Student Supports: Developmental Education and Other Academic Programs Student Supports: Developmental Education and Other Academic Programs Eric P. Bettinger, Angela Boatman, and Bridget Terry Long Summary Low rates of college completion are a major problem in the United States. Less than 60 percent of students at four-year colleges graduate within six years, and at some colleges, the graduation rate is less than 10 percent. Additionally, many students enter higher education ill-prepared to comprehend college-level course material. Some estimates suggest that only one-third of high school graduates finish ready for college work; the proportion is even lower among older students. Colleges have responded to the poor preparation of incoming students by placing approximately 35 to 40 percent of entering freshmen into remedial or developmental courses, along with providing academic supports such as summer bridge programs, learning communi- ties, academic counseling, and tutoring, as well as student supports such as financial aid and child care. Eric Bettinger, Angela Boatman, and Bridget Terry Long describe the role, costs, and impact of these college remediation and academic support programs. According to a growing body of research, the effects of remedial courses are considerably nuanced. The courses appear to help or hinder students differently by state, institution, back- ground, and academic preparedness. The mixed findings from earlier research have raised ques- tions ranging from whether remedial programs, on average, improve student academic outcomes to which types of programs are most effective. Administrators, practitioners, and policy makers are responding by redesigning developmental courses and searching for ways to implement effective remediation programs more broadly. In addition, recent research suggests that colleges may be placing too many students into remedial courses unnecessarily, suggesting the need for further examining the placement processes used to assign students to remedial courses. The authors expand the scope of remediation research by discussing other promising areas of academic support commonly offered by colleges, including advising, tutoring, and mentoring programs, as well as supports that target the competing responsibilities of students, namely car- ing for dependents and balancing employment with schoolwork. They conclude that the limited resources of institutions and equally limited funds of students make it imperative for postsec- ondary institutions to improve student academic supports and other services. www.futureofchildren.org Eric P. Bettinger is an associate professor of economics and education at Stanford University; Angela Boatman is a postdoctoral scholar at Stanford University; and Bridget Terry Long is the Xander Professor of Education and Economics at Harvard University. VOL. 23 / NO. 1 / SPRING 2013 93 Eric P. Bettinger, Angela Boatman, and Bridget Terry Long Students often arrive at college fac- To help them succeed, many postsecondary ing multiple challenges, including institutions offer a range of academic and inadequate academic preparation, cocurricular supports. competing obligations to work and family, and limited experience Remedial courses, which fall under the navigating the complexities of collegiate sys- broad term of remediation, are the support tems and requirements. Although all these most widely used by colleges to address the challenges pose problems for college comple- academic needs of underprepared students.6 tion, the primary obstacle is poor prepara- These courses (commonly referred to as tion for college-level coursework. Data from developmental courses by practitioners) the National Center for Education Statistics target underprepared students with the indicate that in 2004 only 26.8 percent of purpose of improving their abilities to handle high school seniors had completed “high- college-level material and succeed in college. level” academic coursework, defined as four Research suggests that more than one-third years of English, three years of mathemat- of all first-year students in college today ics (including at least one year of a course are taking some form of remedial course- higher than algebra II), three years of sci- work in either English or mathematics; the ence, three years of social studies, and two share can climb to six out of ten students at years of a single non-English language.1 A some postsecondary institutions.7 The bulk separate study found that only 32 percent of of remediation is provided by nonselective students leave high school at least minimally public institutions, the point of entry for 80 prepared for college academically.2 A lack of percent of four-year students and virtually all alignment between the K–12 and postsec- two-year students.8 ondary education systems compounds the problem, frequently resulting in confusing messages to students and their parents about what students should do to enter and suc- The bulk of remediation is ceed in college.3 provided by nonselective Although all students face challenges in public institutions, the point higher education, underprepared students of entry for 80 percent of confront more urgent problems, both aca- demically and more broadly. While adjusting four-year students and to a new environment, they must simul- virtually all two-year taneously acquire college-level academic skills. Difficulties in the classroom can be students. discouraging and can complicate the aca- demic, social, and financial adjustments to college.4 Ultimately, academic struggles may lead to lower self-esteem, greater frustration, To better meet the needs of underprepared and higher drop-out rates.5 Asked to make students, some colleges have implemented complex choices about their field of study and interventions such as summer bridge pro- future plans, students may find it increasingly grams, learning communities, academic difficult to respond to the demands of college. counseling, and tutoring. Others have tried to 94 THE FUTURE OF CHILDREN Student Supports: Developmental Education and Other Academic Programs address nonacademic student needs that may language.10 Nonnative English speakers in affect academic performance, such as devel- need of remediation most commonly enroll in oping programs to help older, nontraditional developmental English or English as a Second students with nonacademic barriers such as Language (ESL) courses.11 Remedial and child care and transportation. developmental courses allow colleges to offer access to students whose life circumstances or In this article we examine remedial educa- earlier academic experiences might otherwise tion and other kinds of student supports. have been a barrier to college entry. We first consider remediation, including the students who need it, how it is organized, Students in remediation may have earned how much it costs, and what researchers have a high school diploma, but may still not be learned about its effects on student out- academically prepared for success in college. comes. We then discuss additional academic The need for remediation in college is closely supports, including advising, tutoring, and tied to a student’s high school curriculum.12 mentoring programs. Next, we focus on A 2002 study by the Ohio Board of Regents supports that target the competing respon- found that students who had completed an sibilities of students, namely caring for academic core curriculum in high school were dependents and balancing employment with half as likely to need remediation in college academic obligations. Overall, we consider as students who had not.13 Completing a high whether and how these supports help stu- school core curriculum, however, does not dents to be successful and how colleges and necessarily ensure that a student will avoid universities might improve their efforts to remediation in college. Many students who support students. complete upper-level math courses in high school still require math remediation courses Helping the Underprepared or need to repeat subjects in college.14 That Student: College Remediation students who are “academically prepared” still Most students in remediation are recent high need to be in remediation suggests that the school graduates who have exited secondary problem is larger than just poor high school school without grade-level competency or the course selection or the lack of a college- proper preparation for college-level material, preparatory curriculum at some schools.15 but more than 25 percent are over the age of thirty.9 Recent structural shifts in the labor The Organization and Delivery market have displaced many adult workers, of Remedial Education who subsequently enroll in college to acquire Postsecondary institutions across the nation the skills necessary for re-employment; many offer remedial courses structured in a variety need to refresh their math, reading, and writ- of ways. Traditional remedial courses gen- ing skills. Another group of students in reme- erally take a fifteen-week, semester-long diation includes those who were not born in format. Courses are typically, but not univer- the United States or who grew up speaking sally, offered for credit and count toward a languages other than English, or both. Of the student’s overall grade point average but not 2.6 million students attending community toward graduation requirements. The vast colleges in California, for example, an esti- majority of colleges offer multiple levels of mated 25 percent speak English as a second remedial and developmental courses within VOL. 23 / NO. 1 / SPRING 2013 95 Eric P. Bettinger, Angela Boatman, and Bridget Terry Long a subject area (for example, English language Sung-Woo Cho, factors that extend the time arts or mathematics) to meet the needs of it takes students to complete degrees are students from a wide range of academic also associated with a lower probability of backgrounds. For example, many institutions degree completion.19 offer up to three developmental mathemat- ics courses below college-level mathemat- Students are usually assigned to remedial ics: Developmental Algebra II for students courses based on an exam or assessment just below college-level mathematics and taken when they arrive on campus. About in need of algebraic computational skills, 92 percent of institutions use some kind Developmental Algebra I for those needing of standardized placement exam to assign to learn functions, quadratic equations, and students to remedial or developmental inequalities, and Remedial Arithmetic for courses.20 The most widely used place- those in need of computational arithmetic ment exams are the Computerized Adaptive skills.16 The course sequence in remedial Placement Assessment and Support Systems English courses is generally similar. (COMPASS) and the Assessment of Skills for Successful Entry and Transfer (ASSET), Because students most commonly have to each published by ACT, Inc., as well as the succeed in their assigned developmental ACCUPLACER published by the College course before moving on to the next course Board. Some schools also use state standard- in the sequence, remedial courses are often ized test scores and high school transcripts to the gateway to college-level courses. More help make assignments. Typically, administra- than four-fifths of campuses nationally tors base course assignments on “hard” cut- restrict enrollment in some college-level offs—students scoring below a single given classes until remediation is complete, and threshold are assigned to a remedial course. most require students placed into remedia- Students are placed into mathematics reme- tion to enroll in the course recommended diation more often than into English lan- by the institution.17 Students in need of guage arts (that is, reading or writing or both) multiple remedial courses in the same remediation,21 but English remediation may subject could thus take courses for more be even more critical to a student’s academic than a year before fulfilling their remedial success because reading and writing skills are requirements. Not surprisingly, students fundamental to most other subjects. assigned first to the higher developmental mathematics courses complete their devel- The Costs of Remediation opmental course sequence and move on to a college-level mathematics course at higher A study by the Alliance for Excellent rates (45 percent) than those assigned to the Education concluded that the total cost of lowest-level courses (17 percent). Rates are delivering remediation nationwide during even lower for men, older students, African the 2007–08 school year was $3.6 billion American students, part-time students, and in the form of direct costs both to students students in vocational programs.18 Because (for example, tuition) and to institutions (for remedial courses rarely count toward a stu- example, instructional costs). The study also dent’s graduation requirements, remediation estimated additional costs beyond these may decrease rates of degree completion. As direct costs in the form of lost earning poten- shown in a 2012 study by Davis Jenkins and tial for those remedial students who may be 96 THE FUTURE OF CHILDREN Student Supports: Developmental Education and Other Academic Programs more likely to drop out of college without instructional spending on the students most completing a degree.22 In 2008, a report by in need of high-quality instruction.27 Although the Strong American Schools project used the costs of remediation are generally high, higher education expenditure data col- the social costs of not offering remediation lected by the U.S. Department of Education may be higher still. Unskilled individuals are to estimate that the total taxpayer cost of more likely not only to collect unemployment remediation per student ranged from $1,607 and welfare benefits but also to commit crime to $2,008 in two-year colleges and between and be incarcerated. Moreover, the changing $2,020 and $2,531 in four-year colleges.23 demands of the twenty-first-century economy require efficient retraining. A 2005 study con- Although remedial and developmental ducted for the Texas Public Policy Foundation courses often do not count toward graduation estimated that when students leave high requirements, students must nevertheless pay school without acquiring basic reading, tuition for these courses and bear the oppor- writing, and math skills, the state loses more tunity cost of forgone earnings. In 2003–04, than $13.6 billion annually in terms of lower Florida community college students who earnings potential, poor worker productiv- required remediation took an average of nine ity, and increased spending on social pro- credit hours of remedial coursework and paid grams.28 Proponents argue that remediation an additional $504 for college prep course- programs help postsecondary institutions work during their first year of college.24 Given fulfill their obligation to assist students who that many remedial students also receive may have attended poor-quality K-12 schools. federal financial aid, taxpayers shoulder a Remediation efforts can provide such stu- portion of the cost of remediation as well. dents a second chance to learn the basic skills necessary for future labor market success. Although remediation is expensive for col- leges to provide, it may be less costly than The Effects of Remediation on other college courses, as remedial courses Student Outcomes often have comparatively larger class sizes A growing body of research is emerging on and a higher prevalence of lower-paid adjunct both the scope and effectiveness of college instructors.25 The Ohio Board of Regents remediation. Many earlier descriptive studies found that although 38 percent of students merely compare samples of remedial students in the state’s public two-year colleges were to their peers, without noting that students enrolled in developmental courses, such courses accounted for only 3.6 percent of in need of remediation may differ from their the total budget for instructional spending.26 more academically prepared peers in both Because institutions are able to lower the cost their observed and unobserved background of offering remedial courses through a variety characteristics. Comparing the outcomes of of administrative and instructional deci- these two very different types of students sions, while students are unable to lower the without taking into account these unob- amount they pay in tuition, the cost of reme- served differences, such as student ability diation can be unevenly distributed. In cases and motivation, can lead to biased estimates like this, remedial and developmental courses of the impact of remediation on subsequent have the ability to generate revenue, which academic outcomes.29 Short of randomly gives perverse incentives to schools to reduce assigning students on the margins of needing VOL. 23 / NO. 1 / SPRING 2013 97 Eric P. Bettinger, Angela Boatman, and Bridget Terry Long remediation to either remedial or college- receive an associate’s degree or certificate.34 level courses, it can be difficult to ascertain The mixed results from these studies suggest whether differences in student outcomes are that the causal effect of remedial courses on caused by students’ enrollment in remedial student outcomes for students at the mar- classes, or are instead explained by their gin of passing out of remediation is not yet lower levels of academic preparation—the fully understood. Because many educational very thing that required them to be remedi- interventions have had varying effects on ated in the first place. students of different genders, races, and other demographic characteristics, however, it is Given the importance of remediation and the plausible that remedial courses may also have limitations posed by bias in past research, varying effects on different types of students. several recent studies have tried to estab- lish the causal effects of remediation using Do the Effects of Remediation Differ quasi-experimental research designs. Much by Student Characteristics and Ability? of the existing research, however, focuses Additional work by Long and Calcagno focus- on students at the margin of passing out of ing on Florida found that the effects of reme- remediation and compares students who diation differed by student background and score just above and below the cutoff on the demographics.35 Women, for example, expe- remediation placement exam.30 Remediation rienced more positive effects from placement was found to increase the probability of col- into remediation than did men. This finding lege persistence at a large state university could relate to other differences documented in the Northeast and in four-year colleges by gender—such as learning styles, levels of in Ohio.31 In a study of more than 100,000 engagement, or amount of study time—and community college students in Florida, Juan may give clues about why remediation works Carlos Calcagno and Bridget Terry Long for some students but not others. found that assignment to developmental courses increased both persistence to the Older students placed into remediation also second year and the total number of credits had more positive outcomes than did younger completed, although not degree completion.32 peers. One explanation could be that older A study of Texas students concluded that students are more focused or ready to take placement into remedial courses had little advantage of “refresher” courses or the oppor- effect on the number of credits attempted, tunity to “catch up.” It could also be that receipt of a college degree, or future labor- market earnings among students scoring older students have a greater need for devel- around the test-score cutoff.33 Using data opmental courses because they have been from the National Education Longitudinal out of high school longer. If so, then older Study of 1988, Paul Attewell and colleagues students who score just high enough not to used a propensity score matching technique be placed in remediation might benefit from to create observationally similar groups of taking the courses regardless of placement students, half of whom had taken remedial status. courses and half of whom had not, and con- cluded it was less probable that students in Remediation’s effectiveness also appears to remedial courses would receive a bachelor’s vary by income. Low-income students (that degree but no less probable that they would is, students receiving Pell Grants) had more 98 THE FUTURE OF CHILDREN Student Supports: Developmental Education and Other Academic Programs negative outcomes in remediation than Dadger on students in Virginia’s twenty-three higher-income peers in terms of persistence, community colleges, however, found that associate’s degree completion, transfer rates, being assigned to three rather than two levels and credits earned. Because income is often of remediation reduced the likelihood of highly correlated with high school quality earning a community college credential by and the availability of “high-level” academic 9 to 15 percentage points.38 Dadger concluded coursework,36 the underlying cause of these that students assigned to the lowest level of differences may be academic preparation. remedial math would have benefited if they Because Pell Grants do not usually cover had been able to skip that remedial course. the full costs of education, it may also be Recent research from Judith Scott-Clayton that affordability interacts with performance found that remedial assignment may be a in remediation and afterwards. Further significant discouragement to students whose investigation of the interaction of financial test scores underrepresent their ability.39 need and remedial experiences may clarify these relationships. The effects of remediation, then, are con- siderably nuanced: remedial courses appear More recently, research has explored whether to help or hinder students differently by the mixed results of earlier studies may be state, institution, background, and academic explained by differences in students’ aca- preparedness. The mixed findings in earlier demic preparation. Using data from the research present an interesting puzzle about public colleges in Tennessee, Angela Boatman why remedial and developmental courses and Bridget Terry Long examined how have such different effects. Only by first remedial and developmental courses affect identifying the subgroups of students whom the academic outcomes of students with remedial programs appear to be helping or varying levels of academic preparation.37 The hindering and the delivery methods associ- state’s system of assigning students to one of ated with the largest effects can administra- four levels of math and one of three levels of tors, practitioners, and policy makers design reading or writing enabled them to explore and implement effective remediation pro- the effects of more and less remediation, from grams more broadly. Further experimentation students who need only one developmental with different types of instructional models course to those who need multiple courses. would be useful in helping to identify best The study found that the effects of the practices. Randomly assigning students to courses differ by the level of student prepara- the same remedial courses taught in different tion, with students on the margin of needing ways could help to identify more specifically remediation having large negative effects and those practices most effective in improving students most needing remediation having smaller negative effects and sometimes even student outcomes. positive effects. Students in the lowest levels of remedial writing, for example, persisted Reforming the Delivery of Remediation through college and completed degrees at The mixed results of research have illumi- higher rates than their peers in the next level nated critical questions regarding not only up, thus indicating that remediation could be whether remedial programs, on average, beneficial for students with weaker prepara- improve student academic outcomes, but also tion. Similar research conducted by Mina which types of programs are most effective.40 VOL. 23 / NO. 1 / SPRING 2013 99 Eric P. Bettinger, Angela Boatman, and Bridget Terry Long Educators are beginning to address those learning labs, online-learning models, and questions as institutions start to experiment high-tech classrooms.45 The aim is to shorten with redesigning their developmental courses. the time students spend in developmental In their work describing recent innovations in courses, enabling them to move more quickly developmental education, Elizabeth Zachry into their college-level courses, while also and Emily Schneider distill the multitude of ideally creating efficiencies in the delivery these redesign efforts into four broad types: of developmental education. Although few reforms that shorten the time students spend researchers have rigorously evaluated the in remedial courses, programs that com- effectiveness of technology in remedial educa- bine basic skill attainment with college-level tion, the article by Bradford Bell and Jessica coursework, supplemental programs such as Federman in this issue provides a review of tutoring or advising, and interventions tar- the research to date.46 geted to students before they enter college.41 Both individual institutions and state systems Research findings on such redesigned courses have shown increasing interest in redesigning are enlightening. A recent quasi-experimental their developmental education curriculum to study of an accelerated developmental English address student needs. In the fall of 2007, the course at Chabot College found that students Tennessee Board of Regents received a three- whose developmental English course was year grant through the U.S. Department of combined with their college-level English Education to implement the Developmental courses into one singular course were sig- Studies Redesign Project.47 The goals were to nificantly more likely than students who took enable postsecondary institutions to improve a developmental course alone to transfer to the effectiveness of their remedial math, a four-year college, earn more college-level reading, and writing courses and to serve credits, and earn a certificate or degree, more students better and at less cost.48 Six although these findings were mixed for ESL colleges were selected to receive funding, students.42 Similarly, a descriptive study of but only four were able to fully implement the FastStart program at the Community changes in the first semester of the project. College of Denver, which combined four Although the separate course-redesign efforts developmental math courses into two, found differed in details, all involved a shift to using that the program helped students to success- learning technology, both in and out of the fully complete their developmental sequence classroom, to enable students to focus on the at higher rates.43 In Washington state, the specific skills in which they were deficient.49 Integrated Basic Education Skills Training For example, one of the three institutions (I-Best) program combines instruction in that reformed their developmental math basic skills with college-level material. Results curriculum, Austin Peay State University, from a multivariate analysis of this alterna- eliminated its developmental math courses tive model suggest higher rates of credit and created enhanced sections of the two accumulation for participants over time, as core college-level courses, Fundamentals well as persistence to the second year, with of Mathematics and Elements of Statistics, the largest gains found for adult basic educa- for students whose ACT exam scores placed tion students and English language learners.44 them in developmental math. The college- Remediation redesign efforts are also using level courses were linked to Structured technological strategies such as self-directed Learning Assistance workshops, which 100 THE FUTURE OF CHILDREN Student Supports: Developmental Education and Other Academic Programs provided students additional tutoring and County (CCBC) also “mainstreams” students assistance for any course material with which placed into upper-level developmental writing they were struggling. courses directly into college-level English courses and offers a companion ALP course taught by the same instructor. A recent quasi- Future research on the effects experimental study of the four-year effects of the program concluded that ALP students of these redesigned courses were 29 percentage points more likely to com- will show the extent to which plete college-level English within one year, and 6 percentage points more likely to persist the particular instruction to the next year, than students who enrolled in and delivery methods of traditional developmental English.51 The study design, however, cannot rule out the possibil- remedial courses affect ity of self-selection bias—that is, that students subsequent student academic who would elect to take the ALP companion course may, for example, be more motivated outcomes, thus informing than those who did not and would therefore administrators and policy skew the findings. But the large positive effects at CCBC—together with the findings makers how best to help from Austin Peay—suggest that mainstream- underprepared students. ing approaches merit further investigation. Other states are also experimenting with course redesign. Since the spring of 2012, In her evaluation, Boatman used a regression Virginia community colleges have taught discontinuity research design to conclude developmental math as a series of nine one- that students taking redesigned courses at the credit modules, with students taking only the three institutions that redesigned their reme- modules that are required for their field of dial math courses had more positive outcomes study and in which the diagnostic placement than similar students both from institutions test indicates a need for improvement.52 The that did not participate in the redesign and goal is to reduce the time required to com- from previous cohorts at the same institu- plete remediation. Future research on the tions.50 Austin Peay saw the largest positive effects of these redesigned courses will show effects on persistence, suggesting that the cut- the extent to which the particular instruction off used to assign students to developmental and delivery methods of remedial courses math may be too high and that some students affect subsequent student academic outcomes, who are now placed into developmental math thus informing administrators and policy mak- courses would have better outcomes if they ers how best to help underprepared students. were placed directly into college-level math courses that offer additional support. Accelerating Remediation with Summer Bridge Programs The Accelerated Learning Program (ALP) One broad aim of several of the large-scale at the Community College of Baltimore redesign efforts is to move students through VOL. 23 / NO. 1 / SPRING 2013 101 Eric P. Bettinger, Angela Boatman, and Bridget Terry Long their remedial courses more quickly. Summer and college-level courses—a remedial bridge programs offer students a similar writing course, for example, linked with opportunity by enabling them to take sum- an entry-level psychology course. In 2002, mer courses at their college for several weeks the National Survey of First-Year Academic before they begin their freshman year. The Practices found that 62 percent of responding bridge programs are generally voluntary and colleges used the learning community model, differ by type and length. Most, however, although at most only a small portion of the share a common target population: first- student body participated in those communi- generation, low-income, and minority stu- ties.57 Although a recent report suggests that dents in need of remedial coursework. The the learning community model is difficult goal is to help students make the academic to scale up,58 it is nevertheless a popular and social transition to college.53 approach to remediation. Proponents of the learning communities To date, research on summer bridge pro- model offer several reasons why it may grams is limited, as few studies have adequate be more effective than traditional models control groups for comparison purposes. for teaching students with low basic skills. Descriptive studies examining persistence Linking a course like remedial English with and grade point average indicate that students a course of special interest to a student may in summer support programs tend to perform make the material more engaging and moti- better in their courses than students who do vate the student to work harder. Learning not receive such support.54 In 2009, research- communities also offer students the opportu- ers at the National Center for Postsecondary nity to form deeper ties with their peers and Research reported results from a random- with faculty, thereby strengthening their sup- ized experiment focusing on summer bridge port networks and institutional attachment.59 programs in eight institutions in Texas. They found that the program did not affect stu- Recently, as part of its Opening Doors dents’ persistence from the first to the second Demonstration, the social policy research semester, but also found some evidence that organization MDRC conducted a random- summer bridge students were more likely to assignment evaluation of a learning commu- pass college-level courses in math and writing nities program at Kingsborough Community in their first semester.55 This initial modest College in Brooklyn. Analysts found that boost in achievement, however, did not last. students in the learning community moved After two years, the treatment group students more quickly through their developmental and the control group showed no statistically English requirements, enrolled in and passed significant difference in the number of semes- more courses, and earned more credits in ters in which they had enrolled.56 their first semester overall than their peers who were not selected to participate in a Remediation in the Context of Learning learning community. The researchers also Communities saw a positive effect of participating in a Learning communities offer another model learning community on graduation after six for helping students through their remedial years. It is worth noting that the Opening courses. Learning communities organize stu- Doors program at Kingsborough also served dents into cohorts that take paired remedial students who did not need developmental 102 THE FUTURE OF CHILDREN