Despite the praise heaped on California Senate Bill 520 by Phil Hill and Dean Florez in a recent panegyric published in Inside Higher Ed, the bill was not the right answer for California’s higher education access woes, and it is a poor model for other states to emulate.
A bill that would open the door to for-profit companies -- including unaccredited “fly-by-night” ones -- to offer courses in the name of a state’s colleges and universities is fraught with danger. A bill that would require a state’s colleges and universities to outsource their core educational function is truly misguided, however well-intentioned the idea may have been.
That’s the real reason for the huge uproar and the rare universal opposition to California’s SB 520 from those close to higher education -- both faculty groups and the universities themselves.
Let’s be clear about one thing that’s not acknowledged in Hill and Florez’s piece: colleges and universities around the country already allow transfer credit from other universities as long as those courses meet the quality control standards of the home institution.
That tradition has been in place for a long time precisely to balance the needs of students who often take courses at more than one institution with the needs of the public to ensure quality control and the integrity of degrees from its taxpayer-funded institutions. The people of California (including employers) need to know that a degree from the University of California, the California State University, or a state community college is just that -- and not something offered by an unknown entity.
By mandating that state public colleges and universities begin a process of outsourcing its courses, SB 520 would have seriously weakened transparency and accountability in its institutions of higher learning. That’s one reason why the provosts of major universities in the Midwest have argued against similar schemes in their institutions. Alumni and trustees at Thunderbird Business School have also expressed serious concerns about how such a proposed relationship would threaten the reputation of that school and the value of its degrees for all students.
There is good reason for such concern, for cautionary tales about relying on for-profit companies to offer a college’s courses are unfolding right now around the country. In a December 2012 court settlement, for instance, the New York Institute of Technology was found legally and financially liable for actions of its for-profit partner. More recently, Tiffin University has seen its accreditation threatened because of over-reliance on unaccredited for-profit companies to offer its courses.
If SB 520 had passed, it would not have expanded meaningful access to quality higher education in the state. But it would have thrown open the door to massive profits for edu-businesses, who are accountable not to the people of California, but to investors and stockholders. No wonder so many CEOs were there to praise SB 520.
Florez and Hill labor mightily to make SB 520 sound bold and innovative, an effort to “wake up [California’s] higher education community,” they say. What everyone, including the state’s elected leaders, really need to wake up to are the fundamental facts about higher education funding in California.
According to a report published in February 2013 by Postsecondary Opportunity: The Pell Institute for the Study of Opportunity in Higher Education and titled “State Disinvestment in Higher Education FY1961 to FY2013,” California’s state fiscal support for higher education as a percentage of state personal income dropped by 58.2 percent (adjusted for inflation) between 1980 and 2013. The trajectory is clear: if the current long-term trend continues, California will reach zero in state funding for higher education in the year 2054.
Unfortunately, as Postsecondary Opportunity’s research demonstrates, many other states are also in a “Race to Zero.”
SB 520 was no “wake-up call” for anyone. It was, in fact, a dangerous diversion from the reality that there is simply no substitute for public investment in higher education, and there is no single cheaper teaching modality or low-cost “magic bullet” that will meet our need for qualified college graduates.
With all that is at stake for the futures of millions of students and for our country, we need to take a harder look at so-called “innovative” solutions that make the old promise of “something for nothing.”
In today’s Academic Minute, Professor Nancy Kim of the California Western School of Law explores the nature of Internet-based contracts we often agree to without careful consideration. Learn more about the Academic Minute here.
MOOC provider Coursera on Tuesday announced Lila Ibrahim will become its first president. Ibrahim, who will continue to serve as an operating partner for the venture capital firm Kleiner Perkins Caufield & Byers, previously spent 18 years with the chip maker Intel. "Lila has worked closely with the company founders over the past year," Coursera founders Andrew Ng and Daphne Koller wrote in a blog post. "She has been consistently passionate about education and brings the experience to help us turbo charge Coursera’s growth." Ibrahim will join Koller and Ng to form Coursera's executive team.
California’s controversial bill to allow third-party, online courses to count for credit at the three public systems of higher education has met an ignoble end. Or has it? On July 31, we learned that Senate Bill 520 (SB 520), authored by Senate President Pro Tempore Darrell Steinberg, is being moved to the two-year file, and will remain dormant for at least a year.
Is this a telling defeat for powerful state politicians who went too far in trying to advance online education options, or did the process of introducing the bill and debating it in public actually create the same goals and opportunities that drove the bill in the first place?
We believe that despite the tremendous and dramatic opposition and perceived defeat of SB 520, quite a lot has been accomplished as a direct result of the initial bill language. Despite spectacular headlines, the bill itself is not dead, but rather has simply been moved to the two-year file where it will be revived as needed.
How Did We Get Here?
As described in a position paper written by Phil Hill and Michael Feldstein for the 20 Million Minds Foundation, when the California Master Plan was adopted in 1960, the basic premise was to guarantee students a place within one of the three public systems based on their high school record. It was assumed that by having a place in a public institution, the student would have access to needed courses. As the state budget has crumbled, unemployment rates have skyrocketed and enrollment demand has surged without the resources to accommodate it, this assumption is no longer valid. Across the state, literally hundreds of thousands of students have been turned away from needed courses at the California Community Colleges (CCC), the California State University (CSU), and the University of California (UC).
In January of 2013, in an effort to address the growing public education access problem facing California, the 20 Million Minds Foundation brought together students, faculty, administrators, state leaders, and ed-tech pioneers for a one-day symposium. The "Re:Boot California Higher Education" conference promoted a robust discussion that examined not only the challenges, but also the potential technological solutions to the major issues facing California’s three segments of higher education. During his opening address to the Re:Boot participants, Senator Steinberg indicated:
[Online education] is a […] revolution and possibilities abound using technology in ways that not only equal or enhance quality but also reduce the cost of higher education for struggling students and their families.
In March of this year, during an online press conference, Senator Steinberg unveiled Senate Bill 520, announcing the legislation that would “would reshape higher education, in partnership with technology we already use, to break bottlenecks that prevent students from completing education.”
The newfound involvement of state government officials in this level of higher education, and the nature of the bill itself, which proposed the heretofore unheard-of use of controversial, potentially disruptive, large-scale solutions such as MOOCs for credit, generated significant resistance from faculty groups and the systems themselves. In particular, a New York Timesarticle "broke the news" that a powerful senate leader was going to challenge the status quo without getting agreement from faculty groups first, and this publicity helped rally vocal opposition to the bill. Of course, this level of resistance should not have surprised anyone involved in higher education in California.
The nature of government is that real legislative movement most often occurs for two reasons – bad press or a crisis. Senator Steinberg sees course access as a crisis for public higher education, and he introduced a bill designed to wake up the higher education community. The bill essentially sent the message that "we need to solve these problems of access whether our colleges and universities do it themselves or whether we need outside help." This challenge to go beyond the ordinary thoughts and discussions in public policy pushed the boundaries and made many groups quite uncomfortable.
In parallel, Governor Jerry Brown added fuel to the fire by proposing additional funding to the CCC, CSU, and UC with the caveat that certain conditions be tied to the funding. The language in the proposed budget obligated the funds "to increase the number of courses available to matriculated undergraduates through the use of technology, specifically those courses that have the highest demand, fill quickly, and are prerequisites for many different degrees.” This language was interpreted as telling the systems how to do their job. After CSU and UC indicated they would follow the same guidelines, but execute the solution their own way, Governor Brown used a line-item veto to remove his own proposed earmarks creating conditions for the additional funding.
The result of the intense opposition and debate during the legislative process led to significant amendments to SB 520. Originally envisioned as the gateway to public-private partnerships with a common pool of courses, the bill has been transformed into a grant program for each system to implement individually. Even with the passage of the amended bill in the Senate, the bill is currently on hold.
Movement From Systems
All three systems have proposed new programs that broadly meet the same goals outlined by SB 520, largely based on the additional funding for online initiatives, with the new emphasis being the introduction or expansion of online courses with cross-enrollment across each system.
The California Community Colleges currently enroll as much as 17 percent of their students in various types of online or distance education. The system is poised to continue to advance and expand its online programs with a strong focus on career technical education as well as workforce development programs as outlined in the CCC System Strategic Plan, updated in June of this year.
In July, the CSU introduced a new Intrasystem Concurrent Enrollment program, allowing students at each campus to sign up for one of 30 online courses offered in the program from other "host" campuses. Under the current plan, students will be limited to one course per semester.
In January, UC introduced the Innovative Learning Technology Initiative, updated in May, as "a direct response to the governor’s plan to earmark $10 million from UC’s FY 14 core budget to use technology to increase access to high-demand courses for UC matriculated students.”
Despite the welcome news of these programs, we are already hearing widespread concerns over the pace and scale of implementation. Lieut. Governor Gavin Newsom, a noted supporter of more effective use of technology, following the online program presentation at the July meeting of the UC Regents, stated, "I don’t think we’re running at full speed here. We’re moving extraordinarily slowly…. Californians are looking to us" for progress in online education.
What to Expect Next
Students enrolled in California public colleges and universities should be guaranteed timely access to the core courses that they are required to take in order to graduate. Given that there are a variety of ways in which the institutions could meet this obligation, the state should avoid being overly prescriptive about the method. Rather, it should supply the mandate for educational access, support institutions in meeting this mandate, and provide a safety valve to ensure the mandate’s right is preserved.
--From our position paper
The focus should remain on finding effective solutions to the course-access issue -- providing students with high-quality courses they need while reducing costs. Before this year, this was not happening for a variety of reasons, and it remains to be seen just how much the institutions will do without the pressure of earmarked funding in the state budget or pending legislation such as SB 520.
We believe the best outcomes for online education occur when faculty and institutions are motivated and supported to design high-quality options for students. Ideally, colleges and universities would craft solutions, but use third-party courses as safety valves to ensure students have access to necessary classes. The hope is that the three public systems will continue their progress, find real solutions to the course access problem, and not fall into the trap of doing the same old thing again, just with online options.
At this point, one might actually suggest that a welcome policy outcome has indeed been accomplished as a direct result of the initial language in SB 520. The bill is certainly not dead. The bill itself could now be thought of as a safety valve, providing an option in case the three systems fail to show real progress in meeting the challenge of course access. We are, however, cautiously optimistic that viable and effective change is, at least for now, in the formative stages.
Phil Hill is a consultant and industry analyst covering the educational technology market primarily for higher education. He is co-publisher of the e-Literate blog and co-founder of MindWires Consulting. Follow him on Twitter at @PhilOnEdTech.
Dean Florez is the former Senate majority leader of the California State Senate and the current president and CEO of the 20 Million Minds Foundation (@20MillionMinds). Follow him on Twitter at @DeanFlorez.
Howard University announced a severalfold expansion of its online offerings on Monday. It plans to offer about 25 online or hybrid programs over the next several years, an increase in online activity over the handful of online programs it offers now.
Howard Provost Wayne Frederick said the new online programs would be for undergraduate and graduate students. He said the arrangement was part of an effort to make Howard a more contemporary university and allow the university to expand its nontraditional enrollment and add to its revenue. Frederick said Howard was interested in reaching students in African and Caribbean countries with its fully online offerings, though the pricing structure of the courses has yet to be determined. The university wants to expand its on-campus capacity by using the online classes to help "flip" the classroom.
The announcement may be particularly significant because historically black colleges and universities, such as Howard, have a reputation for moving their programs online at a slower pace than other universities, for a variety of reasons. “I think over all, it’s a space where students of color and providers of education to students of color are looking very closely because it does represent a contemporary movement in higher education,” Frederick said
The Lumina Foundation is putting $2.3 million behind a growing effort to reduce the regulatory burden on institutions that offer online courses to students across state lines, according to the Western Interstate Commission for Higher Education.
Four regional commissions, including WICHE, and a number of other higher education officials want distance ed programs to be regulated by the state where they are based instead of by every state where they operate, a plan some hope will solve the longstanding, knotty problem of regulating cross-state institutions. Existing regulations requiring online programs to register in each state where they have students are simply being ignored.
Lumina is funding a voluntary solution, which mirrors recommendations from a report issued in April. The so-called State Authorization Reciprocity Agreement, or SARA, would create a national series of reciprocity agreements. States would be responsible for regulating distance ed institutions based in their states. Other states would rely on that home state's work. Distance ed providers, including traditional universities and for-profit providers, could expect a decrease in their paperwork and required fees. SARA would require states across the country to change their laws to accommodate the new regulatory framework.
The head of the New England Board of Higher Education said SARA is a workable solution.
"This agreement provides a timely and voluntary means by which state authorizers and postsecondary institutions nationwide can collaborate to address key challenges, including the ongoing profusion of online learning, the misalignment of state policy requirements, and the need to expand online access and program quality," Michael K. Thomas, NEBHE’s president and CEO, said in a statement.
The University of California Academic Senate has adopted an open-access policy under which future research articles by professors at any of the system's 10 campuses will be available free and online in a university depository. The decision was reached after six years of deliberations and represents an advance for advocates of open access. Chris Kelty, associate professor of information studies at the University of California at Los Angeles and chair of the University Committee on Library and Scholarly Communication, said: "This policy will cover more faculty and more research than ever before, and it sends a powerful message that faculty want open access and they want it on terms that benefit the public and the future of research."
The University of Maryland University College -- an institution known for distance education -- has announced that it will award academic credit to those who complete six massive open online courses and who pass tests offered for those courses, CBS News DC reported. The MOOCs are introductory mathematics and science courses, and are offered by Coursera and Udacity.
Anant Agarwal, president of edX, one of the major providers of massive open online courses, appeared on "The Colbert Report" this week, where he faced some questions on MOOCs that journalists had previously failed to ask him, at least not the Stephen Colbert way. After Agarwal explained the basic concept of MOOCs, Colbert asked if he was talking about the University of Phoenix. After Agarwal explained that MOOCs are free, Colbert said that if he owned a shoe store, and Agarwal was an employee and suggested giving away shoes for free, "I would fire you and throw shoes at your head."