In many respects, higher education in the United States – with credits awarded on time a student sits in a chair – remains trapped in the 19th century and has been slow to embrace technology.
Online education from traditionally accredited colleges has been available since at least 1999, but almost always at the same high tuition cost as the traditional “physical” courses. New ideas, such as tuition-free massive open online courses (MOOCs), are now emerging, but are generally not accredited.
For a true revolution to occur, regulation will need to change along with the technology. The key advance would be to establish a new private sector accrediting body, the “Modern States Accrediting Agency,” that would ensure the quality and reputation of the innovative courses, make the credits transferable into the traditional system and which would be recognized by the U.S. Department of Education as an approved accreditor in order to qualify students for federal student aid.
The Department of Education began its first online education pilot program in 1999. In 2006, it allowed institutions to offer all of their courses online. However, these courses were offered by institutions accredited in the traditional way, with student enrollment in the courses kept limited, and with tuition set as high (or even higher) than tuition for the physical alternative.
The paradigm began to shift in 2011 when Stanford University offered three of its courses online, free of charge, to any person anywhere who chose to take them.
Since then other innovators have continued to introduce MOOCs, notably led by the nation’s most respected traditional universities, such as MIT and Harvard. MIT, for example, is creating MITx, which is intended to offer a great number of MIT’s courses free of charge or nearly so; taught by MIT’s renowned faculty; and with graded assignments, tests, online discussion groups, online professor “office hours” and other quality advances.
The problem with MOOCs, though, is that there is usually no mechanism for obtaining accreditation and, in U.S. higher education, accreditation is the “coin of the realm,” which gives a degree its value. As a result, most MOOCs can offer students only a letter of completion, a pat on the head and no degree. Few other institutions or graduate schools will recognize completion of a MOOC course for credit, and employers do not know how to judge the student’s level of accomplishment.
Schools like MIT should not be forced to dilute the power of their brand by being forced to give their regular degree to students who simply take some of their tuition-free online courses. However, it is equally inappropriate to give no value to the online learning that occurs in a MOOC, particularly if a student can complete a high-quality, rigorous course and then prove mastery of the material on a separate, proctored, certifying exam.
In the traditional system, a degree is accredited because the degree-granting institution is itself accredited by an agency recognized by the U.S. Secretary of Education. The accrediting agencies (such as the Middle States Commission on Higher Education or the New England Association of Schools and Colleges) are private sector, self-regulatory groups which, in most cases, were created nearly a century ago by the member institutions themselves. The best of these agencies were later recognized by the Department of Education and included on its list of approved accreditors.
Today students can only qualify for federal financial aid if their institution has been accredited by one of these recognized agencies, and these accreditors’ decisions control access to the more than $150 billion in federal aid paid out to students each year. The traditional accrediting agencies, which were founded long ago to serve the needs of the traditional institutions, are not well-suited to lead technological and social innovations that are alternatives to the traditional system. A few experiments with traditionally accredited MOOCs are under way.
However, for the most rapid and effective progress, America needs a new, innovation-focused accreditor, Modern States, which would also be recognized by the Department of Education and which could accredit providers of emerging technologies and ideas in order to drive down costs, drive up quality and to shape federal aid programs in new and effective ways.
Unlike traditional accreditors, Modern States would be able to accredit specific courses, not just the degree-granting institution as a whole. For example, it could recognize that the freshman physics MOOC from MITx is of high quality, and then develop a widely available, proctored test for students who complete that course, similar to an SAT exam or CPA exam.
Students who complete the preapproved, tuition-free MOOC and also pass the confirmatory Modern States assessment would earn accredited course hours from Modern States itself. Enough such courses in the right scope and sequence (say physics from MITx, poetry from Harvard, theology from Notre Dame and so on) could lead to a fully accredited Modern States degree. Modern States would also approve courses and develop tests in vocational areas, in career training fields and at the two-year and community-college level, in order to serve all types of students.
The creation of Modern States could then enable a whole field of academic innovations to bloom, including blends of “bricks and clicks” and new types of federal financial aid models. For example, students might take their core lectures tuition-free and online from a nationally renowned professor in a MOOC, and then attend supplementary weekly study groups with a live professor and other students in their home towns, all at a lower overall cost than a traditional course today.
Similarly, students might take their first year of introductory courses all online for free, but then transfer to a traditional college for the last three years, lowering their total educational costs by 25 percent. Students who complete their educations at a low cost or no cost to the federal government might even be paid a federal bonus upon completing their degree and successfully entering the work force. In this way, the self-motivated Abe Lincolns of tomorrow could finish their higher educations debt-free and with cash in the bank. Meanwhile, U.S. taxpayers would save money.
Modern States could also lead the way in areas unrelated to MOOCs, such as competency-based exams and on-the-job skills training. For example, if there is a national shortage of skilled welders, and if an employer trains a worker in welding who then passes the Modern States assessment, the worker could earn a course credit in welding while the employer itself might be paid some stipend as an “educational institution of one.”
The traditional accreditors were founded by their member institutions, but – with a few exceptions – traditional institutions are not likely to be the best champions for low-cost alternatives to themselves. Modern States should be chiefly formed by a voluntary association of philanthropies and nongovernmental organizations concerned with increasing access to high-quality education while lowering its cost -- groups such as the Bill and Melinda Gates Foundation, the Ford Foundation, the World Bank and so on. Employer and labor groups could join as well, as could providers of the innovative courses, student consumer groups and others.
Membership contributions could fund a staff that would develop a starting catalog of approved courses from the already-existing universe of MOOC and related offerings. The staff would then work with testing organizations to develop the independent assessments needed to prove student mastery of the material. The catalog would cover a range of academic and vocational fields, and grow and evolve over time.
The ultimate path to success for Modern States would be to keep its testing standards high and rigorous so that employers, traditional institutions and the world at large will see that the students are truly deserving of the degree credits. In this way, Modern States could function like a universal version of the CPA exam developers, who have become an accepted standard of testing and quality in the accounting field.
Once Modern States is formed, it would write criteria for granting accreditation that would be aligned with the Secretary of Education’s criteria for recognition of accrediting agencies. After applying these criteria, Modern States could petition the Department of Education for recognition. The petition would be reviewed by staff and by a federal advisory committee that advises the Secretary on whether to recognize accreditors. If the Department grants recognition, then students at the institutions and programs accredited by Modern States would be eligible to participate in federal student aid programs.
Transferability of credits to more traditionally accredited programs would be negotiated by Modern States through reciprocity agreements with other accreditors, as supported by the Department of Education. Modern States would be a private-sector organization, not a government organization. However, political leaders in both parties could help achieve educational goals by expressing clear support for the Modern States approach as outlined here.
In its best form, traditional higher education is one of America’s great treasures, and no online program is ever likely to equal the experience of four years on campus at a great school. However, the high cost and limited availability of such traditional best-in-class programs have placed them increasingly out of reach to many striving students in America and around the world. By unleashing the power of technology and social innovation, Modern States could be the key regulatory mechanism to make education more accessible and affordable, and to bring higher education more fully into the 21st century.
David Bergeron and Steven Klinsky
David Bergeron, the former acting assistant secretary for postsecondary education at the U.S. Department of Education, is vice president of postsecondary education policy at the Center for American Progress.
Steven Klinsky, a New York-based businessman and philanthropist, has been active in education reform since 1993.
It’s only been about a year since massive open online courses (MOOCs) burst onto the higher education scene. But it hasn’t taken long in many quarters of our community for acclaim to accede to skepticism, and excitement about MOOCs to fade amid charges of excessive hype.
All of that’s understandable during such challenging times for American higher education, as presidents and professors alike grapple with issues of affordability, access and accountability. After all, no one innovation will ever be a cureall, no matter how much attention it gets.
This is a good time for all of us in higher education to take a step back and study the disruptive potential of MOOCs and other innovations. The American Council on Education, for instance, has an ongoing and wide-ranging research and evaluation effort to examine the academic potential of MOOCs and attempt to answer questions about whether they can help support degree completion, deepen college curriculums and increase learning productivity.
I was interested, therefore, in the findings of Inside Higher Ed’s new Survey of Faculty Attitudes on Technology. Over all, and perhaps to no one’s surprise, many faculty members expressed reservations about online courses in general and about MOOCs in particular. Several responses highlighted this skepticism, but also, I believe, showed where ACE’s work can be of assistance.
Just 22 percent of the faculty who responded to the survey agreed that "higher education should award credit for MOOCs." However, 66 percent said that a very important indicator of a quality online course is whether it has been "independently certified for quality."
It has been well-publicized that one aspect of ACE’s MOOC evaluation and research initiative is to review some specific MOOCs for potential college credit recommendations. So far, in fact, we have determined that 11 such courses across three major MOOC platforms met criteria for credit recommendations: Five from Coursera, five from Udacity and one from edX.
But what may be less well-known is that reviewing MOOCs for credit recommendations involves the same work ACE has been successfully undertaking for many years to evaluate learning that takes place outside traditional degree programs. And faculty should keep in mind that it is their colleagues who are responsible for carrying out these reviews.
Since 1945, ACE has evaluated military training and experiences to determine their eligibility for credit recommendations. In 1974, the ACE College Credit Recommendation Service (ACE CREDIT®) was formed to extend these reviews to the workplace and to major departments of government. Decisions about this and all transfer credit are up to individual institutions on a case-by-case basis, as they should be, but there is a network of some 2,000 institutions that have agreed to consider ACE credit recommendations.
Many of these courses are found in military and workplace settings, but they also have for a number of years included “traditional” online courses that now are more than a decade old.
Each course review is led by a team of at least two experienced and trained faculty assessors, drawn from a variety of institutions and geographic regions. Each faculty assessor's expertise is relevant to the course under review and all must have significant teaching experience. The reviewers look at textbooks and other instructional materials, course syllabuses, assessment methods, lab and class exercises, instructor qualifications and, for online courses, instructional design, assessments, student authentication and exam proctoring.
In the process of these rigorous reviews, it is not unusual for a faculty team to make recommendations for improvements to MOOCs and other types of courses.
The final recommendations are always a consensus of the team, and they are based on consistent standards that are national in scope and not linked to the standards of any one particular institution. It is up to ACE faculty reviewers to decide how much credit to recommend based on the scope and depth of the course, with decisions about whether to grant credit at the discretion of degree-granting institutions.
The promise of MOOCs remains an open question, but it’s clear that online learning overall will play an increasingly important role as the higher education community works to serve millions of adult learners and help our country meet the goal of boosting the number of Americans with a postsecondary degree, certificate or credential. About two-thirds of American college students now are post-traditional learners whose pursuit of additional knowledge and skill is interlaced with time commitments to jobs and family responsibilities.
The 2012 Survey of Online Learning by the Babson Survey Research Group showed that more than 6.7 million students were taking at least one online course during the fall 2011 term, an increase of 570,000 from 2010, and that 32 percent of higher education students now take at least one course online. And while just 2.6 percent of our institutions reported currently having a MOOC, an additional 9.4 percent said that MOOCs were being planned.
ACE, of course, isn’t the only entity that can help assure faculty of the quality of online courses, including MOOCs. And it’s worth noting that ACE’s MOOC initiative is part of our broader push to expand the area of prior learning assessment in ways appropriate for both post-traditional students and American’s diverse system of colleges and universities.
Indeed, as my ACE colleague Cathy Sandeen recently noted, there are many ways to develop a more truly interconnected higher education system that helps more Americans complete postsecondary degrees, credentials and certificates.
Yes, MOOCs have received a lot of hype. But that just makes it all the more important to continue with efforts to assess where and how they might fit into the higher education landscape.
Molly Corbett Broad is president of the American Council on Education.
Submitted by Gary S. May on September 10, 2013 - 3:00am
When a new product is launched, particularly in technology, people often rush to be among its early adopters. The sudden explosion of users invariably reveals bugs and glitches that need to be addressed.
This is analogous to what we appear to be witnessing right now with massive open online courses. An unrelenting stream of attention-grabbing announcements is being followed by closer inspection – and the realization that, although MOOCs are a novel approach to education, they may not be a panacea.
The picture of MOOCs presented in the press is quite a paradox. The concept has been described as both a game-changer and a hyped retread. MOOCs deliver great content to faraway places, but some believe they place academic quality in peril. They are financial enigmas — offering the potential to bend the higher education cost curve, yet lacking an accepted plan for monetization. Some leaders in higher education are scrambling to get into the game; others are issuing a call to slow down.
The contradictions are rich, and the hyperbole in full bloom. Personally, I find all of the discourse to be a positive sign. The intensity of the MOOC dialogue indicates a chord has been struck. The promise of technology and access is igniting a larger discussion about the higher education paradigm. The initial rush has evolved, but what’s next? Where is this train ultimately headed?
First, let’s keep in mind that in the technology adoption life cycle, MOOCs are probably somewhere between innovation and early adoption; it’s too early to declare victory or to reject the concept before it has been further tested, evaluated and refined. Second, colleges and universities are ground zero in the exploration of ideas. If you can’t experiment here, then where?
In thinking about this issue as an engineer, I am reminded of the Wright Brothers and their pursuit of human flight. The brothers’ first test glider in 1900 failed to achieve the altitude that Wilbur and Orville had anticipated. So they revisited their equations and re-analyzed the aerodynamic data obtained from the aviator, Otto Lilienthal. They increased the size of the wings and refined the sloped surface of the airfoil, but additional adjustments brought the same disappointing results. It would be another two and a half years before the Wright brothers succeeded in launching and controlling a powered aircraft.
What if their early struggles with the gliders had gotten the better of the Wrights? How much longer might humankind had to wait to fly?
The same might be asked today of MOOCs. The dawn of a new academic year seems an appropriate time to contemplate such questions and share a few observations on higher education’s latest grand experiment:
1. The prospect of MOOCs replacing the physical college campus for undergraduates is dubious at best. Other target audiences are likely better-suited for MOOCs. My university, the Georgia Institute of Technology, is preparing to offer an inexpensive M.S. degree in computer science via massive (but not open) online courses beginning January 2014, with two options. The on-campus version has a research emphasis, requiring one-on-one interaction, whereas the online degree caters to professionals by focusing on applying advanced knowledge in the workplace. If successful, thousands are expected to enroll in this $7,000 MS degree program.
2. In addition to the master’s level, MOOCs may also help level the playing field for precollege education. This is another area of the MOOC wilderness being explored. With a $150,000 grant from the Bill and Melinda Gates Foundation, for example, Georgia Tech is offering MOOCs in three introductory topic areas for people who have yet to pursue a college degree. One can also easily extrapolate and imagine MOOC-like advanced placement courses available to students at high schools without their own Advanced Placement offerings.
3. Despite challenges, delivering content online could be a real asset to enhance pedagogy for undergraduates as well. The inverted classroom – in which students and faculty convene solely for discussion, and all lectures take place online – appears to have significant promise. For example, a recent comparison between a standard fluid mechanics course at Georgia Tech and its "flipped" counterpart revealed that weaker students in the flipped classroom actually outperformed stronger students who experienced traditional delivery of the material.
American higher education finds itself at a pivotal point in its great MOOC experiment. We must continue working to optimize MOOCs so that their promise and potential can be realized. While operational and execution issues remain, MOOCs still represent a tremendous opportunity for people around the world to learn and for educators to study and optimize that learning process.
A realistic time frame for evaluating the successes, failures, and unanticipated results is still likely another three to five years away. But, as Wilbur Wright said about learning to fly: "If you are looking for perfect safety, you will do well to sit on a fence and watch the birds; but if you really wish to learn, you must mount a machine and become acquainted with its tricks by actual trial."
Gary S. May is dean of the College of Engineering at Georgia Institute of Technology.
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.