PROPOSED BEHAVIORAL COMPE'IENCIES I f ., FOR MEMBERS OF THE JUNIOR COLLEGE} » < . PRESIDENTIALCABINET , . ' Thesis for’the Degree Of Ph; D.‘ I , MICHIGAN STATE UNIVERSITY ‘ TIMOTHY G. DAVIES ‘ ', 1970 , . LIBRARY Michigan Sane University THESIS This is to certifg that the thesis entitled Proposed Behavioral Competencies ‘ For Members Of The Junior College 1 Presidential Cabinet \ presented by Timothy G . Davies has been accepted towards fulfillment of the requirements for “innulirahon “ Doctor degree in.lhngbyI “titu- fut. ka’z 24/; A; ml).— Major professor DateMiJEZO— 0-169 ABSTRACT PROPOSED BEHAVIORAL COMPETENCIES FOR MEMBERS OF THE JUNIOR COLLEGE PRESIDENTIAL CABINET By Timothy G. Davies The purpose of this study was threefold. First, the general cabinet competencies needed by the members of the junior college presidential cabinet were generated. Second, the behavioral manifestations of these competencies were described in behavioral language to enable an observer to evaluate when the competency was being successfully accom- plished. Third, different learning experiences were sug- gested to assist doctoral candidates in the Michigan State University Junior College Leadership Training Program in successfully acquiring each of the stated general cabinet competencies. The methodological design was an inductive-deductive approach to the development of the general cabinet com- petencies, the behavioral manifestations of those com- petencies, and the learning experiences through which doctoral candidates in the Michigan State University train- ing program could acquire those competencies. Through a thorough review of the professional literature, research studies, and job specifications which were directly related to junior college administration,'over 200 statements con- '— Timothy G. Davies cerning general administrative qualities were listed. This inductive approach formed the basis for the rest of the study and provided data from the "real” world of junior college administrators. Upon analyzing the over 200 responses it was noticed that grouping patterns or clusters became evident. From these various clusters nine general cabinet competencies were developed so that the wording of these competencies encompassed the letter and the spirit of the representative statements from which they came. Once the general cabinet competencies were developed the behav- ioral manifestations of these competencies were deductively generated and written in behavioral terminology. Finally, a framework was developed to organize the learning experiences generated from the behavioral manifes- tations of the general cabinet competencies. The first step in the development of the framework was that of establish- ing criteria to determine which behavioral manifestations would be learned within which specific learning situations. Bloom's six classes of the taxonomy were divided such that each of the three learning experiences became responsible for assisting the candidate in learning two of the classes of intellectual skills. Thus, the simulated cabinet in- corporated learning experiences to assist the candidate in developing the intellectual skills of synthesis and eval- uation, the professional seminar in community college assisted the candidate in acquiring the intellectual skills —;k —___.‘ Timothy G. Davies of application and analysis, and the courses, seminars, and independent study experiences assisted the student in acquiring the intellectual skills of knowledge and compre- hension. The following conclusions can be made from this study: 1. In listing statements made by and about junior college administrators concerning the general skills, abilities, and knowledge needed in junior college administration a natural grouping or clustering exists from which more general statements of competencies may be deduced. 2. Through an evaluation of the general competencies the expected behavior manifested by the admin- istrator is able to be deduced and stated in behavioral terminology. 3. An evaluation of the behavioral manifestations deductively generated from the general cabinet competencies produces varying degrees of com- plexity of the expected behavior. 4. The varying degrees of complexity of the expected behavior can be ranked on a continuum from least complex to most complex. 5. Learning experiences can be developed and organ- ized to assist the learner in systematically acquiring the expected behavior by beginning with the least complex behavior required and moving to the most complex behavior required. 6. The paradigm developed to organize the general cabinet competencies according to the functions of the cabinet, i.e. planning, decision making, and evaluating is all inclusive for those com- petencies developed in this study. PROPOSED BEHAVIORAL COMPETENCIES FOR MEMBERS OF THE JUNIOR COLLEGE PRESIDENTIAL CABINET By '\ t Timothy G: Davies A THESIS Submitted to Michigan State University in partial fulfillment of the requirements for the degree of DOCTOR OF PHILOSOPHY Department of Administration and Higher Education 1970 G— 951710.? /-.9-o- 7/ © 1971 TIMOTHY GRAY DAVIES ALL RIGHTS RESERVED ACKNOWLEDGMENTS I would like to extend my sincere appreciation to Dr. Max Raines for his personal wisdom, his professional counsel and most of all for himself. I wish to acknowledge the energy, interest and enthu- siasm which Dr. Gunder Myran shared with me in this venture. To Drs. Van Johnson and James Nelson, I wish to express my appreciation for the careful readings and thoughtful questions concerning this manuscript. A special acknowledgment to Helen Geiger whose sunshine permeated the entire experience of which this manuscript is merely symbolic. And to Sharyon Morgan, a sincere thanks for accepting the responsibility of the final typing and printing of this manuscript. I would like to say to you, Mom and Dad, that your interest, curiosity, and concern, which made you a part of the final oral examination, are a few of the many reasons that this dissertation is completed. Scott, Todd, and Shelley, your naivete' to the task offered fresh perspectives and realistic priorities as we took this adventure together. To you, Nancy, for your help which came in so many ways and at so many times and the best part was that it never came through the typewriter. ii PREFACE This study represents and attempts to develop a normative statement concerning the competencies which are needed by junior college administrators to function effectively as members of the presidential cabinet. It is unusual in that the author has accepted all such state- ments by and about junior college administrators and from these has deductively generated the general cabinet com- petencies, the behavior expected of an administrator successfully completing those competencies, and the learning experiences designed to assist doctoral candidates in acquiring the stated behavior. While the study is admittedly biased by the author and his perceptions, it is believed that the logical sequence of development builds a strong enough argument for serious consideration and testing in the "real" world of the junior college adminis- trator . ACKNOWLEDGMENTS . . . . . . . . . . . . PREFACE CHAPTER I II III TABLE OF CONTENTS THE PROBLEM . . . . . Introduction. . . . . . . . . Purpose of the Study. . . . . . Definition of Terms . . . . . . Community College. . . . . Presidential Cabinet Competencies . . Junior College Leadership Training Programs . . . . . . . . Methodology . . . . . . . . . Organization of Study . . . . REVIEW OF LITERATURE. . . . . . Introduction. . . . . The Decision Making Process Preparation of Junior College Administrators Behavioral Statements of Competencies THE DEVELOPMENT OF THE GENERAL CABINET COMPETENCIES . . . . . . Methodology . . . An Illustration of Competency Development Requirements for the Development of Behavioral Manifestations. An Expanded Definition of Competency. General Description of Competencies Goal Definition Competency Informational Abstracting Competency 0 Long Range Planning Competency . Problem Analysis Competency. Legislative Analysis Competency. Page mmmle-J \DKD 12 12 16 33 42 CHAPTER PAGE Due Process Competency . . . . . . . . . . 85 Report Analysis Competency . . . . . . . . 87 Leadership Analysis Competency . . . . . . 87 Interaction Analysis Competency. . . . . . 88 IV THE DEVELOPMENT OF THE BEHAVIORAL MANIFES- TATIONS OF THE GENERAL CABINET COMPETENCIES . . . . . . . . . . . . . 90 Introduction. . . . . . . . . . . . . . . . . 91 Methodology . . . . . . . . . . . 91 Definition of Terms for Describing Behav- ioral Competencies . . . . . . . . . . . . 96 Behavioral Manifestations . . . . . . . . . . 97 Goal Definition Competency . . . . . . 97 Informational Abstracting Competency . . . 99 Long Range Planning Competency . . . . . . 100 Problem Analysis Competency. . . . . . . . 101 Legislative Analysis Competency. . . . . . 102 Due Process Competency . . . . . . . . . . 103 Report Analysis Competency . . . . . . . . 104 Leadership Analysis Competency . . . . . . 105 Interaction Analysis Competency. . . . . . 106 V THE DEVELOPMENT OF THE LEARNING EXPERIENCES . 109 Framework for the Learning Experiences. . . . 110 The Simulated Cabinet. . . . 114 Professional Seminar in Community College. 116 Courses, Seminars and Independent Study. . 118 The Internship . . . . . . . . . . . . 122 The Matriculation Process. . . . . . . . 124 Organization of Learning Experiences. . . . . 126 Goal Definition Competency . . . . . 127 Informational Abstracting Competency . . . 128 Long Range Planning Competency . . . . . . 129 Problem Analysis Competency. . . . . . . . 130 Legislative Analysis Competency. . . . . . 131 Due Process Competency . . . . . . . . . . 132 Report Analysis Competency . . . . . . . . 133 Leadership Analysis Competency . . . . . . 134 Interaction Analysis Competency. . . . 135 A Summary of the Development of the Study . . 126 Chapter I. . . . . . . . . . . . 126 Chapter II . . . . . . . . . . . . . . . . 126 I CHAPTER Chapter 111. Chapter IV . . . . . Chapter V. . . . . . . . . Conclusions Recommendations for Further Research. BIBLIOGRAPHY. APPENDICES. . . . . . . . . . . . . . . PAGE 136 137 138 139 140 141 150 LIST OF APPENDICES APPENDIX A General, Non Cabinet Competencies. B Inter Positional Competencies. . C Inter Personal Competencies. . D Criterion Test for Candidate Evaluation. PAGE 151 154 156 158 CHAPTER I THE PROBLEM Introduction Junior college administration entered the educational spotlight in the 1960's due in part to the unprecedented growth in the number of junior colleges being established, the multiplicity of functions associated with junior college education, the apparent lack of agreement con- cerning the administrative organizational pattern for a junior college, and the desperate need for large numbers of qualified administrators to fill its administrative positions. Although there is little research available in the area of junior college administration, significant studies have recently been completed which highlight some basic problems and needs for future consideration. Pax (32), Burnette (26), and Stanbury (33) have analyzed the junior college administrative organization with emphasis on the internal structure. Stanbury concludes his study of the administration of Michigan junior colleges with the state- ment, ”The titles of administrators are in a confused state ..... The duties have not been commensurate with the titles and as a result, there has been much overlapping of respon- sibilities.” (33:109) Since Stanbury's research, attempts have been made to develop a standardized description and lists of specific duties and responsibilities for various administrative areas in the junior college. Representative of these efforts have been studies by: (l) Myran (31) (66) (67), who explored the role, function and programs in the area of community services; (2) Van Istendal (93) who surveyed the organization, operation, and administration of the institutional research programs within selected com- munity colleges; (3) Day (28),who surveyed the specific duties and job specifications of academic deans at selected junior colleges; (4) Caughey (27), who completed a des- criptive study of business managers at certain junior colleges in the United States; and Traylor (34), who examined the junior college chief administrator and his practice of delegating authority and responsibility. In addition to the studies of administrative positions, research has recently been completed which evaluates the university programs responsible for training these junior college administra- tors. Representative of these studies are: (l) Mealey (30), who completed an historical and evaluative study of the Midwest Community College Leadership Programs in Michigan and (2) Waltz (36), who evaluated the curriculum content in selected graduate preparation programs for junior college administrators. While these studies are significant in their contri- butions concerning the role, duties, and job specifications of specific junior college administrative positions, there has not been an examination of the functioning of those positions within the presidential cabinet. The presidential cabinet in junior college administration refers to that group of men designated as second in command to the president and responsible for specific areas and functions of the community college. One of the most comprehensive studies, although somewhat dated, is the Ayers and Russel study of the internal structure of institutions of higher education. As one part of the study, Russel and Ayers examined the internal structure of the public community college and con- cluded that there were four major administrative areas which were most prevalently designated as second in command: (1) academic affairs area, (2) student services area, (3) business management area, and (4) institutional development area. Since this study there have been several major thrusts in the junior college movement which have resulted in the establishment of two other commonly acknowledged administrative areas of responsibility. The advancement of the technologies, educational television, computers, and systems design for instruction has caused many junior college presidents to initiate a position reSponsible for the learning resources or instructional resources of the college. The second thrust had as its goal the integration of the community college and the community. Understanding the community needs, culture, objectives, and resources has become a major goal for community college administra- tors and has, therefore, created an administrative area of responsibility referred to as community services. Although many junior colleges do not have all six areas of respon- sibility represented by a different individual, these six areas are well enough defined and very often designated as second echelon positions and the specific individuals filling these administrative positions constitute the presidential cabinet. The decision making process underlies almost every task confronting the members of the presidential cabinet. Their responsibilities include the planning, evaluating, and decision making functions which are necessary in leading the college. The importance of this group of decision makers is well documented in the literature of administra- tive theory. Barnard is representative of this view in his statement: I know of no important organizations, except some churches and some obsolete governments, in which the highest objec- tive authority is not lodged in an or- ganized executive group, that is, a ”highest” unit of organization. (2:179) It is the author's contention this ”executive group” re- ferred to by Barnard is paralleled by the presidential cab- inet in the junior college administrative organization. The determination of how decisions are made at the junior college level is often masked rather than revealed by the organizational chart. Richardson cites Galbraith's com- ments concerning organizational charts: Galbraith contends that the stereotyped organization chart has been replaced by group decision...Galbraith emphasizes that intelligent decision making requires information which may be possessed by only a few individuals and that in effect, administration today is by groups not by individuals. (53:18) Within this context Richardson sees little room for the president who wishes autonomous decision making power. ...the role of the administrator is dras- tically changed if we accept the hypothesis that authority is delegated upward rather than flowing downward...we compound this conclusion by assuming that increasingly the decision making in our institutions of higher education will be the result of group action rather than omniscience of a single individual... (53:18) Because of the various areas of responsibility represented on the presidential cabinet, the expertise of each man is needed to provide accurate and adequate data upon which the group may base its decision. While the previous studies have detailed the abilities and expertise needed in each of the specific positions, studies have not been conducted to determine those general competencies needed by all members of the presidential cabinet to enable each of them to function as a member of a decision making team. The question is "what are these general competencies needed by each member of the presidential cabinet which supercede the specific expertise of the individual area of respon- sibility?" Although a detailed explanation of competency and the generation of competencies relative to the presidential cabinet will be presented in a later chapter, a definition is offered here for clarity. /An administrative competency is the ability to synthesize and actualize relevant know- ledge for the purposes of (a) facilitating institutional planning and development, (b) resolving complex problems which interfere with achievement of organizational goals and objectives and (c) evaluating institutional progress toward goal attainment. Above all there is a need to state these competencies in behavioral terms/so that each in- dividual candidate preparing to become a junior college administrator will be able to determine his ability to accomplish each competency. 0diorne states that ”Self measurement against predetermined standards is superior to the boss' measurements of results." (17:168) He further states that the ”...basic technical flaw in most appraisal systems is the lack of adequate standards of performance for the management job.” (17:174) Simon adds that "Aims must be stated in tangible and objective terms before results can be observed and measured." (22:176),/It seems clear that any competencies required of the members of the presidential cabinet must be designed to describe and evaluate their observable behavior./rThese men on the pres- idential cabinet are key in the dedision making process. Considered in this light March and Simon's comments seem particularly appropriate: ...the problems of making operational the definitions of key variables and of pro- viding empirical verification for those propositions that can be made operational seem particularly pressing. (13333 Purpose of the Study The purpose of this study is threefold, First, the general cabinet competencies needed by the members of the junior college presidential cabinet will be generated. Second, the manifestations of these competencies will be described in behavioral terminology to enable an observer to evaluate when the competency is being successfully accomplished. Finally, different learning experiences will be suggested to assist doctoral candidates in the Michigan State University Junior College Leadership Train- ing Program in successfully acquiring each of the stated competencies. Definition of Terms Community College The terms community college, junior college and commun- ity-junior college will be used synonomously and are defined as those institutions listed as public junior colleges in the 1970 Directory of the American Association of Junior Colleges. Presidential Cabinet The presidential cabinet at the junior college level includes those administrators designated by the president as being second in line or second in command. For the purpose of this study the presidential cabinet would include men in the following areas of responsibility: (1) chief administrator, (2) academic and faculty affairs, (3) student personnel services, (4) business management, (5) insti- tutional research and development, (6) instructional resources and development and (7) community services. Competencies As defined earlier in this chapter an administrative competency is the ability to synthesize and actualize relevant knowledge for the purposes of (1) facilitating institutional planning and development, (2) resolving com- plex problems which interfere with achievement of organ- izational goals and objectives, and (3) evaluating institutional progress toward goal attainment. Junior College Leadership Training Programs These training programs for future junior college administrators were initiated by the American Association of Junior Colleges and funded in part by the W. K. Kellogg Foundation. At present there are eleven university programs specifically designated to train community college leaders. University of California, Berkley University of California, Los Angeles Columbia Teachers College Michigan State University Wayne State University University of Colorado University of Florida Florida State University University of Michigan University of Texas, Austin University of Washington Methodolo The following methodological steps will be used to accomplish the purposes of this study: A; The related literature will be reviewed to determine quantity and quality of past research which is relevant to this study. This review should encompass professional literature dealing with junior college administration, pro- fessional literature relevant to administrative theories and concepts, job specifications as written by the junior college personnel, past studies which examine specific positions and duties of cabinet members, and a review of the past studies and research which analyze the goals, objectives, courses and experiences of the national train- ing programs for junior college administrators. 2;_ From the review of the literature, research studies, and job descriptions of junior college administrators, a list of general cabinet competencies will be generated. The use of the writings and experiences of junior college administrators will provide the reality base from which to generate the competencies. 3; After the general cabinet competencies have been generated inductively from the junior college field, the behavioral manifestations will be deduced from those com- petencies. The behavioral manifestations will be detailed so that an observer will be able to determine when the competency is being completed successfully. Thus, the behavioral manifestations will be stated in behavioral terminology. 4; Once the behavioral manifestations have been determined, appropriate learning experiences will be developed to assist the doctoral candidate in successfully acquiring the behavioral manifestations required by the general cabinet competencies. 11 Organization of Study Chapter I iS the first of five chapters presented in this study. Chapter II is devoted to the review of literature. There are three basic concerns which are reviewed: (1) the decision making process in administrative theory, (2) pre- sent job specifications and present status of the members of the presidential cabinet, and (3) the rationale and techniques of using behavioral terminology in goal setting and job performance analysis. Chapter III is devoted to the development of the general cabinet competencies and an expanded explanation of each of the competencies developed for junior college cabinet members. Chapter IV is devoted to the development of the behav- ioral manifestations deduced from the general cabinet com- petencies. Chapter V is devoted to the development of the appro— priate learning experiences deduced from the behavioral manifestations. CHAPTER II REVIEW OF LITERATURE Introduction Community college administration has been described by many educators and theorists but none have described it as glowingly yet as nebulously as Blocker, Plummer, and Richardson. In describing their concept of administration as: (1) creative in that ”...it provides both the struc- ture and the functions necessary for the systematic opera- tion of an organization.” (4:171), (2) able to "...main- tain equilibrium and stability within the organization, ...without stultifying the creativity of individuals and the necessary trend toward gradual change and improvement.” (4:171), (3) ”...effervescent enough to stimulate organiza- tional change and modification and adaptation to changing needs.” (4:171), While community college administration may be all that these men imply, it is very difficult to find any research which would substantiate their claims. The dearth of research in junior college administration is noted in recent dissertations of Traylor (34), Day (28), Caughey (27), Burnette (26), Fax (32), Gold (29), and Stanbury (33). Although perusal of the dissertation abstracts shows that more dissertations on junior college administra- tion have been written since 1965 than prior to 1965, little 12 -¥—k 13 research has been reported in the professional journals. In an article written for the March, 1970 Junior College Journal, Richard C. Richardson, Jr., President of Northampton County Area Community College, Bethlehem, Pennsylvania, reiterates the absence of articles concerning administra- tive structure or concepts in the community college. This lack of information has led many people to wonder whether junior college administrators are following any concept of administrative theory. Richardson himself states: ...the question can legitimately be raised as to whether a science of administration may be said to exist with respect to two- year colleges. (53:16) The question above is rhetorical as far as Richardson is concerned since he attacks the administrative theory being used in the community college and accuses junior college administrators of running on a "punch bowl” concept of authority which he describes as: ...defining authority as representing the power vested in the governing body by leg- islative act or charter which, in turn, flows through the president to the officers or agents whom he desigantes...this flow of authority enables the officers of the college to issue directives which guide the activities of the institution...this simplistic theory of authority stands today as the central stumbling block to improve involvement of all segments of the academic community in the decision making process. (53:17) Richardson's implications are that many two year college administrators believe that anytime other individuals or groups are involved in the decision making process the amount of authority given the top administrator is diminished. Thus, ”...if you ladle out enough authority, the bowl will be completely empty." (53:17) Richardson's reference to Barnard and Simon and their definition of authority explains his antagonism toward the "punch bowl” theory. Barnard and Simon would agree that authority is the ”... extent to which one individual within an organization will accept the directives issued by another.” (22163) or ”... whenever he (the individual) permits his behavior to be guided by a decision reached by another, without indepen- dently examining the merits of that decision." (57:21) Other researchers have pointed to the lack of or need for administrative theory in the community college. Stan- bury, in his concluding remarks concerning the administra- tion of Michigan junior colleges, recommends that ”there be extensive application of administrative theory in organ- izing and reorganizing administrative structures." (33:111) While a definition for administrative theory is often elusive, Simon's definition provides an initial direction for the junior college administrator: 15 ...analyzing the manner in which the de- cisions and behavior of operative employees are influenced by the organization. (57:16) While not phrased in identical wording, McCammy creates the same impression of administrative theory: The making of decisions is at the very center of the process of administration, and the discussion of administration will be more systematic if we accept a frame- work for the analysis of decision making. (46:41) Griffiths concludes that organizations take their form from the decision making process, and the differences among organizations occur in the modifications of the decision making process as required by their tasks and the way in which others perceive those tasks. Griffiths considers administration and administrative theory in much the same way as Simon. The specific function of administration is to develop and regulate the decision making process in the most effective manner possible. (11:73) Richardson suggests that in order for community colleges to achieve their purpose the administration of the organ- ization must implement two important functions: (1) it must achieve coordination and (2) it must solve problems. (53:19) It seems then that there is consensus regarding the lack _———L 16 of research studies published in the professional literature which are concerned with the administration of community colleges. It also seems that the studies being completed at the doctoral level reflect a need for administrative theory to be the basis for junior college organizational structure. According to the authors cited, administrative theory has as its center the decision making process, which Richardson has called to the attention of his junior college colleagues. It w0uld seem, then, that the major responsi- bility of the presidential cabinet is this decision making process; thus, a review of that process is in order. The Decision Making Process Herbert Simon discusses the idea that the values and attitudes inherent in a society are normally thought to be reflected in the administrative organization of the various parts of that society. ...administration in a democracy will be in some sense democratic while adminis- tration in a totalitarian system will be authoritarian. Thus far, the thesis has been expounded, but by no means demon- strated. (22:131) Simon's reference to democratic administration reflects his biases for the group decision making process which is so prevalent in his writings. Because of the various conno- tations attached to decision and decision making, their use 17 during this section of the study is as follows: (1) "The term decision is to be applied to all judgements which affect a course of action." (11:76) (2) The decision making process refers to the decision and to those acts which are necessary to effect the decision and so actually affect the course of action of an organization. Junior college admin- istrators are becoming more aware of the decision making process within their own organizations. Benjamin Gold explains in his study, ”Quantitative Methods for Adminis- trative Decision-Making in the Junior College” (29) that there are three major presses for junior college adminis— trators which require decision making techniques. The first press he refers to is the burgeoning enrollments of many junior colleges. The second is the competition for the tax dollar. Timg_magazine pointed out that in the latter part of the sixties over twice as many public school millage issues were turned down by the public than were turned down in the early sixties. Gold also points out that segments of California tax payers are calling for tuition fees in public higher education, including the junior college; thus, ”the concept of tuition free college education is in jeopardy.” (29:5) The third press reflects the number of increasing responsibilities of the junior college. With more and more people attending the junior college, there are more high quality academic students and more disadvantaged ‘——L 18 students, more students desiring technical-vocational training and more demanding leisure-time education; thus, the on-campus program grows. However, junior colleges are beginning to assume a larger role within the community as noted by the rapid growth and development of the community services programs. (29:4-5) Gold's contention is that these presses will eventually, if they are not already doing so, force community college educators to refine their decision making processes. In addition to the presses cited by Gold there are many current issues confronting the junior college and its administrators which will require decisions in the near future. Some of the emerging issues which are prevalently found in the literature: (1) what limitations, if any, need to be placed on the "open door” policy? (2) should a junior college ever demand a student leave for scholastic reasons? (3) what type of state plan, if any, would be best for the junior college? (4) should the junior college be a social change agent and if so to what extent? (5) what is innovation? (6) what organization is the ”best” for a multicampus district? The presses on the junior college increase as the halo effect begins to wane and citizens and educators begin to hold the junior college accountable for the effects of these important decisions. That decisions must be made is obvious; however, the 19 consequences of those decisions must be thought out well in advance of the actual decision. Simon refers to the func- tion of knowledge within the decision making process as the determination of which consequences follow upon which alternative strategies. He states that: It is the task of knowledge to select from the whole class of possible con- sequences a more limited subclass, or even (ideally) a single set of conse- quences correlated with each strategy. (22:68) With the selection of consequences paramount in the decision making process, a great deal of responsibility is placed on the man or men who must exhibit this behavior. Simon feels it is impossible for any one human being to be able to accomplish this effectively. His argument opposing a one man effort states: The number of alternatives he must explore is so great, the information he would need to evaluate them so vast that even an approx- imation to objective reality is hard to conceive.(22:79) Richardson presents his case for a group decision body as opposed to one man control in his recent article (53) stating that the major concern of the junior college should be problem solving and for this to be effective it must include more than one person. Lundstedt presents in his article, ”Administrative 20 Leadership and Use of Social Power" a characteristic cycle of group behavior which occurs when excessive amounts of authoritarian leadership is observed. In the first step the authoritarian leader uses coercion "...to establish and enforce group norms and goals... (which) creates per- sonal frustration among many group members." (45:159) Temporarily there is compliance but all are aware of the pseudo-participation. The second step in the cycle is described by Lundstedt. ”As psychological needs become increasingly frustrated, decision about organizational or group objectives begin to be impaired.” (45:159) At this point distrust, suspicion, and even hostility develop with the result being deterioration of communication channels and less cooperation among the people involved. The last step in this cycle describes the techniques used by the frus- trated group to lower their level of frustration and per- sonal discomfort. At this point "Informal groups appear and cohesiveness within the formal work groups tends to disappear and a loss of production results." (45:159) Recent research completed at the University of Michigan and reported by Marcus and Cafagna suggests that group involvement in decision making produces greater cohesiveness on the part of the group and greater production for the organization. As the authors describe the group process 21 ...(with) a greater sharing in control at all levels, morale is higher, consensus regarding work is greater, and organiza- tional effectiveness if facilitated. (47:127) The results stated above reflect the difference in effect that group control has over the one man control. Marcus and Cafagna also found that it is becoming impossible for the chief executive to maintain complete control with increasing specialization occuring within many areas of the organiza- tion. Not only does the chief executive lack sufficient expertise in many areas of the organization, but often those subordinates asked to carry out the directives are in a better position to make a wise decision. In summary the authors report that: ...both organizational characteristics and humane considerations require that some control be delegated to the lower echelons. A greater amount of total control, whereby subordinates can actually influence their superior, will heighten, not lower the organization's performance. (47:137) It would seem, then, that hiring cabinet members who have an expertise in their specialty, yet are given no control in the decision making process will create a situation where morale and willingness to contribute to the organ- ization decrease. The presidential cabinet, as defined in Chapter I of this study: 22 ...includes those administrators designated by the president as being second in line or second in command. For the purpose of this study the presidential cabinet would include the following areas of responsibility: (1) chief administrator, (2) academic and fac- ulty affairs, (3) student personnel services, (4) business management, (5) institutional research and development, (6) instructional resources and development, and (7) community services. Although the titles of the positions and the rationale for selection seem to be well defined in terms of areas of respon- sibilities, past studies in the junior college field have shown this not to be the case. Stanbury's study of admin- istration in Michigan junior colleges specifically states that the titles of administrators are in Such a confused state that the duties are not necessarily commensurate with the job titles; thus, it is not always possible to determine which administrator has which specific responsibility. This confusion of title and responsibility is also a partial cause in not being able to predict how many of the seven cabinet positions any one given college may have. In spite of the fact that the assignment of administra- tive responsibility is often highly incongruous with that normally expected by the nature of the administrative titles, Blocker, Richardson, Plummer, Thornton, Reynolds, and others have listed three discrete areas of functions within the junior college: (1) academic, (2) student personnel, and 23 (3) business. Ayers and Russel concluded from their study that the above three areas were commonly found in the majority of public junior colleges which they studied and to this list they added the area of institutional research and development, which was also found to be quite common in many public junior colleges. In Chapter I of this study a case was made for the inclusion of two other areas of respon- sibility: the area of instructional resources and develop- ment and the area of community services since these two positions are rapidly becoming a part of the presidential cabinet in many public junior colleges. Thus, regarding the positions on the presidential cabinet the assumption is that while the position titles are extremely similar in nature, the job specifications and responsibilities often differ significantly. In considering cabinet decision making power the ques- tion of the effectiveness of this method of administration is usually raised. Simon considers this question from a different perspective when he states: It remains to be demonstrated that ”unity of command” rather than "plurality of command” either is or should be the pre- valent form of administrative structure. (57:21) Standbury's study which included sixteen junior colleges in Michigan during the 1965 academic year reported that in fact 24 group decision making was reportedly taking place. Five of the (16) colleges did report that administrative cabinets did give guidance to the chief administrator and four schools reported that it was a combination of chief administrator, administrative cabinets, and some faculty participation. (33:57) What specific responsibilities for which specific decisions were given to which specific group is not analyzed by Stan- bury; thus, no significant conclusion concerning the cabinet decision making process can be reached. Giving the cabinet the decision making responsibility does not necessarily reduce the one man authoritarian rule. Although the cabinet normally removes the president from the position of lone decision maker, the academic dean is often named second in command placing the other cabinet members subordinate to him. Blocker, et. a1. states the problem as follows: In all too many cases the academic dean is placed above officers responsible for equally important aspects of the college program. Student affairs, technical and vocational sciences, and community services are as important as the college parallel program..... (37:179) Richardson suggests that a way to resolve this problem is to provide equal organizational status for all second echelon administrators. In this way, Richardson contends: 25 ...no single second-echelon administrator can establish priorities independent of concurrence of the other second-echelon administrator. If there is a disagreement concerning priorities, these are worked out within the administrative staff or the administrative council. (53:21) The argument in favor of equality of position at the cabinet level runs contrary to the accepted principle of "span of control,” which states that the fewer the number of people reporting to the superordinate the more efficient the organization. This establishes a "tall" organization with many levels in the administrative hierarchy. Simon offers a contradictory view which states: Administrative efficiency is enhanced by keeping at a minimum the number or organ- izational levels through which a matter must pass before it is acted upon. (22:26) Simon proposes a ”flat" organization with fewer levels in the administrative hierarchy and more group decision making process. Richardson uses Simon's argument with junior college administration and organization as the focus. Re- cognizing that administrative efficiency is supposedly enhanced by limiting the number of subordinates who report directly to any one officer, Richardson reflects: ...But if we accept the premise that the primary function of the administrative or- ganization of a two-year college is problem- solving, then limiting the span of control to improve coordination defeats the primary purposes of the total organization. (53:20) 26 Thus, with decision making as the primary purpose of a junior college administrative organization, the flat organizational model of Simon's is far superior to the tall, multilevel model Supporting the concept of span of control. The fact that the cabinet should be a group decision making body as opposed to the president commanding all decision making power is best summarized in a quotation by John Kenneth Galbraith: When power is exercised by a group, not only does it pass into the organization but it passes irrevocably. If an individual has taken a decision he can be called before another individual who is his superior in the hierarchy, his information can be examined and his decision reversed by the greater wisdom or experience of his superior. But if the decision required the combined infor- mation of a group, it cannot be safely re- versed by an individual. He will have to get the judgement of other specialists. This turns the power once more to the organ- ization. (39:18) Once the cabinet has been given the responsibility of decision making it becomes crucial that its members under- stand the process by which a decision is reached. Simon sees decision making in three principal phases: (1) finding occasions for making a decision, (2) finding possible courses of action, and (3) choosing among those courses of action. (21:1) The problem solving cabinet would begin by establishing goals for its institution, detecting those differences 27 between the existing situation and the goals which were established, and then reducing the differences between the goals and the existing situation. (21:27) The reduction of differences results in several subproblems which continues until the cabinet recognizes a subproblem they have solved before. This first solution becomes the key through which other subproblems are solved until the main problem is solvable in its entirely by the cabinet.* In discussing Organizations by March and Simon, Etzioni declares that a major contribution to management decision was made when the authors hypothesized that the organization was not seeking optimum rational behavior** but rather a "satisfying” or "acceptable” solution and once this was found the search would stop until such time as that solution became unsatis- factory. (6:30-31) Benjamin Gold's study was primarily directed at Simon's second phase of the decision making process which dealt with finding possible courses of action. Gold maintained that business and industry had sophisticated a number of quantitative decision making techniques and that they would be applicable to the junior college administrative framework if the junior 7"This process has been paraphrased by the author from Herbert A. Simon's The New Science of Management Decision, Harper and Row, Publisher: New York, 1960. ** . . . . 5 Rationality as defined by Simon lS ”..concerned w1th the selection of preferred behavior alternatives in terms of some systems of values whereby the consequences of behavior can be eval- uated.” (31:75) 28 ;< college administrators were aware of them. Such techniques as linear programming, queuing theory, matrix algebra, statis— tical decision theory, and program evaluation and review technique (PERT) were briefly described to junior college administrators to determine if these administrators were using Such techniques or had heard of these techniques being used. His conclusions show little positive response to either part of the question by the junior college educator. Gold feels, however, that with greater accountability being demanded of junior college administrators by the public, more sophisticated decision making techniques will be used by junior college cabinets. Rather than cite all of the various plans for a step by step decision making process, a synthesis of these various plans is presented from ”The Model as a Decision Maker's Dilemma", by Roger Jones. The decision maker cannot avoid choosing when, how, whether, and in what order his problem requires him to: 1. analyze the situation to be sure there is a problem 2. collect facts 3. analyze the relationship between facts and the problem 4. consider new ideas and new ways to tackle the problem 5. weigh alternative courses of action 6. choose a course of action 7. rejudge that course in the light of four questions: 29 a. will it achieve the purpose?- b. will it actually solve the problem? c. is it feasible? d. are there undesirable results to off set the advantages? 8. make and issue a decision 9. follow it up (422160) Once the cabinet members decide there is a problem or, as stated earlier, they have detected differences between the existing situation and the goals of the college, then a decision must be made. At this point Simon feels there are only two kinds of decisions which can be made: programed and non-programed. Simon explains the difference: Decisions are programed to the extent that they are repetitive and routine, to the extent that a definite procedure has been worked out for handling them so that they don't have to be treated "de-novoll each time they occur. Decisions are non—pro- grammed to the extent they are novel, un- structured and consequential. (21:5-6) It was mentioned earlier that a problem was broken down into subproblems until the cabinet recognized one which had been solved before and thus the solution to the recognized sub- problem became the building block upon which the solution to the main problem of interest was reached. In the above quotation Simon defines those familiar, once answered sub- problems as "programmed" while the larger problem of interest would be labeled ”non-programmed.” 30 In The Managerial Revolution in Higher Education,Rourke and Brooks' feel that: ...the instruments of rationalized manage- ment have had much more effect upon the routine day to day organizational decisions in colleges and universities than they have upon the novel, non-recurring decisions of academic life. (19:113) Their observations seem to support Simon's argument that problems must first be broken into recognizable subproblems which can then be handled by instruments of rationalized management. One such instrument to which Rourke and Brooks refer is the computer. Although they acknowledge the fact that currently the computer is used for little more than a memory bank or data retrieval system which assists the admin- istrator in making the decision, they predict that eventually computers will be fed a back log of data and then will be able to make many decisions which administrators currently make. It has been proven, on an experimental basis at least, that the computer is able to handle many more variables and alternatives to a particular problem than can one man or even a cabinet. Thus, a cabinet could make valuable use of a computer which could recognize a subproblem and thus facilitate a decision. It seems, however, that there is a certain danger to the cabinet decision making process if there is unmitigated reliance on the computerized answer. 31 Although computer experts agree, and probably correctly, that there is no necessary connection between the central- ization of information through computers and the centraliza- tion of administrative authority, Rourke and Brooks have some other empirical data: ...in the institutions we have observed, there has been a definite centralization of authority corresponding to the central- ization of information in a data pro- cessing system (19:37) The danger of this centralization of authority lies in the reduction of decision making responsibility given the cabinet. One need only look at Emmerick's description of what happens when decision making responsibility is not vested in a group to understand the danger involved. In paraphasing Emmerick's article (38) the staff of a chief executive not involved or responsible for group decisions play a major role in seeing that important questions are neither decided upon at their own level nor referred to the chief executive. Emmerick believes there are four basic reasons for this occurrence: (1) caste consciousness, which is the reflection of impotency or incompetence of the sub- ordinate who refers the decision to the chief executive; (2) status preservation, which occurs in a conflict between units where neither subordinate wishes to denigrate his unit in the event the boss decides in favor of the other unit; 32 (3) hyper-empathy, which reflects the subordinates concern that the boss has too many problems at home and (4) myopic functionalism, which implies that the subordinate will withhold referral since he cannot see how it would possibly concern the chief anyway. When it is no longer possible to suppress them (the decisions) at lower levels, there is a tendency to re-refer, delay, or ob- fuscate such questions until the situation has either resolved itself or else has be- come so disastrous that nothing can be done about it anyway. Beardsley Ruml used to call this last process "progress by catas- trophe...” (38:251) In preparing members of a group decision making body to assume responsibility, thus avoiding Emmerick's description of chaos, training is essential. Simon and many others feel that Training permits a higher degree of de- centralization of the decision making process by bringing the necessary com- petence into the very lowest levels of the organizational hierarchy. (57:24) Above all the chief executive must give complete respon- sibility of decision making to the cabinet. As 0diorne remarks It is far better never to have asked sub— ordinates to participate in decisions that affect them, then to ask them--and then ignore what they have to say. (17:26) 33 Preparation of Junior College Administrators If the presidential cabinet is given the decision making responsibility by the president then, as Simon mentioned above, the training of the cabinet members becomes extremely important if the cabinet members are to have the necessary competencies to meet their responsibilities. The specific competencies to meet their responsibilities. The specific competencies and their behavioral manifestations, which are needed by every member of the cabinet, will be developed from an extensive review of available literature, the graduate training program, and studies of job specifications in Chapter III. The purpose of this section of the review of literature is to present a general overview of the training, the programs, and the leadership considered to be necessary for the junior college administrator. The first portion of this section is based on representative comments concerning the qualities needed in junior college administration. In Human Behavior Berelson and Steiner describe the beginning of the administrative cycle as it might apply to a new junior college. At the beginning, the leader is more likely to be aggressive, militant, inspirational, the recipient of personal loyalty - the so- called charismatic leader. Later, when the organization is well established, he is more likely to be characterized by administra- tive skills, and the member's loyalty is more likely to go to the organization itself rather than to the leader. (3:66) 34 Berelson and Steiner mention several points worth expanding. Success during initial period of job occupancy, sometimes referred to as the ”honeymoon period,” seems to depend on. that mystical combination of qualities found within person- alities which have not as yet been clearly identified. After the honeymoon period the authors feel success depends upon administrative ability and included in this heading would be leadership ability. Thus, it would seem that initially an administrator would be able to rely upon his personality but over the long run he would be judged on how well he was able to utilize his trained administrative abilities. Representative qualities from other writers tend to become more abstract than anything else. Perhaps because it is so difficult to describe those general competencies needed by all junior college administrators or perhaps because some feel junior college administrators should be everything to everyone, but regardless of the reason little behavior is described. Gleazer, executive secretary of the American Association of Junior Colleges, describes abilities needed by chief administrators in a community college. ...will need to marshall the ingenuity and intelligence of the people who comprise the institution in order to comprehend its tasks and formulate an organization both efficient and effective. He must initiate the inter- action of professionals with mutual appre- ciation of roles and responsibilities. (9:110) 35 Lundstedt describes the attributes needed for general junior college administration but like Gleazer, he becomes lost in the abstract jargon of administrative theory, social systems, and education. Clarity of thought in decision making and strength of character are a necessary in- gredient in democratic leadership because the decisions about the correct use of social power are far more complex and dif- ficult. It is far easier to be autocra- tically simple minded than to make the necessary refined and complex distinctions about the use of social power within or- ganizations and in all human affairs. (45:160) When Gleazer develops the criteria to be used in the selection of a chief administrator, he mentions those values he be- lieves such a person should hold. Unfortunately he does not describe the behavior the candidate must exhibit so that the interviewing board is able to witness the belief in such convictions by the candidate. Representative of the several criteria developed by Gleazer the candidate should have: Conviction of the worth and dignity of each individual for what he is and what he can be- come. Commitment to the idea that society ought to provide the opportunity for each per- son to continue appropriate education up to the limit of his potential. (9:104) How the candidate sets up college policies regulating scholar- ship would be the behavioral manifestation of the candidate's commitment "...to provide the opportunity for each person to 36 continue* appropriate education up to the limit of his poten- tial." (9:104) Although still expressed in vague terminology Medsker attempts to list some specific tasks which the junior college administrator should be able to accomplish. ...that these administrators be men and women with far reaching educational vision; capable of interpreting society's needs and expectations; committed to the types of students this in-between institution serves; adapt at working with faculties, governing boards, community groups, as well as with representatives of other segments of education; and possession of the inte- grity that commands the respect of lay and professional people. (16:318) Pierce describes the chief officer of the junior college and the academic dean, whom Pierce feels is to be second in command to the president and a superordinate to the other administrators. Since agrument has already been waged against this format and in favor of a cabinet of colleagues, Pierce's criteria for the two positions are here considered to be traits needed by all second level administrators. ...a leader in policy making, the liaison director between the board and the school, the chief in public relations of the college, and the person chiefly responsible for the business management of the institution. On the other hand, the dean's work is to super- vise all matters related to instruction in the college, and all matters involving stu- dents at the school... (49:366) * The underlining in this quotation is the author's. 37 Whether or not a cabinet member experiences success in his cabinet role may in part be determined by his success in working with faculty in general and those faculty in his area of responsibility specifically. In one of his studies Medsker found that while faculty and administrative attitudes were generally similar be perceived a movement away from this similarity. Thus, junior college administrators must realize this trend and work on building positive relationships with the faculty. Two areas needed to be strengthened in order to achieve this goal are his ability in working with groups and his ability to synthesize knowledge from other disciplines besides education. (16:204) John Lombardi stated as absolutely essential that junior college administrators involve the faculty in the governance of the institution and that the faculty must have a voice in determining the guidelines for this participation. (54:40) While it is often assumed that faculty members do have a voice in policy determination, Richardson would argue: Faculty participation in policy determina- tion is a matter of relatively recent con- cern to junior college educators. In fact, two year college administrators have for the most part refused to share board-dele- gated powers with the teaching faculty. (54:40) More specific suggestions for supporting and working with the faculty are offered by Hugh C. Price in his article ”The 38 Role of the Administrator in Excellent Teaching.” Although the article is somewhat dated the suggestions are still very much in vogue: (1) develop a climate for teaching; (2) develop a sense of financial security; (3) provide ade- quate facilities and supportive services; (4) develop in- service training programs; (5) select competent, qualified staff members. (57:37-42) James W. Thornton, Jr. lists administrative tasks for which the junior college cabinet member should be trained. Once again, however, the behavior to be exhibited in the following tasks listed by Thornton is not clearly defined: (1) community surveys, (2) lay advisory committees, (3) teacher selection, (4) class schedules, (5) supervision of instruction, (6) in-service training and (7) evaluation. (24:121-128) While glittering generalities and vague, abstract phrases are found throughout the professional journals, probably the most disappointing publication found was a collection of papers presented at the ninth annual conference of the University Council for Educational Administration. Entitled Buffalo Studies: Administering The Community College In A Changing World, the book is a collection of the various presentations which were made. The reader is directed to this source if he wishes examples of the general traits of junior college administrators; however, the publication is of little help in the development of behavioral competencies. 39 Some studies directly dealt with the training programs for junior college administrators or more generally with areas of study for the administrator. College Management presented the suggested academic background for college admin- istrators prepared by George F. Donovan, Chairman of the Education Department, Marquette University. Four areas of study were suggested: 1. College Government: an analysis of the administrative structure and the college's relation to federal, state, and local governments. 2. History of United States Higher Education: an analysis of the American university's history and the problems involved in its evolution. 3. The role of faculty and student organ- ization in university affairs. 4. Comparative College Education: a com- parison of higher education, philosophy and technique in the United States and abroad. (61:33) Other studies that have been completed suggest specific courses to be taken and research to be completed in prepara- tion for junior college administration. Representative of these studies are Waltz's study of "Curriculum Content in Graduate Preparation Programs for Junior College Administra- tion” completed at the Arizona State University (36) and Mealey's "A Historical and Evaluative Study of the Midwest Community College Leadership Program with Suggested Guidelines 40 for Future Directions" completed at the University of Michigan. In virtually all studies dealing with graduate training pro- grams, however, courses and course selection were discussed rather than the behavior to be exhibited by the candidate upon the completion of the program. Thus, these studies will not be discussed in depth. Other studies have been done on the preparation of men for the specific cabinet positions, how- ever, these do not consider at any length the general com- petencies needed for these men to function as members of the presidential decision making cabinet nor do they discuss the behavior to be exhibited by the candidate upon successful completion of the program. These studies are mentioned here only to alert the reader to the fact that general studies are available although they do not deal with the behavior of a successful administrator. If the review of the preparation of junior college admin- istrators seems harsh in regard to the altruistic statements of what should be, it is due more to the fact that the purpose of this study is to develop competencies which are measurable through observing a person's behavior rather than to dis— agreement with the more abstract altruistic statements. In an attempt to behaviorize management and administrative skills George S. 0diorne developed Management By Objectives. As he discusses the preparation of administrators he asks himself how men learn how to manage and describes three basic sources 41 of management knowledge: (1) imitation, (2) situational thinking, and (3) behavioral science. Imitation: the imitating of a superordinate by a subordinate provides the latter with a model of how an administrator functions. The danger is that the subordinate may model idiosyncrasies rather than the important skills; however, it is the responsibility of the superordinate to be aware of his model- ing role. Situational Thinking: this includes the values, customs, and mores of the superor- dinate and of the situation or environment in which he operates. In this case "... instead of studying the actions of indiv- idual managers, we study the entire situ- ation in which they work." (17:57-58) Behavioral Science: the need for behavioral goals is apparent. Without goals stated in measurable terms, the direction of the organ- ization is unclear thus evaluation of people or progress becomes an impossibility. Peo- ple are unable to perform with maximum effectiveness if they don't know what goals the organization is seeking or how well they are doing relative to those goals.* (17:56-58) Pax's analysis of junior college administrative organizations ends with a partial summary when he states: A plan describing the desired eventual administrative organization should serve as a guide so that changes may be based on purpose rather than expediency. (32:91) * These three areas of management knowledge were paraphrased by the author. 42 Bphavioral Statements of Competencies It is no wonder that Pax, in the quotation above, suggested that an administrative plan is needed for each junior college, for in all the recent studies reviewed which were concerned with junior college administration one point was universally evident: there is considerable confusion, nationally and locally, about specific job assignment and responsibility. Day (28) in a national study of selected duties of academic deans found that although many deans shared many similar duties there was still not a consensus concerning all responsibilities nor position in the adminis- trative structure. Stanbury in his study of Michigan junior colleges generalizes from his results and from the results of Hall's study that: Those in the community college field must work to clear up titles, cause administra- tive responsibilities to be more clearly defined, and initiate action for their com- munities to re-examine the form of control and organization presently in effect in terms of the task. (33:64) He concludes his report by recommending that the Michigan Council of Community College Administrators undertake a study to establish guidelines for titles and duties of administrative officials and that job specifications be analyzed to prevent overlapping of duties and functions. (33:111) James w. Thornton, Jr. suggests that ”Clear-cut 43 assignment of responsibility can be achieved only through analysis and description of the work to be done.” (242129) Simply to determine that all members of the presidential cabinet will have equal organizational status and that as a group they will function as a decision making body in bypassing some important considerations. As 0diorne views the top leaders of an organization he states that they ”...must establish and clarify common goals for the organization before they can clarify individual goals." (17:75) Simon, in con- sidering these top leaders and the decision making process, states: ...each individual, in order to determine uniquely the consequences of his actions, must know what will be the actions of the others. This is a factor of fundamental importance for the whole process of admin- istrative decision making. (22:71) The importance of the overall organizational goals, the specific responsibilities of each cabinet member, and the common knowledge of the actions of each man seem to require a total plan of attack for the organization. Earlier in this chapter Gold's study on quantitative decision making was briefly discussed with special emphasis on several decision making techniques. As 0diorne and Simon have mentioned, however, decisions take place within the context of overall goals, a total plan of attack, and behavioral competencies ascribed to each member of the decision making 44 group. 0diorne offers a systematic approach, which is one of several being used in top management, to the three problems listed above. He refers to his system as management by objectives and describes it as follows: Management by objectives provides for the maintenance and orderly growth of the or- ganization by means of statements of what is expected for everyone involved, and measurement of what is actually achieved. It assigns risks to all responsible leaders and makes their progress - even their tenure - dependent upon their pro- ducing reSults. It stresses the ability and achievement of leaders rather than their personality. (17:54) Although Odiorne's system is not being used in its entirely but only as a representation of such systems and their rationale for organizational goals and behavioral competencies, it would be unfair not to present what the system provides in toto. Thus, a brief synthesis of the major points follow: 1. It provides a means of measuring the true contribution of managerial and professional personnel. 2. By defining the common goals of people and organizations and measuring indiv- idual contributions to them, it enhances the possibility of obtaining coordinated effort and team work without elimin- ating personal risk taking. 3. It provides solutions to the key pro- blem of defining the major areas of responsibility for each person in the organization including joint or shared responsibilities. 45 4. Its processes are geared to achieving the results desired, both for the or- ganization as a whole and for the individual contributors. 5. It eliminates the need for people to change their personalities, as well as for appraising people on the basis of their personality traits. 6. It provides a means of determining each manager's span of control. 7. It establishes a system for employee evaluation. (17:55) Although the entire system is a cohesive unit, there are certain points which are more directly related to this study and which can be detected more readily in the pro- fessional literature as problem areas. The second point, defining common goals; the third point, solution to key problems; the fourth point, organizational and individual good; and the fifth point, evaluation, all are found in various systems of management and have been considered problem areas by contributors to the professional journal. Although Odiorne's system is the one being focused upon in this review, other authors have commented about these four areas and their reflections will also be considered. In an article in College Management the restructuring of an organization is discussed relative to meeting the prestated goals. It was stated in the article that to meet those goals the needs of the organization must be isolated for analysis. The three exploratory moves suggested by the 46 editors were: (1) "Determine whether the current organiza- tional plan provides a clear definition of the jobs to be done and pinpoints the men or offices responsible. (2) Study carefully the performance record and the demonstrated talents of each man in the administrative hierarchy and ask whether he is the best man for the job. (3) If there are no pro- fessionals trained in modern business methods, it is time to find some and hire them." (60:11) While step three may be a little unrealistic in evaluating the specific members of a junior college cabinet, it has some merit. The question perhaps may be whether it is more profitable to train these men in ...modern business methods... rather than simply releasing them from junior college administration. In try- ing to determine if there is a ”clear definition of jobs to be done" a plan of attack is needed. 0diorne suggests that: High performance goals are needed in every area of responsibility and every position where performance and results directly and vitally affect the contribution of the man to the organization. (17:98) It could be argued here that job specifications and duties are listed and detailed for each position on the presidential cabinet and the studies mentioned in various sections of this chapter would substantiate that claim. However, the major decisions and the very philosophy and guidelines of a particular college are determined at the cabinet level and 47 yet little if any attention has been focused on stating behavioral competencies for this task. However difficult this task may be it remains a necessity. In fact Simon refers to this as the first task of administrative theory. The first task of administrative theory is to develop a set of concepts that will per- mit the description, in terms relevant to the theory, of administrative situations. These concepts, to be scientifically use- ful, must be operational; that is, their meanings must correspond to empirically observable facts or situations. (22:37) Within the cabinet setting many administrative situations occur for which, Simon feels, concepts (competencies) must be stated in descriptive (behavioral) terminology. Another important implication in the above quotation is the need for the overall goals of the institution so that areas of responsibility, concepts, and evaluation can take place. Within this goal-setting process 0diornne suggests four specific categories: In the goal-setting process there are four categories that can be used to characterize the goals sought: statements of routine matters, provision for emergency actions, innovative and creative projects, and per- sonal growth and development goals. (17:102) At this point the importance of the overall goal setting for the college is to realize that it is considered to be the beginning step according to some writers of administrative 48 theory and that it will be developed more fully as a com- petency for the cabinet member in a later chapter. Since a major responsibility of the presidential cabinet is that of goal setting, ”...administrative theory must be inter- ested in the factors that will determine with what skills, values, and knowledge the organization member undertakes his work." (22:39) 0diorne summarizes the major elements of this goal setting system: 1. The (president) assumes responsibility for identifying the common goals which all his subordinates share with him, and toward whose achievement he must con- verge their combined talents. 2. Each person is able to state, in advance of the attempt, areas of responsibility and measures of acceptable results for his position. 3. Each person has knowledge of the goals he is to achieve, has worked out a plan for achieving them, and is measured by his results, insofar as these can be attributed to condition under his own effective control. (17:61) Goals determine the direction an organization will take, the areas of responsibility which must be administered, the com- petencies needed by each administrator in reaching the goals, and the evaluation of each individual and of the organiza- tion in reaching the stated goals. Etzioni concludes that the danger of operating an organization without specific goals is that it may be seeking goals which in fact differ 49 from the ones it actually pursues. According to Etzioni there are two basic reasons for this: (1) "...the (president) may be unaware of the discrepancy and (2) organizational leaders quite consciously express goals which differ from those actually pursued because such masking will serve the goals the organization actually pursues." (637) The argument for behavioral competencies extends beyond the goal setting stage and reaches every member of an organ- ization. Simon and March discuss a hypothesized formal model of departmentalization within the organization. In the revised model of departmentalization the roster of kinds of activities (i.e., the whole set of job specifications, formulas, blue prints of standard products, standard operating procedure, etc.) is given in ad- vance together with a large number of con- ditional statements that specify the con- ditions under which each activity will be performed. (13:27) Even though every position has numerous routine tasks which must be accomplished very often, " ...yet, even these must be written in behavioral language for the following reasons:" (17:102) (1) Any administrator needs to be aware of the many small tasks which preoccupy his subordinates' time for failure to do this leads to many misperceptions. (2) In estimating the distribution of tasks among his staff members, the administrator needs to be aware of the amount of time spent by each subordinate on routine tasks so that he may 50 estimate the coverage of all of the facets of the operation, and the management of the time of his subordinates. (17:102) The use of goal setting and the statement of expectations in behavioral language adds other dimensions to the traditional job description statement. First of all when all duties, even the routine tasks, are written in behavioral language, they are much easier to review each year and to modify as the situation warrants. In this way mutual agreement can be reached between the administrator and his subordinate. The second added dimension is that measures are established specifying when these routine duties are well done. Be- haviorally stated objectives also produce feedback for the subordinate since he is able to evaluate his own rate of progress and his own achievement. This self-measurement against predetermined standards is Superior to the boss' measurement of results. (17:168) However, the most basic technical flaw in appraisal systems is the lack of adequate standards of performance for the management job. French's argument for more behavioral language in specifying criteria is: The less developed the criteria in the reward system with respect to the per- formance in any facet of the activity mix, the greater the variability in quantity and quality of the performance between individual's relative to that facet. (8:27) 51 Not only would the ambiguity and inconsistency described by French be alleviated but a basic level of retention would be established as stated by 0diorne. The definition of major areas of respon- sibility and the conditions which will exist when these responsibilities of a routine nature are performed comprise the minimum standards for holding a job. (17:108) Accepting Odiorne's total management by objective scheme threatens the humanist and recalls the early 1900's when Traylor's classical motivational theory, which stated pay should be on the merit of the performance and no other criteria, was in progress. The humanist reaction to the total 0diorne scheme of complete removal of individual per- sonality needs to be mentioned. Etzioni discusses four basic elements of human relations. The amount of work carried on by a worker is not determined by his physical capacity but by his social capacity. Non-economic rewards play a central role in determining the motivation and happiness of the worker. The highest specialization is by no means the most efficient form of division of labor. Workers do not react to management and its norms and rewards as individuals but as groups. (6:32) 52 The research to which the humanist points centers chiefly around the Hawthorne studies researched at the Western Electric plant in Chicago between 1927 and 1932. Generally, the studies were to test the classical assumptions that better physical facilities produced higher production. The con- clusion was that the assumptions were false and, in fact, better facilities did not necessarily produce higher pro- duction. The humanists point to the findings and conclusions of the Hawthorne study to bolster the argument against total systems control. Findings and Conclusions of the Hawthorne Experiment 1. The level of production is set by social norms, not by physiological capacities. 2. Non-economic rewards and sanctions sig- nificantly affect the behavior of the workers and largely limit the effect of economic incentive plan. 3. Often workers do not act or react as individuals but as members of groups. 4. The importance of leadership for set- ting and enforcing group norms and the difference between informal and formal leadership is an important aspect. 5. Importance of communication between the ranks; importance of participation in decision making and importance of democratic leadership all become readily apparent. (6:34-35) 53 While the humanist points are quite valid and well stated, the issue is not quite as polarized as it appears to this point. 0diorne raises some limitations of his management by objective system. 1. The system in unable to appraise and completely identify potential. 2. The system presumes that the man and his boss will together establish suitable standards that will serve the company well. 3. The system implies that the boss understands the strict limitations on what he is supposed to do, and will refrain from playing God. (173180'181) Unfortunately 0diorne doesn't deal with the concept of per- sonality and detail its place within his system. Then, too, it must be remembered that the purpose of this section of the chapter was not to accept his total management system but only to examine his system being representative of many and to extract, in part, a rationale for the importance of behavioral language in describing the competencies needed for the cabinet members. Summary There seems to be strong arguments in favor of the group decision making process both in administrative theory and practice. There is also indication that junior college presidents are requesting and accepting decision making 54 help from their cabinets. Unfortunately the training pro- grams responsible for the preparation of junior college administrators have not taken the time to develop their objectives for their candidates in behavioral terminology nor have they attempted to train their candidates to func- tion as decision making members of a president's cabinet. If 0diorne, Gold, and others are correct, however, more emphasis will be placed on a man's abilities than on his personality. CHAPTER III THE DEVELOPMENT OF THE GENERAL CABINET COMPETENCIES airman The purpose of this study is threefold. First, the general cabinet competencies needed by the members of the junior college presidential cabinet will be generated. Second, the manifestations of these competencies will be described in behavioral language to enable an observer to evaluate when the competency is being successfully accom- plished. Finally, different experiences will be suggested to assist doctoral candidates in the Michigan State Univer- sity Junior College Leadership Training Program in success- fully acquiring each of the stated competencies. Within this framework, the purpose of this chapter is to generate the general cabinet competencies. The generation of the competencies has been completed using as bases the professional literature; job specifica- tions, as developed by junior college personnel, for each of the cabinet positions; descriptions and curricula of the various training programs designed to develop administrative leadership for junior colleges; and the most recent studies and research on junior college administration and adminis- trative positions. A review of the professional literature which contributed 56 to the generation of the competencies included the editions from the last ten years of the Junior College Journal and editions from the last ten years of various journals in the field of higher education. In addition to current periodicals, selected texts and readings in the area of administrative theory, decision making processes, and systems design were used in generating the competencies. The job specifications of each cabinet position were obtained from twenty of the twenty-nine junior colleges in Michigan, national studies of job descriptions from selected junior colleges in the United States, and experiences and descriptions of doctoral candidates who have had previous junior college experience. All of these sources were used in generating the general cabinet competencies. Materials on the training programs were obtained from ten of the eleven training programs, which are the result of the Kellogg grants to train junior college administrators. Of the ten who returned program curricula, only two pro- grams had statements of behavioral competencies expected of their Successful candidates. Instead most of the material received was in the form of general expectations stated in vague and abstract language. The second source of information which dealt specifically with the national training programs was the research studies which evaluated such programs. 57 However, the data here were dealing with courses, experiences, and requirements rather than behavioral criteria. This material did, however, provide stimulation and direction for the development of the competencies presented in this chapter. The last formal base for the development of the com- petencies resulted from a review of current studies, research, and dissertations which were concerned with specific areas of junior college administration. These studies helped to specify the general areas of competency and also provided specific duties which were considered mandatory for the various positions represented on the cabinet. While many of the specific duties were stated in behavioral language, they were concerned with the specialized portion of the particular area of responsibility and did not attempt to define the competencies needed to perform the functions of the presi- dential cabinet. The most helpful sources in generating these competencies were the idea sessions with committee members, discussions with professionals in the junior college and administrative theory areas, and in the many exchanges with doctoral candidates. Through these interchanges the author was able to test his ideas concerning needed competencies and receive immediate reactions and new perspectives related to the task. In the initial review of the literature and research 58 reports relevant to this study it became apparent that the inductive field testing prevalently used in researching junior college administration would not be entirely suitable for the generation of cabinet competencies, their behavioral manifestations, and the learning experiences recommended for the acquisition of these competencies. One of the deterrents to an inductive field study became apparent in the review of the professional literature. Very few articles have been written during the last ten years which deal specifically with the functions of junior college administration or with the competencies of junior college administrators. Those articles which were found to be pertinent were testimonial acclamations of "this is how I do it” with little or no evidence that there was a relationship between the "cookbook" approach and administrative theory. While these kinds of statements stimulated the imagination, they did little to pinpoint the specific duties or functions of the presidential cabinet. Thus, it was questionable whether a field study to develop competencies required of the presidential cabinet members would be useful since there appeared to be no normative structure in junior college administration. It would seem then, that a normative statement needs to be made concerning these cabinet competencies and could best be done deductively, moving from the glittering generalities to the specific competencies. 59 The second deterrent to an inductive field study became apparent in the review of recent research studies conducted in the field of junior college administration. Day's study (28) of academic deans represents those attempts to build normative job descriptions for one particular position in the junior college administrative framework. Compiling over 170 job specifications of the academic dean from various sample junior colleges, Day sent questionnaires to over 200 institutions to determine which of the 170 items were con- sidered by each institution to be legitimate job specifica- tions for their academic dean. Based on a return of slightly over forty percent of the institutions, Day revised his list and resubmitted it via questionnaire to the same institutions. Upon the return of only a little over twenty percent of the institutions, Day constructed his final list of job specifica- tions for the academic dean at public junior colleges. The fact that only forty percent of the institutions responded the first time and only twenty percent responded the second time raises questions concerning the randomness of the returning institutions. It is not felt by this author that a normative statement can be made by Day and raises a more serious question concerning the use of a questionnaire to determine cabinet competencies for this present study. While it is true that what is taking place in the field of junior college administration cannot be totally ignored 60 in the search for those competencies every cabinet member needs to have, it is also true that the information gained from the field must be used judiciously if a normative model of cabinet competencies is to be the end result. An Illustration of Competency Development It was stated earlier that the competencies were generated from what was taking place in the field as reported in the professional literature, in job specification for each of the cabinet positions, descriptions and curricula of the various training programs designed to develop administrative leader- ship for junior colleges, and the most recent studies and research on junior college administration and administrative positions. This was the first step taken to inSure that the study would begin from a realistic base from which the behavioral manifestations and the learning experiences could be deduced. It seems, however, extremely crucial that the methodology used in building the general competency from statements made by junior college administrators in the field be clearly understood. Thus, an illustration of this method, which was used in the development of each of the competencies, is illustrated here rather than in the appendix. The first step in the development of the competencies was to record all of the specific statements, inferences, 61 crucial issues, challenges, problems, hopes, dreams, and anything else that seemed to relate to the functioning of a junior college administrator as he would interact with his colleagues in the presidential cabinet. This omitted, there- fore, all reference to the abilities needed in his specific area of responsibility such as student personnel or academic dean. Over 200 such statements were recorded in this manner and a sampling of these statements is listed below:* 1. articulate the philosophy of the junior college as it relates to the community 2. know the philosophy and history of the community college 3. evaluate the college's performance to determine if the philosophy is being implemented through the achievement of the objectives and the goals stated 4. capable of predicting the society's needs and expectations 5. organization and administration of the junior college 6. aware of the human dignity of man 7. understand the college as a change agent 8. experience with describing the role and function of the community college to others *While these statements are representative of the total list, they have not been footnoted since they are found so readily in the professional literature listed in the bibliography and the benefit of the documentation at this point is ques- tionable. IIIIIIIIIII-__________________________LLLLL L 62 9. communication skills 10. ability to listen ll. believes in and adheres to the open door 12. ability to conduct research on com- munity college problems 13. articulate clear definition of in- stitutional mission and role 14. familiar with federal, state, and foundation programs of possible value to the college 15. share information with other cabinet members 16. know the legal base of authority for the junior college at the state and local level 17. knowledge and understanding of the community college philosophy 18. be a strong leader l9. commitment to both occupational and general studies and counseling services 20. must have far reaching educational vision From the total list, as will be found in this representative list, certain grouping patterns become evident. For con- tinued illustration the following statements taken from the representative list form such a grouping: l. articulate the philosophy of the junior college as it relates to the community 63 2. know the philosophy and history of the community college 3. evaluate the college's performance to determine if the philosophy is being implemented through the achievement of the objectives and the goals stated 6. aware of the human dignity of man 8. experience with describing the role and function of the community college to others 11. believes in and adheres to the open door concept l3. articulate clear definition of in- stitutional mission and role 19. commitment to both occupational and general studies and counseling ser- vices 20. must have far reaching educational vision These statements were grouped together because they dealt, in some way, with the institution's commitment as expressed in its philosophy and stated goals. After studying the listed statements, various terms were noticed either to appear or to be implied more frequently than others. Such terms as philosophy, education, history, goals, objectives, mission, role, and function seemed to be key to this parti- cular group. The struggle became one of developing a general cabinet competency which would incorporate the wording and the spirit of the majority of the statements. The stated competency for the representative group used in 64 this illustration became: Initiate or modify goals and objectives of a community college through an under- standing of philosophical, historical, sociological, and educational perspec- tives. Actually the above competency represents six different attempts to word it as comprehensively as possible. It was during the final stages of each competency that the conversations with colleagues and committee members served to facilitate clearer thinking. The last step in the development of the competency was to develop a reference tag so that mention could be made of a specific competency without awkwardly rephrasing it or repeating it in its entirely. Thus, the competency generated in this illustra- tion will be referred to from now on as the goal definition competency. While the illustration is lengthy, it is important to clarify how the administrators in the junior college field served as a reality base from which the competencies were inductively generated and the behavioral manifestations of those competencies and the suggested learning experiences were deduced from those competencies. Reguirements for the Development of Behavioral Manifestations The second purpose of this study is to describe the behavioral manifestations of the general cabinet competencies in behavioral language thus enabling an observer to evaluate 65 when the competency is being successfully accomplished. Four requirements were established to guide the development of the behavioral manifestations of each competency. l. the behavioral manifestation should be a natural outgrowth and an integral part of the stated competency. While the competency was arrived at through an inductive survey of what junior college administrators implied or stated was necessary for successful completion of the cabinet functions, the behavioral manifestations had to be arrived at deductively from these general statements and require- ments. An illustration of a necessary cabinet function frequently recognized in the literature is the task of long range planning. Upon compiling the various comments from the literature, the long range planning competency seemed to be: Anticipate future needs and plan appro- priate directions for the community college far enough in advance so that adequate funds, facilities, staff, and programs will be available to everyone who seeks admittance to the community college. Deductively, then, a behavioral manifestation which seemed to be both a natural outgrowth of this competency as well as an integral part of it was: 66 develop a pert chart, PPBS, a critical path movement chart, or a system of goal objectives which provides the time schedule, the specified tasks, and the needed funds which must be attained by the community and its college within the next ten years. This behavioral manifestation seems to be a natural out— growth because adequate funds, facilities, staff, and pro- grams for the future must be planned for in a systematic manner. Thus, a candidate who wishes to attain this com- petency must be able to plan systematically through using such tools as a pert chart, planned program budgeting system (PPBS), a critical path movement chart, or a system of goal objectives. Thus, the completion of anyone of these systems would give evidence to an observer that the can- didate had the ability to plan systematically. This example would also meet that part of the requirement which states that the behavioral manifestation must be an integral part of the stated competency because systematic planning would be central to the anticipation of future needs and the planning for appropriate direction for the community college. 2. each behavioral manifestation include those verbs which describe specific human behavior required for the suc- cessful completion of that task. Examining again the behavioral manifestation which re- quires the candidate to develop the pert chart or the 67 critical path movement, it is explicit that the candidate must develop i.e. to set forth by degrees or make visible, the pert chart. This behavior is denoted by the word develop. To guide the candidate's behavior even more closely it is stated that his development of that pert chart will provide the time schedule, the specified tasks, and the needed funds. Thus, these specific elements must be included in the development of the pert chart. Although the last portion of this behavioral manifestation is not a verb requiring specified action, the condition for the planning is established by the phrase "within the next ten years" indicating for how long a period the plan must be developed. 3. each stated behavioral manifestation must be one that is able to be learned by a candidate If the behavioral manifestation is not able to be learned by the candidate or by an administrator on the cabinet, it has not been included in this study. It has been acknowledged before that there are certain qualities or traits in human behavior that are not definable. Although these traits may be highly desirable in an administrator, it is unfair to require them of a cabinet member or a candidate in a training program since to do such w0uld be incongruous to the very essence of learning. An example of charismatic leadership is a joy to behold, yet very little is under- stood about the combination of human personality and human 68 behavior which nurtures it; thus, it would be included as a behavioral manifestation of any competency. 4. each behavioral manifestation can be evaluated by an observer to determine whether or not the candidate is per- forming the stated behavior. This is the most important requirement to be met in stating the behavioral manifestations, because if the manifestations are not stated so that an observer can make this determination, then it does not state the expected behavior clearly enough. To illustrate this requirement another behavioral manifesta- tion deduced from the long range planning competency is presented: project the probable percentages of funding which will be available from the federal, state, and local government within the next ten years. The observable behavior would be the projection of the probable percentage of funding since this could be seen in writing or heard during an oral presentation by the candidate. While the first requirement states that the manifesta- tion be a natural outgrowth and an integral part of the competency, the other three requirements are centered on the human behavior and the verbs denoting that behavior. Thus, words such as know, understand, appreciate, and 69 , show were omitted in favor of words designating specific, definable action such as interpret, analyze, synthesize, develop, evaluate, determine and decide, which provide measurable action on the part of the participant. The third purpose of this study is to suggest specific experiences to be developed for the Michigan State Univer- sity Junior College Leadership Training Program which will assist its doctoral candidates in successfully acquiring the behavioral manifestations of each of the stated com— petencies. These experiences will directly relate to a desired behavior. No statistical or scientific method was used to gener- ate, test, or validate these competencies. Instead, these competencies, as they were generated according to the method described above, will serve as a base for a deductive attempt to describe the expected behavior of members of the presidential cabinet. Since the studies and the literature cited in Chapter II concluded that there is not general agreement on job titles or the organization of junior college administration, an inductive field study seems of little benefit. Thus, the deductive method of developing these behavioral manifestations of the competencies could provide an effective tool with which to evaluate the admin- istrative cabinet through charting the behavior of its members, and to train future junior college administrators. 70 An Expanded Definition of Competency Although a brief definition of competency was given in Chapter I, a more expanded definition of the term is offered at this time. It is important to realize that within this study the term competency is used to infer administrative competency or a competency which is directly applicable to junior college administration. An administra- tive competency as defined earlier, is: ...the ability to synthesize and actualize relevant knowledge for the purposes of (a) facilitating institutional planning and development, (b) resolving complex problems which interfer with achievement of organiza- tional goals and objectives and (c) eval- uating institutional progress toward goal attainment. In building a definition of administrative competency the underlined words were chosen because of the meanings they denote. The adjective "administrative” was used to modify competency because it denotes specific leadership and managerial functions of an educational administrator within the junior college frame of reference. Thus, it limits the term competency to a more restricted meaning. Reference to the junior college administrator having the "ability" to perform the competency means that he is able to exhibit behavior which is described in the working definitions of synthesize and actualize. For the individual to be able to synthesize is to be able to combine 71 often diverse conceptions into a coherent whole. Synthesis would be the combining of concepts and ideas from studies in various disciplines and personal experiences into a state- ment or plan of action which may incorporate many of these diverse fields of knowledge and experience. Being able to ”actualize” a synthesis would be to make use of that Syn- thesis in a decision or in the execution of a plan of action which is the result of a synthesis of divergent concepts. For the junior college administrator "relevant knowledge" denotes the cognition of principles, facts, concepts, skills, methods, and means pertinent to the included purposes stated in the definition. Within the definition three purposes are stated which imply that there are three specific areas requiring adminis- trative competency. The three purposes which represent planning, decision making, and evaluating are not to be considered mutually exclusive since all three functions are a part of every task an administrator faces. However, given any specific task one of the three areas predominates; thus, there is a need to defend each individual function as though it were an entity unto itself. Facilitating institutional planning and development is an area of administration which has been historically the task of the chief administrator. More recently this specialized area of responsibility has been assigned to an individual member of the presidential _¥— a. 72 cabinet, although each member of the cabinet must possess some expertise in the area. The critical function of insti- tutional planning and development is shown, in part, by the fact that it is a task no longer completed by the president alone. Ayers and Russel report that Increasingly, colleges and universities are selecting directors of institutional development who are given responsibility and authority for the administrative coordination of all segments in this area. Size and complexity of institutions have made it impossible for the president to direct and coordinate these within his own span of control. (63:82'83) Ayers and Russel's study not only remove this function from the sole auspice of the president, but they also make recommendations for placing the administrator responsible for this function within their model administrative organ- ization. The model administrative design...calls for a major line offer - a director of institutional development - as one of the four arms of the president. (63:82) It may be recalled from the brief explanation earlier in the study that the "four arms of the president" had reference to the administrative areas of development: student services, business management, and academic affairs. Further substantiation of the need for this function and thus reason for its inclusion as one of the three areas of 73 competency is found in the 1969 study of institutional research by Van Istendal. In the recommendations made follow- ing his study Van Istendal comments: Philosophy, policy, and direction for in* stitutional research should be developed, early in the life of the institution, and implemented with adequate organizational structure, staffing, and budgeting. (93:86) This recommendation implies that institutional planning and research is a major area of responsibility within the college. Van Istendal continues to stress the importance of this area as he lists some of Stickler's "guiding principles": An institution-wide advisory committee should assist the institutional research agency in carrying out its responsibil- ities..... Provisions should be made for wide par- ticipation by faculty members and admin- istrative officers in planning and con- ducting institutional research projects... (93:17) Stackler's comments suggest that the presidential cabinet would certainly function as an advisory committee and the fact that he suggests ”wide participation by faculty members” seems to add to the importance of the function. A final example of the importance of this function is that entire state systems are placing increased importance on the planning-research function. Van Istendal cites Califor- nia as an example: 74 California has a master plan for its entire state higher education program form the num- erous junior colleges through the state col- leges and university system. Other states have similar master plans. Individual in- stitutions, private and public, are in- creasingly developing master plans for their institutions' planning. (93:21) The second major purpose for which administrative com- petencies are needed is the resolving of complex problems which interfer with achievement of organizational goals and objectives. It is this major purpose which was referred to earlier as representing the decision making function. As such a substantial amount of discussion concerning the decision making function was presented in Chapter 11, only a brief summary of those arguments for its inclusion as a major function will be stated here. Griffiths stated that decision making is the core of administrative theory which suggests that it commands a great deal of attention by junior college administrators. Simon and others discussed the decision making function in terms of steps or phases: the first step is the determination of institutional goals, the second is the assessment of the status quo, and the third is the determination (decision) of how to move the organization closer to the institutional objective. Odiorne's system of management by objectives states that management needs behaviorally stated objectives to determine job respon- sibility and decision making responsibility. And Richardson's 75 philosophy has been mentioned many times because of his belief that the primary function of junior college adminis- tration is problem solving. Thus, Richardson presents his argument for equal organizational status for all second level administrators serving on the presidential cabinet. These arguments are mentioned here only to recall the more sub- stantial discussion occurring earlier in this study which stressed the importance of the decision making process as a major purpose in junior college administration. The third major purpose which was considered a part of the definition of administrative competency was the evalua- tion of institutional progress toward goal attainment. It was mentioned earlier that these three purposes of admin— istrative competencies were not mutually exclusive of one another and the third purpose exemplifies this statement. While evaluation plays a major part in long range institu- tional planning and development and, as Simon, 0diorne, and others have mentioned, it plays a part in determining what the complex problems are, it also plays a role of its own in evaluating the status quo of institutional develop- ment. At times when there are no complex problems pressing for decisions and the long range plan has been well dev- eloped, the members of the presidential cabinet must turn their attention to an evaluation of where the institution is and where it is headed in the future. Evaluating insti- tutional progress, therefore, becomes a major function for I‘IIIIfIIZZ________________n___________________________________________LL,LL, L 76 which administrative competencies are needed. Having presented the methodology for this study and having built the working definition for the administrative competencies which are to be developed, the remainder of this chapter will be the presentation of those competencies and their general descriptions. A Framework for Competencies In developing competencies for the members of the presidential cabinet there seemed to be four unique types of competencies. These four areas are referred to as: (1) general cabinet competencies, (2) inter positional compet~ encies, (3) inter personal competencies, and (4) general, non cabinet competencies. The cabinet competencies are those which are required of the second level administrator in performing his role as a presidential cabinet member. These competencies dictate what he must be able to perform within the cabinet setting. The inter positional compet- encies are those which are generated from the specialized areas represented on the cabinet. If the cabinet is to function as a decision making body, there are certain com- petencies each man must have in these specialized areas in the cabinet. Thus, while it is the specific respon- sibility of the business manager to plan and allocate financial resources, each cabinet member must have the inter position competency of determining the various sources of 77 financial support received by a community for the operating budget, the building-site budget, and the debt retirement budget. An inter positional competency, then, is one which is generated from the responsibilities within one specialized area but is needed by all cabinet members if the cabinet is to function as a viable decision making group. The inter personal group of competencies is one of the most difficult to state in behavioral language since so little is really understood about personality. It is at the inter personal level, where individuals interact with each other, that many of the difficulties within a working group result. The inter personal competencies are those which are needed by all cabinet members to enable the group to interact as a unit. The general non-cabinet competencies required of each cabinet member are those which each second level adminis- trator must possess. These competencies are not mandatory to a man's functioning on the cabinet nor are they out- growths of any one specific area of responsibility. They represent, instead, those tasks which must be accomplished in all areas of responsibility such as recruiting, evaluating, recommending, and releasing professional and non-professional colleagues in his area of responsibility. These four types of competencies seemed unique enough to be considered as separate entities; thus, each area has been developed 78 individually. For the purpose of this study, however, only the general cabinet competencies will be completely developed in behavioral language accompanied by suggested experiences for the acquisition of the competencies. However, the inter personal competencies, the inter positional competencies, and the general non-cabinet competencies are listed in appendices A, B, and C of this study. To visually depict the relationship between the functions of competencies and the types of competencies the following chart has been included. Functions And Types Of Competencies General Inter Inter General Cabinet Positional Personal Non-Cabinet Competencies Competencies Competencies Competencies Planning Decision Making Evaluating 79 In developing the competencies a model or paradigm was needed to facilitate their organization and develop- ment. The paradigm, which is considered a model or overall structure, consisted of the three main areas or functions discussed in the definition of competency: planning, decision making, and evaluating. These three functions were evident in each type of competency with the exception of the inter personal. After further development it became apparent that the inter personal competencies actually were mandatory as a working base for the other competencies and thus became the base of the paradigmatic figure: ('a Within the three dimensional figure the three sides of the pyramid represent: (a) planning, (b) decision making, and (c) evaluating, while (d) represents the inter personal base upon which the other competencies depend. This dependency will become more evident as the individual com- petencies are developed. Using this paradigm the com- petencies will be described according to one of the three functions of the competencies. 80 General Description of Competencies It was stated in the working definition of administra- tive competency that the three functions or purposes were not mutually exclusive. Thus, planning, decision making and evaluating could all be involved in one particular com- petency. It was also noted, however, that within each com- petency one of the three functions became the focal point of the action. The following competencies are those which most directly facilitate institutional planning and develop- ment and therefore are considered under the function of planning. 1.0 Goal Definition: Initiate or modify goals and objectives of a community college through an understanding of philosophical, historical, sociological, and educational perspectives. Initiating or modifying the goals and objectives of a com- munity college is the most important task of the community college administrator. If stated correctly the goals and objectives behavioralize the philosophy and ideals of the college and its leaders. These statements of goals and objectives provide the major direction which the college will take, a basis from which to evaluate the various aspects of the college, and a standard measure which would be used as a reference for resolving the complex problems of the college. In developing the goals and objectives 81 for a junior college the cabinet members must rely on their ability to synthesize and actualize their knowledge and understanding of the junior college from the following per- spectives: an educational perspective, which will assist the cabinet member in placing the role and function of the junior college within the total educational process; a socio- logical perspective, which will assist him in placing the community college within the structure of his society given the societal laws and forces which impinge upon the junior college; a historical perspective, which will assist the administration in tracing, ordering, and interpreting the series of events leading to the development and continual change of the community college; and a philosophical per- II spective, which Webster states ...denotes the collection of general laws or principles under which all the subordinate phenomena or facts relating to that subject are comprehended."* As with the other competencies discussed in this chapter, the description of the above competency is a general overview with the behavioral manifestations to be developed in the next chapter. 2.0 Informational Abstracting: Abstract pertinent information from college or community studies; from new developments, procedures and methods in current per- iodicals or from professional confer- ences; and from colleagues within his specialized area which may assist other cabinet members in better comprehend- ing a given issue. *Webster's Unabridged New Twentieth Century Dictionary of the English Language, World Publishing, 1952. g, L 82 It is considered to be a minimum performance level task to keep current in one's own area of specialized responsibility. Beyond keeping current in one's own area, each cabinet member has the responsibility to inform the other cabinet members of those new methods, findings, or research studies which may directly apply to the inter positional com- petencies. The second aspect of the informational abstract- ing competency is the updating of the cabinet members through sharing innovations, problems, and overall faculty feelings which exist in each specialized area. This technique of relating the current events within each area allows for open channels of communcations and provides awareness of faculty attitudes and feelings. 3.0 Long Range Planning: Anticipate future needs and plan appropriate directions for the community college far enough in advance so that ade- quate funds, facilities, staff, and programs will be available to every- one who seeks admittance to the community college. Anticipating the future needs of a community college is more than interpreting the extrapolation reports of an expanding population. Long range planning provides the community college an opportunity to be continually relevant to the community by creating a design for the future of its community. It requires the junior college leaders to anti- cipate change as a regular part of planning for the 83 future. Without planning for the long range needs an admin- istrator and the college will be controlled by situations rather than controlling them. One of the crucial questions some community college administrators are faced with now is whether they are still capable of serving all who wish to attend the college. Philosophically this is the goal of the community college. Realistically the community college administrator must anticipate the needs of his college to ensure adequate funds, facilities, staff, and programs to meet the community needs and to serve those who wish to come. An administrator's ability in long range planning can be evaluated by the accuracy of his predictions and the congruency of his long range plans with the goals and objectives of the institution. According to the paradigm, the next group of compet- encies has the decision making process as its focal point. Once again it is evident that all three functions are re- presented in each of these competencies; however, it is the decision making process which is the most important function of those competencies listed here. 4.0 Problem Analysis: Utilize and recog- nize a system of rationale decision making to resolve complex problems of the community college. To determine a system of "rationale" decision making, Simon's definition of rationality will be employed. "Rationality is 84 concerned with the selection of preferred behavior alter- natives in terms of some systems of values whereby the consequences of behavior can be evaluated." (22:75) Simon's quotation evidences the main steps in a decision making system. In order for a cabinet member to be competent in the decision making system he must be able to utilize the following steps: (1) He must be able to accurately evaluate the goals and objectives of the institution. (2) He must be able to evaluate where and when a discrepancy exists between the current direction of the organization and the overall goals and objectives of the organization. (3) He must be able to decide, among alternatives, upon a plan of action. (4) He must be able to evaluate the action which has been taken. The methodology of achieving any one of these steps may vary from individual to individual; how- ever, in order to be systematic in the decision making process the administrator must recognize and be able to accomplish all four steps in the decision making process. 5.0 Legislative Analysis: Analyze and synthesize the federal and state laws and legislation pertinent to the community colleges to better determine the present level of federal and state involvement and the effect of such involvement on the determination of community college organization funding, cur- riculum, and hiring practices. Admittedly, being able to determine the limits of federal and state involvement is a feat in operationalizing the 85 nebulous; however, federal and state funding patterns, federal and state plans for education, and past experiences of federal and state participation are able to be observed and are segments of governmental involvement. The cabinet member must be familiar enough with all areas of such par- ticipation to be able to trace its legal origin. This synthesis would provide needed background in making those decisions concerning the community college organizational structure, its legal base, its funding patterns, Curricular requirements, hiring practices, and other responsibilities which demand an analysis of legal origin before a decision can be made. 6.0 Due Process: Internalize, synthesize, and actualize the concepts of due process of law so that all concerned are guaranteed this right. Although an administrative concern in the past, current faculty and student unrest in demanding that upper level administrators be able to implement the concepts and pro- cedures of due process of law. The ineptness of adminis- trators to understand the procedures of due process of law is becoming evident in the number of court cases which are being dismissed because the leaders of educational organiza- tions in question have not followed legal procedure cor- rectly. The lack of this competency on the part of educational administrators is also being evidenced by the number of 86 injunctions being brought against educational institutions by students, who for one reason or another, claim they have not received due process of law. The cabinet member must be able to internalize, synthesize, and actualize the pro- cedures and concepts of due process. Each decision made must be made within the framework of the individual's rights. It is no longer acceptable merely to act in the student or faculty member's best interest; it is now manda- tory that "best interest" be manifest in the acknowledgment of the due process of law. Recently collective bargaining and negotiations have determined new standards and frame- work within which administrators must operate. Each cabinet member must be fully aware of the clauses contained in the master contract if he is to be able to function successfully as a part of the decision making team. The due process of law has, perhaps, been taken for granted in that no training program reviewed considers it as a part of the core program for training junior college administrators. It must, however, become more prevalent in administrative thinking and in cabinet decisions. The third side of the paradigmatic figure represents the function of evaluating. When the competencies being used by a cabinet member for any given task are primarily concerned with evaluating, the task and the competencies will be labeled evaluative. 87 7.0 Report Analysis: Analyze and evaluate analytical reports which would influ- ence the plans, decisions, or evaluations, of a presidential cabinet. Cabinet members are presented with various study reports concerning the college community, the geographical community of the college, and the state community. These reports represent extrapolations of student enrollment, extrapola- tions of community population, analyses of local tax assess- ments, evaluations of specific organizations and many more. If these reports are to influence the cabinet member in planning or deciding upon crucial issues, the cabinet member must be able to analyze and evaluate these reports. 8.0 Leadership Analysis: Analyze adminis- trative problems and suggest solutions based on an understanding of various models and concepts of administrative theory, administrative leadership and a social systems approach to organiza- tions. The cabinet member must have the competency to evaluate specific problems in the administrative structure and select alternatives which will alleviate the problem while pro- posing a direction commensurate with the institutional goals and objectives. The administrator must be cognizant of basic administrative theories and the concepts involved in a social systems approach to organizations if he is to effectively function as an administrative leader. 88 9.0 Interaction Analysis: Analyze his perceptions of self and his role, his perceptions of the other cabinet members and their roles, and ac- knowledge their perceptions of him and his role so that he is better able to interact with his fellow cabinet members over cabinet iSSueS rather than over personality dif- ferences. The analysis of self and how one feels about himself is one of the first important functions of human development and human interactions. If a man does not know himself, it is difficult for him to understand how others feel about him. The individual must also recognize himself as a player of roles. He must learn to recognize and use the various roles he performs if he is to be an effective member of the presidential cabinet. The man who can only give advice, but never accept it; the man who constantly demands that a task be done his way, never another way; the man who is always thinking quietly, but never shares himself or his thoughts with the group these are unirole men who, after a short time, stagnate a group and prevent interaction from occuring. Assuming roles in a cabinet setting is not projecting a ”fake” image of one's self: it is the process of give and take, balance and counter balance which people must use to work out different problems. While the cabinet member must be able to work this out for himself, he must also be keenly aware of what the other cabinet members are 89 doing and perceive how they think of themselves and how well they are able to assume the various roles demanded of them in the interaction process. The purposes of this chapter were to present the methodology for the study, to present the cabinet competencies, and to present a general description for each of the com- petencies. The next chapter contains the behavioral mani- festation deduced from the general statements of competency listed in Chapter III. CHAPTER FOUR THE DEVELOPMENT OF THE BEHAVIORAL MANIFESTATIONS OF THE GENERAL CABINET COMPETENCIES Introduction The inductive approach to the development of the general cabinet competencies provided necessary data from junior college administrators currently in the field. In training doctoral candidates to become effective adminis- trators on the presidential cabinet, a training program must evolve from the general cabinet competencies developed in Chapter III. Evaluating doctoral candidates in a training program is a difficult task unless the expected behavior of those candidates is predetermined and stated in terms of human behavior which is observable. The pur- pose of this chapter is to present those behavioral manifes- tations which have been deductively developed from the general cabinet competencies. Methodology The approach used in developing the behavioral manifes- tation of each competency can best be illustrated through the complete development process of one such competency. As a guide in the development of the expected behavior each behavioral manifestation must: 1. be a natural outgrowth and an integral part of the stated competency 90 91 2. include those verbs which describe Specific human behavior required for the successful completion of that task 3. be one that is able to be taught to a doctoral candidate 4. be evaluated by an observer to deter- mine whether or not the candidate is performing the stated behavior Keeping these four requirements in mind the behavioral manifestation was deduced from the statement of the general cabinet competency and the general description of that competency as developed in Chapter III. Long Range Planning: Anticipate future needs and plan appropriate directions for the community college far enough in advance so that adequate funds, facil- ities, staff, and programs will be available to everyone who seeks ad- mittance to the community college. General description of the long range planning competency: Anticipating the future needs of a community college is more than interpreting the extrapolation reports of an expanding population. Long range planning provides the com- munity college an opportunity to be continually relevant to the community it serves by requiring the junior col- lege leaders to anticipate change as a regular part of their planning. With- out planning for the long range needs an administrator and the college will be controlled by situations rather than controlling them. One of the crucial questions some community college admin- istrators are faced with now is whether they are still capable of serving all who wish to attend the college. Phil- osophically this is the goal of the 92 community college. Realistically the community college administrator must anticipate the needs of his college to ensure adequate funds, facilities, staff, and programs to meet the com- munity needs and to serve those who wish to come. An administrator's ability in long range planning can be evaluated by the accuracy of his predictions and the congruency of his long range plans with the goals and objectives of the institution. From the stated competency and the general description a situation or set of conditions was established as a frame- work within which the expected behavior was to be observed. In developing the behavioral manifestations for the long range planning competency the first situation was: Given a hypothetical or actual community and its community college and the rele- vant data for each as determined by a panel of experts, the candidate will be able to: The situation described is an attempt to simulate a con- dition within the field. The panel of experts would be able to select that data from which the doctoral candidates would be able to accomplish prescribed behavior which was decided to be important based on the statement and description of the competency. The first part of the long range planning competency requires that the candidate be able to ”anti- cipate future needs and plan appropriate directions..." To be able to observe whether or not a candidate is able to anticipate future needs of the hypothetical community, 93 he must be able to analyze the relevant data provided him by the panel of experts and then: develop measurable criteria for antici- pating community change and community need. This is the behavioral manifestation. It requires the candidate to develop i.e. to make clear by degrees or in detail, measurable i.e., that which can be quantified, criteria. An observer could evaluate the candidate by asking him to present these criteria in written or oral form and could judge if the candidate had completed the task. The panel of experts could determine the quality of the criteria developed since they selected the hypothetical data. Given the same set of conditions described above a behavioral manifestation for the statement ”plan appropriate directions” would be developed as: detail the critical tasks which members of the institution must successfully com- plete to satisfy the anticipated needs of the community and realize the stated goals and objectives of the community college. One is able to observe if the candidate has detailed i.e., given extended treatment of particular items, the critical tasks which he feels to be involved. Again, the quality of the task completion would be judged by the panel of experts. 94 In developing the behavioral manifestations for the long range planning competency another set of conditions or situation may be developed as a framework within which the candidate will operate: Given selected community studies, reports, and projections, which have been preselected by a panel of experts, the candidate will apply his analysis of these documents to the development of measurable criteria for deter- mining the minimum level of adequacy in each of the following areas of community college. The behavior expected in this situation is that the candi- date be able to develop measurable criteria for determining the minimum level of adequacy of specified areas which will be listed. The development of measurable criteria has been expanded above so that its meaning is clear. ”Determining the minimum level of adequacy" is more complex. Given the prerequisite that the candidate is able to analyze the data he must develop his own definition of ”adequacy” and then develop the criteria for determining when that level is reached. Admittedly, this is a complex learning behavior requiring indepth analysis and synthesis of many concepts. However, the learning experiences and requirements will be considered in the development of the next chapter and should not at this point be a distraction from those behaviors which have been deductively developed from the stated competencies. The specific areas for which the candidate must perform the behavior stated above are: 95 the experiences, structured and unstruc- tured which will be provided by the col- lege for all members of the community the number of professional, paraprofessional, and non-professional staff which will be needed in each area of responsibility with- in the college The methodology presented in these illustrations was used in developing all of the behavioral manifestations for this chapter. If the four requirements for their develop- ment have been met the observer can determine if the mani- festations are natural outgrowths and an integral parts of a given competency. The observer will also be able to determine whether or not he could evaluate a candidate to determine if the behavior manifestation was being completed successfully. Even though the manifestations should be stated well enough to be evaluated by the observer there are some qualifications which need to be made before the competencies and their behavioral manifestations are presented. The first qualification to be made is that most not all of the behavioral manifestations for each competency have been listed. In fact all of them have not yet been thought of by the author. The ones listed do, however, represent those which are most natural and most important to the author. Their strength lies in that they demonstrate a model or framework to which other manifestations may be added and some of those listed may be deleted. The second 96 qualification is that no value judgments have been made concerning the number or percentage of behavioral manifes- tations which must be successfully completed for any specific competency. This performance criteria would best be set by the doctoral candidate and the panel of experts and pro- fessors. The third qualification is that the behavioral verbs which are used to describe the expected behavior have been defined by the author's paraphasing of dictionary definitions. These definitions are now offered so that a common frame of reference can be established in evaluating the behavioral manifestations presented. Definition of Terms for Describing thavioral Competencies Analyze: a separation of the whole into component parts; an examination of a complex, its elements, and their relations; to study or determine the nature and relationship of the parts by analysis Decide: to arrive at a solution that ends uncer- tainly or dispute, to bring a definite end Define: to fix the limits; determine the essen- tial qualities or precise meaning Describe: to represent by word, figure, model or picture Determine: to settle or decide by choice of alter- natives or possibilities Detail: extended treatment of particular items; a portion considered independently of the parts considered together Develop: to set forth or make clear by degrees or in detail; to make visible or manifest 97 Development: the act process, or result of developing: the state of being developed Evaluate: to determine or fix the value of; to examine or judge Implement: to carry out: to provide implements for Interpret: to explain the meaning of: to conceive in the light of individual belief, judge- ment, or circumstance: bring to reali- zation by performance Predict: to declare in advance: foretell on the basis of observation, experience, or scientific reason Provide: to take precautionary measures: to make a proviso or stipulation: to supply what is needed for sustenance or support Recognize: to perceive to be something previously known Role: a function or office assumed by someone Synthesize: the putting together of elements and parts so as to form a whole Trace: a sign or evidence of some past thing Utilize: to make use of: connect to use Behavioral Manifestations 1.0 Goal Definition: Initiate or modify goals and objectives of a community college through an understanding of philosophical, historical, sociological, and educational perspectives. 1.01 Given a list of objectives and goals of community colleges selected by a panel of experts, the candidate will be able to: 1.02 determine those goals and objectives which are basically philosophical in origin 98 1.03 determine those goals and objectives which are basically historical in origin 1.04 determine those goals and objectives which are basically sociological in origin 1.05 determine those goals and objectives which are basically educational in origin 1.06 determine those goals and objectives stated in behavioral language 1.07 write in behavioral language those goals and objectives which are not stated behaviorally 1.08 determine those goals and objectives most consistently realized by the operation of the community college 1.09 Given the policies, goals, and objectives of a hypothetical institution, the candi— date will be able to: 1.10 evaluate the policies and the goals and objectives to determine what discrepancies exist 1.11 evaluate the working definition of the open door policy 1.12 match a list of given policies to the specific goal or objective which the policies implement 1.13 match the specific areas of the college's operation to specific goals and ob- jectives 1.14 evaluate the community analysis reports to determine if their conclusions are reflected in the goals, policies and objectives of the institution 1.15 Given relevant data about a hypothetical or real community, the candidate will be able to develop: 99 1.16 goals and objectives for the community college which will meet the needs of and provide direction for the community 1.17 administrative policies to affect the goals and objectives of the institu- tion 2.0 Informational Abstracting: Abstract pertinent information from college or community studies: from new developments, procedures and methods in current periodicals, or from professional conferences; and from colleagues within his specialized area which may assist other cabinet members in better comprehending a given issue. 2.01 Given a simulation of a presidential cabinet 2.04 2.05 meeting with the expert assuming the role of president and six doctoral candidates assuming one of the other cabinet positions, each candidate will able to: 2.02 determine, from information presel- ected for his analysis, that which is pertinent to the issue being discussed as judged by the other cabinet members 2.03 present a written or oral synthesis of a study, article, professional paper, or piece of research which is judged by the other cabinet members to better enable them to perform one of their requisite competencies At least once every three terms the candi- date will interact with members of a com- munity college and gather information con- cerning current problems, experimentations, innovations and techniques being used at the community college. Given the various problematic situations with which the cabinet will be dealing, the candidate will be able to analyze and apply the various sources of information to a Specific problem under discussion. 2.06 the candidate will be able to write an abstract of various professional articles, speeches, and books. 3.0 Long range planning: Anticipate future needs and plan appropriate directions for the community college far enough in advance so that adequate funds, facilities, staff, and programs will be available to everyone who seeks admittance to the community college. 3.01 Given a hypothetical or actual community and its community college and the relevant data for each, as determined by a panel of experts, the candidate will be able to accomplish the following tasks to the satis- faction of the panel: 3.02 develop a pert chart, PPBS, a critical path movement chart, or a system of goal objectives which provides the time schedule, the specified tasks, and the needed funds which must be attained by the community and its college within the next ten years. 3.03 develop measurable criteria for anti- cipating community change and community needs. 3.04 detail the critical tasks which members of the institution must successfully complete to satisfy the anticipated needs of the community and realize the stated goals and objectives of the community college. 3.05 project the probable percentages of funding which will be available from the federal, state, and local govern- ments within the next ten years. Given selected community studies, reports, and projections, which have been preselected by a panel of experts, the candidate will apply his analysis of these documents to the development of measurable criteria for determining the minimum level of adequacy in each of the following areas of the com- munity college: 3.07 the number of professional, para- professional, and non-professional staff which will be needed in each area of responsibility within the the college. 4.0 3.09 3.10 101 the physical characteristics, size, building cost, operating cost, utiliza- tion, and date of completion of the facilities needed in the next ten years the experiences, structured and un- structured, which will be provided by the college for all members of the com- munity the demographic characteristics of the student body and the common and unique values, attitudes, and issues with which they are concerned. Problem Analysis: Utilize and recognize a system of rational decision making to resolve complex problems of the community college. 4.01 Given a three month internship experience at a community college or an experience as a participant in a simulated cabinet setting, the candidate will be able to: 4.02 analyze and evaluate the goals and objectives of the institution to deter- mine if the decisions being made by the cabinet facilitate the stated directions of the institution accept and implement the decisions of the cabinet even though he may not agree with the decision which is made evaluate a given situation to determine if there is a discrepancy between the current direction of the college and the formally stated goals and objec- tives of the college evaluate the adequacy of the data and its relationship to the problem being discussed evaluate the various alternatives which are being considered for the solution of this problem determine a choice of action which will best alleviate the situation described in the problem and make the decision 102 4.08 implement the decision and evaluate and analyze the effects of the decision.* 4.09 Given that the candidate is able to use the decision making technique, he will be able to recognize a similar system of decision making being used by the other cabinet members. 5.0 Legislative Analysis: Analyze and synthesize the federal and state laws and legislation pertinent to the community colleges to better determine the present level of federal and state involvement and the effect of such involvement on the deter- mination of community college organization, fund- ing, curriculum, and hiring practices. 5.01 Given the higher education budget as passed by the state legislature for any given year, the candidate will be able to determine whether there is an equitable distribution of tax dollars among the predetermined junior colleges districts, based on a pre- selected list of criteria. 5.02 Through independent research, course work, or discussion with state legislators, their staff, and other legal experts, the candidate will be able to: 5.03 describe and give examples of the legal bases providing for the establishment of junior college districts 5.04 document significant past examples of federal and state legislation which have affected the community college system in the state 5.05 determine which current legislation, proposed and passed, directly or in— directly affects the junior college *Although the implementation of a decision is a crucial element in the decision making process, it is not considered a part of the cabinet competencies. Once a decision is made by the cabinet members it is usually administered by one cabinet member and the staff in his area of responsibility. Thus, implementation of a decision would be an inter positional competency rather than a general cabinet competency. 103 5.06 Given a simulated cabinet setting and assuming the candidates have completed the specific tasks of budget patterns and legislation analysis, each candidate is now able to: 5.07 defend his proposed solution to a given problem by describing the rela- tionship between that solution and the state funding pattern, past and present legislation, and the role of the community college within the state educational structure. 5.08 determine the areas and the degrees of involvement which legally should be exercised by the state 5.09 assist in the preparation of a position paper stating the cabinet's suggestions for the development of state educational policies affecting the community col- leges. This paper would then be given to those state legislators and experts consulted during this experience for their evaluation. 5.10 given the position paper stating the cabinet's suggestions for the develop- ment of state educational policies affecting the community college, the candidate will be able to develop the route these suggestions must take to become legislation within the state. Due Process: Internalize, synthesize, and actualize the concepts of due process of law so that all concerned are guaranteed this right. 6.01 Given a packet of case studies representing college policies, recent cabinet decisions, and master contracts for faculty, which depict real or hypothetical situations in community colleges, the candidate will be able to analyze the cases and determine: 6.02 if an individual or individual's rights were jeopardized or denied 6.03 if proper channels for redress of faculty and student grievances were provided 7.0 104 6.04 if the proper legal steps were taken to provide due process of law for those individuals concerned 6.05 if proper legal steps were not taken, what action should have been taken to insure due process of law for those individuals involved 6.06 the definition of due process of law in each of the case studies Report Analysis: Analyze and evaluate analytical reports which would influence the plans, decisions, or evaluations of a presidential cabinet. 7.01 Given five statistical studies preselected by a panel of experts the candidate will be able to: 7.02 rank order the studies from best to worst and present a written or oral evaluation of their strengths and weaknesses using the methodology of statistical design as the criteria 7.03 compare the hypotheses of the study to the conclusions which were reached and accept or reject the conclusions as they are stated 7.04 Given several utilization studies describing the operation of a community college for the past fiscal year, the candidate will be able to identify those areas of the college which are not operating efficiently as prejudged by a panel of experts. 7.05 Given several proposals for innovation and change within areas of the college, the candidate will evaluate and analyze these proposals to: 7.06 evaluate the perceived need which the innovation or change will attempt to satisfy 7.07 evaluate and rewrite if necessary those objectives of the proposal against which the innovation or change will be evaluated 105 calculate the financial cost of the pro- posed innovation or change evaluate whether this innovation or change is commensurate with the goals and objectives of the college evaluate whether this innovation or change will be unnecessarily detrimental to any of the individuals involved 7.11 Given community reports on manpower trends, unemployment studies, housing trends, and industrial trends, which have been presel- ected by a panel of experts, the candidate will be able to identify the following aspects of the reports: (1) the purpose, (2) the source, (3) assumptions upon which the report is based, (4) hypotheses which may be tested, (5) the methodology used, (6) the data which was collected, (7) con- clusions which were reached, and (8) the implications the report has for the community college. Leadership Analysis: Analyze administrative pro- blems and suggest solutions based on an under- standing of various models and concepts of admin- istrative theory, administrative leadership, and the social systems approach to organizations. 8.01 In a simulated presidential cabinet experience the cabinet will be given various case studies involving organizational, administrative, leadership and social systems problems which have been selected by a panel of experts. Each candidate on the cabinet will be ex— pected to analyze the problems involved in each of the cases and to: identify the organizational model being used by the community college in each case identify the concept of authority and define authority through the stated behavior of the administrator repre- sented in the case. 106 8.04 develop the system of decision making which is being used by the administra- tors in the case studies through their behavior and their comments which are related to the candidate 8.05 develop the chain of command, formal and informal, which exists in the organ- ization in each case 8.06 describe the atmosphere which has been created by the administrative leader- ship or the lack of it 8.07 identify the role of the faculty and describe their participation within the organization 8.08 define the problem as the administra- tors in each case perceive it to exist 8.09 define the problem as the candidate perceives it to exist 8.10 describe the conclusion reached by the administrators 8.11 decide to accept or reject the con- clusion as stated by the administra- tors Given data which describes the practices and concepts of administration and leadership used to make decisions at selected community colleges, the candidate will be able to: 8.13 determine the administrative model being employed by the institution 8.14 define the concepts of power and authority being used by the particular junior college administration 8.15 describe in a step by step description the system used by the administrative staff to make decisions 8.16 define and explain administrative problems, potential or real, within the administrative structure of a given junior college. 9.0 107 Interaction Analysis: Analyze his perceptions of self and his role, his perceptions of the other cabinet members and their roles, and acknowledge their perceptions of him.and his role so that he is better able to interact with his fellow cabinet members over cabinet issues rather than over personality differences. 9.01 Given a simulated cabinet meeting with the doctoral candidates assuming the roles of the cabinet members, each candidate will be asked 9.02 9.03 9.04 9.05 9.06 9.07 9.08 9.09 to perform the following tasks: assume a role in a role playing situation evaluate his feelings about the role itself and his personal feelings while acting out the role synthesize and internalize praise and criticism from other members of the cabinet and relate this to the cabinet offer praise and criticism to other members of the cabinet evaluate the analysis, given by other cabinet members, of the role others perceive the candidate as playing most often in the simulated cabinet meetings and relate this analysis to the cabinet evaluate his perception of his role and peer perception of his role in order to reach congruency between the two present alternative solutions to the specific problem being dealt with by the cabinet analyze synthesize and evaluate the alternatives his colleagues have pre- sented 9.10 Given a simulated or real conflict situation between two candidates, they will be able to work to the underlying reason of conflict as determined by a group leader 108 9.11 Given a simulated cabinet experience, the candidate will be able to analyze his abilities in group interaction which will be congruent with the other candidates' analyses of his ability. The purpose of Chapter IV was to develop the behavioral manifestations of the general cabinet competencies. The methodology for this deductive process was presented and illustrated to present a better understanding of the development process. The analysis of the recent literature and of the recent research studies indicated a need for behavioralizing the positions on the cabinet and evaluative process for training doctoral candidates who wish to become junior college administrators. The last chapter will be used to present suggested learning experiences to enable these candidates to attain the behavioral manifestations of the general cabinet competencies. CHAPTER V THE DEVELOPMENT OF THE LEARNING EXPERIENCES The training of junior college administrators is considered to be a rational, logical learning process at least as this process is viewed by the professors in the training program at Michigan State University. This study has been an attempt, therefore, to arrive at the development of the learning experiences in a logical manner. Beginning with over 200 statements made by junior college administrators in the current professional literature, research studies, and job descriptions, a list of general cabinet competencies was inductively developed in Chapter III. Once these competencies were generated from the reality of the junior college administrator's tasks in the field, the next logical step was to deduce what behaviors would be observed if a junior college adminis- trator was successful in completing each of the competencies. These observable behaviors were labeled the behavioral manifestations of the general cabinet competencies and were deve10ped in Chapter IV. The final step in this process seems to be the development of the learning experiences which would assist the doctoral candidates in the junior college training program at Michigan State University in attaining the behavior prescribed by the behavioral manifestations. A deductive approach to the development of these learning experiences seems to be the most logical. The learning experiences developed in Chapter V have, therefore, been arrived at deductively from the behavioral manifestations in Chapter IV. 109 110 In developing the learning experiences several assumptions were made concerning the Michigan State University training program. The first assumption was that the professors in the program would be will- ing to attempt the simulated cabinet experience and the professional seminar experience as they are defined and described later in the chapter. The second assumption was that the internship will be con- tinued as a learning experience for the doctoral candidates. The third assumption is that the candidates entering the program will have vary- ing degrees of experience and expertise and that the learning experiences must be such to accommodate each individual candidate. The last assump- tion is that the sources within the university, which would assist the doctoral candidate in successfully completing each of the competencies, can be identified. Based on these assumptions a framework for the learning experiences was developed. Framework for the Learning Egperiences In analyzing and evaluating the behavioral manifestations which were deductively generated from the general cabinet competencies it was realized that certain of the manifestations required more complex behavior than did others. While a candidate would be asked in one in- stance to match a list of given policies to the specific goal or objective which the policies implement (a task which requires only the application and analysis of the given data), in other instances he was asked to evaluate community analysis reports to determine if the conclusions arrived at in the report were reflected in the goals, policies, and objectives of the institution (a task which requires analysis, synthesis, 111 and evaluation). Recognizing the varying degrees of complexity within the listings of behavioral manifestations logically required that criteria be developed to differentiate the behavioral manifestations according to the complexity of behavior expected of the candidate. In this way a logical framework for the learning experiences could be developed. Benjamin Bloom and a committee of college and university examiners published a Taxonomy of Educational Objectives (5) which classified educational goals in the cognitive domain. Bloom g5. El- define the cognitive domain as that which "...includes those objectives which deal with the recall of recognition of knowledge and the development of intellectual abilities and skills." (5:7) In the development of the taxonomy six major classes were developed to differentiate the complexity of learning behavior. These six classes with their accom- panying definitions are as follows: 1. Knowledge: those behaviors and test situations which emphasize the remembering, either by recognition or recall, of ideas, material, or phenomena. (5:62) N . Comprehension: those objectives, behaviors, or responses which represent an under- standing of the literal message contained in a communication. (5:89) U.) . Application: the ability to apply an appropriate abstraction without having to be prompted as to which abstraction is correct or without having to be shown how to use it in that situation. (5:120) .l.\ . Analysis: emphasizes the breakdown of the material into its constituent parts and detection of the relationships of the parts and of the way they are organized, (5:144) 112 5. Synthesis: the putting together of elements and parts so as to form a whole. (5:162) 6. Evaluation: the making of judgments about the value, for some purpose, of ideas, works, solutions, methods, material, etc. (5:185) In clarifying the order of complexity Bloom states that the lowest level of complexity is knowledge and each step after knowledge becomes more complex until the learner is able to evaluate, a skill which re- quires the most complex intellectual behavior. Bloom describes this ranking as follows: The whole cognitive domain of the taxonomy is arranged in a hierarchy, that is, each classification within it demands the skills and abilities which are lower in the classification order. (5:120) Presumably if the expected behavior of the candidate is analysis, then the candidate must have previously demonstrated the behavior required in the classes of knowledge, comprehension, and application, all of which are lower in the classification order. In developing the learning experiences for the candidates at Michigan State University, Bloom's six classes within the taxonomy, his definitions of the behaviors to be exhibited by the candidate within each of the classes, and the assumption that there in fact is a hierarchy implicit within these classes were accepted by the author and used as a guide for the development of the learning experiences. There were several modifications to Bloom's approach which had to be made in the systematic development of the learning experiences. The first modification concerned Bloom's contention that the behavior expected in each of the six classes could be learned by the candidate 113 in every course, seminar, or independent learning experience in which the candidate participated. While the writer does not disagree with that assumption, the task to be accomplished through the learning exper- iences is to have the candidate learn the required behavior needed to successfully complete any of the nine general cabinet competencies. Considering a given competency as one would consider a course, requires that specific experiences need to be developed to enable the candidate to learn the expected behavior of that competency in sequential steps. Thus, in developing the learning experiences for a particular compe- tency, three specific learning situations have been developed to assist the candidate in acquiring the various behaviors expected in each of the classes within the taxonomy. The second modification was in the selection of the classes of learning to be included within each of the three Specific learning situations. If the assumption is made that the presidential cabinet members need to use the most complex intellectual behavior as it is represented in Bloom's taxonomy, then the final learning experience for the candidate should simulate, as closely as possible, that required behavior. It does not seem feasible to develop six significant learning experiences which would parallel each of the six classes of Bloom's taxonomy, since to do so would be more imaginary than realistic within a training program. Therefore, the simulated cabinet, which incorporates those learning experiences a candidate is likely to find within a junior college, will assist the student in achieving the intellectual skills of synthesis and evaluation. The second specific learning experience to be developed is the professional seminar in the community college 114 which will assist the candidate in develOping the intellectual skills of analysis and application and thus prepare him for the simulated cabinet experience. The third specific learning experience will include courses, seminars - excluding the professional seminar - and independent study all of which will assist the student in developing the intellec- tual skills of knowledge and comprehension. Although there are several other segments of the training program, it would be well at this time to develop these three learning experiences more fully. The Simulated Cgbinet The purpose of the simulated cabinet is to enable the candidate to experience, as closely as possible, the demands placed on him and the tasks to be completed by him once he enters the junior college field as an administrator. Accepting the assumption that these demands and tasks must be met with the highest level of intellectual develop- ment on the part of the candidate, the simulated cabinet will provide for those experiences which require the candidate to use the skills of synthesis and evaluation to complete the experiences successfully. Reiterating Bloom's defintions: Synthesis: the putting together of elements and parts so as to form a whole. (5:162) Evaluation: the making of judgments about the value, for some purpose, of ideas, works, solutions, methods, material, etc. (5:185) The criteria for the delineation of the complexities of behavior are these two levels of intellectual develOpment. In reviewing those behavioral manifestations which have been deve10ped for each of the 115 Specific competencies, only those manifestations which require the behavior of synthesis and/or evaluation will be included in the simu- lated cabinet experience. To illustrate how these two levels of intellectual development are used as criteria several behavioral manifestations and their situations from the goal definition competency have been chosen: 1.09 Given the policies, goals, and objectives of a hypothetical institution, the candidate will be able to: 1.10 evaluate the policies and the goals and objectives to determine what discrepancies, if any, exist. The key word in the behavioral manifestation (1.10) is evaluate. Remembering Bloom's assumption, which this author has accepted, that in order for the candidate to evaluate he must have demonstrated ability in successfully using the five other classes of the taxonomy which are subservient to the level of evaluation. Therefore, the candidate must be able to: I. recall or recognize the independent properties of policies, goals, and objectives (knowledge) 2. determine which of the statements represent goals, which represent objectives and which represent policies (comprehension) 3. apply the basic principles of a goal. an objective, and a policy to those examples given him (application) 4. recognize which particular policies are relevant to which particular goals and objectives (analysis) 5. propose ways in which he can test whether specific policies do implement specific goals and objectives (sypthesis) 116 6. make a judgment as to whether those policies do, in.fact, implement the goals and objectives (evaluatiOn) Each behavioral manifestation was evaluated to determine what level of intellectual development was needed for the successful completion of the manifestation. When the prescribed behavior required the skill of synthesis or evaluation, that behavior was listed under the simulated cabinet experience. Professional Seminar in Community College As the second learning experience, the professional seminar is designed to assist the student in acquiring the skills of analysis and application so that he may be better prepared to interact within the simulated cabinet setting. Unlike the normal seminars which have a specific subject matter focus, such as the seminar in adult education, the professional seminar incorporates subject matter from all of the nine competencies and treats the subject matter at the intellectual skill level of analysis and application. For convenience Bloom's definitions are offered: Application: the ability to apply an approriate abstraction without having to be prompted as to which abstraction is correct or without having to be shown how to use it in that situation (5:120) Analysis: emphasizes the breakdown of material into its constituent parts and detection of the relationships of the parts and of the way they are organized (5:144) In determining those behavioral manifestations to be developed in the professional seminar, the same methodology was adhered to as in the simulated cabinet. To illustrate how these two levels of intellectual 117 development are used as criteria to determine those behavioral mani- festation which are to be presented in the professional seminar, examples from the goal definition competency are presented: 1.12 Given the policies, goals, and objectives of a hypothetical institution, the candidate will be able to: 1.13 Match a list of given policies to the Specific goal or objective which the policies implement The key word in this behavioral manifestation (1.13) is match. To determine the level of intellectual ability needed, Bloom's taxonomy must again be followed as it was for the illustration presented in the simulated cabinet. Thus, each class in the taxonomy, beginning with knowledge, Must be evaluated to determine if it is needed to complete the task of this behavioral manifestation. I. recall or recognize the independent pr0perties of policies, goals and objectives (knowledge) 2. determine which of the statements represent goals, which represent objectives and which represent policies (cogprehension) 3. apply the basic principles of a goal, an objective, and a policy to those examples given him (application) 4. recognize which particular policies are relevant to which particular goals and objectives (analysis) In this example the highest level of intellectual ability the candidate must be able to use to complete the task stated in 1.13 is analysis. The candidate does not need to propose ways to test whether specific goals are implemented through particular policies nor does he need to make that judgment. Therefore, the skills of synthesis and evaluation 118 are not necessary for the completion of this task. However, the skills of knowledge, comprehension, application and analysis are needed by the candidate as shown in the illustration. Since the highest level required is analysis, and application and analysis are those skills to be developed through the professional seminar, the behavioral manifestation (1.13) is included in the professional seminar learning experience. Courses, Seminars, and Independent Study The three aspects of the third Specific learning experience are: (1) those established courses which currently comprise a candidate's program, (2) those seminars which are organized around a specific topic or body of information, and (3) those experiences which a candidate designs independently and selects a faculty member to help guide the experience in independent study. These experiences were grouped to- gether because it was felt that they would provide the candidate the best opportunity to acquire the intellectual skills of knowledge and comprehension. To reiterate, Bloom defines them as: Knowledge: those behaviors and test situations which emphasize the remembering, either by recognition or recall, of ideas, material, or phenomena (5:62) Comprehension: those objectives, behaviors, or responses which represent an under- standing of the literal message con- tained in a communication (5:89) Within the organization of the learning experiences presented later in this chapter certain courses have been recommended to assist the candidate in achieving these two areas of intellectual skill. In this way the candidate will prepare himself for the professional seminar 119 which requires him to have mastered the skills of knowledge and compre- hension. It should be mentioned at this point that those courses listed within each of the competencies are representative of the kinds of courses suggested to prepare the candidate for the professional seminar. These courses are not to be considered all that would apply to the particular competency; thus, free substitution of course work should be permitted providing the candidate and his advisor feel that the candidate will be able to acquire the behavioral manifestations. Within the Michigan State University training program there is little if any difference between the seminar and the formal c0urse. Seminar selections have been treated in the same way as the course and are listed according to their respective general cabinet competencies. As mentioned earlier, the distinction between the professional seminar and the seminars considered in this third learning experience is an important one and is worth restating at this time. The professional seminar in community college is designed specifically for the candidate in the Michigan State University Junior College Leadership Training Program who has attained the intellectual skills of knowledge and comprehension and is ready to acquire the skills of application and analysis. The professional seminar will use the nine general cabinet competencies as subject matter and in several situations the seminar leader will be re8ponsible for those particular areas of knowledge which cannot be attained through course work or the formal seminar. The major task to be considered in the professional seminar is to enable the candidate to use the skills of application and analysis when dealing with the general cabinet competencies and their behavioral 120 manifestations, so that he is prepared for the role of participant within the simulated cabinet experience. On the other hand the formal or topic oriented seminar will be centered around one specific area such as adult education, administra- tion, educational law and many others. It is similar to the course work in that the candidate will build a knowledge-comprehension base within the specific t0pic area so that he will be able to participate in the professional seminar. It, therefore, should not be confused or equated with the professional seminar in the community college. The third aspect of this learning experience is independent study. Independent study allows the candidate to select a problem of interest and to concentrate his energies on the exploration or solution of that problem. Usually a brief proposal outlining the purposes, objectives, hypotheses, and methodology is submitted to a professor whom the candi- date selects to guide the study. The independent study experience has the advantage of allowing the candidate greater depth within a given field or a chance to explore an area for which there is no course or formal seminar offering. As in the case of the course and seminar, the independent study experience will assist the candidate in acquiring the intellectual skills of knowledge and comprehension, which will enable him to participate in the professional seminar in the community college. It was mentioned earlier in this chapter that several modifications were made in Bloom's taxonomy. After describing the three learning experiences which have been suggested for the training program, it might be best to consider Bloom's taxonomy at two different levels rather than merely referring to this approach as a modification. The 121 first level, and the more important of the two considering the purpose of this study, is that of having the candidate exhibit the behavior required by the general cabinet competencies. To assist the learner in achieving the stated behaviors generated from each competency, the learning tasks have been divided according to the complexity of the behavior required or as Bloom states, according to the major classes of intellectual development in the taxonomy of the cognitive domain. Rather than treat each of the six major classes separately the total learning experience in this study has been divided into three Specfic learning situations: (1) the simulated cabinet, which will assist the learner in accomplishing the intellectual skills of synthesis and evaluation; (2) the professional seminar in the community college, which will assist the learner in acquiring the intellectual skills of appli- cation and analysis; and (3) the courses, seminars, and independent study experiences, which will assist the learner in acquiring the intellectual skills of knowledge and comprehension. Considering these three Specific learning experiences as parts of a whole, the whole being his ability to function as a cabinet member on a junior college cabinet using all nine general cabinet competencies, the learner is guided through the hierarchy of intellectual skill development as it relates to each of the competencies. The second level of Bloom's taxonomy is its application to the specific courses, seminars, and independent studies which the candidate will experience. Within any given course or seminar the candidate will probably be guided through the hierarchy of all six classes of intellectual skill. This will occur, however, within the specialized area of a given 122 course.and not in relationship to the general cabinet competencies. Thus, while the candidate is able to use the most complex intellectual skill of evaluation in an historical foundations course or the community course, what is learned from that course becomes the basis for knowledge and comprehension as they relate to the total experience of achieving the general cabinet competencies. As an illustration the candidate, within the community college course, may be able to write goals and objectives for a community college (synthesis) and make a judgment concerning the validity of such goals and objectives (evaluation). Within the course experience the candidate has mastered all six classes of intellectual skill in their hierarchal order. When placed within the total learning framework of the general cabinet competencies, however, he has mastered only the intellectual skills of knowledge and compre- hension because within the simulated cabinet he must be able to evaluate the policies, goals, and objectives of a hypothetical institution to determine what discrepancies, if any, exist - a task which requires evaluation in a more complex learning environment. Through this illustration the two levels of Bloom's taxonomy are seen as compli- mentary, not contradictory and the distinction between the two levels is an important one in understanding the organization of the learning experiences which will be presented later in this chapter. The Internship The internship is considered to be a specific learning experience but has not been given a specific function in assisting the candidate to learn any Specific intellectual Skill while the simulated cabinet, professional seminar, and courses have been given specific functions. 123 The internship, which permits a candidate to receive full time on the job training in a selected junior college for a minimum of three months, needs to be extremely flexible. When a candidate is assigned an intern- ship, many conditions must be met. The candidate's past experience, his present level of intellectual skill development, his personal and professional goals, and his financial need should all be considered in planning the internship experience. The past experience the candidate has acquired in junior college education may determine the beginning administrative level of placement for the candidate while his present level of intellectual skill develOpment would determine the nature of the tasks which he would be given to complete. The candidate's personal and professional goals would assist in the detemination of the location, size, complexity, and administrative organization of the junior college selected for his internship while his financial Situation may determine which particular term he will accept his internship. Above all the in- ternship must not stagnate the candidate's develoPment of intellectual skills. If a candidate is operating within the training program at the application-analysis level in the professional seminar, he should be given tasks to complete during his internship which strengthen that level and provide experiences within the junior college cabinet which will afford him the opportunity to begin developing the synthesis- evaluation Skills. The flexibility of the internship experience allows it to become a usable vehicle to deve10p any of the intellectual Skills provided within the training program itself. 124 The Matriculation Process Candidates entering the Michigan State University Junior College Training Program have varied backgrounds in personal experience, pro- fessional experience, and formal education experiences, yet all have the rather specific goal of becoming a junior college administrator. Since the general cabinet competencies have been developed to determine the end goals of this training program, and the behavioral manifestations have been developed to describe the specific behavior of the candidate needed in each of these competencies, and the learning experiences have been developed to assist the candidate in acquiring these behavioral manifestations, the question of "goodness of fit" between the candidate and his planned academic program becomes important. The simulated cabinet experience represents the highest level of intellectual skills development as well as an actual junior college cabinet. Each candi- date, therefore, should be evaluated to determine to what degree he is able to complete the specific tasks required within the simulated cabinet experience. Evaluating all of the entering candidates, using all of the required tasks for each of the stated competencies, on an individual basis would be an impossible operational task. There seems to be a way, however, of accomplishing this evaluative process in a meaningful and individual approach for each candidate. If the entering candidates and the professors directly involved were to form a simulated cabinet and given selected tasks felt to be representative of those to be complete in each of the general cabinet competencies,* the candidates could then be observed and their progress *A list of representative tasks is included in Appendix D. 125 charted as they attempted to complete the given tasks. At this point the professor could develop a learning program for each candidate based on his performance in the simulated cabinet meeting. Summary In summarizing the framework developed to organize the learning experiences the first important step was the development of criteria to determine which behavioral manifestations would be learned within which specific situations. Deciding that there were differences among the behavioral manifestations due to the varying complexity of behavior required a modification of Bloom's taxonomy of educational objectives in the cognative domain was adopted. Bloom's six classes of the taxonomy were divided such that each of the three learning experiences became responsible for assisting the candidate in learning two of the classes of intellectual skills. Thus, the simulated cabinet incorporated learning experiences to assist the candidate in developing the intellectual skills of synthesis and evaluation, the professional seminar in community college assisted the candidate in acquiring the intellectual skills of application and analysis, and the courses, seminars, and independent Study experiences assisted the student in acquiring the intellectual skills of knowledge and comprehension. In addition to these three learning experiences the internship was discussed as a highly flexible experience based on the candidate's learning profile and it would func- tion as a vehicle by which the candidate could learn any of the Six intellectual skills. The last portion of this section was Suggested approach to the development of the candidate's academic program upon matriculation. 126 Organization of Learning Experiences In the following section the behavioral manifestations have been organized according to the learning experiences. For each course or formal seminar suggested a brief description of the course has been included. Each foldout represents one general cabinet competency so that trainee or learner can quickly determine where the candidate is, has been, and is going in his conquest of each specific competency. A Summary of the Development of the Study Chapter I The purpose of this study was threefold. First, the general cabinet competencies needed by the members of the junior college presidential cabinet were generated. Second, the behavioral mani- festations of these competencies were described in behavioral langu- age to enable an observer to evaluate when the competency was being successfully accomplished. Third, different learning experiences were suggested to assist doctoral candidates in the Michigan State University Junior College Leadership Training Program in successfully acquiring each of the stated general cabinet competencies. Chapter II In this chapter a review of the relevant literature was provided. In organizing this review three basic sections were necessary. The first section included the relevant research in the area of decision making as it relates to the junior college presidential cabinet. The research presented strongly favored group decision making by the mem- bers of the presidential cabinet as opposed to autonomous decision making by the president of the junior college. 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nmsonu co>o uuennmo ecu mo manunauum onu unoEanEH can unmuun .couusuuumsn can we meanuuonnu vououm on» uuwunnnomN uo=«AMu ecu an acne wewun meanmaoop emu mm wcflsnouuu ou canusuwunea on» mo mm>uuuwmno can madam onu mum=Hm>o van enhance "ou «Ham on fines sump unvewo onu .wcnuuuw uooanoo kumH=E«m a :« uemnauuunwn a mu oueoHnuaxo an no oonHou anaeseaou a no aucownon nxu mazmenwuea :ueoa wonsu m ao>no HqumHomwn On menxme nowmnuwv ameoHumn mo Emumzm m ouncmooon vow pagans: ”mnm Hmc< sufiponm momuaoo >HHzaéaoo KH m cry on oumuwvcmu w£u umnmmm cu umcmnmou "monuumnm mom Anemch m>nnmnumnzneu< >QDHm HZqummwozH oz< mmov ou uses an as“: samenvcwo «cu menuuuu nomad conuwoon onu eo>nw acqumoam>m nuonu new nunumnm med nnouaflmnwoa «noun ecuuuoon a mo coauwnanmnn can on umnnma .onmun onu an owono anuno on masons magowun suns: uaoso>ao>cn mo noonuuv can one nouns osu ocusnuuov .onsuosnuu Hananuuusvu oumuu on» annual «moguou humesaaoo onu no odon men men dowuaflanwoa.u:oaonn v:m yuan .enuuuwn weavesw ououu unu new coaussou uanu avenues nanneoquwuon 0:» w:«a«nonuv an Eufinonn =o>uw a an oowusaoo vuaononn an: veowov "on mans 36: mn ouuvnvuuo sumo .nwnmaoea nouuoauuwoa we: unnouuqn newton no axneu unwaounu can vouo~naou o>us wouuuwveuo wnu wenssmnm van neuuuon useanao vouuasanm a oo>no Hmsz¢U an¢Aszm 0H.n mo.m .wonHOU noansm can muuomwm Afiuuonnucn no mauoonwo .vwmmmm new monononn .o0numnmnwog newnnso Loan: wonanuuov wo.m .manvunno we umHH mouooaomonn m no woman muownumnv omoauou nonesm muonsnmuwvonn ecu wcoam manHou Xmu no conuspnnumnu msnmunsvo on ma wnozu nuance: wensnouou cu maps on an“: ouwvnuauo onu.nmw> oo>fiw hem now onsumamwmoa wumum can an common mm nomvsn cenumusvw noswun oSu eu>ao mo.m qunm ecu an Emumzm wonHOU AnnczEEoU ozo umuoowww m>mc suns: cenumamnwon momom new Honovow we mmHameo umma “counwncwnm newsroom muonnumnc owwHHoo nancam mo ucmsnmn~AMnmm wzu now wcnvn>ona momma Humon man we monaamXo o>nw was onwnommv "cu sand on Hana oumkucwu wnu .muanXo Hmwoa nwzuo van .mwMum nwmcu .unOuonHmoH wumum can: :owmmsomnu no .xnoh mmnnoo .nonwwmon ucwvoonomcn cwsonnh unmanno>ow we mno>oa Hausa new oumum on» um wcnouumn weavesu vow afloaLOnn Haemww ozn cu on munnwnm onu :uwa unsunucmu mzu oun>ona cu nwemnmwo ma "cosmenm fiuooq mum wumuw omeHoo mu«e=EEOo ozu uoowwm zauoonnv Lonn3 canumnmnwwn Honouuw vow .Huuon IoUHMHEMn gmwmn ecu ou oumunvcoo wnu omonxo ou uwcmnmmv mn "3mg Hm=0numu=vm on nmcaamm moonuumnn wanna: can Edaaonnnzu .wcnucaw .eonumNnamwno wwmAHOU zonnsfisoo mo cannanEnouov men :0 name om>Ho>cn Loom no noowww new unwEo>Ho>=n snoum pom Honouwu mo Hm>oH uswmmnm mnn menEnouop nwuuon cu mommHHOU zuncssaoo ecu Du ucwonunon nonumfimnwun mum mama muMum pom Hmnwvww ecu oo.m ounmonudzm mom wuzamc< “mum ch< o>wumfima 0A o.m .ouMum co>nm umnu canons wmeHoo muncsaEOo u no umewwmoo mu "mmeHoo Aunesasoo HUNAAOU wHHZDZZOU zH M~o>ca uansvn>uven anonu non aha mo nuuuonn oar unsung ou sauna noon u>on masons cannon use: .eoxou use one: anon» auwufi nononn «a "unusnuuov on: mouse any unnamed cu uuoonueoo nuance van .unounuuov nonunuo ueuoon .nuqoaaon uwoauoo meuuuouunnun auausua aaou mo unsung m eu>nu Hman¢U annvcn omocu now and no muouonn use ovn>6nn on coxuu one: unuum Human nunonm man an covw>onn one: monou>ownw unovsum new sussumm mo mownuan now masseuse noeonn ma .uchwu no vunuvnmnowm onus muLMHn m_~s=vn>«m:« no Husvn>wvuu :m «n ”weasnoumv vow momma can enhance ou ofinm on an“: oumvHvEMU osu .mowoaaoo zun:=EEOo on meanumsunm HmonuwSuoazn no Moon nonnov sous: .zuasuww now muomnueoo nuumwa van .wcoamnuov no:«AMU ucooon .monouaom owwufloo wcwuaomunnun monvsum wmmo mo uuxumn m co>no «0.9 mo.o .uemnn “nan vooucmnwsw one vwcnooeou nan umnu 0m 3mg mo mmooonn use mo munooeoo use ounnmnuom was .ounmmnuozm .ounnmenmucH “mmmmMMMJmmw 0.0 momdgoo VHHZDZZOO ZH mow vcm moonuomnn mcncnmwnmp o>nuouHHoo we msuwum unannso wzn wcnnnnommu :« unannmcoo msu umnmmm cu mocwwmoo an “newshoaaam oaapsm an wcwcnwwnmm w>nuoo~Hoo .uemnn nmaun>necn anew LunB ucosnweoo on an“: oven :OHmnooo ano>o ud£u ooucmnmsv ou Lwnoco anus umozu enamozuezm ou wand an wumonvuou van was» en aha mo umooonn asp an: no nonma>nvcn >nu>w wennsmuo no monnuooOna Human mzu an unsunuemo ecu umnmmm on vwemnmov mg "3w; uncanumusom an nounEmm VQDHm HZmQmemazH Qz< mm~o>en announ>nven onu we saw cu Hon ucoaanuov xnwnonoouodds on nan: owcosu no cowuo>oadn was» nonuon3 ouooHo>o owoaaou ocu mo mo>nuuonpo new madam ocu nun: ouonouaofifioo on owconu no acnud>oeen mnnu nonuonz oum=Hm>o omsonu no donun>oaon women long as» we umoo Honucoanm ozu onoasonoo .oonzmoos ” on an“: omeonu no canuo>oaen on» song: 1 once» anoooouo: an ounnaon new ouooao>o Awnnuom cu unsouuo flan: omeonu no eoaum>oeen onu nuns: woo: vo>nounon onu ouosno>o "on uaowononm omoeu ouhaoao moo ouo=~d>o «an: ouounueou onu .omoaaou as» no noono ennuni omcozu can coauo>oaen now muonomonn amno>oo =o>nu .uunonxo no Hosea m an vowvsqonn no aauaowonwuo wcaum unomo no: one nuns: owoaaoo oeu mo moono ooonu Awnueovu so once on nan: ouovnveoo nounaun canuuunnuus Hono>om =o>no Hmannuoohpo. OH.n mo.n mo.“ 90.5 no.“ so.~ .munoocou momnu wennoHo>oo an onouwocmu ocu umnmmo ou conuosunm nocasom ozn mcnnsv vow: on u~305m onnoon oonsomonamomoanoo noazsfi an canno>ocen new coauoueosnnoaxo no mumznocm zunssaeou we mumoocou canon oau ueomona cu >~Ho0nwnuono vocwamou momnsoo unwaoonm on one ono:u oocmma omonnoo zuncoea0u ozu new no; unonon ozu meonuoonamen osu any new .uonuoon ono3 cows: meowmsaozou onu Rev .vouuonuoo no: sows: ouov osu on .voms aonovosuoE ozu Amv .vouoou on xma :oqzz mononuoazs Aqv .vommn ma unonon o5u sown: con: meoaumasmmo Anv .oun30m osu ANV .oooanan osu AHV "smunonon ozu we muoommo meuaonnom osn hwnueoua cu oHpo on Han: ouovnunoo onu .munomxo mo Hoeon m an wouuofiomonn coon o>mc cons: .mvconu flownumsvca veo .mvconn wcumoo: .mouvsum news IonnEoes .mvconu nosomeofi :o munonon huacsnado eo>nu ~n.n monoum onm mosu mm weenmznocoo o£u nuonon no unoooo use uoeumon onoB zone: nuanmzao noou onu ou krona onu mo monocuomhn onu onmmaoo no.5 announno ozu no :mnmom 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