The Master Plan at 50: Using Distance Education to Increase College Access and Efficiency

The Master Plan at 50: Using Distance Education to Increase College Access and Efficiency M AC TAylor • l e g i s l A T i v e A n A l y s T • oCTober 25, 2010 an LaO RepORt 2 LegisLative anaLyst’s Office an LaO RepORt ExEcutivE Summary Distance Education Provides Additional Tool for Advancing master Plan’s Goals. Fifty years ago, California adopted the Master Plan for Higher Education, a framework document designed to promote universal access for students and cost-effective coordination among the state’s colleges and universities. At the time, postsecondary education generally required students to travel to a campus for in-person classes with an instructor. Today, many students have another option: using technology (primarily the internet) to access instruction wherever they are. The California Community Colleges (CCC) are the largest provider of distance education among the state’s public higher education segments, with the California State University (CSU) also offering a considerable amount of instruction using this delivery method. (Currently, the University of California [UC] system’s use of the medium is limited, though UC is planning a pilot project that could eventually result in a much more extensive distance- education program.) Distance education can offer a number of potential benefits to students, faculty, and the state—advantages consistent with the core principles of access and efficiency contained in the Master Plan. For example, distance education can: ➢ Make undergraduate and graduate coursework more accessible to students who otherwise might not be able to enroll due to restrictive personal or professional obligations. ➢ Provide opportunities for students attending one campus to find and get credit for courses at other campuses (thereby potentially speeding their graduation). ➢ Allow campuses to increase instruction and enrollment without a commensurate need for additional physical infrastructure (such as classrooms and parking structures). ➢ Make possible statewide collaborations, including “virtual” academic departments that are taught by faculty from more than one campus. Recent research suggests that, on average, postsecondary students who complete distance- education courses learn at least as much as those taking the same courses solely via in-person instruction. Yet, research also reveals a gap in retention rates between students in distance education and face-to-face classes, and many faculty (particularly in the state’s research univer- sities) remain skeptical of the value and legitimacy of the delivery method. LAO Recommendations. While distance education is not—and is not intended to be— suitable for everyone (students as well as faculty), we find that it offers an important alternative means of providing instruction that can complement existing formats and expand options for the state’s students and segments. In order to take fuller advantage of this potential, we LegisLative anaLyst’s Office 3 an LaO RepORt believe that the Legislature should guide a clearer statewide vision that specifies data which the segments should collect and report on distance-education students, and which clarifies expec- tations concerning intercampus collaborations and other partnerships. To that end, we make a number of recommendations. These include: ➢ Adopting a standard definition of distance education for UC, CSU, and CCC, and requiring the segments to report periodically on student enrollment and performance in distance-education coursework. ➢ Establishing competitive statewide grants to develop a repository of online curricula that would be made available to faculty throughout the state. ➢ Requiring that reviews of proposals for new academic programs evaluate whether shared distance-education programs would be a better alternative. ➢ Directing the Chancellor’s Offices of CSU and CCC to study the feasibility of devel- oping online degree-completion programs for persons who started college but never obtained a degree. ➢ Creating a task force to pursue a public-private partnership with Western Governors University, a Utah-based nonprofit online university of which California is already a member. Taken together, we believe that these recommendations would help the state make use of distance education in a more effective and coordinated way, thereby enhancing residents’ access to a high-quality and cost-efficient higher education. 4 LegisLative anaLyst’s Office an LaO RepORt iNtrODuctiON Traditionally, almost all instruction in to find and get credit for taking courses at other postsecondary institutions has taken place in a campuses (thereby potentially speeding their classroom. The most common forms of instruction graduation), and even for colleges to create involve a faculty member lecturing to, or leading comprehensive and cost-effective joint academic a discussion among, a roomful of students on a programs. These potential advantages—increased college campus. In recent years, however, there access, more efficient use of facilities, and has been a significant increase throughout the enhanced coordination among campuses—are country in the amount of instruction conducted consistent with key principles adopted by the as “distance education.” By this term, we mean state 50 years ago in the Master Plan for Higher instruction in which faculty and students are Education. (This publication is part of a series in separate locations and communicate using entitled The Master Plan at 50 that discusses technology. Most distance education is delivered various aspects of the plan.) over the internet or with television. At the same time, the growth of distance In California, the main providers of distance education has been a source of concern for some, education are private for-profit colleges and particularly faculty at four-year universities (such the CCC system, although the CSU system, like as in the UC system). Many question, for instance, many other four-year institutions throughout whether students can learn as much in distance- the country, also offers considerable instruction education courses as they do in a face-to-face using distance education. To date, UC’s use environment. Others express continuing concerns of distance education is limited (though, as about the degree to which colleges can ensure the discussed later, UC has begun planning for a pilot academic integrity and honesty of students who project). Colleges cite several benefits of distance complete a large share of coursework (including education for their students and institution. For testing) outside the immediate supervision of an example, by limiting the need to travel to a instructor. campus to attend a class, distance education can The expansion of distance education and make instruction more accessible for various types debates about its potential benefits make it an of nontraditional college students—including important issue for the Legislature and others to working adults, parents and other caregivers, examine. To help facilitate such an examination, members of the military, and residents in remote this report provides an overview of distance areas of the state. Also, distance-education education—including its prevalence, data on programs can allow colleges to increase substan- learning outcomes, and funding—as well as tially instruction and enrollment without the recommendations to improve state oversight and accompanying need for new facilities such as overall program efficiency and effectiveness. classrooms and parking lots. In addition, because While private institutions also use distance distance education is particularly well suited for education, this report focuses primarily on the intercollegiate cooperation and collaboration, it three state-funded higher education segments of can provide increased opportunities for students CCC, CSU, and UC. LegisLative anaLyst’s Office 5 an LaO RepORt OvErviEw Of DiStaNcE EDucatiON What Is Distance Education? participate in discussion groups. This latter group of courses, often called technology-enhanced Distance education (also commonly referred instruction, is not considered distance education. to as “distance learning” or “e-learning”) refers Rather, educational entities usually set a threshold to courses in which students and faculty do not (such as 51 percent) for how much instruction have to be in physical proximity to each other for must be delivered via television, the internet, or instructional purposes, and communicate using other modes during a given academic term in technology (such as the internet or television). order to be considered distance education. As Distance-education courses can be either discussed later in this section, however, there is synchronous, meaning that faculty and students currently no consensus among distance-education communicate with each other in real time, or researchers and providers about where to set that asynchronous, in which a student can choose threshold. when to access lessons and send commu- Evolution of Distance Education. It can nications. For example, under synchronous be said that distance education is both old distance education, a faculty member in one and new. Distance education originated over a location (such as on the main campus) can use century ago in the form of “correspondence” a monitor and microphone to see, hear, and classes, in which students and faculty commu- instruct students who are joining the class “live” nicated through the mail. Later, communication from off-campus sites. Asynchronous mediums technology such as videocassettes and cable include online course sessions that students television expanded distance-education opportu- can participate in at any hour of the day via a nities. It was not until the growth of the internet personal computer. (See the nearby text box for a in the 1990s, however, that distance education fuller description of asynchronous instruction.) experienced its tremendous growth. There are various levels of distance-education Nationwide Trends. According to the Sloan courses at colleges. For example, a college might Consortium, which studies national trends in offer a course in which students do not have to online education, over 4.6 million students appear on-campus for any class sessions, with all took at least one online class at their college course content delivered via distance education. or university in the fall of 2008. (This amount In contrast, other courses deliver a portion of increases to about 5 million when all other types content via distance education, but require of distance education, such as television-based students to attend class a limited number of times instruction, are included.) Sloan defines “online” for face-to-face instruction (such as to perform courses as those with at least 80 percent of laboratory experiments). This type of instruction content delivered via the internet and no more is often referred to as hybrid (or blended) than 20 percent of instruction provided via distance education. There also are courses that in-person classes. Sloan’s estimate of 4.6 million require students to attend all classes in person, students represents one-quarter of total enroll- but include an online component that allows ments in postsecondary institutions for that students to check grades, turn in assignments, and 6 LegisLative anaLyst’s Office an LaO RepORt time period. Moreover, enrollments in online Distance Education at California’s courses have experienced double-digit growth Community Colleges in each year since the Sloan Consortium began As Figure 1 (see next page) shows, in just its reporting in the fall of 2002. (During this ten years, distance education at the community same period, total enrollments in postsecondary colleges has gone from a minor program to a institutions have grown an average of less than relatively major one. In 1999-00, about 115,000 2 percent annually.) students in the CCC system took at least one T a o c aking an synchronous nline lass Typically, students enrolled in a traditional on-site course must attend class at an assigned time and place, and spend class time listening to an instructor or participating in discussions with the instructor and other students. Given that asynchronous online courses are neither live nor in person, what is the “classroom” experience like for distance-education students? While courses vary, online students may do the following: ➢ “Enter” the classroom by going to the campus website and providing a student identifi- cation number and password. ➢ Read the instructor’s announcements on the classroom website, such as reminders about upcoming reading requirements and project deadlines. (While they can attend class any time of day and from anywhere with an internet connection, students are usually given a time frame—such as midnight at the end of each week—by which they must complete required assignments and examinations.) ➢ Access an audio or video presentation, or read a text-based lecture. ➢ Participate in instructor-facilitated discussions with classmates by typing comments and observations in an online forum (or “discussion board”). (Students’ grades are often based in part on the frequency and quality of these “posts” about course material.) ➢ Take quizzes and examinations online (unless required by the instructor to be in person), and submit assignments (such as research papers) using a “drop box” located on the classroom website. ➢ For certain science classes, conduct experiments using an at-home laboratory kit. For speech and other classes, film one’s self using a webcam and submit the videos electronically to the instructor. ➢ Access online support services, such as tutoring and academic counseling, and email the instructor with questions (or post on the classroom website). LegisLative anaLyst’s Office 7 an LaO RepORt class via distance education (out of a systemwide majority of this internet-based instruction is headcount of 2.5 million). By 2009-10, the total delivered asynchronously.) The second largest number of students in the CCC system had risen delivery method is through television. This latter relatively modestly, to 2.8 million (an average category includes live and interactive “video- annual growth rate of 1 percent). Yet, over the conferences” between faculty and students, and same period, the number of students taking a previously recorded lessons delivered to students distance-education course had grown to over through cable television, videotapes, and other 600,000—an average annual growth rate of means. Lesser-used delivery methods include 19 percent. (The CCC system defines a course as instructional software programs and audiotapes. distance education when more than 50 percent Distance-education instruction is offered at of content is delivered through the internet, virtually all of the CCC system’s 112 colleges. television, or related delivery method—as The largest providers include Coastline College opposed to the Sloan Consortium’s threshold of (Orange County), Palomar and Southwestern 80 percent.) Despite a reduction in the number Colleges (San Diego County), Santa Monica of overall CCC students between 2008-09 and College (Los Angeles County), and Foothill 2009-10 due to budget cuts, the number of College (Santa Clara County). Coastline College, distance-education students increased. Barstow College (San Bernardino County), Distance-education coursework taken by and Palo Verde College (Riverside County) these students in 2009-10 was the equivalent of serve over 40 percent of their students via the 120,000 full-time equiv- alent (FTE) students, Figure 1 or about 10 percent of Distance Education Has Grown Significantly at total credit FTE students Community Colleges Over Past Decade served by the CCC system. This compares Headcount with just 1 percent of 700,000 total credit FTE students 600,000 in 1999-00. (One FTE represents a certain 500,000 number of instructional hours provided to a 400,000 student taking a full load of coursework during an 300,000 academic year.) 200,000 As Figure 2 shows, about 85 percent of 100,000 distance education is delivered via the 99-00 01-02 03-04 05-06 07-08 09-10 internet. (The vast 8 LegisLative anaLyst’s Office an LaO RepORt distance-education medium. Colleges offer Office does not collect this information from instruction in many fields of study, with the campuses. Colleges also do not share a standard largest volume in the social sciences (such definition of what constitutes a distance- as sociology and political science), business, education course. Based on our discussions English, mathematics, and computer/information with CSU staff, it appears that certain campuses technology. Some colleges offer students the have become relatively large providers of opportunity to complete an entire academic distance-education instruction. For example, program without taking any courses on-site. CSU’s East Bay, San Marcos, Chico, and San Coastline and Foothill Colleges, for example, Diego campuses report that at least 10 percent offer over a dozen associate’s degrees and certifi- of their students take at least one online course cates entirely via distance education. (generally defined as at least 50 percent course content delivered online). Distance Education at According to the Chancellor’s Office, most California State University of these students appear to be undergraduates According to the Chancellor’s Office, all who take one or more distance-education of CSU’s 23 colleges offer courses via distance courses as part of their degree requirements. The education (generally online). Systemwide CSU does not offer any bachelor’s degrees that enrollment data, however, are unavailable. This can be obtained fully via distance education. is because, unlike CCC, the CSU Chancellor’s Instead, the system offers 20 bachelor’s degree completion programs, in which students can Figure 2 complete all upper- Most Distance Education at the Community Colleges division requirements Is Delivered Via the Internet online or through other 2009-10 distance-education technology. In addition, Instructional Other graduate students can Software Television/Cable obtain a total of about 40 master’s degrees and Internet teaching credentials online. Pilot Project In the Works at UC Currently, the UC system offers very little state-supported instruction via distance education. The UC LegisLative anaLyst’s Office 9 an LaO RepORt Office of the President estimates that there are ➢ Offering online certain high-demand between one dozen and two dozen online classes for which enrollment is otherwise courses offered to students throughout the system. difficult for students. (The system does, however, offer many courses via ➢ Offering fully online degrees. distance education through its fully fee-supported extension program.) Historically, UC faculty (like Intersegmental Collaboration faculty at many other research institutions) have been concerned about whether the quality of Distance-education programs are generally distance-education classes matches that of on-site planned and operated at the segment and instruction. Also, UC has traditionally maintained campus level. There are a few notable instances that an important part of a student’s collegiate of distance education-related collaboratives experience involves participation in on-campus among educational segments in the state, activities (such as public symposia and perfor- however, including: mances)—extra-curricular activities that online ➢ Since 1999, the state has funded the students cannot readily attend. California Virtual Campus (CVC) as part At the same time, some faculty and staff in of the CCC budget. The CVC administers the system have promoted distance education an online catalog of courses that are as a possible means to deliver a high-quality offered via distance education at CCC, education to eligible students who might not CSU, and UC, as well as by various otherwise be able to attend UC. To address the private colleges and universities. The issue about quality (as well as others such as purpose of the catalog is to serve as a faculty workload and cost), UC officials recently “one-stop shop” for students seeking to received support from the UC Regents and take classes outside their home campus Academic Senate to introduce a pilot project (where the course might be full, offered within the next year or two. The plan is to pick at an inconvenient time, or not offered at 25 to 40 undergraduate general education and all). premajor courses and select interested faculty to design a fully online equivalent. These faculty ➢ The CCC budget also includes funding members (as well as possibly other faculty in for the “@ ONE Project,” which provides the system) would then teach the courses to training (primarily online) to faculty on students. Afterward, researchers would evaluate how to use technology more effec- learning outcomes among students in these tively in both distance education and classes. Depending on the results and input from classroom-based instruction. All services faculty, UC could move in a variety of directions, are available to faculty and staff in the including: three public higher education segments, ➢ Offering online classes in highly as well as K-12. specialized subjects, thereby allowing ➢ In 1997, CSU founded Multimedia students at one campus to take Educational Resource for Learning and advantage of faculty expertise at another. 10 LegisLative anaLyst’s Office an LaO RepORt Online Teaching (MERLOT). The program whole or in part for their own instruc- is a repository of free online course tional purposes. Much of this material materials that are available to faculty comes from faculty at institutions such as both inside and outside of California. The the Massachusetts Institute of Technology MERLOT collection includes complete and Carnegie Mellon University, which, online course curricula (consisting of as “open courseware” universities, syllabi, audio and video lectures, assign- publicly publish their course curriculum ments, and tests) that faculty may use in online. aSSESSiNg thE EffEctivENESS Of DiStaNcE EDucatiON As distance education has become more holds distance-education courses to the same widespread, there has been an increased standards (quality, content, and rigor) as those national focus by educators and policymakers on delivered in-person. its value and legitimacy as an alternative instruc- National Research Suggests Similar Learning tional strategy. This section addresses several Outcomes for Online Courses. While colleges issues concerning distance education, including: are required to adhere to the same standards of (1) state law and other policies concerning course quality regardless of the delivery mode, expected standards for distance education, (2) an important question remains: Can students national research on student learning outcomes, learn as much in distance-education classes as (3) student completion rates, (4) concerns about they do in a face-to-face environment? Earlier academic integrity and potential for fraud in national research on video-based courses found distance-education courses, and (5) overall no significant differences in learning compared opinions of distance education by faculty. with traditional classroom instruction. (The Distance-Education Courses Subject to research did identify more-favorable learning Same Standards as On-Site Counterparts. outcomes in “teleconference” classes—in which Currently, distance education is generally held students and faculty can engage in live two-way to the same standards as traditional face-to- interactions—as opposed to televised “broad- face courses. For example, state law expresses casts” with only one-way communication from legislative intent that courses and educational an instructor to students.) programs provided through distance education In 2009, the United States Department of contain the same “quality, course content, Education released a comprehensive report on (student) achievement levels, and coherence online learning. The report reviewed 46 previ- of curriculum” as classroom instruction. ously published studies which compared online Each segment has in turn adopted internal courses (including hybrid courses) with tradi- policies that conform to these principles. In tional classroom-only instruction. To ensure that addition, each segment’s accreditation body the findings were broadly applicable, the studies LegisLative anaLyst’s Office 11 an LaO RepORt either randomly assigned students to face-to-face that since the students in the studies appeared or online classes, or statistically controlled for to be generally well-prepared for college-level differences between students in the groups (such coursework, such findings about online education as prior knowledge of course material). While the may not necessarily be generalized to underpre- research included a handful of studies on K-12 pared college students. students, it focused primarily on adult learners Retention a Challenge for Distance (undergraduates at two- and four-year colleges, Education. While postsecondary students who graduate students, and professionals receiving complete online courses may learn at least as occupational training). Based on a review much as those in entirely on-site ones, other of these studies, the report concluded that national research reveals a gap in student students completing online classes learn more, retention rates between distance education and on average, than those taking the same classes on-ground courses. Based on our discussions solely via in-person instruction. In addition, with CCC and CSU staff, there appear to be students in courses that blend online and tradi- several possible reasons for lower completion tional classroom instruction tend to perform rates in distance-education courses. For instance, best of all. The study is careful to note, however, some students enroll in distance-education that superior learning outcomes may not be classes because they are under the impression attributable to the online delivery method per se. that these classes are easier than on-campus Rather, the authors suggest that fully or partially classes. In fact, staff contend, it generally online classes tend to give students more time to takes more discipline and self-motivation for engage and reflect on course material (such as students to succeed in a distance-education by repeating lectures and exercises), as well as class—since they are typically not required additional opportunities to interact with faculty to appear in an instructor-led classroom at an and collaborate with peers. assigned time. Other students may find that a A recent paper by the Community College distance-education program is not a good fit Research Center reexamined the studies in the because they feel a sense of isolation absent federal report. The paper limited its evaluation face-to-face interactions with instructors and to only those studies that compared fully online, fellow students. Campus staff also suggest that semester-long classes with face-to-face instruction, distance-education students may tend to have and involved undergraduate and graduate students more personal and professional obligations (a (thereby excluding research on hybrid instruction, reason why they may have opted to take such any classes that were less than a semester in classes in the first place), which might cause length, or involved K-12 students or profes- them to drop the class at higher rates than others. sionals seeking job-related training). Based on its In addition, many campuses cannot yet deliver examination of these selected studies, the paper’s the same quality of support services to online authors argue that the evidence to date suggests and offsite students as they do for students that fully online classes are on average equal to— on-campus. For instance, while certain activities but no better than—face-to-face instruction for (such as access to library services) are widely postsecondary students. The paper also cautioned available online, our review found that other 12 LegisLative anaLyst’s Office an LaO RepORt services that promote student success (such as To address these concerns, Congress added tutoring and a support program for low-income language stating its intent that, for the time being, CCC students) are often less readily available to institutions only require students to provide a off-campus students. This, too, may contribute user name and password when logging into to lower completion rates among students taking an online class. The clarifying language also distance-education classes. included an expectation that institutions consider Colleges Lack Uniform Standards to Ensure the use of other “identification technologies” Academic Integrity of Distance-Education (such as cameras attached to students’ Courses. Quality educational programs of computers) as they become “less expensive and all types require policies or controls that more mainstream.” discourage and detect cheating and other forms Our review of CCC and CSU found a lack of of academic dishonesty. In recent years, there uniform standards with regard to student verifi- has been an increased focus on this issue as cation in distance-education courses—though it relates to distance education. For example, it should be noted that there is no uniformity how can institutions and potential employers for on-campus courses, either. Policies for know that someone taking a test online (and classes vary from campus to campus, and thus out of the instructor’s line of sight) is the even instructor to instructor. For example, in same student that is enrolled in and receiving some cases, instructors require students in credit for the class? While on-ground classes online classes to take at least one examination could have similar issues (a student in a large in person. More typically, students are able to class may pay someone to take a final exami- complete all of their coursework requirements nation, for instance, and the instructor may not outside the line of sight of college staff. require students to show identification), there Many Faculty Members Remain Skeptical of is a perception by some that academic fraud Distance Education. While distance education is and dishonesty are more prevalent in distance- more pervasive than ever, many higher education education programs. faculty remain wary of the medium. This is In part as a response to these concerns, particularly true for faculty at four-year institu- Congress passed the Higher Education tions. For example, a 2009 survey conducted Opportunity Act in 2008. Among the provisions by the Sloan Consortium found that 44 percent contained in the legislation was a requirement of chief academic officers at two-year colleges that colleges establish policies and processes agreed with the statement that “faculty at my ensuring that “the student who registers in a school accept the value and legitimacy of online distance-education course or program is the education” (with an additional 44 percent same student who participates in and completes responding “neutral”). This compares with just the program and receives the academic credit.” 11 percent at four-year institutions (with another As the bill was being drafted, many higher- 56 percent responding neutral). A 2009 survey of education officials expressed concern that the faculty opinions by the Association of Public and language would require institutions to put into Land-Grant Universities provides additional details place costly student-authentification systems. on faculty viewpoints at four-year institutions. LegisLative anaLyst’s Office 13 an LaO RepORt For example, over 80 percent of respondents While we are unaware of any comparable who have never taught an online class believe survey of UC, CSU, and CCC faculty, based on that the learning outcomes of online courses are our discussions with faculty and administrators, “inferior” or “somewhat inferior” compared with there appears to be a wide range of viewpoints those delivered in-person. In addition, almost about distance education among segments and one-half of faculty who have taught online feel across certain campuses. Concerns among some that learning outcomes are inferior or somewhat faculty (particularly at UC) are likely to persist inferior to classroom-based instruction. Yet, the until segments can better gauge how the instruc- majority of those who feel that online learning tional medium affects students’ learning experi- outcomes are somewhat inferior have nevertheless ences, as well as other issues such as academic recommended them to students as a way to fraud. complete needed coursework. fuNDiNg aND cOStS Of DiStaNcE EDucatiON How Are Distance-Education to spend on their coursework—as opposed to Courses Funded? simply in-class “seat” time. This approach converts these hours into credit units, which produces a As with on-site classes, UC, CSU, and CCC comparable number of FTE students for purposes campuses receive funding for distance-education of calculating enrollment funding. (Please see the instruction based primarily on the number of nearby box for more detail.) FTE students that they serve. The per-FTE student funding rate, which differs by segment, is not Fiscal Impact on Students affected by delivery method. Traditionally, one FTE From a student’s perspective, taking classes student represents a certain number of classroom via distance education can cost less than (contact) hours provided to a student taking a attending on-site. For example, students who full load of coursework during an academic otherwise would have to travel to campus for year. This is a convenient workload measure instruction save money on transportation and for classes in which faculty and students have parking costs. Students with a family may be able regularly scheduled meeting times (such as face- to avoid child care costs by taking classes from to-face lectures and live teleconferencing). With home. (Of course, these savings could be offset asynchronous online classes, however, there is no by additional costs—such as for a computer and set number of hours for instructors and students home internet access—to the extent students to interact. (In fact, faculty and students might would not have otherwise made these purchases never appear online at the same time.) To accom- had they taken face-to-face courses.) Community modate this unique feature of distance education, college fees are the same (currently $26 per the segments have modified their enrollment- unit) for both distance education and on-site calculation methods to take into account the classes. Fees for distance-education classes at total amount of time that students are expected CSU are generally the same as their on-campus 14 LegisLative anaLyst’s Office an LaO RepORt counterparts, with a few exceptions at select similar workload levels, campuses generally campuses charging more for distance education. use the same student-to-faculty ratios for both methods. In addition, CCC and CSU use a similar Fiscal Impact on Campuses proportion of full- and part-time faculty to teach How does the cost of providing distance both types of classes. (This is not the policy at education compare with providing instruction all systems. For example, Rio Salado Community in the traditional classroom environment? Our College in Arizona generates significant cost review suggests, in addition to the primary savings relative to other community colleges benefit of improved access, there are potential in its district by using part-time faculty almost savings to using distance education. exclusively to teach online classes.) There are numerous cost drivers of Technology-Related Costs. Video- and instruction. As discussed below, net costs for internet-based courses often impose a number distance education may be lower than site-based of one-time and ongoing costs for technology. instruction, due in large part to savings on Examples of these costs include software and physical plant-related expenditures. In addition, equipment, as well as technical support for distance education creates opportunities for faculty to design and teach online courses. In the campuses to collaborate on the design and past, such costs were often considered supple- delivery of instruction—with potentially signif- mentary to campuses’ traditional instructional icant cost savings. expenses. Increasingly, however, campuses Instructional Costs Similar. Some costs are are equipping brick-and-mortar classrooms no different for distance education and on-site with audiovisual and computer technology courses. For example, CCC and CSU campuses (so-called “smart” classrooms), and many face- that offer both delivery methods report that to-face classes include an internet component instructional costs are comparable. Given (which enables students to play back classroom h c c F -T e (FTe) s ow ampuses ompuTe ull ime quivalenT TudenTs For d e isTance ducaTion The University of California (UC) and California State University (CSU) define one FTE undergraduate student as 30 semester units of credit. Like most higher education systems in the country, one semester unit for a typical course represents one hour per week of classroom time, plus an expectation of two hours per week of outside-class time (such as reading course material and writing papers)—for a total of three hours per week of student workload for the semester. For a distance-education class without traditional classroom time, UC and CSU assign one semester unit of credit to a course that expects a total of three hours per week of effort by students (without differentiating between time spent inside and outside the classroom). The California Community College system employs a similar method of converting classroom hours into units and FTE students. LegisLative anaLyst’s Office 15 an LaO RepORt lectures, submit homework electronically, and by the government. Course materials participate in online discussions with classmates). (including the syllabus, assignments, As a result, the difference in technology costs and tests) are then made available to incurred by online and face-to-face courses has other instructors throughout the system diminished considerably. We do not believe it to to use. By consolidating the design of be a major consideration for comparisons of the courses and promoting the sharing of cost-effectiveness of these modes of instruction. materials, investment in development Facilities-Related Savings. Several higher can be leveraged many times over and education systems report that distance education instructors’ time can be freed up to focus can provide an overall net savings relative to site- on other priorities. based instruction through lower facilities-related ➢ The Washington State Community and costs. This includes operational costs such as Technical Colleges recently received utilities and building maintenance, as well as a grant from the Gates Foundation to long-term savings on capital outlay. By educating develop an open course library. Under the online those students who would have otherwise grant’s terms, system faculty are selected attended class in-person, for example, colleges via a competitive process to convert 81 can reduce the need to build new infrastructure of the system’s most commonly offered such as classrooms and parking lots. Research on-campus courses (transfer-level as well at the University of Texas found that lower as precollegiate) to material that can be infrastructure-related costs resulted in average accessed online. When completed, faculty per-unit savings of $90 a year for the delivery both inside and outside the system will of online instruction relative to campus-based have free access to this content for fully instruction—or roughly $2,500 per FTE student online, hybrid, or “technology-enhanced” in general operating, bond, and other funding classroom instruction. The grant also sources. A 2009 report to the Board of Trustees includes a condition that system faculty by CSU East Bay suggests a comparable level of assign course materials that cost no more savings from distance education. than $30 per student. To do that, faculty Savings Through Collaboration. In additional might choose course textbooks and other to generating savings by decreasing the need for materials that are available for free on physical space on campus, there are significant the internet (commonly referred to as opportunities for higher education systems to “open content”), or they might choose reduce instructional costs through collaboration inexpensive published materials. The intent and partnerships. For example: of this requirement is to improve student ➢ Community colleges and universities in retention by keeping student costs low. British Columbia operate a collaborative whereby online courses are developed ➢ Several higher education systems have by various faculties (often the top created efficiencies by forming partner- scholars in their respective fields) through ships that share instructional responsi- a request-for-proposal process funded bilities in a given field among campuses. 16 LegisLative anaLyst’s Office an LaO RepORt For instance, eight of the University of ➢ The state of Indiana recently formed a Texas campuses participate in a joint partnership with the Western Governors online master’s of business administration University (WGU). The WGU is a fully program. Under the partnership, each accredited (national as well as regional), campus’ business department provides nonprofit, online private university two of the degree program’s courses (based in Utah) that was founded by the (such as marketing and accounting). In so governors of 19 western states in the doing, the state avoids having to support 1990s. (California joined at a later date.) a comprehensive array of business faculty Under the agreement, WGU will operate at each of the system’s campuses. a branch in Indiana called “WGU Indiana.” Indiana also enacted a new law ➢ The Great Plains Interactive Distance allowing state residents to apply state Education Alliance is an interstate financial-aid grants toward attendance consortium of 14 public research at WGU (even though the university is universities that offers graduate certifi- technically located out of state). The state cates, master’s degrees, and some will not provide any base funding for the undergraduate courses in a number of university’s operational costs, as they are academic fields. The online programs fully covered by tuition revenue. (Tuition are structured to facilitate access to for a full academic year costs about postsecondary education in fields where $6,000 for most undergraduate and no single university could cost-effectively graduate degrees.) The goal of Indiana’s administer a program alone. Students are collaboration with WGU is to increase admitted to and graduate from a “home” the number of graduates—particularly for university and take courses from several nontraditional students—with minimal of the participating institutions. cost to the state. DiStaNcE EDucatiON iN califOrNia: whErE tO gO frOm hErE? Fifty years ago, California faced an duplication” by institutions. As we have impending surge in the number of students discussed in reports over the past year on the seeking a college degree. In response, state Master Plan, the state today is facing a different policymakers adopted a framework for higher challenge: how to boost enrollment and comple- education based on core principles such as tions to address a projected shortage of college- universal access, high-quality instruction, and educated residents. Yet, the same general goal cost containment. To mitigate costs, the Master and principles—the need to maximize education Plan stressed strategies such as “better utilization opportunities given limited resources—remains of physical facilities” and the need for planning the same. And while the Master Plan was written and coordination to prevent “unnecessary in the context of traditional classroom-based LegisLative anaLyst’s Office 17 an LaO RepORt education, the emergence of new tools for take full advantage of this potential, however, the delivery of instruction also can be applied campuses must collect better data on distance- in support of the state’s higher education education students. In addition, campuses must objectives. collaborate more with each other. While there Distance education is not—and is not are a few examples of such partnerships, we intended to be—suitable for everyone (students believe that there is significant room for better as well as faculty). Yet, as illustrated in the coordination and integration. To move in this above analysis, it offers an important and direction, this section puts forward several issues growing means of delivering education that can for legislative consideration. The intent of these complement existing formats and expand options recommendations is to increase the overall effec- for students. We expect in coming years that a tiveness and efficiency of instruction in the state large majority of students will receive at least a by improving distance-education accountability, portion of their postsecondary education through planning, and coordination. Figure 3 summarizes distance education. For some, it may be a hybrid our recommendations. course or program that combines face-to-face Common Definition of Distance instruction with online lessons, assignments, Education Needed and discussion sessions. Others may take a few fully online courses (including some taught by We recommend that the Legislature adopt faculty at other campuses) that fit into their work a standard definition of distance education for and personal schedule. A growing number of segmental reporting purposes. students with time and place restrictions will As discussed earlier, about 10 percent have access to fully online degree programs. of instruction in the CCC system is currently Like other aspects of higher education, the delivered via distance education. The CCC Legislature has generally allowed the segments system classifies a course as distance education if and individual campuses to develop their own over one-half of instructional content is delivered policies concerning distance education. For when faculty and students are not in the same instance, the Legislature has allowed educational physical place. By contrast, CSU does not providers to adopt their own definitions of the employ a standard definition. For example, one medium. Yet, given the growth and potential campus may use 50 percent as the threshold, of distance education, we believe that it is both while another may use a different percentage. As appropriate and desirable for the Legislature to a result, CSU is not able to determine the total provide more guidance on a statewide vision number of students (headcount and FTE student) for distance education, including expectations enrolled in online or video-based courses. concerning the segments’ use of public resources This makes it impossible for the Legislature for the program. and segment to measure workload and track Due to its nature, distance education can enrollment trends. To make cross-segmental offer advantages to students, faculty, and the comparisons possible, we recommend that state that are not readily attainable with a the Legislature adopt a standard definition of campus-based educational model. In order to distance education. We think the 50 percent 18 LegisLative anaLyst’s Office an LaO RepORt standard already used by CCC makes sense for ➢ Program completion rates for fully online this purpose. degree programs. It would be useful to have the segments Report on Distance-Education break out student enrollment and outcomes- Student Enrollment and Outcomes related data by demographics such as age, We recommend that the Legislature gender, and ethnicity. require all segments to report periodically on enrollment and performance-related data Build on State’s Existing pertaining to distance education. Foundation to Expand Distance- Every two years, the CCC Board of Education Collaboration Governors requires the Chancellor’s Office We recommend that the Legislature to submit a report on distance-education consider a number of opportunities to integrate programs in the system. These reports include distance-education efforts in ways that enhance information such as the number of students students’ access to instruction and create insti- enrolled in distance-education classes and tutional efficiencies, including (1) streamlining student completion rates. Currently, neither the educational pathways for online students, CSU nor UC system compiles a comparable (2) promoting the sharing of curriculum across report. In order to improve state oversight of distance education, we recommend Figure 3 that the Legislature Summary of LAO Recommendations require all segments to submit periodic (such 99 as biennial) reports Adopt9a9standard9definition9of9distance9education9for9the9state’s9three9 public9higher9education9segments. containing workload and 99 key performance data Require9the9segments9to9report9periodically9on9student9enrollment9and9 performance9in9distance-education9courses. such as: 99 ➢ The number of Require9the9California9Virtual9Campus9and9California9State9University9 (CSU)9to9provide9status9reports9on9implementation9of9a9planned9online9 students served transfer9pathways9project. via distance 99 Establish9competitive9grants9to9develop9a9repository9of9online9course- education at work9that9would9be9made9available9to9faculty9throughout9the9state. each campus, 99 broken out by Require9the9review9of9new9programs9to9consider9the9possibility9of9the9 shared9distance9education9programs9instead. delivery method. 99 Require9the9Chancellor’s9Offices9of9CSU9and9the9community9colleges9to9 ➢ Course study9the9feasibility9of9establishing9an9online9degree-completion9program9 for9state9residents9who9started9college9but9never9obtained9a9degree. completion rates 99 of those students. Create9a9task9force9to9pursue9development9of9a9Western9Governors99 University9“virtual9campus”9in9California. LegisLative anaLyst’s Office 19 an LaO RepORt campuses and (3) encouraging collaborative CSU) and (2) participating pilot campuses where academic programs. transferable courses are offered (and whether Streamline Pathways for Online Students. there is an available seat). In the second phase As discussed earlier, the state funds an online of project implementation, students would catalog of distance-education courses offered be able to register for these courses from one by the three public higher education segments website (using the same identification number (as well as some private colleges). While CVC and password) and “check off” their academic can be helpful, its utility is limited. For example, progress against degree requirements as they a community college student who identifies a successfully complete their courses. The intent course of interest at another college in the system is to eventually expand beyond the handful of has to go to that college’s website, complete participants in the pilot project and include other an application form, receive a new student CCC and CSU campuses throughout the state. identification number and password, and register The CVC estimates an approximately for the class. Students also are responsible for 18-month time frame for the first phase of the transferring credits earned from the course back project, followed by a two-year implementation to the home campus (typically by petitioning period for the second phase. As this project is an academic counselor). Community college still in the planning stages, we recommend that students interested in transferring to an online the Legislature require CVC and CSU to provide program at CSU face even more difficulties, as periodic reports on their progress. they must navigate among CSU’s degree require- Facilitate Sharing of Online Curriculum ments, the state’s intersegmental repository Across Campuses. Traditionally, faculty that of transfer agreements, CVC’s online catalog, develop curriculum for face-to-face courses and potentially numerous campus registration do not share it with faculty at other campuses. websites. Generally, we found that this practice has carried A more convenient system would allow over to courses developed for distance education students to plan their education using a single at the segments—despite the relative ease with website, enroll directly in classes they need, which online coursework can be made available and immediately determine whether the course to colleagues. Notably, while CSU heads is accepted for credit at the home campus. A MERLOT (and the CCC system is a partner), new joint project involving CSU East Bay, CVC, faculty from these two segments generally and several community colleges in the San borrow from—rather than contribute to—the Francisco Bay Area could improve this process collection of online presentations, assignments, for students who are attending college online. tests, and other learning material. This lack of Initially, this project—the California Online sharing across campuses and segments has Program Planner—will allow transfer-seeking several disadvantages, including duplicative CCC students to select an online program at spending of state resources (courses can cost CSU East Bay and identify (1) what courses they tens of thousands of dollars each to develop) will need to earn the degree (lower-division and forgone opportunities to share thoughtful courses at CCC and upper-division courses at coursework with other educators. 20 LegisLative anaLyst’s Office an LaO RepORt A more cost-effective approach would be classroom-size efficiency, while connecting for faculty to make their content available to students to a potentially larger network of faculty colleagues for reuse. To facilitate sharing, we expertise. recommend that the Legislature earmark a small We think that there are actions the state portion of each segment’s existing funding for can take to foster such collaborative programs. the development of distance-education courses. For example, as discussed in our December The funds would be awarded to faculty on a 2009 report, The Master Plan at 50: Improving competitive basis to either design new or modify State Oversight of Academic Expansions, state existing coursework. To assure quality, the law provides the California Postsecondary course would be reviewed by other faculty in Education Commission (CPEC) the authority to the field. As a condition of receiving the grant review segments’ proposals for new programs monies, faculty would agree to make the learning and make recommendations regarding those materials available on MERLOT. (The intellectual proposals to the Legislature and Governor. property rights would remain with the original The CPEC uses several program review criteria developer.) These materials would be available (such as student demand and societal needs) to to all of the state’s educational segments— evaluate the merits of the proposals. In our 2009 including K-12 faculty, who may wish to adapt report, we suggested that CPEC also consider the coursework for their advanced-placement or the extent to which there are alternatives precollegiate courses—for use in online, hybrid, that could achieve the proposal’s goals more or technology-enhanced classroom instruction. efficiently or at a lower cost. We believe that Foster Collaborative Academic Programs. this consideration should include an evaluation Just as students are able to participate in by CPEC regarding the potential to use shared coursework regardless of their location, distance- programs whenever campuses propose new education technology makes it feasible for faculty degree programs. Adopting this criterion would members from various campuses to co-develop compel the segments to consider alternatives that and administer collaborative programs. use distance education to collaborate with other Educational systems such as the University of campuses. Texas have combined faculty and students across Consider Online Degree multiple colleges (both within and outside the Completion Program Targeted segment) to form “virtual departments.” In so at Re-Entry Students doing, states can offer more cost-effective and comprehensive instructional programs than We recommend the Legislature direct CCC they might otherwise be able to absent the and CSU to study the feasibility of developing partnership. This can be particularly true for an online degree completion program aimed more-specialized degree programs with relatively at state residents who started college but never low enrollments at individual campuses. obtained a degree. By aggregating geographically separated According to the Lumina Foundation, there students, for example, campuses can ensure are approximately 42 million people in the country who enrolled in a four-year college LegisLative anaLyst’s Office 21 an LaO RepORt at one time, obtained some credits, but never development of a model along the lines of graduated. California’s share of this total is Indiana’s recently announced partnership with roughly 5 million. (It is likely that there are a few WGU. million more persons who attempted but never Indiana’s New Partnership With WGU. As completed a CCC associate’s degree.) While it is discussed earlier, Indiana recently established likely that many former students would benefit a partnership with WGU that is designed to from completion of their studies, other obliga- raise residents’ awareness of and access to the tions (personal and professional) often make it nonprofit online university. Under the agreement, difficult for them to go back to school in a tradi- Utah-based WGU governs the new branch tional campus-based program. A more viable through its existing board of trustees, with alternative to attending college in-person may be guidance from an advisory board of Indiana to take classes online. officials and other prominent leaders from the Texas Program Model. Acknowledging this state. Financially needy WGU Indiana students need and opportunity in Texas, the University of can use state grants to offset tuition costs. Texas system is scheduled to launch a “Bachelor’s Indiana does not contribute any additional state Accelerated Completion” (BAC) program funds in support of the university. Like other beginning in the fall 2011. The program is designed WGU students, incoming WGU Indiana students for re-entry students who have already completed with previous college experience can transfer approximately 60 units of college credit (equiv- approved credits toward a degree. (The WGU alent to the first two years of a four year degree). currently offers bachelor’s and master’s degrees Potential students apply to a BAC degree program in teacher education, business, information at one of three campuses. Campus advisors technology, and health care.) Additional credits identify the courses that students must take to are awarded based not on “seat time,” but rather complete their bachelor’s degree. Courses in the on students’ ability to demonstrate mastery of program will be fully online, taught in compressed core competencies (as developed by WGU seven- to eight-week terms, and use faculty from faculty in consultation with business and industry multiple campuses. representatives). This approach allows advanced Study Feasibility of Similar Program in students to complete their program in an accel- California. We believe that there is potential for such erated manner. a targeted degree-completion program in California. Recommend State Task Force. Currently, We recommend that the Legislature direct CSU and about 1,900 Californians attend WGU out of a CCC to study the feasibility of designing a similar total nationwide enrollment of about 20,000. program at their respective segments, and report to Officials at WGU note that while the virtual the Legislature on their findings. university has room to accommodate more students, there is a general lack of awareness Create Task Force on among the public about the institution. In “WGU California” addition, we note that there is a disincentive for We recommend the formation of a joint financially needy residents to enroll at WGU legislative-executive task force to pursue because state law limits students’ use of state 22 LegisLative anaLyst’s Office an LaO RepORt financial aid (the Cal Grant) to in-state colleges. we recommend the creation of a task force We believe that, as a member of WGU, composed of legislative representatives and the state would benefit by more fully lever- members of the administration. The task force aging WGU to educate residents (particularly would be charged with identifying the steps that working adults) in need of affordable and need to be taken to establish a WGU California. flexible postsecondary options. Based on our After concluding its analysis, we recommend review, the WGU Indiana model seems suitable the task force report its findings and recom- for California. Recognizing the need to lay the mendations to the relevant policy and budget appropriate groundwork for such an endeavor, committees of the Legislature. cONcluSiON In this report, we have discussed nationwide there are several opportunities for the Legislature research and trends pertaining to distance to provide direction and guidance so that higher education, and provided an overview of the education can make use of distance education in delivery method in California’s three public a more coordinated and strategic way. Doing so postsecondary systems. Generally, we find that could further enhance students’ access to high- distance education can serve an important quality postsecondary studies, as well as create supplementary role alongside traditional statewide efficiencies. classroom instruction. In addition, we find that LegisLative anaLyst’s Office 23 an LaO RepORt LAO Publications This report was prepared by Paul Steenhausen, and reviewed by Steve Boilard. The Legislative Analyst’s Office (LAO) is a nonpartisan office which provides fiscal and policy information and advice to the Legislature. To request publications call (916) 445-4656. This report and others, as well as an E-mail subscription service, are available on the LAO’s website at www.lao.ca.gov. The LAO is located at 925 L Street, Suite 1000, Sacramento, CA 95814. Cover black and white photo, San Jose State College Quad, 1963. Used with permission. SJSU University Archives Collection, Courtesy of Special Collections & Archives, San Jose State University. 24 LegisLative anaLyst’s Office