Fall 2021 UPDATE on Research and Leadership

UPDATE
ON RESEARCH AND LEADERSHIP

ADVANCING THE STATE FUNDING FOR

COMPLETION AGENDA: OPEN EDUCATIONAL

A SNAPSHOT OF GUIDED RESOURCES

PATHWAYS EFFORTS How can states leverage policy
to support colleges in making
Encouraging policy changes to courses more affordable for
improve implementation of guided our students? (p. 21)
pathways at community colleges.
(p. 17)

Introducing Scholarly Personal Narratives

First-person Reflections From Wise and Well-practiced Scholars and
Practitioners (p. 4)

Fall 2021 Vol. 30, No. 2

2 UPDATE - FALL 2021

The Office of Community College Research and Leadership (OCCRL) was 7
established in 1989 at the University of Illinois at Urbana-Champaign. OCCRL
is affiliated with the Department of Educational Policy, Organization, &
Leadership in the College of Education. Projects of this office are supported by
the Illinois Community College Board and the Illinois State Board of Education,
along with other state, federal, private, and not-for-profit organizations. The
content within publications does not necessarily represent the positions or
policies of our sponsors or the University of Illinois. Comments or inquiries
about our publications are welcome and should be directed to occrl@illinois.
edu. The UPDATE is prepared pursuant to a grant from the Illinois Community
College Board (Federal Award Identification Number: AH165). ©2021 Board
of Trustees, University of Illinois.

17

4
10 21

UPDATE on Research and
Leadership is an OCCRL newsletter with

articles on programs, policies, and research that
highlights transitions to, through, and out of
postsecondary education. Sign up via the
OCCRL mailing list to receive regular news and updates
from OCCRL.

UPDATE - FALL 2021 3

DIRECTOR’S CONTENTS
NOTE
04 INTRODUCING SCHOLARLY PERSONAL
Life starts all over again when
it gets crisp in the fall. NARRATIVES: FIRST-PERSON
REFLECTIONS FROM WISE AND
– F. Scott Fitzgerald WELL-PRACTICED SCHOLARS AND
PRACTITIONERS
Every autumn reminds me to Eboni M. Zamani-Gallaher
be reflective. I marvel each fall
season with gratitude for the warming hue of earth tone leaves 07 SUPPORTING RACIAL EQUITY IN
and visual transformation of nature to the fresh start marked
by a new school year. It is during this time of year that I am CAREER AND TECHNICAL EDUCATION IN
most keenly aware of the transience of most things. That 2021 AND BEYOND
in time all things ripen, that we all are in a cycle of growth. Marci Rockey and Osly J. Flores
From winter’s renewal and spring’s rebirth to summer’s youth,
autumn represents harvesting, evolving and prospering. One 10 AT WHAT COST: STRENGTHENING
thing I am known for saying is evolve or evaporate. This issue
of Update opens with self-reflections that show the personal CALIFORNIA COMMUNITY COLLEGE
and professional evolution of scholar-practitioners engaged CAREER AND TECHNICAL EDUCATION
in equity-first work. How they enter the space bringing their THROUGH STUDENT SERVICES
whole selves and some of the lessons learned along the way Jewel Bourne
as they endeavor the advance racially equitable educational
conditions and outcomes. Learn more about our new special 17 ADVANCING THE COMPLETION AGENDA:
podcast series run of SPN: Scholarly Personal Narratives in this
issue of Update. A SNAPSHOT OF GUIDED PATHWAYS
EFFORTS
Within postsecondary Career and Technical Education (CTE) Krystal Andrews
students of color experience significant disparities participation
and outcomes at community and technical colleges. The 21 STATE FUNDING FOR OPEN
second article explores some of OCCRL’s current efforts to
foster racial equity in CTE. The other features in this issue EDUCATIONAL RESOURCES
of Update delve into funding and costs limiting broader Nina Owolabi
participation and adversely impacting racial equity. Lastly this
issue takes a closer look at CTE in California, takes a snapshot Our mission is to use research and
of the utilities Guided Pathways alongside highlighting the
possibilities and promise of Open Educational Resources evaluation methods to improve policies,
(OER) as a means of increasing access and student centered programs, and practices to enhance
supports. community college education and transition
to college for diverse learners at the state,
All told, this issue of Update offers great food for thought. national, and international levels.
As your fall season is in full swing, we hope that you too are
evolving in your understanding of and commitment to equity. Follow Us!
Furthermore, that as you take stock of all that matters and
onramps for growth that your roadmap is inclusive, evolving, Editor-at-Large: Eboni M. Zamani-Gallaher
and open to change…like autumn change is constant and can Managing Editors: Eboni M. Zamani-Gallaher and Sal Nudo
be transformative! Copy Editor: Sal Nudo
Graphic Designer: Jason A. Keist
Stay connected! Follow us on Facebook, LinkedIn and Twitter!

Eboni M. Zamani-Gallaher

4 UPDATE - FALL 2021

Introducing Scholarly
Personal

Narratives

First-person Reflections
From Wise and Well-

practiced Scholars and
Practitioners

“I have often felt that as scholars, we are part and parcel to the enterprise of
educating and elevating. We are, in essence, a valid object of study as well.”

~ Dr. Eboni Zamani-Gallaher, OCCRL Director

A fe w years ago, prior to COVID-19 engulfing by the first-person reflections of these wise and well-regarded
the world, OCCRL Director Eboni Zamani- scholars and practitioners. Listen to what drew them into the
Gallaher had the idea of highlighting the lives of field as well as what undergirds their commitment to fostering
accomplished, interesting scholars through their equitable education. Hear what their intentional actions are
own words. She conducted numerous enlightening interviews, toward advancing positive change in the realms of racial justice
only to see them temporarily buried by pandemic-related and equity for all. And, perhaps most important, discover their
roadblocks that halted their production. pearls of wisdom, life lessons, and calls to action as they share
their wide-ranging thoughts and feelings.
But that was then, and this is now.
These podcasts are for everybody, but individuals whose
OCCRL is proud to introduce Scholarly Personal Narratives leadership is dedicated to advancing equity for marginalized,
(SPN), a revealing podcast series that has at last come to underserved, and racially minoritized individuals should find
fruition. Dr. Zamani-Gallaher calls SPN “a constructivist Scholarly Personal Narratives to be especially engaging, perhaps
research methodology.” even tools for professional development. Give the SPN
podcasts a listen as they are released and drop us a note at
Scholars and practitioners are often passionate individuals who [email protected] to tell us what you think.
care greatly about their work—and SPN interviewees are no
exception—but these individuals are not merely academicians The inaugural SPN episode with Amalia Z. Dache can be
but richly layered and simply human. Like many of us in all heard at https://go.education.illinois.edu/spndache
areas of life, they have hopes, feelings, and dreams as well as
backstories that have shaped them personally and professionally.
SPN showcases the experiences of educators and researchers
beyond their classrooms, labs, and fields of study.
As you listen to the SPN series, we hope you will be inspired

UPDATE - FALL 2021 5

SPN Interviewees and Notable Podcast Excerpts

Amalia Z. Dache: Associate
Professor, Graduate School
of Education, University of
Pennsylvania
Podcast excerpt: “They were involved in the
activism on Ferguson streets and they brought this
activism into the college campus. So, Ferguson
radicalizes these colleges students to bring equity-
mindedness and bring challenging domination in the
community setting into the college setting.”

Leslie Gonzales: Associate
Professor, College of Education,
Michigan State University

Podcast excerpt: “There’s a method that really
aligns with my own Chicana feminist epistemology,

which understands that notions like objectivity
and neutrality are really just convenient covers for
how whiteness and masculinity have shaped the

academy.”

Frank Harris III: Professor,
College of Education, San Diego
State University

Podcast excerpt: “Just kind of reflecting on that
experience and growing up in the Ninth Ward,

and thinking about some of my earliest schooling
experiences, it really did have a high impact on who
I am: my identity, my identity as a person, my identity
as a man of color, and ultimately, my identity as a

scholar.”

6 UPDATE - FALL 2021

Pamala Luster: President, San
Diego Mesa College

Podcast excerpt: “Number one, I’m a mom. I’m a
mother. I’m a teacher. I’m a coach, mentor, student,

and grandmother. And I say all of those things
because that is the center of who I am, and that is the

center of how I do my work.”

Soko Starobin: Independent
Consultant and CEO of Gratitude
Expressionist, LLC

Podcast excerpt: “I thought I was strong physically
and good, but I was diagnosed with an early stage of
breast cancer. That was a shock. I didn’t know where

that came from.”

D-L Stewart: Professor, College
of Health and Human Sciences,
Colorado State University

Podcast excerpt: “I point out my tenured status and
my rank as full professor intentionally because, as a
Black, trans, queer, disabled person, I’m a unicorn. I
shouldn’t be in the academy. I shouldn’t be at this level.

It’s a disruption.”

Asif Wilson: Assistant Professor,
Social Studies Education,
University of Illinois at Urbana-
Champaign

Podcast excerpt: “Let’s talk about the spaces where
we are dismantling the harmful conditions that don’t
just support Black students but actually support all

students. Let’s start to talk about those curricular
modifications of transformation where we no longer
think about mathematics from a Eurocentric point of
view, but we talk about our Indigenous practices.”

UPDATE - FALL 2021 7

SUPPORTING
RACIAL EQUITY
IN CAREER AND
TECHNICAL
EDUCATION IN 2021
AND BEYOND

By Marci Rockey and Osly J. Flores

At the Office of Community College Research and Leadership CTE Co-Lab
(OCCRL), the four pillars of equity-driven change, public
engagement, comprehensive P-20 educational pathways, and In the summer of 2020, OCCRL’s director, Eboni M. Zamani-
transformative leadership are encompassed within our mission Gallaher collaborated with institutional leads at the Urban
to facilitate systemic changes that improve educational equity Institute to join in partnership with World Education, Inc., the
for underserved students. National Council for Workforce Education, the Instructional
Technology Council, and the National Coalition of Advanced
Prior to the COVID-19 pandemic and the increased national Technology Centers to form the CTE Co-Lab funded by the
attention to racial justice, OCCRL was engaged in equity ECMC Foundation. The aim of this collaborative is to assist
work centered on racially minoritized populations. This colleges interested in reducing equity gaps in student outcomes
work has only become more pertinent as the pandemic made within their for-credit online CTE programming. The efforts
existing equity gaps more visible. Moreover, legislators will of the CTE Co-Lab was informed by a landscape analysis and
begin considering initiatives under the Biden administration’s survey completed by colleges in December 2020 that centered
American Jobs and American Families plans that engage on advancing equity in online CTE programs impacted by the
community colleges as key players toward advancing future COVID-19 pandemic (Anderson, Briggs, Spaulding, Zamani-
educational opportunities by proposing support for tuition- Gallaher, & López, 2021; Briggs, López, & Anderson, 2021).
free community college, infrastructure needs, job training,
and student completion grants (American Association of Twelve public community and technical colleges were selected
Community Colleges, 2021). through a competitive review process to receive training
and support enhancing equity-centered approaches to their
As community colleges engage in initiatives to advance online teaching and learning in selected credit-bearing CTE
equitable opportunities and outcomes, it is critical to be programs. The 12 chosen community and technical colleges
race-conscious. OCCRL is currently supporting several state are located within eight states: Wisconsin, Colorado, New
and national projects that advance the race-consciousness York, California, Louisiana, Illinois, North Carolina, and
of community college faculty and staff members to support Kansas. OCCRL developed and delivered two professional
closing opportunity gaps in high-wage, high-demand fields for development workshops summer 2021 centered on advancing
racially minoritized students. These projects include serving as racial equity designed and the call for equity-consciousness for
a collaborative partner of the Urban Institute’s CTE Co-Lab, the CTE College Community of Practice (CCP). More than
a research partner of the Corporation for a Skilled Workforce 50 participants from across the 12 institutions attended the two
(CSW)’s project, which advances diversity and equity in aviation summer workshops. These presentations focused on engaging
maintenance pathways. Another project includes the ongoing the 12 participating schools with training information that
support for Illinois community colleges that are reengaging in could help set the foundation for CCP’s continuing work
the biannual comprehensive local-needs assessment (CLNA) around equity. The PD events brought to light the historical
process required under Perkins V legislation. and systematic racial equity gaps that have intensified amid
parallel crises (i.e., the COVID-19 pandemic, racial unrest,

8 UPDATE - FALL 2021

etc.). By differentiating between diversity, equity, inclusion, CSW Aviation Education Pathways
justice, and equality, this dialogue sought to provide level-
setting agendas to critically assess barriers and challenges in In collaboration with the Corporation for a Skilled Workforce
online CTE programs that impact fostering data-informed, (CSW), OCCRL is studying how to broaden access and
equitable outcomes for racially minoritized students. participation as well as expand outreach and recruitment for
diversifying aviation maintenance programs and skilled trades
As an organization that prides itself in delivering impactful in community colleges. Throughout the summer, OCCRL
research and practice, our team worked with the Urban staff met with CSW personnel and AAR Corporation, an
Institute leadership team to adapt training deliverables tailored aviation maintenance workforce development partner that
to meet the organizations’ and participants’ needs. Informed by provides global aviation services, to coordinate and plan for the
feedback from our first workshop, the second one incorporated needs of the second project. OCCRL staff will be engaging in
specific requests from the Urban Institute—based on survey leading and conducting a research project that seeks to inform
responses from the participating community and technical recruitment, teaching, learning, retention, and completion in
colleges—to center on four frameworks: (1) overarching equity aviation and skills-related trades programs. To accomplish this,
practices, (2) student support and engagement, (3) curriculum OCCRL is conducting field work interviewing students, staff,
design and delivery, and (4) pathways to further education and faculty from four Eagle pathway institutional partners
and high-quality employment in the field. This resulted in an identified by the AAR Corporation to obtain empirical data
engaging workshop that included helping participants build to learn more about the success and challenges in recruiting
an understanding of equity consciousness, fostering changes and retaining more Black, Latinx, and female students into
in practice, and recognizing equity consciousness as a process aviation technician careers.
with discomfort being characteristic of growing a commitment
to becoming more inclusive in language and practice (Flores CLNA
& Gunzenhauser, 2019). Within this supportive space,
participants reflected on and responded to critical questions With support from the Illinois Community College Board
such as: (ICCB), OCCRL researchers previously developed the
comprehensive local-needs assessment (CLNA) template
• How does your understanding of race, racial for the state’s community college system (James-Gallaway
differences, and racism inform your practice as a CTE et al., 2020). The inaugural completion cycle was disrupted
educator? by the start of the COVID-19 pandemic in early 2020, as
institutions experienced uncertainty and sudden changes to
• Can you reflect on an issue of equity within the learning and working environments. As colleges approach
program your college is focusing on and share how their second cycle of engaging relevant stakeholders in
you would frame it to get away from deficit-based completing the CLNA, it is an opportunity to center what
thinking to a focus on structural barriers and assets? has been learned during the past academic year: The pandemic
has only intensified educational and economic inequities for
• How will your problem statement effectively lead to historically underserved populations at the local, state, and
a better understanding of how institutional processes national levels. In the context of Illinois higher education,
and practices contribute to equity gaps for students these groups include racially minoritized students, low-income
of color? students, working adults, and rural students (Illinois Board of
Higher Education, 2021).

As community colleges engage in
initiatives to advance equitable
opportunities and outcomes, it is

critical to be race-conscious.

UPDATE - FALL 2021 9

The CLNA process creates an opportunity to facilitate Closing
challenging but necessary conversations that center Across these three projects, OCCRL has supported educators
subpopulations that are experiencing inequity, as well as in advancing race-consciousness and prioritizing racial equity
explore the intersections between them and enact change in various contexts. Under the leadership of Dr. Zamani-
toward closing equity gaps at the local level (Welton et Gallaher, the team will continue to provide thought-provoking
al., 2019). Prior to the pandemic, there may have been and critical conversations around these topics. In the
limitations in how institutions thought about delivering CTE upcoming academic year, OCCRL researchers and affiliates
programs, and local labor-market needs have undoubtedly will be engaging with these various stakeholder groups to
experienced significant changes. For those institutions that guide equity-conscious practice in CTE programs and beyond.
released statements of support for advancing racial justice, the
CLNA provides a platform for translating words into action. Marci Rocky can be reached at [email protected].
OCCRL will be providing continued support and professional Osley Flores can be reached at [email protected].
development that assists Illinois community colleges in this
process geared toward learning and implementing local-level
changes that align with state goals centering on educational
and workforce equity (Illinois State Board of Education &
Illinois Community College Board, 2020).

References

American Association of Community Colleges. (2021, August 12). Tell Congress to enact community college priorities in
the American Jobs and Families Plans.

Anderson, T., Briggs, A., Spaulding, S., Zamani-Gallaher, E., & López, D. (2021, March). Racial and ethnic equity gaps in
postsecondary career and technical education. Urban Institute.

Briggs, A., López, D., & Anderson, T. (2021, May). Online career and technical education programs during the pandemic
and after. Urban Institute.

Flores, O.J. & Gunzenhauser, M. (2019). The problem with colorblind leadership revealed: A call for race-conscious
leaders. International Journal of Qualitative Studies in Education, 32(8), 963-981.

Illinois Board of Higher Education. (2021). A thriving Illinois: Higher education paths to equity, sustainability, and
growth.

Illinois State Board of Education & Illinois Community College Board. (2020). Illinois state plan for the Strengthening
Career and Technical Education for the 21st Century Act (Perkins V).

James-Gallaway, C., Keist, J. A., & Rockey, M. (2020, Fall). Advancing equity in career and technical education in
Illinois. Update. Office of Community College Research and Leadership, University of Illinois at Urbana-Champaign.

Welton, A.D., Rockey, M., & James-Gallaway, C. (2019). An equity-centered comprehensive local needs assessment.
Office of Community College Research and Leadership, University of Illinois at Urbana-Champaign.

10 UPDATE - FALL 2021

At What Cost:

Strengthening
California Community
College Career and
Technical Education
Through Student
Services

By Jewel Bourne

Multiplying the number of students who pursue and parent who is a member of the armed forces and is on active
earn certificates and associate’s degrees in career and duty (Advance CTE & Association for Career and Technical
technical education (CTE) is consequential to the college Education, 2018 as cited in James-Gallaway, Keist, and
completion intent. In response to the view that career and Rockey, 2020) With this expansion we see a recognition
technical education in both K-12 and community college is of the role of higher education in meeting labor-market
imperative to meet the changing needs of the labor market demand and in reducing persistent educational and economic
in California, CTE has been codified in the reauthorizations disparities for students from historically marginalized
of the Elementary and Secondary Education Act. The Every socioeconomic and racial/ethnic backgrounds.
Student Succeeds Act (ESSA) emphasizes students’ college
and career readiness, which is a departure from early policy The inclusion of the College Career Indicator in California’s
focused only on college readiness. With the implementation accountability framework, the California School Dashboard,
of the Strengthening Career and Technical Education for which first places individuals in one of three levels (Prepared,
the 21st Century Act (Perkins V), the imperative of career Approaching Prepared, or Not Prepared) represents an
preparedness deepened, particularly for underrepresented important shift from traditional academic assessment metrics
student populations. to the inclusion of career and technical education. The
College Career Indicator assesses students based on their
Perkins V legislation (2006) expanded to include (1) 11th-grade English language arts, math smarter balanced
individuals with disabilities; (2) single parents, including assessment scores, CTE pathway completion, AP and
single pregnant women; (3) out-of-workforce individuals; IB exam performance, dual enrollment, and A-G course
(4) homeless individuals; (5) youth who are in, or who have completion (Reed, Dougherty, Kurlaneder, & Mathias,
aged out of, the foster care system; and (6) youth with a 2018).

UPDATE - FALL 2021 11

There is a substantial body of observational research The California CTE Context
documenting the impact of CTE participation on academic Improving student success in community colleges is
and labor-market outcomes (Kemple & Willner, 2008; essential to addressing the need of Californians with college
Doughterty, 2018; Hemelet & Lenard, 2018) and a broader degrees, for closing the opportunity gaps across racial/
set of educational engagement outcomes (Kelly & Price, ethnic populations, and for addressing the shortages of
2009). However, few studies have focused on examining skilled workers. Despite national reports of nearly 21
the institutional supports that enable CTE pathway million people holding an occupational associates’ degree
completion, which is defined as those students who complete (U.S. Census Bureau, 2018), geographic data focusing on
all coursework, including the capstone course, with a California indicates that only 3% of all entering degree-
grade of C or better to be considered career ready. (Reed seekers earn vocational associate’s degrees, and only 5% earn
et.al.,2018). The practical constraints of this paper prevent certificates. Meanwhile, one-third of community college
a comprehensive review of whether the mission of CTE has course enrollments are in courses classified as vocational
been marginalized from the academic core of the institution (Jones, 2013 as cited in Shulock & Moore, 2013). During
based on the system’s strong and historic commitment to the past two decades, California has made substantial policy
transfer (Shulock and Moore, 2013), but it does contest that and resource investments in CTE including Senate Bill 70 in
ill-suited policy exists pertaining to CTE student support. 2005 (reauthorized in 2012 as SB 1070), which allocated $20
million to CTE at the K-12 and community college levels.
Additionally, this paper advocates for creating policy that In addition to funding, the legislature addressed the goals
ensures students receive equal opportunity to acquire and scope of CTE. Legislation through Assembly Bill 2648,
information, guidance, and support for their educational passed in 2008, defined the notion of a CTE pathway as
goals.
a multiyear, comprehensive high school program of
National Context for Career Technical Education integrated academic and technical
Amid renewed interest among federal and state policymakers, study that is organized around a broad theme, interest
CTE has a substantial presence in American public area, or industry sector, including but not necessarily
education. Nationwide, there are more than 8 million limited to, the industry sectors identified in the model
secondary students and nearly 4 million postsecondary standards adopted by the state board
students enrolled in career and technical education (CTE)
programming, as well as approximately 1.1 billion in The legislation further articulates instructional goals as
federal investment supplemented by substantial annual state “project-based learning and other engaging instructional
investments (Reed et al., 2018). strategies that intentionally bring real-world context and
relevance to the curriculum where broad themes, interest
Though stigmatized due to the variety of academic and areas and CTE are emphasized.”
technical programs offered to the public and its commitment
to open enrollment (Doyle, 2009 as cited in Gauthier, 2020), Other legislation (Assembly Bill 790) in 2011 authorized a
community colleges continue to be a leader in technical Linked Learning Pilot Program and awarded $2 million in
development. For example, California recently committed competitive grants to school districts for the implementation
to an annual investment of over $200 million in community of Linked Learning and technical assistance with the model.
college-based CTE degree programs (Bohn, Gao and The stated purpose of the legislation was to “have more
McConville, 2018), in addition to $500 million since 2013. equitable opportunities to learn skills needed for entry into
These education funds expand career-pathway programs the workforce, to pursue postsecondary educational goals,
starting in grades nine and going through postsecondary and to contribute to the social cohesion of the state” (AB
schooling. With an increasing emphasis on CTE as a lever to 2446 Assembly Bill).
advance educational and labor-market outcomes, as well as
which CTE programs are delivered and the diversifying fields More recently Assembly Bill 86 was signed into law, creating
and industries included under the CTE umbrella, it is more the California Career Pathways Trust (CCPT) and providing
important than ever to seek a comprehensive understanding $500 million in funds for CTE programs. The intended
of CTE students’ completion persistence factors. goals of the CCPT are to prepare students for “high-skill,
high wage jobs in emerging and growing industry sectors in
the local or regional economy through a sequenced, career-
relevant curriculum following industry-themed pathways”
(California Department of Education, 2017).

12 UPDATE - FALL 2021

California policymakers and educators looking to career and “...it is crucial to examine
technical education with a promise to meet “middle skills”
requirements must continue to invest financially and allocate how levels of support relate
resources that advance student success, which is defined here to subsequent outcomes
as CTE certificate or degree attainment. Current California for certain populations of
Education Code allows but does not require community
colleges to provide counseling to include educational, students.
career, and personal counseling (California Education
Code Section 72620). Additionally, while the code sets In an effort to identify an appropriation of funds for these
forth a direction of the governing boards of the community initiatives, institutions and administrators must consider that
college districts to provide and publicize an organized and the federal funds for CTE are allocated in proportion to CTE
functioning counseling program in each college to include completers. This recommendation recognizes the limitations
academic, career, and personal counseling, these services of the federal institution funding structure that prevents
are mandatory for first-time students enrolled in more than institutions that are interested in developing comprehensive
six units, students enrolled provisionally, and students on programs from doing as such. Without a promissory structure
academic or progress probation (California Education Code funding for institutions, the federal government should
Title 5 Section 51018 b-c). These policies do not prescribe develop measures of assessment guided by practioners whose
requirements or expectations of the community colleges for responsibilities include student-facing interaction. Shulock
students otherwise classified, specifically those who are not and Moore (2013) suggest there are clear differences in access
yet enrolled and/or interested in enrolling at a community that must be better understood; funding models that consider
college in specific career pathways. gendered, racialized, and socioeconomic experiences facilitate
this acknowledgement.
Access to program and/or career advisement has wide-
reaching student implications for CTE, college completion, Funding allocations that allow for the creation of support
and economic vitality, opportunities that are not being services for enrollment and participation of prospective, new,
realized (Shulock and Moore, 2013). As we investigate and continuing CTE students acknowledge lived experiences
California’s considerable investment, participation, and and enable navigation of campuses that are hostile and
interest in developing equitable outcomes, it is crucial to antagonistic (Museus, Griffin and Quaye, 2019). Reed et al.,
examine how levels of support relate to subsequent outcomes (2018) provide the following example for conceptualization:
for certain populations of students. “if lower-income Latinx students participate in CTE at
higher-than-average levels but have more limited access
CTE and Historically Excluded Student Populations to a breadth of pathways, the CTE policy landscape may
CTE has historically been seen as an academic outlet for hinder economic mobility rather than promote it” (22). To
lower-achieving or unmotivated students (Fraser, 2008; better provide access to high-quality CTE programs, defined
Gamoran & Mare, 1989; Kelly & Price, 2009). Moreover, limitedly as degree attainment, resources should be directed
persistent patterns of racial discrimination and unequal to development of services that align with the demand and
educational opportunities in U.S. schools has resulted growth of programs that holistically match the specific
in troubling curricular tracking patterns. Work from personal and professional interests of the students (Holzer,
Oakes (1983) demonstrates that access to specific forms Linn & Monthey, 2013).
of vocational curricula—business versus building trades,
for example—differed systematically based on the racial Benefits of CTE Student-service Support
composition of schools. Predominately White schools had Institutionalization of specific, appropriate, and adequate
more access to the former, and schools with predominately
minoritized populations had more access to the latter.
Since the reauthorization of Perkins V, the more likely White
population of CTE participants is demonstrating a changing
perception that deserves special attention. These trends
continue to highlight the gaps and exacerbate the need for
investment in institutional agents whose charge is to support
students whose educational career goals have been otherwise
stymied due to marginalization such as the lack of investment
and consideration of relevant support programs.

UPDATE - FALL 2021 13

enrollment and academic advising has implications for extensive CTE student services moves beyond the inclusion
positive psychological benefits that contribute to completion. of the traditional voice and enables participation from a
Kelly and Price (2009) suggest that students derive feelings population of historically marginalized students whose
of self-worth from successful engagement and completion of empowerment is consequential to their persistence and degree
CTE coursework. This idea is complemented by the work of attainment.
Finn (1997), who explains that feelings of efficacy and self-
worth are important predictors of student success in school. There is an additional burden of the community college to
Availability and effectiveness of student-support services create and sustain these mechanisms with institutionally
that include academic tutoring, financial and economic appropriate financial and professional talent resources.
counseling, financial aid counseling, cultural enrichment Inclusive and extensive student supports increase the
activities, workshops, and mentoring influence students’ likelihood of postsecondary career and technical education
engagement in their learning, thus importantly influencing enrollment, retention, and completion (Reed et.al., 2018).
their decision to remain enrolled in or leave school all
together (Agodini & Deke, 2004; Finn & Rock, 1997; Conclusion and Recommendations
Kelly and Price, 2009; Plank, DeLuca & Estacion, 2008; Increasing the number of students who pursue, complete, and
Rumberger, 2011). earn certifications and degrees is dependent on the assessment
of policy. It is essential that our institutional procedures
The imperative of cocurricular support is necessitated by the ensure efficient practice that influence students’ experiences
reality that CTE students’ experiences are expeditious (due and outcomes. As the role of California community colleges
to program term lengths). Furthermore, their interactions in supporting the rebuilding of our economy grows, it is
with potential supportive environments are often with essential to review the policy infrastructure that advances
CTE faculty whose experiences are related to industry workforce development. The promotion of workforce
and not foregrounded in traditional academic cultures development through sub-baccalaureate credentials,
with institutional knowledge. These students can be certificates, and vocational assistance warrants assessment of
disadvantaged by these restrictive circumstances that can practices that impact student outcomes.
create confusion, potentially creating barriers to credential
completion. Much of the consideration on the effectiveness of career and
technical education has revolved around labor and economic
The growing field of literature on CTE in high school (Black, advantages, but there remains limited research on what
Grenard, Sussman & Rohrbah, 2010; DuBois, et al, 2011) enables the success of students who are engaged in these
demonstrates a trend that the unique model of instruction programs. This paper sought to examine the necessity and
featuring mentoring, often over multiple years, enhances benefits of implementing and expanding student services to
educational outcomes by providing clearer connections and create comprehensive CTE student-support networks.
pathways to a student’s area of interest. These findings infer
practicality to the community college context: Specifically, Shulock and Moore (2013) assert that students who are
informing the development of a more engaging community enrolled in CTE programs are not normally counseled
college career technical environment that leads to higher about program options and the roadmaps for completing
probabilities of program completion. Additionally, the them, whether they arrive directly from high school, are
comprehensive coordination of students’ educational plans trying to advance their careers, or come from a position of
has been linked to improved postsecondary arrangements and unemployment. This finding certifies the need for discussion
increased employability (Bishop & Mane, 2004; Kemple & on which governmental and institutional practices need
Willner, 2008), presumably due to students’ ability to apply revision to assuredly advance retention and completion for
learned technical, collaborative, and critical-thinking skills. CTE students. As supports vary across community college
To this point, the development of robust career and technical institutions for CTE, I recommend the following for
education student services is an opportunity to advance improving persistence to career and technical certification
student voice and develop participatory decision making. and degree attainment:
The Great Schools Partnership (2013; as cited in Thrill,
2019) refers to student voice as “the values, opinions, beliefs, • Replace short term, competitive grant funding with
perspectives, and cultural backgrounds of individual students stable funds to provide consistent and equitable access
and groups of students in a school.” The incorporation of for students toward high-value academic and cocurricular
programs statewide.

14 UPDATE - FALL 2021

• Provide community college counselors with a better
understanding of career pathways served by CTE
programs through frequent and paid in-service trainings
with field experts and practioners. This may also include
advisory boards made up of faculty, counselors, and
administrators.

• Increase the hiring of trained and credentialed full-time
academic counselors to decrease the student-to-counselor
ratio. The hiring of more professionals will allot time
for counselors to create and explain detailed student
educational plans, as well as build relationships beyond
transactional exchanges.

Understanding of the pivotal role of community colleges’
CTE programs toward advancing equity and meeting
workforce demands, these considerations are mindful of the
increasing emphasis on student success, defined as college
completion. Further, these recommendations consider the
direct and indirect consequences for students, practioners,
and instructors as they attempt to develop a standard of
best practices for persistence, particularly among students
of difference1 and students pursuing career and technical
experience whose educational ambitions, within a California
context, may have been stigmatized.

As we consider the specificity of career and technical 1“Students of difference” is an umbrella term for diverse
curriculum, the need for experiential learning, and students that expands beyond race and/or ethnicity.
the opportunity for personalization to meet students’ Examples include LGBTQ+ students, students with
individual career and educational ambitions, it is imperative disabilities, undocumented students, first-generation
that detailed and relevant resources are provided. To students, veteran students, students from diverse religious and
ensure equitable opportunities for all to earn skills and spiritual backgrounds, and low-income students.
the competencies that enable degree completion, the
implementation of fundamental procedural change is needed. Jewel Bourne can be reached at [email protected].

In closing, every year thousands of people enroll in their local
community college to pursue a variety of objectives; however,
the policies that currently guide the actions of students and
colleges, in many instances, have not been purposefully
designed to support the CTE mission. As institutions are
increasingly being held accountable for improving student
outcomes for CTE programs of study, the recommendations
for practices such as long-term funding sources and
equipping and hiring counselors with industry-related
experience to counsel students beyond general requirements
will enable the building of transformational practices that are
specific to the CTE mission, better ensuring future equity.

UPDATE - FALL 2021 15

References

Agodini, R., & Deke, J. (2004). The relationship between high school vocational education and dropping out
(Mathematica Policy Research Paper No. 8879-400). Mathematica Policy Research, Inc.

Advance CTE & Association for Career and Technical Education (2018). Legislative summary and analysis:
Strengthening Career and Technical Education for the 21st Century Act (Perkins V). Retrieved from: http://cte.ed.gov/
legislation/perkins-v

Black, D. S., Grenard, J. L., Sussman, S., & Rohrbach, L. A. (2010). The influence of school-based natural mentoring
relationships on school attachment and subsequent adolescent risk behaviors. Health Education Research, 25(5), 892-
902.

Bishop, J. H., & Mane, F. (2005). Raising academic standards and vocational concentrators: Are they better off or worse
off? Education Economics, 13(2), 171-187.

Bohn, S., Gao, N., & McConville, S. (2018). Career Technical Education in California (Policy brief).

California Department of Education. (2017). Report to the Governor and the Legislature: Evaluation of the Assembly Bill
790 Linked Learning Pilot Program, the Assembly Bill 1330 Local Option Career Technical Education Alternative
Graduation Requirement, and the California Career Pathways Trust. Sacramento, CA. Retrieved from: https://www.
cde.ca.gov/ci/ct/pt/

California Education Code, Section 72620 (2020).

California Education Code, Title 5 Section 51018 b-c, (2020).

Dougherty, S. M. (2018). The effect of career and technical education on human capital accumulation: Causal evidence
from Massachusetts. Education Finance and Policy, 13(2), 119-148.

Doyle, W. R. (2009). The effect of community college enrollment on bachelor’s degree completion. Economics of
Education Review, 28(2), 199–206. doi:10.1016/j.econedurev.2008.01.006

DuBois, D. L., Portillo, N., Rhodes, J. E., Silverthorn, N., and Valentine, J. C. (2011). How effective are mentoring
programs for youth? A systematic assessment of the evidence. Psychological Science in the Public Interest, 12(2), 57-
91

Finn, J. D., & Rock, D. A. (1997). Academic success among students at risk for school failure. Journal of Applied
Psychology, 82(2), 221-234.

Fraser, A. L. (2008). Vocational-technical education in Massachusetts (Pioneer Institute White Paper No. 42). Boston, MA:
Pioneer Institute.

Gallaway-James, C., Keist, J.A. & Rockey, M. (2020). Advancing Equity in Career and Technical Education in Illinois. Office
of Community College Research and Leadership, University of Illinois at Urbana-Champaign.

Gamoran, A. & Mare, R. D. (1989). Secondary School Tracking and Educational Inequality: Compensation,
Reinforcement or Neutrality? American Journal of Sociology, 94, 1146- 1183.

Gauthier, T. (2020). A Renewed Examination of the Stigma Associated with Community College Career and Technical
Education. Community College Journal of Research and Practice, 1-15. DOI: 10.1080/10668926.2020.1758835

16 UPDATE - FALL 2021

Hemelt, S. W., Lenard, M. A., & Paeplow, C. G. (2017). Building better bridges to life after high school: Experimental
evidence on contemporary career academies (Working Paper 176). Washington, DC: National Center for Analysis of
Longitudinal Data in Education Research

Holzer, H. J., Linn, D., and Monthey, W. (2013, October). The promise of high-quality career and technical education:
Improving outcomes for students, firms, and the economy (Issue Brief). New York: The College Board &
Washington, DC: The Georgetown Law Center on Poverty, Inequality, and Public Policy.

Jones, D. (2013, February 19). Untitled. California Assembly Higher Education Committee.

Kelly, S., and Price, H. (2009). Vocational education: A clear slate for disengaged students? Social Science Research,
38(4): 810-825.

Kemple, J. J., & Willner, C. J. (2008). Career academies: Long-term impacts on labor market outcomes, educational attainment,
and transitions to adulthood. MDRC.

Museus, S.D., Griffin, K.A., and Quaye, S.J. (2019). Engaging Students of Color. In S.J. Quaye, S.R.Harper & S.
Pendakur (Eds). Student engagement in higher education: Theoretical perspectives and practical approaches for diverse
populations.

Oakes, J. (1983). Limiting opportunity: Student race and curricular differences in secondary vocational education.
American Journal of Education, 91(3), 328–355.

Plank, S. B., DeLuca, S., & Estacion, A. (2008). High school dropout and the role of career and technical education: A
survival analysis of surviving high school. Sociology of Education, 81(4), 345-370.

Reed, S., Dougherty, S.M., Kurlaender, M., & Mathias, J. (2018) A Portrait of California Career Technical Education
Pathway Completers. Policy Analysts for California, PACE.

Rumberger, R. W. (2011). Dropping out: Why students drop out of high school and what can be done about it. Harvard
University Press.

Shulock, N & Moore, C. (2013). Career Opportunities: Career Technical Education and the College Completion Agenda.
Part IV: Aligning Policy with Mission for Better Outcomes. Institute for Higher Education Leadership and Policy.

Thrill, C. (2019). Creating a space for student voice in Advancing Program Review. Office of Community College Research and
Leadership, University of Illinois at Urbana-Champaign.

UPDATE - FALL 2021 17

Advancing the
Completion Agenda:
A Snapshot of
Guided Pathways
Efforts

By Krystal Andrews

O btaining a college credential is viewed as a
means of accomplishment and a vehicle for
economic and social mobility. However, the
road to obtaining this coveted prize varies,
while the demand for college degrees for entry-level positions
continues to increase.

As for community colleges, this institutional type continues AGI has diminished due to partisan politics and federal budget
to be the premier and most affordable access point for students cuts since its introduction. However, the initiative sparked a
of all preparation levels to gain credentials that allow them to movement to improve the community college experience
move onto baccalaureate-granting institutions and into the and completion rates through frameworks such as guided
workforce. In 2009, President Barack Obama introduced his pathways. As it stands today, there still is no federal policy
administration’s American Graduation Initiative (AGI) to to address the issue of degree completion. Hence, states have
meet the economy’s demands by producing a more skilled decided to institutionalize their own policies while leveraging
labor force by 2020, along with a way to stimulate the the guided pathways framework as their model.
economy amid the 2009 economic recession. This initiative
used community colleges as the featured sites for carrying
out the program by committing $12 billion over ten years
to improve the funding and physical infrastructures of
campuses, in order to meet the goal of having five million
community college graduates by 2020 (United States Office
of the Press Secretary, 2009).

While this initiative found traction with the growth in The purpose of this brief is to examine how the guided
the conversation surrounding free community college pathways framework has influenced states to reimagine how
nationwide, it did not include any concrete parameters or their policies and practices influence student outcomes and
guidelines for states to follow to achieve this goal; as a result, the steps to institutionalize these reforms at the state level.
there is an absence of policy to guide the broad adoption of This brief includes a historical review of guided pathways,
policies to improve degree completion. states’ efforts, and recommendations for improving policy
and practices nationally to increase credential completion at
community colleges.

18 UPDATE - FALL 2021

What is Guided Pathways? of Community College Research and Leadership (OCCRL),
Guided pathways as a framework is an “integrated, institution- Complete College America (CCA), the United Negro College
wide approach to student success based on intentionally Fund (UNCF), The Charles A. Dana Center, the Association
designed, clear, coherent and structured educational of American State Colleges and Universities (AASCU), the
experiences, informed by available evidence, that guide each American Association of Colleges and Universities (AACU),
student effectively and efficiently from their point of entry and Carnegie Math Pathways have contributed to the
through to the attainment of high-quality postsecondary pathways movement (Completion by Design, 2017; American
credentials and careers with value in the labor market” Association of Community Colleges, 2019). More than 200
(American Association of Community Colleges, 2018, p.1). institutions are utilizing the framework and seeing results from
This framework is supported by the need to provide a more their investment in transforming their institutional approach
structured academic experience. Hence, the goal of guided to student success and completion (Center for Community
pathways is to shorten the time to degree completion while College Student Engagement, 2020).
providing students with the opportunity to explore career
interests through course maps that include embedded skill- Guided Pathways Efforts in California and Virginia
development experiences and institutional support through As states implement a guided pathways framework, they
completion. The intended guided pathways experience and their institutions are in various stages of adoption
“allows colleges to provide predictable schedules and frequent and commitment. For states such as California and
feedback so students can complete programs more efficiently” Virginia, instituting the framework shows that the level of
(Community College Research Center, 2015, p.2). implementation is unique and makes a statement for each
state’s investment in education. This section reviews each
The framework includes four key pillars that guide curricular state’s implementation of the pathways framework to provide
transformation: (1) creating clear academic paths; (2) helping a snapshot of how an absence of federal policy or oversight of
students get on a path; (3) helping students stay on a path; college completion stratifies the approach to student success.
and (4) ensuring that students are learning. Further, the
framework includes a theoretical map that includes planning, California Snapshot
implementation, evaluation, and early-outcome measures As the largest community college system in the country,
that should be considered when embedding this approach California is one of the first states, along with Missouri
(American Association of Community Colleges, 2019). and North Carolina, to pass legislation to institute policies
that address college completion or practices such as guided
The origins of guided pathways can be traced back to 2011 pathways (Fulton, 2017). In 2017, the California legislature
with the establishment of the Completion by Design (CBD) implemented the California Community College Guided
project funded by the Bill & Melinda Gates Foundation. Pathways Grant Program. This bill included a one-time
This galvanizing initiative sought to address the barriers and investment of 150 million dollars to aid in implementing
obstacles impeding positive student outcomes and completion the program across its 114 community college campuses,
rates at community colleges. along with clear language and practices that should guide the
development of the grant program (California Community
At the outset, nine colleges across three states joined the College Guided Pathways Grant Program, 2017).
project, undertaking the challenge of revamping their
respective campuses’ academic culture and policies to improve Further, the bill included guidelines for state-level
student success (Completion by Design, 2017). Additionally, administrators regarding fiscal allocation procedures, data
organizations such as the Community College Research Center points, and evaluation tools for completion metrics statewide.
(CCRC), Achieving the Dream (ATD), Jobs for the Future Based on the most recent guided pathways legislative report, an
(JFF), and others worked collaboratively on CBD. overwhelming majority of the participating community colleges
are still in the planning-to-scale stage of implementation of
As the project progressed, more funding and collaborations their guided pathways efforts; however, three campuses that
with the Association of American Community Colleges were early adopters of the framework are showing promising
(AACC), the Aspen Institute, the Center for Community change. For example, Skyline College has completed a
College Student Engagement (CCCSE), the National Center comprehensive redesign that includes a new promise scholars’
for Inquiry and Improvement (NCII), and Public Agenda program offering financial support and a realignment of
were put in place to continue to develop the guided pathways academic programs into meta majors to provide clear program
framework. As of this writing, organizations such as the Office maps for each academic program and respective career field.

UPDATE - FALL 2021 19

Recommendations for Improving Credential Completion

Using Guided Pathways

The Guided Pathways framework was presented in this brief as
a practice enacted nationwide to address the absence of federal
policy and the college completion agenda. Additionally, the
history and guiding pillars of the framework were presented,
as were snapshots of states that have varied approaches to
funding models and legislative measures to address their
respective usage of the framework. While one state has a more
detailed approach, it is important to note that to increase
student completion, a centralized and robust approach must
be enacted to meet the goal of increased credential completion.

The redesign also includes a transformation of teaching and Below are recommendations on how to utilize the guided
learning into high-impact practices to garner more connection pathways framework as institutions strive toward the
between students’ classroom learning and their career goals completion agenda for community colleges:
(California Community Colleges, 2019. p.24).
1. Formalize policy that features best practices from
Virginia Snapshot guided pathways at the federal level to guide states
Virginia does not have legislation that specifies the to streamline the implementation of such a model
implementation of guided pathways as a framework for its based on their needs.
community colleges. The closest pieces of legislation related to
leveraging the power of community colleges in the completion While the guided pathways model includes the four pillars
agenda are the policy guidelines that address the development of clarifying the path, helping students get on track, helping
of transfer agreements (State Council of Higher Education for students stay on track, and ensuring students are learning, a
Virginia, 2020) and the state policy on transfer (State Council consortium or task force at the federal level is needed to provide
of Higher Education for Virginia, 2016). However, they centralized oversight to ensure that states are not left behind
have leveraged a partnership with the Bill & Melinda Gates in the college completion movement. Best practices should
Foundation, The Kresge Foundation, and Jobs for the Future include suggestions for assessing campus capacity for a guided
to establish a grant-funded student success center that provides pathways overhaul, standard policies that can be adopted in
state community colleges with resources to implement the compliance with individual state policy, a centralized model
guided pathways framework (Virginia Community Colleges for creating academic program maps, standardized student
System, 2020). metrics, culturally responsive advising and teaching practices,
and culturally responsive assessment of student outcomes.
Further, the success center also highlights its use of Achieving Additionally, creating a national clearinghouse for guided
the Dream’s (ATD) Integrated Planning and Advising for pathways to serve as a repository for these best practices
Student Success (IPASS) strategy, which leverages integrated would provide both access and transparency in the further
technology, advising, and progress-tracking to garner student development of institutionalizing the framework.
success. As such, IPASS is complementary and integral to
embedding the guided pathways framework across the Virginia 2. Providing financial incentives to community colleges
community college system. for implementing guided pathway best practices.

Highlighting these two states reveals that states are left to create This recommendation consists of the earmarking of funds
and implement policies and practices that best fit their needs or for community colleges through the proposed national
priorities due to a lack of federal guidelines. These highlighted clearinghouse for guided pathways to reward or incentivize
states also shed light on the vast differences in funding guided campuses to implement best practices of guided pathways. As
pathways work, as both states feature non-renewable funding. the funding model for community colleges does not match
their missions, providing funding for institutionalized best
practices, with the possibility of renewal, is a way to elicit
more participation in the streamlining of the framework.

20 UPDATE - FALL 2021

Such a funding model can mimic performance-based funding degree completion of all students, the experiences of racially
in terms of metrics, yet the guidelines of those metrics must minoritized students must be included and given the same
be culturally responsive. Additionally, funding should be level of attention as their white classmates.
incremental based on the campuses’ rate of implementation
of best practices.

3. Leveraging these models to create more equitable Krystal Andrews can be reached at [email protected].
experiences for racially minoritized students.

Guided pathways as a framework is heralded as a model References
showing an increase in overall completion rates. However, until
recently, equitable experiences for racially minoritized students American Association of Community Colleges. (2020). Fast
were not considered in the model. According to the American facts.
Association of Community Colleges (2020), students of color
make up more than half of all community college enrollees. American Association of Community Colleges. (2019).
However, when looking at the guided pathways framework, Guided Pathways Model.
equity was not accounted for before the 2019 update of
the model. Hence, the framework can be viewed as color- American Association of Community Colleges. (2018). What
evasive and lacking any semblance of culturally responsive is the “pathways model?”.
practice in any pillar of the framework. Thus, to increase the
Bailey, T., Jaggars, S.S., and Jenkins, D. (2015). What
We Know About Guided Pathways. New York, NY:
Columbia University, Teachers College, Community
College Research Center.

California Community Colleges. (2019). Guided pathways
legislative report.

California Community College Guided Pathways Grant

Program [88920 - 88922] (2017).
Center for Community College Student Engagement.

(2020). Building momentum: Using guided pathways
to redesign the student experience. Austin, TX: The
University of Texas at Austin, College of Education,
Department of Educational Leadership and Policy,
Program in Higher Education Leadership.
Completion by Design (2017). What is completion by
design?.
Fulton, M. (2017). Guided pathways to college completion.
Education Commission of the States.
Office of the Press Secretary. (Barack Obama). (July 14,
2009). Excerpts of the president’s remarks in Warren,
Michigan and fact sheet on the American graduation
initiative [Interview transcript].
State Council of Higher Education for Virginia, (2016). State
policy on college transfer.
State Council of Higher Education for Virginia, (2020).
Public higher education policy guidelines for the

development of transfer agreements.

UPDATE - FALL 2021 21

STATE FUNDING FOR
OPEN EDUCATIONAL
RESOURCES

By Nina Owolabi

Introduction limit who might be able to check out an e-book at any time.
Additionally, not all materials are available in a digital format.
Open educational resources (OER) are teaching, learning, Librarians have battled with book publishers who still restrict
and research materials that are available under an open-source, electronic materials despite the current upheaval caused by the
or license agreement, that allows for “sharing, accessing, pandemic (SPARC, 2020). This period has proven the utility
repurposing” for faculty and student needs (Atkins et al., of a broad OER policy. Before COVID-19, some community
2007). colleges and institutions responded to students’ cost concerns
by fully adopting OER: crafting curriculum and entire degree
OER got its start as an international movement. The term was programs around them (Griffiths et al., 2020; Hilton, 2016;
first coined in 2002 at a United Nations Educational, Scientific Hilton et al., 2016). Students have saved millions of dollars
and Cultural Organization (UNESCO) Forum on the Impact through these efforts.
of Open Courseware for Higher Education in Developing
Countries. Since that time, UNESCO has embraced OER as Despite the significant benefits of using OER, implementation
part of its education for all missions, in partnership with the initiatives are not consistent primarily due to a lack of broad
William and Flora Hewlett Foundation. support. While OER comes at no financial cost to students,
there is an inherent cost of time, energy, and human capital
UNESCO believed these resources could be conduits for necessary to create high- quality content. Part of that process
“universal access to high quality education” at a low financial is ensuring accessibility for the multiple means of engagement,
cost and lead to improved futures for all (UNESCO, 2020). representation, and expression (Hashey & Stahl, 2014; UDL
OER continues to be a burgeoning topic as more colleges and On Campus: Accessibility and Open Educational Resources,
universities use electronic sources and question reliance on n.d.). Quality also requires the inclusion of culturally
expensive textbooks. The higher education community has relevant content for students (Owolabi, 2020). OER advances
identified OER as an alternative to making students pay for discussions about what work is honored by institutions of
pricey texts, proving to be more cost-conscious. higher education. How is OER creation acknowledged in the
tenure and promotion process? What type of compensation
OER has been especially welcomed at community colleges, structure is in place for faculty, staff, and students who work
where some of the most underserved students are concentrated to develop OER? How can states like Illinois pool resources
(Plotkin, 2010; Trainor, 2015). Due to COVID-19, students to form a database of vetted materials used across institutions
and faculty had little access to physical libraries for course in specific disciplines? OER can help facilitate an equitable
reserves. However, electronic access to resources does not pathway for students’ access to critical course materials.
mean they are free and open to the public. Restrictive licenses

22 UPDATE - FALL 2021

This brief will explore these questions and explain why a Achieving the Dream (ATD) launched a large-scale OER
dedicated funding stream will support streamlined OER degree initiative with 38 two-year institutions nationwide.
adoption for Illinois community colleges. Without more These colleges offered 6,600 OER course sections and reached
generous state-level support through allocated funds, OER’s 160,000 students through the initiative, which was projected
potential to alleviate student financial pressures and open to have saved at least $10.7 million in textbook costs. In a
doors to equitable practices will be stunted. survey of nearly 2,500 students, ATD found that 41% agreed
“OER courses will have a significant impact on their ability to
OER Benefits to Community Colleges afford college” (Griffiths et al., 2020, p. 12). Among racially
Part of OER’s allure is its capacity to support an equity minoritized students and Pell Grant recipients, 52% and 48%,
and access agenda. Although publishers offer alternatives to respectively, believed OER supported their capacity to pay for
decrease the prices of textbooks for students, such as e-books, courses. The report suggests these students may “experience a
rental books, used copies, and older editions, each option greater benefit from OER courses” (Griffiths et al., 2020, p.
has limitations. Publishers release new editions and digital 52).
licenses expire, for instance. There is also a high demand for
a short supply of used textbooks (Senack, 2014; United States Students in OER courses perform academically at least as
Government Accountability Office, 2005). well as or better than their peers who are not taking OER
courses (Colvard et al., 2018; Hilton, 2020; Ikahihifo et al.,
According to the U.S. Government Accountability Office 2017). In Colvard et al.’s (2018) study of Pell versus non-Pell
(GAO), textbook costs have increased at twice the rate of
inflation during the last 20 years. The GAO (2005) estimates Emphasizing OER wi
two-year college students spent on average of $886 during dismantling racist and
the 2003-2004 school year. Students are likely paying much
more today. Multiple studies approximate students can spend that marginalize stu
upward of $1,200 per year in textbook costs alone. While inequity by ignor
many students qualify for financial aid, it may not be enough
to finance their academic and personal needs. historically excluded
further
Only more recently have studies centered on OER’s ability to
support historically excluded populations (DeBarger, 2020; recipients who took courses that specifically used OER, both
Jenkins et al., 2018, 2020). Jenkins et al. (2020) studied groups had an increased distribution of B+ to A grades and
700 students attending a California four-year institution. a lower number of students who received B to DFW grades.
The researchers found that textbook costs were an “additive OER-based classrooms tended to see higher grades for “non-
burden” for the participants (Jenkins et al., 2020). When white” and part-time students as well as lower rates of Ds,
aggregated by race, first-generation status, and transfer status, Fs, and Ws. This effect could be influenced by instruction.
their multivariate data demonstrated that “Latinx students Colvard et al.’s (2018) study is also constrained by inadequate
were significantly more likely than white students to avoid race disaggregation and focuses on one four-year institution.
taking classes due to textbook costs and three times more Nonetheless, the findings are intriguing.
likely to report failing a class due to a textbook” (Jenkins et
al., 2020, p. 8). While institutions typically spent near $576,000 for the
program, the savings more than made up for the initial cost.
These challenges can be even more grave for community Not only did students save, institutions did as well. The amount
college students. In Illinois, the community college system institutions recouped ranged between $334,000 to $628,000.
serves over 500,000 students in credit-bearing programs, of ATD estimated that the average unit cost declined from $70
which 46.7% are racially minoritized students (Wilson & to $21 as enrollments in these courses increased (Griffiths et
Ferguson, 2020). During the 2018-2019 school year, 27% of al., 2020). The Washington State Board of Community and
community college students in Illinois received the Pell Grant Technical Colleges (WSBCTC) assessed students similarly
(National Center for Education Statistics, 2020). This number
is not inclusive of students who may be eligible for aid but
unable to access the assistance for multiple reasons.

UPDATE - FALL 2021 23

spent upward of $1,030 on course expenses in addition to Much of OER data do not disaggregate by race, even studies
tuition. It is approximated that students taking open-resource with large sample sizes (Colvard et al., 2018; Ekowo, 2017;
courses saved $96 per course, which amounts to nearly $5 Jenkins et al., 2020). Using OER does not secure an equitable
million over the life of the program. experience for students (DeBarger, 2020; Hodgkinson-
Williams & Trotter, 2018; Lambert, 2018; Veletsianos, 2020;
WSBCTC’s investment included ensuring that instructional Wiley, 2015); scholars interrogate who is at the helm of OER
design teams developed materials and assessments with creation (Veletsianos, 2020).
accessibility for disabled students in mind (Chae & Jenkins,
2016). OER has the potential of also opening space for diverse Without centering BIPOC voices, the opportunity for
voices who are not present in traditional mainstream textbooks exclusion and bias increases (Owolabi, 2020). Those new
(Prescott, 2019; Thomas, 2018; Owolabi, 2020). Specifically, to OER creation may choose to rely on premade material
OER offers the promise of three elements of social justice: already lacking diverse content. Hodgkinson-Williams and
redistribution of resources; recognition of sociocultural Trotter (2018) believe OER “can be problematic if it ends
diversity in curriculum; and representation, speaking to the up propagating hegemonic forms of knowledge and values,
self-determination of groups to voice their stories (Lambert, reinforcing the cultural power and prestige of the knowledge
2018). In its early development outlined by UNESCO, OER domain in which the OER was created rather than that in
was closely aligned to redistributive justice due to the emphasis which it is used” (p. 213). Responsible for much of the
on access for all people, principally those who are traditionally advancement of OER domestically and internationally,
the Hewlett Foundation recently advised that future
ithout a push toward programming must “advance racial equity and social justice”
d ableist mechanisms and be “deliberately anti-racist, inclusive and responsive in
udents and replicate design and approach” (DeBarger, 2020). Practitioners have
ring the voices of mostly implied OER’s focus on redistribution of resources,
d people only causes but the discourse has lacked grounding in other elements of
r harm. justice (Lambert, 2018). As racism and oppression are core
tenants of the U.S. educational system, it likely will extend
marginalized (Lambert, 2018). Scholars have furthered the to a seemingly innocuous technology without a critical,
implications of an equity agenda for institutions through anti-racism lens (Hodgkinson-Williams & Trotter, 2018;
OER. Jenkins et al. (2020) highlight the work of Tidewater Veletsianos, 2020). Emphasizing OER without a push toward
Community College’s OER associate degree program (Hilton dismantling racist and ableist mechanisms that marginalize
et al., 2016), which illustrates “OER’s ability to increase savings students and replicate inequity by ignoring the voices of
for associate’s… degrees, while simultaneously realizing a historically excluded people only causes further harm (Abrica
more socially just college experience” for students (p. 9). et al., 2020; DeBarger, 2020; Welton et al., 2018).

OER Challenges for the Community College As defined by Hashey and Stahl (2014), accessibility also refers
For all the reasons OER can be a powerful tool for equitable to the “extent to which materials are appropriate and usable
practices, it is simultaneously limited. Scholars raise several for students with sensory, physical, learning, and cognitive
questions about quality, efficacy, and the replication of disabilities” (p. 4). If not addressed at the outset of creation,
inequity. While initial reports demonstrate the effectiveness of educational materials are difficult to retrofit for accessibility
OER in classrooms (Colvard et al., 2018; Hilton et al., 2016), later (Hashey & Stahl, 2014). Currently, few depositories
no substantial data exists demonstrating its usage among include options to search for OER based on accessibility
various groups of students, particularly those with disabilities measures and categories. Limited research discusses the
and those of Black, Indigenous, and overall BIPOC (people of availability of authorship tools “to support accessible content,
color) populations (Jenkins et al., 2020; Zhang et al., 2020). which might explain the reasons for having limited OER…
for disabled students” (Zhang et al., 2020, p. 16). Researchers
notice a dearth of scholarship focused on OER’s ability to
facilitate effective learning environments for disabled students
(Moreno et al., 2018; Zhang et al., 2020).

24 UPDATE - FALL 2021

Other issues are prominent within the OER movement. Even importance of OER and take the steps necessary to provide
as conversations about OER continue to expand with a wealth more direct and sustained support to faculty (Plotkin, 2010,
of information available to practitioners, a sizable number of p. 30). According to an Educause report, “Open Education…
faculty and students have never heard about OER (Spilovoy et can help define effective practices and guide more efficient
al., 2020). As mentioned, OER costs nothing for students to development and scaling (Educause, 2018, p. 2). The funding
access, but the creative process is arduous. Faculty members policies ensure OER generation and sustainability. Institutions
who select or develop OER expend considerable hours that created a system-wide strategy of OER implication did so
learning about licensing, certifying accessibility of material, because of provisions by the state boards and legislatures. Two
and addressing latent bias in the material. Currently, there are policy alternatives could aid a comprehensive OER policy:
no uniform means of incentivizing OER production among instituting a grant program and implementing a statewide
faculty. Institutions may offer additional funding, release OER plan.
time, a combination of both, or nothing at all. Researchers
and practitioners emphasize the promise of professional Policy Option 1: Build a Competition-based Funding
credit toward the tenure and promotion process as a likely Grant Model
motivator for greater participation (Cote, 2017; Delimont Studies have demonstrated the need for financial support
et al., 2016; Griffiths et al., 2020; Plotkin, 2010; Senack & for OER creation (Butcher, 2012; Educause, 2018; Griffiths
Donoghue, 2016; Spilovoy et al., 2020), yet institutions have et al., 2020; Plotkin, 2010). Griffiths et al. (2020) outlined
not responded in kind. the initial costs to begin and maintain comprehensive
OER programming through ATD. However, institutions
According to the ATD report, the largest cost driver for capitalized on savings and ultimately decreased costs later.
creating OER was in the course’s actual development. Time Part of the structure of this program should prioritize projects
and cost were determined by reviewing aggregated time logs led by BIPOC. The accountability process should align with
every six months. Value for the time was calculated based the William + Flora Hewlett Foundation, which requires
on salary data combined with student course enrollment institutions to identify how programs will ensure equitable
information (Griffiths et al., 2020). Much of the cost was in practices and encourage greater numbers of content creators
salary and benefits, averaging $12,600 across five participating of color. A benefit to the competitive funding model is that
community colleges. The median cost was $7,500. Expenses it demonstrates support for OER but requires less concerted
dramatically increased if institutions employed an open online effort than more extensive systemic reform. It could be a
learning technology (MyOpenMath or Lumen’s WayMaker). viable first step. The grant should stipulate how institutions
will address compensation, promotion, accessibility, and other
On average, it took 180 hours to develop one OER course. OER issues. Because the competitive funding model does
This work encompassed creating and revising content, not dictate how institutions facilitate their OER initiatives,
assessing quality, working on course refinement, and other colleges can spearhead programming specific to their context.
administrative tasks and meetings. On average, institutions
directed $250,000 per year in the first two years toward Creation of this program also opens the opportunity by
developing infrastructure, including fostering a team of the Illinois Community College Board to apply to federal
instructional designers, librarians, and interested faculty. grants such as the Open Pilot Program (U.S. Department of
While “ongoing costs of supporting an OER degree pathway Education Office of Postsecondary Education, 2020). Some of
after the grant are difficult to determine, authors expect the most successful policies required all educational materials
maintenance costs to include “course revisions, monitoring created as a result of the funding to have an open license under
and reporting on OER activity, and possibly scaling the use of Creative Commons. A noticeable downside to this option is
OER materials to other colleagues or departments” (Griffiths the question of whether a competitive grant will ensure that a
et al., 2020, p. 31). broad base of students has access to OER in their classrooms.

Policy Alternatives Policy Option 2: Develop Statewide OER Adoption Model

In order for OER to live up to its capability of broadly Another policy option follows the WSBCTC model (Chae
supporting low-income students, financial backing from & Jenkins, 2015, 2016). Over several years, the WSBCTC
statewide governing boards is crucial. OER has grown developed a statewide agenda: writing policy that supports
tremendously from its initial progression but will continue producing a library of vetted OER that are openly licensed
to be incomplete in scope until “increased numbers of and specific to 81 high-enrollment gateway courses at 34
higher education policymakers understand and recognize the community colleges within the system. The board first created

UPDATE - FALL 2021 25

a strategic technology plan codifying a desire to cultivate a lack of clarity around related rewards. Flexible policies that
“culture and practice of using and contributing to open shift the default setting to “open” can raise awareness and
educational resources” (Chae & Jenkins, 2016; Washington nudge behavior without invoking concerns about academic
State Board for Community & Technical Colleges, 2010; freedom” (Educause, 2018, p. 2). Training can be useful
Washington State Board of Community and Technical for administrators and other stakeholders to learn about the
Colleges, 2008). The plan was a formal response to an opportunities OER offers.
18-month analysis conducted by the board to establish its
technology goals; a special task force led it in 2007. WSBCTC Conclusion and Recommendations
received sizable grants of $750,000 from the Washington State Illinois can lay the groundwork for a more consistent
legislature to develop an open-course library. To support OER adoption of OER statewide. Both approaches—a competitive
course expansion, the board hosted trainings and created a grant program and systemwide investment in a standard
comprehensive step-by-step guide per faculty feedback. OER resource library for general education courses—
WSBCTC sought faculty feedback and the faculty shared offer flexible options and communicate support that aligns
concerns about properly attributing material, so the board with national interests (U.S. Department of Education
sanctioned the creation of an “attribution builder” to help ease Office of Postsecondary Education, 2020). Implementing a
the process. The board learned “a big systemic change can be combination of both may be advantageous to Illinois. Starting
achieved from simply removing a small but critical obstacle” by developing the grant program to gauge how institutions
(Chae & Jenkins, 2016, p. 220). are using and encouraging OER’s development could be a
foundation for a broader strategy that would take more time
Akin to Washington State, Illinois can follow a path similar to implement appropriately. Either option sends a message
in scope. Widespread adoption along with accompanying that Illinois is invested in its community college system and
financial and training provision means more students can its students’ well-being.
access OER. A statewide effort will be time-consuming and
initially costly. It is noteworthy that policy does not guarantee Nina Owolabi can be reached at [email protected].
a culture shift. Still, “development of open education policy
can be hindered by a lack of consensus about OER…and a

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28 UPDATE - FALL 2021

Editor-at-Large: Eboni M. Zamani-Gallaher
Managing Editors: Eboni M. Zamani-Gallaher and Sal Nudo
Copy Editor: Sal Nudo
Graphic Designer: Jason A. Keist