EXECUTIVE ISSUE PAPER

REMEDIAL EDUCATION:
A SOCIAL AND ECONOMIC IMPERATIVE

Submitted to:
American Association of Community Colleges
October, 1997

EXECUTIVE SUMMARY 

The 1997 Executive Issue Paper suggests that a gross mismatch exists between the competencies of individuals attempting to enter the job market and the needs of today’s employers. This gap between the skills needed and those possessed by the workforce continues to expand, threatening the growth and prosperity of American business and industry and the economy. Post-secondary remediation of skill deficiencies that inhibit academic performance and success in the workplace will become the determining influence for full participation in economic success. In the spirit of their mission for providing educational access and opportunity, community colleges are in the best position to bridge the gap with remedial programs that are part of the solution, not part of the problem. 

The Changing Context 

Demographic and economic forecasts for the United States underscore a dramatic shift between skilled and unskilled jobs, with almost half of the available jobs requiring skilled workers. By the year 2000, most (85%) of the jobs available will require skilled workers and professionals, while only a few (15%) jobs will be open to unskilled workers. Equally significant are changes in the demography of the nation. As job requirements have increased, the ethnicity of the nation has diversified, with minorities seeking entry to the workforce in record numbers, while at the same time struggling for an education. An underprepared or unmotivated workforce has no hope of meeting the challenges of the future and deriving some benefit from the rising tide of economic growth and prosperity. Without a restructured educational process to create this workforce, all of our efforts to combat social ills are doomed to be losing and costly battles. 

The Challenges of Underprepared Students 

Each year, as post-secondary enrollments grow, the numbers of underprepared students grows proportionately. Some never had the opportunity to acquire adequate skills, while others were simply discouraged from developing their abilities. Many come from deprived circumstances and often attended inadequate schools. Others received diplomas and entered the workforce only to find they needed to refresh their skills when they re-entered college years later. As a result, most require limited remediation. Conversely, there are those who require extensive instruction to complete their degree program over a prolonged time period. 

Remediation and the Community Colleges 

If these students are to participate fully in society, compete in today’s economy, and succeed in tomorrow’s workforce, we must provide opportunities for post-secondary remedial education. Community colleges have the right programs in the right locations, they are dedicated to access and opportunity, and they have worked successfully with underprepared students for decades. And they are cost effective, a factor which underscores the fact that community college are the primary providers of remedial services to local business and industry. Evidence further suggests that the community college, as a primary system of delivery, is making a substantial contribution to the success of individuals and society as a whole by sustaining the values that have contributed to the economic and social strength of the nation. Support for these programs is indeed wise public policy. 

REMEDIAL EDUCATION:
A SOCIAL AND ECONOMIC IMPERATIVE

Few subjects in higher education engender more public debate than the remediation of skill deficiencies that inhibit academic performance and success in the workplace. A strong current of opposition has regularly challenged the collegiate role in developing basic skills and would dramatically limit remedial instruction at the postsecondary level. Familiar admonishments heard all too frequently suggest that higher education should not be expected to deliver what others failed to provide; that too much is being spent on remediation; that those with skill deficiencies should have one chance, maybe two, and then they’re out; or, that those with skill deficiencies must expect to pay the full cost of remediation no matter how great. More recently, we have heard yet another demurrer: if you need remediation, don’t expect to use financial aid to pay for it! 

Nowhere is that public policy debate more evident than at the Federal level. Some members of Congress would seek to target Title IV funds to those students most able to benefit. Proponents of the current policy argue that promoting access to higher education, especially for economically and socially disadvantaged students need to continue to receive priority consideration and the investment of public dollars to support this commitment is not only essential, but appropriate. 

One of the great strengths of our country has been the commitment to fully develop the talents of every American. With increasing workforce demands and growing diversity, post-secondary remedial education is a social and economic imperative for the nation. In the spirit of their mission for educational access and opportunity, the community colleges are the best, if not only, hope for delivery. These “Peoples’ Colleges” have been setting a standard for the development of a qualified workforce which can contribute to increased prosperity and equity on a national scale. To achieve this promise, community colleges must be sanctioned unequivocally to respond to the needs of all students, remediating those skill deficiencies which inhibit academic performance, and developing those personal attributes which contribute to success in the workplace as well as the community. 

Work and the Economy 

The value of postsecondary education - indeed the necessity of postsecondary education - is increasing exponentially in our rapidly changing society. To compete in the global arena, the public sector has mounted intensive efforts to reform the welfare system, control spending, and improve education. Concurrently, the corporate sector has initiated equally intensive efforts to increase competitiveness, reengineer business practices, and improve productivity. One of the primary strategies common to both agendas is the development of a substantial, high quality workforce, an effort which requires the combined efforts of both the public and private sectors. 

Over the years, the demands of the workplace have changed dramatically, a trend that is accelerating as the millennium approaches. In 1950, over 80% of the jobs in America required unskilled or semi-skilled labor. Today, the balance between skilled and unskilled jobs has shifted dramatically, with almost half of the available jobs requiring skilled workers. By the year 2000, most (85%) of the jobs available will require skilled workers and professionals, while only a few (15%) jobs will be available for unskilled workers. 

As work requirements have increased, the requirements for education and training have also escalated. In the fifties, even skilled jobs were largely repetitive and required minimal competence beyond the ability to read, write, compute, and follow directions. With increased education and training, however, the nation’s products and delivery systems, as well as the productivity of the workforce, have vastly improved. Today, the fastest growing occupations are changing rapidly and require significant postsecondary study, either a certificate or an associate degree, with only a few requiring a baccalaureate degree. Similarly, the redesign of the workplace has put a premium on the worker’s ability to contribute to the organization through problem solving and leadership skills in order to keep pace with increasingly rapid changes in the work environment. In short, the basis for quality performance today far exceeds the traditional basic skills. 

George A. Baker, III and Lester W. Reed, Jr., authors of “Creating a World-Class Workforce”, summarize the situation: “America’s problems can in fact be traced to a prime cause – and a cure exists. The root cause, exacerbated by rapid growth in social and entitlement programs, is the inability of the U.S. economy to expand sufficiently to cover the cost of increased spending. At the core of the economic situation is a large, underprepared work force that cannot or often does not choose to effectively compete in today’s economy. Particularly in the production of sophisticated products, an underprepared or unmotivated work force has no hope of meeting the challenges of the future … Without a restructured educational process to create this workforce, all of our efforts to combat social ills are doomed to be losing battles.” Our businesses and industries must have a workforce of the highest quality in order to succeed in the world marketplace. Yet, a gross mismatch exists between the competencies of individuals attempting to enter the job market and the needs of employers. This gap between the skills needed and those possessed by the workforce continues to grow, seriously handicapping American business and industry and our economy. 

Equally significant, however, are changes in the demography of the nation. As job requirements have increased, the ethnicity of the nation has diversified, with minorities seeking entry to the workforce in record numbers while struggling for an education. In a single decade, from 1980 to 1990, the Asian population of the country has more than doubled, the Hispanic population has increased by over half, the Native American population has increased by more than a third, and the African-American population has increased by more than a tenth. Today, the combined growth of each of these ethnic groups outpaces that of the nation as a whole, with almost a fourth of the population representative of an ethnic minority. In ten years, over two-thirds of the youth of the nation will represent ethnic minorities, and by 2010, over half of those seeking to enter the workforce nationwide will be minorities, an increase of one-third in only twenty years. (American Demographics, 1989). 

To ensure social and economic well-being, there is one nearly indisputable solution: increased educational access and opportunity for all to develop requisite skills and abilities. If the workforce is well educated the nation will be globally competitive producing a robust economy. In fact, if every worker could read sophisticated materials, write clearly, speak articulately, and solve complex algebraic and statistical problems, the economy could easily exceed a four percent growth boom scenario, with workers, themselves realizing a significantly improved standard of living (Workforce 2000, 1987). 

But the reality is quite different. The gap between the skills needed and those possessed by the workforce continues to grow, seriously handicapping American business and our economy. Today almost a third of our African-Americans and half our Hispanics are without a high school diploma, and over four-fifths of these growing populations are without a postsecondary degree. As a result, their earning potential is sorely limited. Without a high school diploma, workers earn more than $5,000 a year or less than workers with their diplomas, and over $8,000 a year less than those with postsecondary studies and associate degrees, disparities that increase each year and compound into a million dollars over a lifetime. Recently, U.S. Education Secretary Richard Riley addressed these issues directly in an article entitled, “Higher Education Access Needed.” “The only way that we can ensure continued growth and prosperity is to ensure that all Americans possess the skills that are needed to build a productive career. A growing body of economists believes that if we allow the income gap between rich and poor to widen further, the entire economy will be held back as a result.” (Southern Regional Education Board, 1997) 

The Challenges of Remedial Education and Underprepared Students 

The single, most intractable problem challenging the success of the national investment in education is inadequate preparation for postsecondary education and training. Each year as postsecondary enrollments grow the numbers of underprepared students grows proportionately. Across the community college sector, record numbers of students - 40% or more of those who enroll - enter underprepared for college level mathematics, writing and reading, thereby compromising their achievement and persistence (Condition of Education, 1997). Some never had the opportunity to acquire adequate skills, while others were simply discouraged from developing their abilities. Many come from deprived circumstances and often attended inadequate schools. Some were not enrolled in college bound programs and failed to develop the skills required to compete in college. Others received diplomas and entered the workforce only to find years later that they needed to refresh their skills when they entered college. As a result, most require limited remediation, perhaps in only one of the three traditional basic skills, and are likely to improve and complete their education rapidly. Others, however, require extensive remediation in each of three basic skills and are more likely to struggle to complete their degree program over a prolonged period. 

In many ways, underprepared students are virtually indistinguishable from their peers. Similar in age and gender, most were “C” students in high school, perhaps struggling with and performing poorly on standardized assessments such as the SAT. Nonetheless, like their more traditional peers, they, too, seek degrees as full-time students, with many making difficult personal and financial sacrifices to enroll. In fact, only 40% of the underprepared students - less than the traditional student population - are receiving financial assistance, with many highly motivated to overcome the educational barriers that they have encountered in the past. 

The population of underprepared students does differ from the more traditional population in one significant respect: the percentage of underprepared minorities is double that of the majority. Not only does a higher percentage lack high school diplomas, but those who seek to enter college are three times as likely to enter underprepared for collegiate study. If these students are to participate fully in society, compete in today’s economy, and succeed in tomorrow’s workforce, we must provide opportunities for remediation. 

Remediation and the Community Colleges 

Responding to the need for preparation, virtually every community college provides a comprehensive array of programs and services to remediate academic deficiencies and contribute to the student’s individual development. With an emphasis on individualized program and career planning, small classes, and one-on-one support, the colleges are noted for their highly personalized approach to providing the support required for student success. In addition to assessment and placement in two levels of reading, writing, and mathematics, preparatory coursework is also offered in the sciences, and study skills, as well as English As A Second Language. With the increasing diversity of our student body, the latter area has expanded significantly over the last several years and it is anticipated that ESL programs will grow even more so in the future. 

Increasingly sophisticated instructional techniques promote mastery and individualize instruction in learning environments which capitalize on emerging technologies, promote collaboration and integrate critical thinking skills throughout the curriculum. Complementing remedial instruction are equally essential activities including tutorial and counseling, career and educational developmental services which address significant developmental issues such as personal identity, independent thinking, and achievement motivation. In short, community colleges have the right programs in the right locations; they are dedicated to access and opportunity and have worked successfully with underprepared students for decades. 

Remediation and Success 

The results of remediation are encouraging as participating students earn higher grades and persist longer than their non-participating peers (Boylan, 1985). In fact, about two-thirds of the underprepared students enrolled in remedial courses complete their preparatory studies in less than a year. Even more impressive, students who complete remedial courses are as successful as those who begin academically prepared (Profile, 1995). Almost all (91%) of the students who complete developmental writing succeed in freshman composition, while a substantial percentage (83%) of those who complete reading succeed in their initial social science courses, and many (77%) of those who complete developmental math succeed in college math (Boylan and Bonham, 1992). As a result, over 75% of the entering underprepared students are retained through their first year with a GPA of 2.0 or better, though they continue into the second year at a somewhat lower rate than the general college population. Like their more traditional counterparts, underprepared students, tend to leave college in good standing, though they are more likely to stay at community colleges than baccalaureate institutions, and more likely to stay at community colleges than the general community college population (Boylan, Bonham and Bliss, 1994). 

A Florida study showed that fully one-third of the community college graduates who transferred to the university system had completed remedial programs. Given the task, these statistics document the impressive success at community colleges and clearly indicate that the investment in remediation is paying off. It further suggests that the community colleges as a primary system of delivery, are making a substantial contribution to the success of individuals and society, as a whole. 

Remedial Education is a Bargain 

The ever growing number of dependent Americans threatens the very well-being of our country. In this land of plenty, every community college has neighborhoods in which people live in terrible circumstances. The growth of the American underclass – fueled by increasing poverty, drugs, unemployment, and a breakdown in family life threatens our social structure and basic rights. These unacceptable circumstances, fueled by poverty, impact the quality of life for all of us. Poverty costs the society its sense of well-being and its human resources. 

Every year, the nation spends untold billions of dollars on dependent individuals. Studies suggest that the level of support for incarcerated individuals, 82% of whom are high school dropouts, is in excess of $26,000 per year. In one study (McCabe, 1995), the annual cost of supporting a dependent family was $22,348, which was nearly five times the expenditure of public funds spent on a typical family. It’s noteworthy that 80% of Florida’s welfare recipients do not have a high school diploma. The only real solution to the growing underclass and welfare is to assist more individuals to become independent and self sufficient through the provision of education opportunities. Remedial programs are essential to that process. 

It is estimated that the financial return alone on the time and money invested in postsecondary education is roughly 10 to 15% per year adjusted for inflation. This is well above the return on other investments available today (Hoy and Bernstein, 1982). Given this perspective, the $12 billion dollars that the states invest to educate almost ten million community college students in credit and non-credit programs each year pays off handsomely for individuals, as well as the public and private sectors. 

Because many legislators see that almost half of all community college students begin underprepared, they conclude that almost half of the expenditures in community colleges are for remediation. Nothing could be further from the truth. Only a small portion of a student’s program is remediation, because students typically complete their remedial courses in their first semester. Studies (McCabe, 1993) have documented the fact that academically deficient students on average, take less than seven credits of remediation coursework. This study is reinforced by a recent Federal GAO study which demonstrated that students receiving financial aid take an average of only 4.9 remedial credits and that only 8% of federal financial aid for community college students is for remedial courses (GAO, 1997). The same study further showed that when the financial aid received by community college students is included along with other university students, the percent of financial aid used to support remedial courses is amazingly small (4%). 

These minimal expenditures that help hundreds of thousands of Americans gain access to educational opportunities, and to the skills that are necessary to be self sufficient are the greatest bargain in American education. 

Investment for the Future: A Message for Policymakers and Educators 

Higher education is increasingly expected to respond to social and economic pressure for improved performance and accountability, and the community college are in the best position to lead in that response with remedial programs that are part of the solution, not part of the problem. Intensive remedial programs deliver on the promise of access and equality of opportunity for almost half of the entering students at the start of their postsecondary studies, allowing almost half of those entering as underprepared to graduate (Boylan and Bonham, 1992). They produce the GPA’s required for graduation, prepare students for success in college level courses; and, fuel student persistence to graduation. And they are cost effective, a factor which underscores the fact that community colleges are the primary providers of remedial services to local business and industry. 

Without such programs, few (about 10%) of the entering underprepared students would likely graduate, resulting either in massive failure rates or an equally dramatic decline in standards (Cross, 1976). Each year, almost two million more underprepared students would leave postsecondary education, their futures in the balance. Undereducated, they would likely join the competition for last place - the few unskilled jobs available - or worse. Without basic skills, some will resort to a lifetime of dependency, adding to the costly rolls of those on welfare and in prison, both extremely expensive options - socially and financially. At an estimated annual cost of $1,000 per student, remediation is a bargain in comparison to the annualized cost of welfare or incarceration. Is there anyone who would not see the wisdom of investing so little money to launch an individual toward a productive life? 

In order to sustain the effort to meet the remedial challenge, the community college’s mission in this critical area needs to be reaffirmed and supported. We must design the instructional systems required to redouble our efforts to ensure the delivery of the verifiable outcomes required both in academe and the workplace of the future. We must expand our programs and services to respond to the growing numbers of underprepared students entering our institutions in collaboration with our local school systems, business and industry, and state governments. Correspondingly, we must have guarantees that students will have continued access to financial aid for remediation and will not be held to a double standard of academic achievement beyond those set for more capable students. By strengthening and expanding our programs, supporting students in their quest for success, and renewing our public policy commitment to this critical area of need, we can respond to the social and economic imperative inherent to these challenges. 

In a democratic society, higher education is one means of gradually reducing the inequality of the human condition. Thus, while the monetary returns from education alone are probably sufficient to offset all of the costs, the nonmonetary returns are several times as valuable. In this context, the investment in remediation provides a direct return: the costs are low and the success rate is impressive. Students develop the skills and confidence to become self-sufficient; and, business and industry gain a better prepared workforce. As a result, society avoids the staggering costs of social dependency (McCabe, 1994). In short, the cumulative evidence ensures that the investment is well worth the cost to sustain the values that have contributed to the economic and social strength of the nation. Remedial education is the greatest bargain of American education; support for these programs is indeed wise public policy.