it by the Board of Regents. The report proposed abolishing the State Board for Higher Education and creating a coordinating council with significantly weakened authority. The coordinating council would have no staff of its own and almost half of its members would be campus or system administrators. The "Toll Plan" was opposed by institutional officials, faculty members, key legislators, members of the State Board for Higher Education, and the Maryland Independent College and University Association.

        In 1988 Governor Schaefer introduced a bill titled "The Administration Action Plan for Higher Education." As introduced, the bill was not the "Toll Plan" nor the Hoblitzell plan, although it contained some provisions modeled after both plans. The Governor's bill was introduced in the Senate and the House during the early days of the legislative session, but did not move until the final weeks. A heavily amended bill passed the General Assembly on Sine Die, the last day of the legislative session, and was signed into law by Governor Schaefer (Chapter 246, Acts of 1988).

        The 1988 legislation created a stronger statewide coordinating agency, the Maryland Higher Education Commission. This commission was vested with more authority and responsibility than the existing State Board for Higher Education but without the control as envisioned by the Hoblitzell Commission. The legislation combined 11 of the State's public four-year institutions into the University of Maryland System governed by a single board. Morgan State University and St. Mary's College retained their independent governing boards.

        The legislation contained a statewide vision for higher education which was titled the Maryland Charter for Higher Education. That vision included a highly coordinated system with institutional and segmental collaboration which would be accomplished through the development of missions and a strong performance accountability component. The legislation included a focus on the following initiatives:

• enhancing the historically black colleges and universities, including the enhancement of Morgan State University as the State's Public Urban Institution;
• promoting the University of Maryland College Park as the flagship institution;
• maintaining and developing a research center in the Baltimore area;
• establishing a goal to increase State financial support for higher education;
• encouraging and supporting high quality undergraduate and teacher preparation programs;
• promoting excellence at each campus;
• recruiting and retaining nationally and internationally prominent faculty;
• promoting economic development;
• stimulating outreach to the community and the State;
• encouraging collaboration among segments and institutions of higher education;
• promoting access for economically disadvantaged students;
• increasing access, retention, and advancement of African-American students; and
• promoting equal educational and employment opportunities.

Highlights of the 1988 Legislation

Maryland Charter for Higher Education

      As part of the 1988 legislation, the Maryland Charter for Higher Education was adopted. This charter establishes the role of each governing unit in the higher education system and includes six guiding principles: (1) quality; (2) accessibility; (3) diversity of educational opportunities; (4) adequacy of State financial support; (5) efficiency and effectiveness of management; and (6) capability and creativity in leadership.

Establishment of the Maryland Higher Education Commission

        The State Board for Higher Education (SBHE) was dissolved and a stronger statewide coordinating authority called the Maryland Higher Education Commission (MHEC) was created. In addition, the State Scholarship Board was dissolved and these responsibilities were transferred to MHEC.

        In accordance with the 1988 legislation, MHEC is comprised of 11 members appointed by the Governor, with the advice and consent of the Senate. The Governor designates a chairperson of the Commission and appoints a Secretary of Higher Education, from a list of names submitted by MHEC. The Secretary is a member of the Governor's Executive Council and directs the staff for the commission.

        With the passage of the legislation, MHEC absorbed the powers and duties formerly performed by SBHE including issuing certificates of approval, coordinating overall growth and development of higher education, performing research, and retaining records. In addition, MHEC was given the following responsibilities:

• reviewing and granting final approval for each institution's mission statement to ensure consistency with the Charter;
• coordinating the State's program of performance accountability reporting;
• assessing the adequacy of operating and capital funding for public higher education;
• developing a program of desegregation and equal educational opportunity, including developing an enhancement plan for the historically black institutions; and
• administering statewide programs for student financial assistance.

Governance Structure for the Four-Year Public Institutions

        The Board of Trustees of the State Universities and Colleges was dissolved and the six institutions formerly governed by this board were consolidated with the five campuses of the University of Maryland to be governed by the University of Maryland System Board of Regents. Morgan State University and St. Mary's College remained independent, governed by their existing governing boards.

        The University of Maryland Board of Regents was created as a 17-member board consisting of 16 members appointed by the Governor, with the advice and consent of the Senate, and the State Secretary of Agriculture as an ex officio member. The Board of Regents elects a Chairperson from among its membership, appoints a Chancellor of the University of Maryland System, and selects the presidents of each constituent institution. The Chancellor is the Chief Executive Officer of the University of Maryland System and staff to the Board of Regents. The Chancellor is responsible for conducting systemwide planning, coordinating and arbitrating among institutions, providing technical assistance, and assisting the institutions in achieving their goals.

        Each institution within the University System of Maryland was granted the authority to establish an institutional advisory board to assist the president. These boards are currently known as the boards of visitors. In addition the Board of Regents was granted the authority to establish the following four councils: (1) Council of University System Presidents; (2) Council of University System Faculty; (3) Council of University System Staff; and (4) University System Student Council. These councils serve in an advisory capacity to the Chancellor and may, from time to time, make reports and recommendations to the Boards of Regents.

        The governing boards (including the USM Board of Regents, St. Mary's College Board of Trustees, and Morgan State University Board of Regents) are responsible for setting education policy; adopting mission statements; setting goals; establishing guidelines for tuition, fees, and admissions; and evaluating and approving budget submissions.

        The responsibilities of the University of Maryland System include:

• promoting excellence at each campus;
• developing a mission statement for each campus;
• recruiting and retaining nationally and internationally prominent faculty;
• pursuing research funding and private support;
• promoting economic development;
• maintaining and enhancing the University of Maryland College Park as the flagship campus;
• maintaining and enhancing a coordinated higher education center for research and graduate studies in the Baltimore area;
• recognizing the need to enhance its historically black institutions;
• affirming the need for increased access for economically-disadvantaged and minority students,
• encouraging and supporting high quality undergraduate and teacher preparation programs, and
• stimulating outreach to the community.

        The powers of the System's institutional presidents include:

• developing institutional missions and goals;
• developing new academic programs;
• formulating budget requests;
• fixing salaries;
• establishing admission standards;
• setting tuition and fees; and
• administering financial aid programs.

        Morgan State University was declared the State's public urban university with a mission of instruction, research, and service. The university is to offer graduate and undergraduate degrees with an emphasis on education that addresses urban concerns. The institution's Board of Regents must develop a plan, in consultation with MHEC, that implements its mission as the State's public urban university.

Governance Structure for the Community Colleges

        The governance of the State's community colleges remained under the State Board for Community Colleges which was charged with promoting and coordinating community colleges on a statewide basis.

Funding Goals in the 1988 Legislation

        A major component of the 1988 legislation was a commitment of additional State support for higher education. In fiscal 1990 the Governor was required to include funding in the budget in a specified amount for each institution based on the fiscal 1989 SBHE guidelines. Future State support was to be based on funding guidelines developed by MHEC. These guidelines were to be based on comparisons with a set of peer institutions approved by MHEC. The State established a goal of funding public higher education institutions at 100% of the guidelines developed by MHEC. In addition the legislation provided that the funding proposals for public four-year institutions must include a funding base which reflects the mission of the institution and include special initiative funding for academic programs at historically black institutions; and rewards for academic innovation and enhancement. Finally, a revised community college funding formula was enacted making the colleges less vulnerable to changes in enrollment.

Other Funding Changes

        The legislation included other changes which affected higher education funding. Auxiliary bonding authority was granted to University of Maryland System, Morgan State University, and St. Mary's College; a new loan assistance repayment program was established for certain graduates who become employed by the State, a local government, or a tax-exempt not-for-profit organization; and funding was enhanced for several scholarship programs.

Changes to the Governance Structure of Higher Education Since 1988

        In 1991 the State Board of Community Colleges was abolished and the Maryland Higher Education Commission (MHEC) was given authority to oversee the coordination of community colleges. Also in 1991 the Scholarship Reform Act restructured the financial aid programs offered by the State. This legislation established the Educational Excellence Award Program replacing the General State Scholarship Program in fiscal 1996. Under the new program, financial need is considered without regard to the legislative district or national test scores of recipients. The legislation also created a part-time grant program for math and science students and consolidated five existing manpower programs under one umbrella program called Economic Development Student Assistance Grants.

        In 1992 St. Mary's College was granted significant authority over the management of its budget as well as its personnel and procurement systems. The following year, the General Assembly granted St. Mary's College and the University of Maryland System additional authority to manage their capital expenditures programs.

        In 1994 legislation was enacted requiring each institution's boards of visitors to submit an annual report assessing the progress of its institution in meeting the goals consistent with its mission. The Board of Visitors of the University of Maryland College Park was also required to report on its progress toward meeting its goal of becoming the State's flagship campus. Also in 1994 Morgan State University was granted additional authority in the areas of personnel management and procurement similar to that which was granted to St. Mary's College and the Maryland Higher Education Loan Authority was abolished and these duties were transferred to MHEC.

        In 1995 Morgan State University and the University of Maryland System were granted additional flexibility in meeting the staffing needs of these institutions by allowing each institution to create additional positions as long as the positions were funded using existing funds and do not exceed a cap specified annually in the State budget.

        In 1996 the Higher Education Business Partnership Program was created requiring the public senior higher education institutions to enter into agreements with business entities for cooperative arrangements for work study, sponsored research, and sponsored business-specific training.

        In 1997 the University of Maryland System was renamed the University System of Maryland. In addition, several constituent institutions were renamed. An organizational chart of the University System of Maryland is included as Appendix 3, and a map illustrating the location of its 13 campuses is included as Appendix 4. Appendix 5 provides a chronological summary of Maryland's four-year public institutions. In addition, an organizational chart of postsecondary education is included as Appendix 6.