Completion by Design
Concept Paper

COMPLETION BY DESIGN CONCEPT PAPERSEPTEMBER 2010
An initiative of the postsecondary success team
Hilary Pennington, Director of Education, Postsecondary Success, and Special Initiatives
Mark David Milliron, Deputy Director for Postsecondary Improvement
Bill & Melinda Gates Foundation

2 | Completion by Design Concept Paper

What Is Completion by Design?
Completion by Design is a next major step in community college reform. It is a five-year investment that will
enable groups of community college campuses within states to collaborate on the design and implementation ofa model pathway to completion. The model pathway will draw from the body of research and experience generated by previous initiatives and the specific circumstances of grantees to systematically implement a whole rangeof proven and promising practices from intake to completion. We believe that if community colleges restructure the student experience, if they build linkages and interdependencies among the systems that touch the livesof the students, and if they establish clear accountability for student success, they can dramatically and efficiently increase rates of high-quality credential completion for the target population of low-income young adults.

COMMUNITY COLLEGES AND THE
FOUNDATION’S POSTSECONDARY
SUCCESS STRATEGY
By one recent count, there are 1,173 community colleges in the
United States enrolling an estimated 8 million credit-earning
students, or 43 percent of all U.S. undergraduates (AACC,
2010). While they have much in common with one another,
their governance and financing can be as decentralized as
the word “community” implies, which can pose challenges toimplementation of large-scale reform efforts.1
With few admission requirements, low tuition, and physicalcampuses located within 25 miles of 90 percent of the country’s
population, these open-door institutions are designed to reduce
academic, financial, and geographic barriers to postsecondary
education.
For some, community colleges are a destination, with shortterm career certificates and licenses that facilitate employment.
For others, they are a gateway, with general education courses
and two-year associate in arts degrees designed for readytransfer into four-year institutions.
Community colleges offer first, second, and third chances tomillions of Americans. Yet as easy as it is to enroll in one, it isalso easy to drop out. Increasing attention is focusing on thecommunity college completion gap, the wide and hard-to-bridge
gulf between the number of students who start a community

college program and the number who finish or successfully transfer
to a four-year college. The gap is most extreme and damaging for
low-income young adults—many of whom arrive on campus withpoor academic preparation and skills.
The Bill & Melinda Gates Foundation is urgently concerned
about this population of students. Completion by Design is a
key part of the foundation’s ambitious postsecondary successstrategy, which will invest $475 million over four years with thegoal of doubling the number of low-income young adults whoearn a postsecondary credential with labor market value by age
26. Completion by Design, like the larger postsecondary successstrategy that it supports, works across three critical fronts:
1. improving postsecondary institutions using a student-centered, performance-oriented approach that emphasizes bestpractices and focuses on completion
2. supporting young adult students by providing information,
tools, guidance, and support to facilitate academic momentum and address the barriers to persistence, progress, andcompletion
3. building support with the public by shining light on the
public value of an educated workforce and nurturing commitment to the financial and policy changes needed to keep
institutions and students focused on completion–––––––––––––––––––––The definition of “community college” is changing. For the purposes of this initiative, the term is used broadly for public two-year institutions, aswell as those that award some four-year degrees but have historically been and are still primarily two-year community or junior colleges, even if theirname or accreditation status has changed.
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3 | Completion by Design Concept PaperWHY WE NEED COMPLETION BY DESIGNDISTINGUISHING COMPLETION BY DESIGN

College can be intimidating, especially for low-income andfirst-generation students who lack peer and family support tohelp them navigate. Many community college programs—
developmental education, for example—take a one-size-fitsall approach and are designed to process large numbers ofstudents efficiently, sometimes with little coordination among
themselves.

Previous projects and initiatives, notably Achieving theDream, have shown the power of data-driven reform in higher
education. They have also helped build an inventory of provenand promising practices upon which Completion by Design
grantees will be able to draw (ATD, 2010).

Students entering this world, especially those with weak
preparation or without the benefit of significant family
experience and support, face a series of high-risk moments,
junctures at which they are most likely to drop out or giveup. These moments are concentrated early in the college
experience—some even before they reach their first class—andoccur less frequently as students build academic momentum
and the confidence required to persist.
These moments could be considered potential loss points—
where thoughtful intervention can make the difference between
success and failure. Some of the most important include:s College entry. Orientation, placement, and advising are key
to getting students into the right course of study and giving
them confidence to succeed.
s Academic catch-up. This includes developmental educationand successful completion of gatekeeper courses such ascollege algebra and freshman composition. Fewer than 30
percent of academically underprepared students get beyond
this stage.

Completion by Design takes the college completion
movement to the next level in two ways. First, it addresses
the full continuum of the student experience from start tofinish—asking grantees to systematically use the lessons ofprior reforms and demonstration projects simultaneously
rather than investing in an isolated best practice. Second, it
directly addresses the full spectrum of organizational andadministrative factors—from resources to program leadershipto state policy—that can make or break a serious effort atreform. These include the need for:s time, leadership, courage, and resources to make difficultchangess infrastructure to transfer and disseminate new approaches,practices, and systemss teamwork that crosses barriers among departments,organizational units, faculty and administrators—allcommitted to the success of the same student bodys collaboration among community colleges and campusesthat can otherwise be isolated, in part because of theircommunity-based identities and in part because of a cultureof self-reliances Program of study. Students who do not maintain a solid rateof progress once they get into their core academic programs
are still at high risk of not completing their degrees.

s institutional and state policies, funding formulas, and tuition
and aid structures that provide incentives and accountability
for student successAlong with these potential loss points, there are also
momentum points, such as the transition from education towork or four-year transfer. Students are more likely to succeed
academically and in the job market if colleges make early
connections between academic programs and career goals or
four-year transfer options.

The biggest challenge to success is inertia, the tendency to
do things the same way they’ve always been done. Basedon organizational theory and the experience of related
initiatives, Completion by Design recognizes the importance ofovercoming inertia and therefore seeks to:Completion by Design aims to mitigate the loss points andfortify the momentum points for low-income young adults. The
precise nature and timing of these points can vary by institution
and program, and it is important for colleges to clearly identify
theirs and plan interventions accordingly. Completion by
Design provides support for a campus- or college-based analysis
to learn where along the pathway to completion students arebeing lost and to bring the right people together to designa model pathway to completion that employs proven andpromising practices at every critical moment from enrollment
to credential completion.

4 | Completion by Design Concept Papers engage and provide support to leadership within community
colleges to promote and institutionalize successs cultivate and strengthen systems and leadership to support
innovation, communication, and adoptions empower an interdisciplinary, cross-campus delegation offaculty and administrators to work together to analyze theirown systems, model and learn from other systems, and build
a new and better system, a model pathway to completionthat employs proven and promising practices and uses nextgeneration technology in ways that reduce costs and improve
results

s generate connections within community colleges and among
multiple community colleges and campuses to mitigate
isolation and create a whole that exceeds the sum of its partss lead by example over a two-year implementation/
demonstration period during which the model pathway
to completion is carefully monitored to take advantage ofopportunities and overcome financial, regulatory, or policy
barriers as they arise

WHAT COMPLETION BY DESIGN WILL DO
Completion by Design is a five-year initiative to help lowincome young adults progress through community college more
quickly and with a higher chance of completion. Research has
demonstrated that interrupted or extended college pathways
are especially high-risk for students from lower-income
backgrounds (Goldrick-Rab, 2006), who tend to be concentrated
at community colleges. The initiative therefore asks community
colleges to analyze their systems in order to understand where
they are failing and succeeding, create a model pathway for the
student experience from intake to completion based on what
they learn, introduce proven and promising practices at key loss
and momentum points, build linkages among the systems thattouch the lives of the students, and establish clear accountability
for student success and completion. Completion by Design isfounded on the belief that this type of comprehensive reform
will significantly increase the odds of success for the target
population of students.

The loss and momentum framework
Although the picture varies slightly from college to college, an
extensive body of research and experience has given us a goodunderstanding of the high-risk and high-opportunity moments
for community college students. (The short list of selectedreferences at the end of this concept paper will point interested
readers in the right direction to learn more.) The loss andmomentum point framework provides the four key moments—
connection, entry, progress, and completion—through which
each grantee will be asked to chart a model student pathway,
using our best current understanding of effective practices.

Proven and promising practices
Given a clear picture of where loss can happen or momentum
can be gained for low-income students, Completion by Design
sets out a specific process by which reform is to occur. It asks
grantees to examine their own systems, to model and learn fromother systems, and to collectively build and implement a bettersystem, to reach consensus on the design of a model pathway tocompletion that all cadre campuses will adopt and implement.
This model must incorporate proven and promising practices
across all dimensions of the student experience.
While the notion of best practices has been diluted by overuse, we can probably agree that some practices generatedemonstrably better results than others and should beconsidered proven or at least promising. When something isproven, and there is indisputable evidence that it works better
than other methods currently in place, the foundation will
expect it to be applied as widely as possible. In promising cases,
where there is good but not conclusive evidence of effectiveness,ongoing, careful evaluation across the Completion by Design
initiative will help refine and expand our knowledge at eachphase in planning and implementation. A guide to proven andpromising practices is currently under development.

Defining success
Until recently, many initiatives focused on getting more
lower-income students into college. It is not enough, however,just to get in. It’s finishing that changes lives. 2 The focus ofCompletion by Design is on helping lower-income students
achieve credentials that will improve their economic future
and—since parents’ education level tends to predict that of theiroffspring—the future of their children and grandchildren.
For the purposes of this initiative, successful completion
counts as:
s finishing an occupational certificate with labor market value
s completing a two-year associate in science (A.S.), associate inarts (A.A.), or other similar credentials successfully transferring to a bachelor degree-granting
institution with a credential–––––––––––––––––––––

In one example, as part of Achieving the Dream, the Washington State Board of Community and Technical College Systems (SBCTC) conducted astudy examining educational experiences, attainment rates, employment rates, and earnings of adults five years after they enrolled at an SBCTC institution. Short-term training, participation in adult basic education, or enrollment in a limited number of college-level courses did not lead to an increasein employment rates or earning power. Only students who enrolled for at least one year at a community or technical school and/or completed either adegree or a certificate saw a measurable increase in wages (Prince and Jenkins, 2005).
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5 | Completion by Design Concept Paper

How Completion by Design Will WorkCOMPLETION BY DESIGNGRANTEE SELECTION
Completion by Design will provide significant resources forcomprehensive change to a small number of grantees thatserve large populations of students. The grants will be awarded
through a competitive application process to applicants in
one of the nine high-priority/high-opportunity states who
demonstrate the understanding and capacity needed to
implement a model pathway to completion for a significant
number of students. In order to be eligible, applicants will needto designate:s a managing partner that will be the primary grantee and willorchestrate the overall initiative within the state. No morethan one grant will be made in any state, although multiple
colleges can collaborate on an application coordinated by astrong managing partner. A managing partner can be any
multi-campus college or district that awards degrees andcredentials primarily at the level of associate and below.
s at least four cadre colleges or campuses that serve a significant
population of low-income young adult students. Cadre
campuses can be peers of the managing partner, subsidiarycampuses of the managing partner, or a combination of
both. Cadre campuses must be willing and able to design andimplement policy changes as a group. Cadre campuses will
designate key individuals representing core administrative
and academic functions as the delegation in charge of
implementing the initiative.
s a state policy lead agency or organization that is in a credible
position to ensure that the grantee has the support needed
to make the best use of state resources and to waive orchange policies identified as obstacles to the model path tocompletion
The managing partner, cadre colleges, and state-level policy
lead will be responsible for collaborative implementation ofCompletion by Design.

QUALITIES OF STRONG APPLICANTS
Experience in previous initiatives demonstrates the importanceof strong institutional-level leadership and commitment in
effective reform efforts.

6 | Completion by Design Concept Paper

Examples of qualities and characteristics that the foundation
would like to see both in the managing partner and in thecommunity colleges or campuses that the managing partners
propose as cadre campuses include:
s commitment to increasing the credential completion rate forlow-income young adultss experience implementing a successful strategy to improvecredit accumulation or credential completion rates
s willingness to reallocate human and financial resources toachieve better outcomess ability to monitor attendance and academic progress of theCompletion by Design student cohort in real times commitment to using data to inform policy, programs, andpracticess ability to use technology effectively to improve academic andstudent services
s ability to lead the initiative as it expands to significant scale

ELIGIBLE STATES
Completion by Design will launch in a subset of thefoundation’s nine high-priority/high-opportunity states:
Arizona, California, Florida, Georgia, New York, North
Carolina, Ohio, Texas, and Washington. These states are ofparticular interest to the foundation because they have:s significant proportions of the nation’s community collegess significant proportions of the nation’s community college
populations substantial numbers and proportion of low-income young
adults (ages 16-26)
s favorable political environments where postsecondary
education reform is a legislative, financial, or leadershippriority
Because the leadership, commitment, and capacity of the
managing partner are essential to the success of Completion by
Design, the states in which Completion by Design is launchedwill be based on the selection of managing partners.

IMPLEMENTING PROVEN AND
PROMISING PRACTICES AT THE
LOSS AND MOMENTUM POINTS
Each campus delegation will be responsible for recruiting asignificant number of young adults to enroll in the model
pathway to completion for each of at least four semesters.
Completion by Design is not a pilot program, but is intended
to transform entire campuses. A significant pilot cohort (atleast 100-200) should be enrolled initially at each campus, witheach subsequent cohort size increasing over the course of theinitiative until it encompasses all students for whom the model
pathway is appropriate.

Point of intervention: intake
Examples of promising practices:s mandatory orientation, including financial aid counselingand awareness and assistance in navigating systems andservicess user-friendly online materials that make it possible forstudents to refer back to documents in an easy-to-accessformat on an as-needed basiss no-late-registration policies to ensure that students do not
miss any class time at the beginning of the term and havetime to complete the orientation

These young people constitute the Completion by Design
student cohort. Whether campuses use an academy approachthat creates a separate environment within the college for cohort
students, or whether they choose to integrate the new pathway
into their primary academic programming, campuses mustensure that:

Point of intervention: assessment

s The students are touched by every element of the pathway.

s pre-placement test preparation for students that eliminates
cold testing and provides time and tutoring for subject
material review

s They can monitor the students on an individual basis interms of experience, persistence, and progression.
s They are implementing the model in such a way that itis readily expandable to accommodate larger and larger
numbers of students.
For each loss and momentum point, there are key points ofintervention and proven and promising practices that canpositively influence outcomes. Each cadre will be expected
to reach consensus on a model pathway to completion thatdraws on these practices, the cadre campuses’ knowledge andexperience in the field, and the knowledge and experienceof outside experts and advisers. The outline that follows
highlights the likely components of the model pathway initially,
although adaptation may occur as continuing evaluation of
the experiences of the Completion by Design student cohorts
provides important information about what works for whom
and why.

Examples of promising practices:s contextualized testing so that students understand how theassessments are used and their significance in determiningclass enrollment and course of study3s test preparation programs ranging from one-week review
courses to summer bridge programs to help students test intocollege-level work or higher levels of developmental educations better and broader diagnostics that assess aptitude foroccupational opportunities as well as what students need inorder to be successful in college-level works early testing for high school juniors so they can focus on
improving academic skills during their senior year andmeeting college-ready standards
s assessments linked to advising so that students have thebenefit of informed advisers who can interpret testing results
and help students make better occupational and educational
choicess use of next-generation technology to diagnose specific needs
and implement highly individualized learning plans

Loss point #1: college entry

Point of intervention: placement

This is the student’s first engagement with the institution—
initial contact. Colleges may lose between 10 and 15 percent of
their potential student body at this juncture.

One example of a promising practice is differentiated placementwith no opt-out.
For efficiency’s sake, placement systems are sometimes
fairly crude, with just a few options and cut scores. Moredifferentiated analysis of results and individualized placement
can be one way to improve individual student results and time
to completion.

–––––––––––––––––––––

Studies indicate that community college students lack an understanding of placement testing and its consequences. For a summary and for further references to this research, see Goldrick-Rab’s overview in “Promoting Academic Momentum at Community Colleges” (2007).
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7 | Completion by Design Concept Paper

Loss point #2: academic catch-up
and gatekeeper courses
Students are most likely to drop out during the process ofacademic catch-up that includes developmental education andtransition into the gatekeeper college algebra and freshmancomposition courses. Sixty percent of all community college
students enroll in at least one developmental education coursein their community college career. Unfortunately, fewer than
25 percent of students who start in developmental education
complete a credential or degree within eight years of enrollment(Bailey, 2009). Completion by Design cadres will have theopportunity to improve both the structure and the content ofdevelopmental education. While there is much work yet to bedone in this area, research is pointing to a number of promising
practices worthy of consideration.

Points of intervention: developmental
education and gatekeeper courses
Examples of promising practices:s mandatory student success courses that teach study skills aswell as help students develop career goals and formulate apersonal academic plans alternative remediation using next-generation technology
to accelerate or compress developmental course content
and allow students to cover more ground more quickly;
or modularization that breaks the course into modules
that enable students to progress at their own pace; orcontextualization that integrates remediation into content
and career courses; or project-based learning that allows astudent to acquire academic skills through real-life activities
s peer and cohort communities that place students together as
a cohort so that they can build relationships and connections
that are mutually beneficial, supporting one another both
emotionally and academically through collaborative learnings early-warning/early-intervention systems so that student
attendance and progress are monitored in real time andcounselors and faculty are alerted and accountable forfollowing up to re-engage the student and support his/her
re-entrys tutoring and supplemental instruction to facilitate successful
completion of college algebra and freshman composition
gatekeeper courses
s use of technology to enable self-paced learning, reinforce
classroom instruction, and provide an alternative to seat times academic plans for each student that prescribe an individual
course enrollment sequence with both near-term (one-year
certificate) and longer-term credential milestones

8 | Completion by Design Concept Paper

Loss point #3: program of study
After students successfully make the transition from pre-college
to college-level work by completing the freshman compositionand college algebra gatekeeper courses, they must complete a setof requirements to accumulate credits and earn a credential. By
this point, colleges should have helped students build academic
momentum so that they are engaged in the learning process andapproach their assignments with confidence and commitment.
Not only does momentum allow students to complete sooner,but studies have shown that students with academic momentum
are more likely to persist (Adelman, 2006). Cadres should
monitor attendance, performance, and engagement in this stage
to determine whether students are building or losing academic
momentum.

Points of intervention: academicplan and credit accumulation
Examples of promising practices:s student enrollment tracking each semester to confirm
that students are enrolled in the courses outlined in theiracademic plans and to provide students with early andappropriate counseling and support
s minimum or default courseload expectations to prioritize
progress by ensuring that full-time students earn at least 15
college-level credits and part-time students earn at least ninecollege-level credits during their first years cohort learning opportunities to build student connections
and relationships both with one another and with theinstitutions joint academic and financial aid counseling to ensurethat working students are fully aware of the resources andopportunities available that could enable them to attend fulltime

Momentum point: transition to work ortransfer to four-year college
As students approach completion of their educational programs,
research demonstrates the value of providing both recognitionand dedicated support to facilitate their transition from theworld of study to the world of work, including intensive career
counseling and specific labor market attachment practices. For
those students transferring to four-year institutions, the goal is
to finish strong and launch with momentum into a bachelordegree program well-prepared and with confidence.

Points of intervention: during programs of study,
final term, and post-completion
Examples of promising practices:s progress check-ins, once students select career goals, to help
monitor completion and assess changes in students’ goals that
may require changes in their academic planss world-of-work connections to build opportunities forstudents to apply what they are learning in the classroom
to the workplace through service-learning, job shadowing,
mentoring, internships, and apprenticeship programss purposeful partnerships to link students with businesses
and service providers that specialize in resume preparation,interview skills, and job placement activitiess ready transfer relationships to give students a directconnection to four-year institutions so that students who
desire to continue their education have the benefit of anarticulation policy or agreement that enables easy and readylaunching toward a bachelor’s degrees coherent programs that treat students as complete humanbeings, that are more than just checklists of courses, and that
prepare students to be thoughtful and responsible citizens
whatever career or educational direction they take next

9 | Completion by Design Concept Paper

Timeline and Learning Objectives
Completion by Design will be implemented over five years in three phases. At each phase, ongoing evaluation
will reflect on what has been learned both about the opportunities and challenges associated with implementation of the initiative as it was originally planned (initiative learning) and about the relative success or failure of
the strategies employed to improve completion rates for low-income young adults (field learning). Both typesof learning may yield lessons that result in course corrections for the initiative over the five years of its implementation.

LAUNCH—SPRING 2011
To help build a sense of common purpose and ambition, thefoundation will convene a launch session early in 2011 for theselected sites. The chancellor or chief executive (as applicable)
representing each managing partner will be expected toattend this session along with representatives from each cadre
college or campus. The launch will provide an opportunity
to exchange information and expectations, learn about andcontribute to the formulation of the cross-site evaluation, meetwith the foundation’s postsecondary success team, and hearfrom the core staff of the Completion by Design AssistanceTeam (CDAT)--a strategic support group of experts and leaders
funded by the foundation for the purpose of advancing thisinitiative-- about the resources and assistance that will be madeavailable throughout the effort.

PHASE I: PLANNING—12 MONTHS
During this period, each managing partner will convene its
cadre campuses and provide financial support to enable releasetime as appropriate and required. With funding provided by
the initiative, each managing partner will hire or designate ahigh-level staff member to serve as the Completion by Design
project director. This individual will serve as the point person
on behalf of the managing partner and will be involved incross-site and cross-state coordination and conversations. The
managing partner will convene its cadre campuses at least
three times during the planning period, preferably in a retreatlike setting with the time and space necessary for thoughtfulplanning, reflection, and relationship development. The statepolicy lead will participate in these sessions, providing guidanceand support on matters of state policy and finance.
During this period, CDAT, working with regional and national
experts, will coordinate the performance of a pathway/systems
analysis and a practice review of each cadre college or campus.
The pathway/systems analysis will be based on the loss andmomentum point framework. With support provided by CDAT

10 | Completion by Design Concept Paperand access to national experts on issues of postsecondary
education and administration, each cadre will use theinformation and knowledge gained through its campus-based
assessments to select a set of proven and promising practices
that will constitute its shared model pathway to completion.
The model pathway will be subject to review and approvalby the foundation before funding is awarded for Phase II
implementation/demonstration.

PHASE II: IMPLEMENTATION/
DEMONSTRATION—24 TO 30 MONTHS
Once the Phase II budget and plan are approved, the managing
partner campus will receive funds to continue to convene
its cadre campuses and the state policy lead as a learning
community and to provide campus/college allocations forpurposes of implementing the model pathway to completion.
Depending on the unique nature and needs of campuses, theallocations may vary among cadre campuses/colleges. The
intent is to implement the entire pathway for a substantial
cohort of students on each of the participating campuses andincrease the number of participating students steadily until
all students are included whom it is practical to include. The
precise configuration may vary depending on the demographics
and circumstances of each cadre.
Each campus will carefully monitor how and to what extent
the pathway is improving rates of retention, academic progress,and credential completion. On a site-by-site basis, CDAT, in
consultation with the managing partner and the foundation’s
evaluation team, will determine baseline and/or comparisongroups against which progress will be measured.
The managing partner and its cadre campuses will be expectedto participate in cross-state gatherings organized by CDAT on
behalf of the foundation as well. The state policy lead, withthe support of the managing partner, will be responsible forconvening an advisory board of state and field stakeholders

representing education, including K-12, business, and laboras well as nonprofits and philanthropic organizations as
appropriate and possible. A strong policy lead and advisoryboard are essential to cultivating a receptive environment forreform and creating momentum for scale.

PHASE III: SCALING AND
ADOPTION—24 MONTHS
Assuming the results of Phase II are positive (evidence ofincreased rates of success, pace of progress, and credential
completion among Completion by Design students), eachmanaging partner will be eligible for an additional two years
of foundation funding to implement a scaling strategy that
includes an expansion of the model to a larger proportion of
students within each participating college/campus, as well asa cross-site adoption that extends the Completion by Design
approach to other sites across the region and/or state.
The cadres will use their experience during Phase II to develop
proposals (policy, practice, and funding) to help promote thesuccess and mitigate the failures of the effort. The managing
partner, working with the state policy lead, will implement a
scaling strategy that includes policy reforms as required. During
this period, managing partners will convene participating
campuses and colleges as necessary. CDAT will convene
national gatherings that provide opportunities for states toshare lessons learned and promote cross-site adoption of theprocesses, practices, and policies tested and adopted throughCompletion by Design.

EVALUATION AND LEARNING OBJECTIVES
Careful evaluation through each phase of the initiative will
provide feedback to fine-tune the following phase as well as
to increase our overall base of knowledge about what works
and what does not in community college reform. A detailed
evaluation plan will be negotiated between the foundation andthe firm or firms selected to evaluate Completion by Design, but
it will likely address most of the learning objectives listed below
for each phase.

Learning objectives in Phase I
Evaluation in this phase will concentrate on the extent to which:s campuses within cadres and among different states are losing
students at the same junctures and at the same rates (fieldlearning)s participating campuses/colleges are already employing
proven and promising practices and with what result(initiative and field learning)s the managing partner is adding value to the community
colleges and facilitating connections and communications(initiative learning)
11 | Completion by Design Concept Papers the inter-disciplinary planning process is producing valued
insights and improvements in operational practices in realtime (initiative learning)s each cadre is able to design a coherent model pathway tocompletion that addresses all dimensions of the student
experience (initiative learning)s issues of policy and funding are emerging as barriers oropportunities in the design process (initiative and fieldlearning)s the presence/involvement of the state policy lead is helping to
identify and mitigate policy and funding challenges (initiativeand field learning)s plans developed are consistent with the intention of theinitiative and have realistic timelines associated with thems CDAT is providing helpful support to colleges

Learning objectives in Phase II
Evaluation in this phase will concentrate on the extent to which:s the original plan was implemented or modified (initiative
learning)s there is greater communication, coordination, andaccountability between the operational functions within eachparticipating campus as a result of the Completion by Design
planning process (initiative learning)s there are institutional, financial, or state policy barriers thatchallenge implementation (field learning)s the advisory board is producing consensus on issues ofreform (initiative learning)s there is consensus on issues associated with adoption andimplementation of reform (field learning)s the managing partner is building credibility with its
campuses and as a resource beyond the Completion by
Design initiative (initiative learning)s the state policy lead is generating broad-based political andstakeholder interest in Completion by Design (initiative
learning)s the campuses that constitute each cadre are sharing
information beyond Completion by Design and applying theinformation that they share to practice (initiative learning)s the model pathway to completion is improving outcomes forthe students enrolled as compared with similar students who
are not enrolled (initiative learning and field learning)s the implementation/demonstration period has affirmed orchallenged the underlying assumptions of Completion by
Designs the initiative needs to be revised as a result of implementation
experiences (initiative and field learning)Learning objectives in Phase III
Evaluation in this phase will focus on the extent to which:s cadre campuses are able to increase student enrollment in themodel pathway to completion (initiative learning)s institutions are able to achieve efficiencies of scale as they
include more students in the pathway and extend theCompletion by Design approach to more campuses within
the system (initiative learning)s there is demand among other community colleges withineach state to learn more about Completion by Design andadopt its approach (initiative learning)s the state policy lead is helping to build institutional andstatewide support for changes in policies, regulation, andfunding that are deemed necessary for success based on the
Completion by Design experience (initiative learning)s the managing partners are successfully replacing foundation
funding with other sources of support for their workon postsecondary education and Completion by Design(initiative learning)

12 | Completion by Design Concept Paper

Roles of the Participants
MANAGING PARTNER
Each managing partner will have both management andleadership responsibilities. The managing partner will beawarded a grant to support its management and coordination
function, funds to cover its own campus costs associated withplanning and implementation (e.g., adoption of new practices,
programs, and professional development), and resources thatcan be used to enlist cadre institutions in the fulfillment ofdesignated roles and responsibilities. Exact allocations will
depend on, among other factors, the total number of states
selected, the total number of participating campuses in the cadre
within a given state, and the total number of students reached.
In addition to the grant funds and access to CDAT’s teamof expert technical assistance providers and consultants,
each managing partner will have the benefit of a part-time
CDAT consultant as well. The managing partner will have an
opportunity to nominate individuals for this position and will
be involved in the hiring process.

s providing regular updates to the foundation on progress,
challenges, and accomplishments
s identifying challenges and barriers to success and bringing
them to the attention of appropriate participants in order toaddress those challengess making best use of technology and of the resources andexperiences of other initiatives and investments to advance
the Completion by Design goalss making the changes necessary to embed and sustain the
successful practices, policies, and systems that emerge during
the Completion by Design processs serving as the spokesperson for the cadre and participating,as required, in cross-state conversations
s identifying and advocating for funding streams and policy
reforms that encourage the successful practices that emerge
from Completion by Designs securing access to the data needed for ongoing evaluationfrom (or in cooperation with) the state policy lead

Key responsibilities of the managing partners include:s managing cadre planning and implementations managing the funds for planning and implementations organizing quarterly conversations that include thecadre college delegations and relevant stakeholders to
examine lessons learned in the process of planning andimplementation (in partnership with CDAT)s coordinating the data collection required to monitor
Completion by Design student progress for cadre campuses/
collegess enlisting a state policy lead to advise on issues of policy
and finance reform and to co-convene an advisory boardof statewide leaders representing public, private, and civic
institutions critical to the policy and financial future ofpostsecondary educations serving as the liaison with the foundation’s measurement andlearning staff
s developing and implementing a communications plan toshare progress and lessons learned in real time with the cadre
members and beyonds developing and implementing a plan to encourage colleague
institutions to adopt similar and successful approaches toserving low-income young adults

13 | Completion by Design Concept Paper

STATE POLICY LEAD
In order to create a receptive policy environment forCompletion by Design, the managing partner will enlist an
appropriate state agency or organization to serve throughout
the initiative as the Completion by Design state policy lead. The
state policy lead’s responsibilities will include:s participating in all aspects of planning and implementation
with the cadres advocating (to the extent of its legal authority) changes
to state policy to remove barriers or provide support toimplementation of the initiatives working in conjunction with the managing partner toconvene a statewide advisory board inclusive of public,
private, and civic institutions
s providing or facilitating access to student data on a statewide
basis that will be required as part of the overall Completion
by Design evaluation
The state policy lead, with support from the Completion by
Design Assistance Team, will also convene and chair a statewide
learning community comprised of one representative fromeach college in the state. The learning community will meet inperson twice a year and will be connected online as well. It will
be charged with

Completion by Design:
Organization for Impact and Scale→

Comprehensive
reformCadres→Powerful
networks→

Statewide
impact→National
platform→Campusesand colleges→

Managing partners, statepolicy leads, and statewide
advisory boards→

Completion by Design
Assistance Team andBill & Melinda Gates
Foundation

14 | Completion by Design Concept Papers keeping the state’s colleges current on Completion by Design
activities

responsibilities of each cadre campus and its interdisciplinary
delegation will include:s encouraging cross-institutional learning about related
activities from represented colleges and from national
initiativess generating and sharing information and data widely
throughout the initiatives exploring strategies to get to statewide adoption in Phase IIIof the project

STATEWIDE ADVISORY BOARD
Identified and recruited by the managing partner and the statepolicy lead, the statewide advisory board may be an existing
public/private organization that formally agrees to accept theadditional responsibility, or it may be a new entity createdspecifically for the purpose of the Completion by Design
initiative. The statewide advisory board’s key responsibilities
will include:s providing input from the perspective of civic, business, labor,
and K-16 education leaderss serving as a resource for the initiative to build public support
for its goals

CADRE CAMPUSES
Each Completion by Design cadre campus will empower
an interdisciplinary delegation of at least six faculty andadministrators representative of key administrative andprogrammatic functions to represent the campus within
the cadre and to be responsible for implementing the model
pathway to completion at the campus level. For example,
people with responsibility in the following areas should be well
represented and be given the release time and resources to fully
engage with the initiative:s orientations enrollment and registrations assessment

s cooperating in the documentation and evaluation process
associated with the initiatives implementing the model pathway to completion as adopted
by the cadres using data to inform the planning processs making the adjustments necessary in practice and approachto respond to findings from the analysess adopting and tracking the achievement of momentum
points for the population reached by the model pathway tocompletions committing to sustain successful practices beyond the termof grant supports committing to share its experience with other colleges/
campuses within the state and beyond

THE CADRE
Collectively, the campus delegations working together,coordinated by the managing partner, are the cadre responsible
for engaging in an information-gathering and planning process
to design a model pathway to completion at their campuses.
Once the model is adopted, the cadre will continue to meet as
a learning community during the two-year implementation/
demonstration period. To inform the design of the model,
each participating campus will work with CDAT to conduct asystems/pathway analysis using the loss and momentum points
framework to identify where along the dimensions of a student
experience each campus is at greatest risk of losing students anda practice review to document the condition of current practices
with respect to current needs and knowledge. These analyses
will inform the planning process and help set priorities for thedesign of the model pathway to completion.

s advisings developmental educations curriculum and key programs of studys transfer agreementss technology
s institutional researchThis approach reflects the Completion by Design value ofbuilding relationships that are both personal and functional.
People who know one another well will find it more natural
to collaborate across organizational boundaries. Personal
relationships that develop as a result of participating on thecampus delegation will help align the systems and functions
for which each delegation member is responsible. The major

15 | Completion by Design Concept Paper

COMPLETION BY DESIGNASSISTANCE TEAM (CDAT)
One important participant in the implementation of theinitiative is being created and financed by the foundation as aresource to successful grantees.
The Completion by Design Assistance Team is a neworganization that will include nationally respected experts in
educational practice, data analysis and use, leadership, finance,systems change, and policy. It will provide on-site technicalassistance and support throughout the initiative’s planning,
implementation, and scaling process. CDAT is intended tobe highly flexible, so that as new issues or needs emerge, it
can adapt to meet them. CDAT is responsible for recruitingand engaging, as required, the individuals and organizations
with the skills and experience necessary for the successful
implementation of Completion by Design. It will also work tobring experts together to share ideas and experiences and to
improve the quality, consistency, and effectiveness of assistanceprovided to grantees.
Each managing partner will have a dedicated CDAT
consultant who will be available to support the planningand implementation process, and will assume leadership in
coordinating the consulting needs of participating campuses.
These CDAT consultants will devote 40 percent of their timeto each grantee to which they are assigned, and the managing
partner will have an opportunity to participate in the screening
and hiring of candidates. Major responsibilities of CDAT will
include:s developing methods and tools for conducting a systems/
pathway analysis that identifies where and to what extent
students are being lost

BILL & MELINDA GATES FOUNDATION
The foundation will provide funding and support for the
initiative, including consultation on issues of content,
communications, documentation, and dissemination. The
foundation will be responsible for sharing lessons learned
with other philanthropic institutions and for disseminating,as appropriate, the lessons that have implications at a broader,
national level. The foundation shares responsibility for theoverall successful implementation of the initiative and will be
accountable for the following:s bringing to the attention of CDAT and the managing partners
the other elements of the postsecondary success strategy andensuring that there is strong internal coordination among
foundation-funded effortss having clear and documented expectations for cadre
campuses and grantees
s providing financial support consistent with the scope of theactivities expected of grantees

s developing and updating a guide to proven and promising
practices covering all dimensions of the community college
experiences consulting with grantees to develop process and outcome
indicators for a cross-site evaluation and involving grantees
in the process of interpreting and attributing resultss performing the pathway analysis for each participating
community college/campus to identify loss and momentum
points and working with the cadre to synthesize findings
in a way that helps set priorities for the design of the model
pathway to completions taking appropriate corrective action as data and experience
requires developing an appropriate tool for, and then performinga practice review to assess the state of practice within,participating institutions/campusess facilitating national gatherings for purposes of cross-state
learning and to ensure initiative-wide coherence across allstates in terms of approach, intentions, and outcomess supporting the cadre in the development and implementationof its model, ensuring that the model addresses the key loss
points and that it is respectful of the unique nature andconditions of the member institutionss supporting managing partners in the fulfillment of their roles
and responsibilities

16 | Completion by Design Concept Papers sharing lessons learned with colleagues in philanthropy andbeyonds using its voice and influence to achieve initiative intentions

Design and Support Team Members
BILL & MELINDA GATES FOUNDATIONFACILITATED AND PREPARED BY

Hilary Pennington

Jill Blair

Mark David Milliron
Debbie Greiff
Linda Baer
Kendall Guthrie
Jamie Morris
Sidney Hacker
Carrie Beckner
Anne Person
Brock Grubb
Jill Allison
Stephanie Molta
Dee Johnson

COMPLETION BY DESIGN ASSISTANCE TEAM
Nan Poppe
Leslie Haynes
John Hoops
Cynthia Williams

17 | Completion by Design Concept Paper

Short List of References
and Suggested Reading
AACC-American Association of Community Colleges. (2010). Fact Sheet. Retrieved from http://www.aacc.nche.edu/AboutCC/
Pages/fastfacts.aspx in August 2010.
Adelman, Cliff. (2006). The Toolbox Revisited: Paths to Degree Completion From High School Through College. Washington,
D.C.: U.S. Department of Education, 2006.
ATD-Achieving the Dream. (2010). See sections on evaluation case studies and promising practices on the Achieving the Dreamwebsite. http://www.achievingthedream.org.
Bailey, Tom. (2009). Rethinking Developmental Education in Community Colleges. Community College Research Center Brief #40.
Teachers College, Columbia University. Retrieved August 2010 from http://ccrc.tc.columbia.edu.
Completion by Design Assistance Team. (2010). Guide to Proven and Promising Practices. Under development.
Goldrick-Rab, Sara. (2007). Promoting Academic Momentum at Community Colleges: Challenges and Opportunities. Community
College Research Center Working Paper #5. Teachers College, Columbia University. Retrieved August 2010 from http://ccrc.
tc.columbia.edu.
Goldrick-Rab, Sara. (2006). Following Their Every Move: An Investigation of Social-Class Differences in College Pathways.
Sociology of Education, 79 (1), 61-79.
Prince, David and Davis Jenkins. (2005). Building Pathways to Success for Low-Skill Adult Students: Lessons for Community
College Policy and Practice from a Longitudinal Student Tracking Study. Washington State Board of Community and TechnicalColleges. April 2005.

18 | Completion by Design Concept Paper

Loss points

Student progression

Momentum strategies

19 | Completion by Design Concept Paper(faculty, administration, trustees)

Leadership focused on completion

Student engagement(From Day One to completion)

Student data systems

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underenrollment, poor matching, andfailure to obtain financial aid for which
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Supporting Student Success:Preventing Loss, Creating Momentum

www.gatesfoundation.org*XLGHGE\WKHEHOLHIWKDWHYHU\OLIHKDVHTXDOYDOXHWKH%LOO 0HOLQGD*DWHV)RXQGDWLRQZRUNVWRKHOSDOOSHRSOHOHDGKHDOWK\SURGXFWLYHOLYHV,QGHYHORSLQJFRXQWULHVLWIRFXVHVRQLPSURYLQJSHRSOHåVKHDOWKDQGJLYLQJWKHPWKHFKDQFHWROLIWWKHPVHOYHVRXWRIKXQJHUDQGH[WUHPHSRYHUW\,QWKH8QLWHG6WDWHVLWVHHNVWRHQVXUHWKDWDOOSHRSOHãHVSHFLDOO\WKRVHZLWKWKHIHZHVWUHVRXUFHVãKDYHDFFHVVWRWKHRSSRUWXQLWLHVWKH\QHHGWRVXFFHHGLQVFKRRODQGOLIH%DVHGLQ6HDWWOH:DVKLQJWRQWKHIRXQGDWLRQLVOHGE\&(2-HII5DLNHVDQG&RFKDLU:LOOLDP+*DWHV6UXQGHUWKHGLUHFWLRQRI%LOODQG0HOLQGD*DWHVDQG:DUUHQ%XIIHWWFor additional information on the Bill & Melinda Gates Foundation, please visit our web site: www.gatesfoundation.org.
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