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— CH. 1 · INTRODUCTION —

University of California

~12 min read · Ch. 1 of 8
8 sections
  • The University of California was signed into law on the 23rd of March 1868, born not from a clean legislative vision but from a merger born of desperation and compromise. A private liberal arts college was running out of money. A state agricultural college existed only on paper. Neither could survive alone. So they struck a deal, and what emerged from that unlikely union became one of the most consequential public institutions in American history.

    How does a cash-strapped frontier academy become a system of ten campuses, home to 299,407 students and more than two and a half million alumni? How does a university founded to teach farming and mining evolve into a powerhouse whose faculty have claimed 75 Nobel Prizes? And why did it take nearly a century of internal fighting before the system truly became a system at all? Those are the questions this documentary sets out to answer.

  • Henry Durant, a Congregational minister and Yale alumnus, opened the private Contra Costa Academy on the 20th of June 1853, in downtown Oakland. The initial site sat between Twelfth and Fourteenth Streets and Harrison and Franklin Streets, a location marked today by State Historical Plaque No. 45. Durant's trustees received a college charter in 1855, and by 1860 the institution had added college-level courses. But the trouble was persistent: on the American frontier, there was simply little appetite for a classical liberal arts education. The college was graduating only three or four students per year.

    Meanwhile, the California State Legislature had established an Agricultural, Mining, and Mechanical Arts College in 1866 to take advantage of the Morrill Land-Grant Acts. It existed only on paper, a legal placeholder to secure federal land-grant funds, with money but no buildings, no faculty, no students.

    Governor Frederick Low favored a state university modeled on the University of Michigan, and he was present at the College of California's 1867 commencement when Yale professor Benjamin Silliman Jr. publicly criticized Californians for building a polytechnic school rather than a real university. That same day, Low reportedly first suggested the merger: combine the functioning college, which had land, faculty, and students but no funds, with the nonfunctional state college, which had funds and nothing else.

    The college's trustees reluctantly agreed on the 9th of October 1867, but under one firm condition. There would be no mere agricultural school. There would be a complete university, within which a new College of Letters would preserve the liberal arts mission they had built. Assemblyman John W. Dwinelle introduced the Organic Act on the 5th of March 1868. Governor Henry H. Haight signed it into law on the 23rd of March. The University of California was born.

    Yet the new institution was not truly a merger. Governor Haight saw no obligation to honor informal promises made by his predecessor. Only two college trustees became regents. A single faculty member, Martin Kellogg, was hired by the new university. By April 1869, the original trustees had second thoughts and tried to reclaim their donated assets. Regent John B. Felton helped arrange a friendly lawsuit to test the agreement's legality. The trustees lost.

  • Robert Gordon Sproul became UC president in 1930 and held the office until 1958, longer than any other person. For most of those years, he resisted turning UC into a genuine multi-campus system. Other UC locations were treated as off-site departments of Berkeley, run by provosts who answered directly to the president. The structure was tight, centralized, and deliberately so.

    Pressure from the south eventually forced change. Los Angeles surpassed San Francisco in the 1920 census to become California's most populous city. Because Los Angeles had become the state's largest source of both tax revenue and votes, its residents argued loudly for equal standing. In March 1951, UCLA became the first UC site outside Berkeley to achieve formal coequal status. The regents approved a plan placing both Berkeley and Los Angeles under chancellors who would report as equals to the UC president.

    But Sproul and his allies simply carried on as before. The chancellors ended up as what one account described as glorified provosts, with limited control over academic affairs while the president and regents retained effective authority over nearly everything. Clark Kerr, who had become Berkeley's first chancellor in that same 1951 reorganization, watched the reform stall from the inside.

    When Kerr succeeded Sproul as UC president in October 1957, he moved decisively. From 1957 to 1960, a series of proposals adopted unanimously by the regents granted all campus chancellors the full range of executive powers that Sproul had denied. Kerr also radically decentralized a bureaucracy in which all authority had always run to the president at Berkeley or to the regents themselves.

    In 1965, UCLA Chancellor Franklin D. Murphy tried to push further. He advocated for letting all chancellors report directly to the Board of Regents, eliminating the UC president's role entirely and transforming the system into a confederation of independent universities. Kerr described this as Murphy's rebellion and moved quickly to end it. Kerr's vision held: one university with pluralistic decision-making. The internal delegation of authority to chancellors did not change the fact that all campuses remained one legal entity, governed by one Board of Regents and one president.

  • California farmers lobbied hard for research that addressed their immediate needs. In 1905, the Legislature established a University Farm School at Davis, and in 1907 a Citrus Experiment Station at Riverside, both as adjuncts to Berkeley's College of Agriculture. In 1912, UC acquired a private oceanography laboratory in San Diego that had been founded nine years earlier by local business promoters working with a Berkeley professor. In 1944, UC acquired Santa Barbara State College from the California State Colleges system.

    Starting in 1958, the regents began promoting these satellite locations to general campuses. Santa Barbara came first in 1958, followed by UC Davis and UC Riverside in 1959, UC San Diego in 1960, and UCSF in 1964. Each promotion came with its own chancellor. In 1965, two entirely new campuses opened at once: UC Irvine in Irvine and UC Santa Cruz in Santa Cruz. The youngest campus, UC Merced, opened in fall 2005 to serve the San Joaquin Valley.

    Not every transition was smooth. After Los Angeles and Santa Barbara left the California State College system for UC, supporters of the state colleges arranged for the state constitution to be amended in 1946 to prevent similar losses in the future. And the question of where UC's headquarters belonged was itself contested. In 1986, it was decided that the UC president should no longer be based at Berkeley. The UC Office of the President moved to Kaiser Center in Oakland in 1989, a lakefront location that drew widespread criticism as too elegant and too corporate for a public university. In 1998, it moved again, to a modest building near the former site of the College of California in Oakland, the very institution whose bankruptcy had made UC possible in the first place.

  • Eighteen regents are appointed by the governor for twelve-year terms. One member is a student appointed for a single year. Seven more serve ex officio: the governor, lieutenant governor, speaker of the State Assembly, State Superintendent of Public Instruction, president and vice president of the UC alumni associations, and the UC president. The Academic Senate, composed of faculty, holds the power to set academic policies.

    The regents' independence from the rest of the California state government is not a policy preference. It is protected by the state constitution, a protection put in place in 1879 that has had lasting and sometimes strange consequences. When Serranus Clinton Hastings founded the Hastings College of the Law in 1878, it was affiliated with UC by a state statute. After a falling out with his own handpicked board of directors, Hastings persuaded the legislature in 1883 and 1885 to pass new laws giving him direct control. In 1886, the Supreme Court of California struck those laws down: the 1879 constitution had stripped the legislature of the ability to amend the original 1878 act. The result is that the College of the Law, which dropped Hastings from its name in 2023, remains a UC affiliate but is not governed by the regents and must seek funding directly from the Legislature.

    In 2008, the Western Association of Schools and Colleges, the system's regional accreditor, criticized UC for significant problems in governance, leadership, and decision-making, citing confusion about the roles and responsibilities of the university president, the regents, and the ten campus chancellors. Governance had been a source of friction from the first days of the university, and the accreditor's 2008 report suggested it remained unresolved.

    All UC presidents were white men until 2013, when Janet Napolitano, a former Homeland Security Secretary and Governor of Arizona, became the first woman to hold the office. In 2020, Dr. Michael V. Drake, a former UC chancellor and medical research professor, was selected as the 21st president, becoming the first Black president in the system's then-152-year history. He took office on the 1st of August 2020.

  • In 1980, the state of California funded 86.8% of the UC budget. By the 2021-2022 fiscal year, state spending on UC had reached $3.467 billion out of total UC operating revenues of $41.6 billion. But that $3.467 billion represented a far smaller share of the whole: the system's medical centers alone contributed 39% of operating revenues, with federal funds at 11%, and student tuition bundled with state and UC general funds at 21%.

    Proposition 13, passed by California voters in 1978, severely limited long-term property tax revenue and caused state financial support for UC to collapse. To compensate, UC imposed fees that were, in practice, tuition in all but name. On the 18th of November 2010, the regents formally acknowledged what had long been true by renaming the Educational Fee to Tuition. Undergraduate student fees had risen 90% from 2003 to 2007. In 2011, for the first time in UC history, student fees exceeded contributions from the state.

    In the 1930s, under President Sproul, UC's mission formally shifted away from instruction and toward research, public service, and knowledge creation. The Master Plan for Higher Education, enacted into state law in 1960, designated UC as the primary state-supported academic agency for research. As of the end of fiscal year 2023, UC controls 13,810 active patents, and its researchers generated 1,440 new inventions in that year alone. On average, UC researchers create four new inventions per day.

    The research mission also extends into classified territory. During the World War II Manhattan Project, Lawrence Berkeley Lab developed the electromagnetic method for separating uranium isotopes used to build the first atomic bombs. The Los Alamos and Lawrence Livermore labs have been involved in designing nuclear weapons from their inception through the shift into stockpile stewardship after the Cold War. Lawrence Livermore was not officially severed administratively from Lawrence Berkeley until the early 1970s, a fact that reflects how deeply intertwined these institutions were. In September 2019, UC announced it would divest its $83 billion in endowment and pension funds from the fossil fuel industry, citing the financial risk inherent in that sector because of climate change.

  • Before 1986, a student applying to UC could choose only one campus. Those rejected but otherwise eligible were redirected to a campus with open space. UC Riverside chancellor Ivan Hinderaker described the consequences in 1972: redirection had been a negative rather than a plus, with some students arriving with a chip on their shoulders so big they never gave the campus a chance. In 1986, the system shifted to multiple filing, letting students apply to as many campuses as they wished on a single application, paying a separate fee for each.

    The Master Plan established that UC must admit undergraduates from the top 12.5% of graduating California high school seniors. The Eligibility in the Local Context program, known as ELC, extends guaranteed access to students ranked in the top 9% of their own high school class. Beginning with fall 2007 applicants, ELC also required a UC-calculated GPA of at least 3.0.

    In May 2021, following a student lawsuit, UC announced it would no longer consider SAT and ACT scores in admissions or scholarship decisions. In 2021, the freshman class was the most diverse and largest in UC history, with 84,223 students. Latinos were the largest group at 37%, followed by Asian Americans at 34%, white non-Hispanics at 20%, and African Americans at 5%.

    Admissions have not been without controversy. A 2020 California auditor's report found that at least 64 wealthy students were wrongfully admitted to UC schools as favors to powerful figures, with 55 of those 64 cases occurring at UC Berkeley. UC has also faced sustained criticism for increasing the percentage of out-of-state and international students, who pay higher tuition. At a Board of Regents meeting in 2015, Governor Jerry Brown remarked that ordinary students with good grades were getting frozen out in favor of foreign students and applicants with perfect grade point averages. UC reversed course that same year, committing to admit more California residents. Approximately one in three UC students today begins their education at a California community college before transferring.

  • The University of California library system holds 40.8 million print volumes, one of the largest collections of printed materials in the world. On the 27th of July 2021, all ten campuses went live with a unified online catalog called UC Library Search. The two regional library facilities, one serving Northern California and one serving Southern California, held a combined 13.9 million items as of 2019.

    The Natural Reserve System, established in January 1965, manages 39 reserves totaling more than 756,000 acres, providing long-term research sites undisturbed by tourists or development. UC manages two observatories: Lick Observatory atop Mount Hamilton in the Diablo Range east of San Jose, and Keck Observatory at the 4,145-meter summit of Mauna Kea in Hawaii.

    On the 14th of November 2022, about 48,000 academic workers at all ten UC campuses and Lawrence Berkeley National Laboratory went on strike for higher pay and benefits, authorized by the United Auto Workers union. The UAW alleged more than 20 unfair labor practice charges against UC, including unilateral policy changes and obstruction of worker negotiation. The strike lasted almost six weeks, ending officially on the 23rd of December.

    The UC Extension program has enrolled over 700,000 students in more than 3,000 courses, with approximately 100,000 students attending during the 2022-2023 academic year. The program is an approved and dominant provider of education for WIOA and TAAP workers in California. UC also runs a seaport through UC San Diego's Scripps Institution of Oceanography, owns an operating airport at UC Davis, manages five medical centers handling about 10.8 million outpatient visits per year, and operates the oldest and largest alumni association-run family camp in the world, the Lair of the Golden Bear, located at 5,600 feet in Pinecrest, California, hosting almost 10,000 campers annually.

Common questions

When was the University of California founded?

The University of California was founded on the 23rd of March 1868, when Governor Henry H. Haight signed the Organic Act into state law. The university emerged from a merger between the private College of California and a state agricultural college that existed only on paper.

How many Nobel Prize winners are affiliated with the University of California?

UC faculty and researchers have won 75 Nobel Prizes as of 2025. Berkeley has the most affiliated Nobel laureates of any single campus, followed by UC San Diego and UCLA.

Who was the first woman president of the University of California?

Janet Napolitano became the first woman to serve as UC president, taking office on the 30th of September 2013. She had previously served as Secretary of Homeland Security and as Governor of Arizona.

Who was the first Black president of the University of California?

Dr. Michael V. Drake became the first Black president of the University of California system, taking office on the 1st of August 2020. He was selected on the 7th of July 2020 and previously served as a UC chancellor and medical research professor.

How many campuses does the University of California system have?

The University of California system has ten campuses: Berkeley, Davis, Irvine, Los Angeles, Merced, Riverside, San Diego, San Francisco, Santa Barbara, and Santa Cruz. The newest campus, UC Merced, opened in fall 2005.

Does the University of California charge tuition to California residents?

Yes. UC formally began charging tuition in 2010, when the regents renamed the Educational Fee to Tuition on the 18th of November of that year. Prior to this, fees that functioned as tuition had been in place since the late 1970s following cuts to state funding after Proposition 13 passed in 1978.

All sources

207 references cited across the entry

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  60. 104newsAtkinson steps down, Dynes steps upKatherine Steelman — October 7, 2003
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  71. 121newsFree mansions for people of means: UC system spends about $1 million yearly on upkeepTanya Schevitz & Todd Wallack — November 14, 2005
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