Managing Cutbacks in Higher Education:
Strategies for Managing the Journey
by
Christopher R. Edginton, Ph.D.
& Susan R. Edginton
Recreation and park education is in trouble. As colleges
and universities throughout the United States struggle to manage
devastating budget reductions and increased costs, the survival of
many recreation and park curriculums is in question. Recreation
and park programs have been eliminated, reorganized, reduced, or
placed on the chopping block in California, Oregon, Texas, Illinois,
Pennsylvania, Massachusetts, Iowa and elsewhere.
Today, no less than 32 states have reported severe budget
reductions in colleges and universities that have led to the elimination or reduction
of programs, faculty and support services. Cutback
management has become a crucial topic in academia today, as it has
been for public park and recreation sendees over the past decade.
It is important to consider strategies for positioning one's
organization in such a manner that it is less likely to be reduced or
eliminated. The University of Oregon's Department of Leisure
Studies and Services has been involved in a round of severe cutbacks
in recent years and will serve as a case study for this article. This
academic unit's reductions occurred over the past decade, but were
heightened during the past several years by the passage of a property-tax
limitation initiative that dramatically affected the dispersal of
state revenues to higher education. Located within the College of
Human Development and Performance, the department was reduced. but remained intact,
while the departments of health, human
services, gerontology, and half of physical education were eliminated. The College
itself was eliminated. Teacher education and
other programs were also eliminated at the university.
Although it is almost impossible to determine cause and effect
with any degree of certainty in tills type of situation, the Department
of Leisure Studies and Sendees at the University of Oregon
implemented a strong and well-organized plan of cutback management that
was formulated and conceptualized more than a year and
a half prior to these program cuts. This article outlines some of the
strategies that were used effectively in this situation, and that can
be modeled by other organizations, especially park districts, forest
preserves, recreation agencies, and colleges and universities.
The strategies in this article are designed to: 1) prevent
elimination and reduce cutbacks by positioning the organization
prominently; 2) effectively fight or roll back cutbacks once they
have been announced, 3) encourage planning ahead by creating
reports and materials to respond to cutbacks that may occur in the
future; and 4) promote the management of cutbacks in a way that
is humane to employees and others in the organization. The
following are cutback strategies, categorized in terms of strategies
that relate to issue salience, communication, anticipatory action.
decisiveness, preparing the actual response and managing the
journey in an ethical manner.
Using Elements of Issue Salience
There are elements that can be used to promote the interests of
an organization regarding a critical issue, such as cutbacks.
Principles that underlie the concept of issue salience can be used to
push forward your agenda in terms of responding to cutback
proposals. Following are several of these strategies.
• Be forceful. Most people don't care that much
about which decision is made regarding a particular issue.
Illinois Parks and Recreation 16 January/February 1993
There are very few issues or actions that we feel very
strongly about. Therefore, if you are forceful enough about
your point of view, the other side may accede to your point
of view.
• Proceed as if your strategy will take place. When
an individual or organization proceeds as if their agenda
will take place, it has a very potent effect. Have your
cutback response include an alternative solution. Present
your solution as a fully developed idea, complete with
budget, roles and responsibilities, and other
information that makes it
appear as though the agenda
is already in progress and it
is just a matter of getting a
"rubber stamp."
• Formulate arguments that cater to the agenda of "management." One
of the most critical elements of an effective cutback
response is the ability to see things from "management's"
point of view and to craft a response that caters to their
agenda, their needs, their vision. What is the strategic
vision for your community, university, state? How can
your department tie into that vision, making you a more
valuable resource, and less likely to be eliminated or
reduced?
Using Communication Techniques Effectively
Some methods of communication are effective when responding and others
are not. Organizations often become negatively vocal
and chaotic once cutbacks are announced, further harming the
position of the department. Following are effective communication
strategies.
• Power-whining doesn't work. When cutbacks
occur, avoid power-whining and breast-beating. Continue to conduct yourself professionally and instruct your
employees to do so. The cutbacks are most likely not
personal, and do not reflect a complete disregard of your
years of hard work. Individuals just like you must make
tough decisions during periods of cutback and they don't
deserve personal attack and criticism. While acknowledging the difficulty of their position, in a cool,
dignified and competent manner, present your well-organized and
well-documented case for avoiding, reducing or reversing
cutbacks.
• Have a unified voice. You must have a unified
voice: if there is dissension within your organization about
how to handle cutbacks, keep it behind closed doors. In
public, all staff should communicate the same message.
• In meetings speak with one voice. In meetings with
administrators or others who are deciding the fate of your
program or agency, have one person speak for your group
to avoid confusion and to send a clear and well-organized
message.
• Develop an intelligence/information network.
You can't operate effectively without information.
• Make your own case. You are the best architect of
your own destiny. Don't rely on others to convey your
interests and make your case.
• Keep staff/faculty informed. Take care of your
staff; they need to be informed continuously of developments. You need to talk to them honestly and with candor,
even if the information is difficult for them. Also use staff
as a sounding board for ideas and to help generate strategy.
|
"Build coalitions...A united
front that includes several
departments may be
more effective than a
single department."
|
Taking Anticipatory Action
The time to plan cutback strategy is now, in advance. Once
cutbacks have been announced
it may be too late to counter
them. A number of strategies
can be used to position the department or organization in such
a way as to prevent cutbacks, and/or diminish their severity, including the following:
• Image-building. Your organization should engage
in image-building immediately and on a continuous
basis. People do not have any idea about what you do or
how great you are unless they see it or are told about it.
Many organizations labor in virtual obscurity, provide
wonderful services, and are dumbfounded when they
receive cuts.
• Connect with individuals who will be influential
in cutback decisions. Right now, build bridges and
connect with the individuals who will make budget
decisions in the future. Make a point of informing them
about the excellence of your programs and services, invite
them to events and meetings. Establish the credibility and
excellence of programs in advance with those in power.
• Have a focus. It is not enough to provide good, or
even superior, services that are similar to those of other
organizations and agencies. Your organization or department must have a "focus," that is,
some kind of service that
is unique, dynamic and high-profile. You want to offer a
kind of service that individuals don't want to lose, because
it "showcases" the university or community in some
manner that is valuable.
• Maintain a reservoir of information. The manager
should immediately gather, prepare and organize a reservoir of information that can be used for a data-based,
comprehensive response to cutbacks. Cutbacks often
occur quickly, and departments may not have adequate
time to prepare a well-organized and thorough response.
This is probably by design. Every organization or department should have in place an
organized file of information,
as well as a drafted response that can be used in the event
of cutback announcements. At the University of Oregon,
the time allowed to prepare a response to cutback announcements concerning entire departments was just a
few days. The "cutback response" file should include data
that show growth, excellence, need, awards, recognition
and achievements, legal mandates for services, political
mandates for services, background on notable staff/fac-
Illinois Parks and Recreation 17 January/February 1993
ulty, and a thorough rationale for the existence of the
organization and having it remain intact.
• Build coalitions. Build coalitions in advance that
may help you in the event of cutbacks. A united front that
includes several departments may be more effective than
a single department.
Preparing the Written Response to Cutbacks
The written response to cutbacks must be crafted very carefully.
Using information that has
been accumulated in advance. the response must
take into account the needs
of "management." as well
as the fact that the response
will be read quickly and
needs to be structured to
respond to that factor.
Following are suggestions
for preparing a cutback
response.
|
"Do not posture, taking
issue with every item
that is cutback; rather,
respond honestly, forthrightly,
responsibly, yet forcefully...
Be willing to engage
in give and take."
|
• Look at the big picture. You need to look at the big
picture and not just view the tragedy of cutbacks from the
perspective of your department or organization. When
preparing a response to cutbacks tell how the contributions of your department relate to the needs of the
university, the state and the community.
• Give a brief response. Cutbacks often involve
eliminating or reducing a large number of units or
departments all at the same time. As a result, many
cutback responses may come back to those making final
decisions, also at the same time. Although you would like
to think that your cutback response would receive close
scrutiny, this is not realistic. Your response may be
skimmed very quickly; it should be hard-hitting but brief.
It should begin with a one-page bulleted summary of your
major points, so that by reading a single page, the
decision-making authority will get your major messages.
Information can be included as attachments; however,
keep your main response very short.
• Be entrepreneurial. Orient yourself to be a problem-solver. Don't just present the problem and expect
someone else to solve it. Be creative and brainstorm new
ideas to solve the problem.
• Speed is very important. Be prepared to distill your
position quickly. If a number of units are being cut; it is
to your advantage to be one of the first in the door with your
response. Not only may it be read with more interest than
the many responses that follow, but it will send a message
about the effectiveness and excellence of your organization.
• Speak to the agenda of the decision-makers. An
effective response will speak to the needs and agenda of
the decision-makers, and not your individual or departmental needs and agenda. You must tie points in that are
relevant to decision-makers and that respond to their
vision for the future, or your response will not be relevant.
• Press for realistic solutions. Press for workable,
realistic solutions. Do not waste your time and energy
pushing for things dial can't happen. Do not posture,
taking issue with every item that is cutback; rather,
respond honestly, forthrightly, responsibly, yet forcefully.
Be willing to engage in give and take, and to assume
partial responsibility for the cuts. You may need to take
your fair share of cuts; but make sure that it is no more than
your fair share.
• Establish a fall-back position. When building your
cutback strategy, develop a first-choice response, as
well as a fall-back
position. In other
words, if your initial request/response
is rejected,
counter with an alternative scenario.
• Maintain the dignity of your department. The way
in which you and your organization react to cutbacks is
critical to your success in responding to and countering
them. Respond with class and dignity. Decision-makers
may be favorably impressed with the way your response
is presented.
• Make the difficult decisions. When managing
cutbacks, the leader will need to have the courage to make
difficult decisions decisively, and without second-guessing. Cutbacks may result in the need to re-configure your
organization, in a way that eliminates people, programs,
supplies, facilities or students. There will not be consensus
or harmony in this process. Gather data, get feedback, but
then forge ahead forcefully, yet compassionately.
Looking for the Opportunity in Adversity
Believe it or not. there are opportunities for the organization
in the face of cutback announcements. The cutback process,
including the organization's response, offers an opportunity to
highlight the accomplishments of the department, as well as force
it to be more innovative and creative.
•A chance to inform. Situations involving cutbacks
often present unusual opportunities to highlight the quality and excellence of your program and services
to high-ranking individuals. It is an opportunity to educate and
inform individuals about your department or organization. In fact, if well done, it can enhance the image of your
organization.
• Increased activity/productivity. The threat of cutbacks may prompt activity that positions your department
or organization more positively.
• Increased innovation. The threat of cutbacks, or
actual cutbacks, may prompt considerable innovation
within an organization, in order to find avenues to
creatively respond.
Illinois Parks and Recreation 18 January/February 1993
Managing the Journey
The role of the manager in dealing with cutbacks is not only to
prepare a response and take care of the professional aspects of the
problem, but to manage the integrity of the process and the personal
hurt and damage that may occur to staff.
• Integrity of the process. Periods of cutback can bring
out the worst in individuals. When there is competition for
resources, or even worse,
jobs, individuals may
become cut-throat and
unethical in their processes.
Keep the process within your
organization or department
on a higher plane. As you go
through the cutback process,
although you may know the
destination, you can "manage the journey in a way that
is ethically and morally sound."
• Concern/support for other units. When cutbacks
occur, they may initially affect other departments or agencies with which you are aligned. You may be exempt from
the first rounds of cuts. Watch these developments closely,
and offer support to these other departments. Be extremely
concerned and involved when your neighbors begin to take
hits, because you may be next. Give the support you would
expect from other departments were the situation reversed.
• Maintaining morale. As cutbacks unfold, the manager must also assume responsibility for staff morale. As the
leader of the group, the leader has an obligation to show
morale courage and to attempt to maintain morale. A
manager who is self-pitying, and concerned only with his or
her future and career, is not leading the group effectively.
Staff may need additional opportunities to meet professionally and socially for purposes of supporting one another, if
the cutback process is severe.
• Sensitivity to staff. Related to integrity is the issue of
sensitivity toward staff. When cutbacks occur, particularly
when it involves cutting staff, there are several approaches
that the organization may take. Individuals within the
organization may attempt to distance themselves from the
human anguish that such cuts cause, by viewing staff in a
distant and objective manner that does not acknowledge that
they are dealing with human beings.
When cuts have to be made, it is important that they be
done in a way that allows staff to feel valued, retain their
dignity, and allow them opportunities to give real input that
is heard and evaluated. It is important for staff to believe their
departure will be a great loss to the organization, rather than
to feel that they are expendable. As a manager you may or
may not be able to reverse or mitigate the outcomes of severe
budget cuts; however, again, you can "manage the journey"
in a way that is kind and caring.
• Staff assistance. As the cutback process takes place,
some employees may be displaced. The leader and others in
the organization should assume responsibility for assisting
these employees in obtaining other positions. Encouraging
them, using your network to locate opportunities and taking the time to counsel them regarding their opportunities and
options, is an important part of "managing the journey" in
a sensitive manner. Follow-up, after the employee has
moved into another job, also sends the message that the
organization, and you, valued them and care about them.
|
"The key element in
avoiding cutbacks is
making individuals in
power aware of the
excellence and uniqueness
of your programs and services."
|
Concluding Comments
There are several reasons why recreation and park education
are under attack, including supply and demand, failure to focus,
lack of a body of knowledge, and
lack of scholarships. First, we
must ask whether or not the
supply of professionally educated students has exceeded the
demand. Educators would argue that it depends on how one
defines the profession. Second,
there is a tendency to try to be all
things to all segments of the profession. In the drive to be all-inclusive, educators may not have succinctly identified their niches
in the market. Third, also in the drive to be all-inclusive, recreation
and park programs have often changed their title to the broader
term, "leisure studies or leisure services." The term is not viewed
within academia as an understandable concept; it is simply too
vague, lacking a tangible, coherent concept like parks (which others
can relate to and identify with).
Fourth, as an area within higher education we have yet to
successfully define and support (from an empirical base) our body
of knowledge. This has led to an undervaluing of our efforts as we
are perceived to lack substance. There is a tendency for academics
to view their efforts from the perspective of working professionals.
Professors often forget that they will be judged primarily by their
colleagues in higher education rather than by practicing professionals, Some professors miscalculate regarding the value of their
academic work. Finally, it might be that we have simply failed to
link our efforts, as we have engaged in the process of
professionalization, effectively, to higher education. After all, what
is the value of an accredited academic program? Does it really
influence hiring practices or really contribute to higher quality,
better-educated students?
Cutback management is a complex process that requires the
manager to use his or her skills to the utmost. The manager must
plan ahead, network effectively, communicate effectively, prepare
a potent and aggressive written response and, in the middle of this
frenetic activity, take the time to show care and concern for staff.
Cutbacks may be prevented with effective positioning of the
organization, particularly in regard to individuals who are in a
decision-making position. The key element in avoiding cutbacks is
making individuals in power aware of me excellence and uniqueness of your programs and services. If they are not currently
excellent and don't contain a unique component, develop those
elements within your organization.
About the Authors
Christopher R. Edginton, Ph.D., is professor and director of
the School of Health, Physical Education and Leisure Studies,
University of Northern Iowa. Susan R. Edginton is program
development coordinator of Camp Adventure in that department.
Illinois Parks and Recreation 19 January/February 1993