2011 Report to the Legislature: Credit for Prior Learning Experience in Washington Executive Summary The Higher Education Opportunity Act (E2SHB 1795), passed by the Legislature in 2011, identified prior learning assessment (PLA) as an innovative means for improving degree and certificate attainment and improving cost effectiveness and efficiency within Washington’s higher education system. The Act defines prior learning as “the knowledge and skills gained through work and life experience; through military training and experience; and through formal and informal education and training from in-state and out-of-state institutions including foreign institutions.” Research supports the benefits of awarding credits for prior learning. A 2010 nationwide study of 62,000 students found that it has a positive impact on student persistence and completion, especially for Hispanic and African American students. A report based on the research also concluded that awarding prior learning credits establishes a value on learning acquired by students on their own, helps identify additional knowledge they will need in order to achieve their personal goals, and cuts tuition costs by reducing the number of courses a student is required to take. The legislation directed the HECB to convene an Academic Credit for Prior Learning Work Group to address goals outlined in the legislation. The HECB convened the work group, which was comprised of a broad range of stakeholders, in February 2011. The work group reviewed earlier work on prior learning and examined evolving national and state best practices. It also reviewed current practices for assessing learning outcomes achieved through prior learning, and the practices used by Washington institutions to award college credit for prior learning. The work group made progress in the following areas: 1. Developed common definitions of prior learning and prior learning assessment. Every college and university in Washington has some form of assessment for prior learning. A clear set of common definitions was developed that allows for the use of a variety of assessment methods: standardized tests such as the College Level Examination Program (CLEP) and Defense Activities for Non-traditional Education Support (DANTES), course challenge examinations, portfolio assessment, and crosswalks between work force training and college courses. Common definitions were required in order to develop a consistent method of tracking PLA, including outcome measures for goals outlined in legislation. The first report of outcomes will be published December 2012. Credit for Prior Learning Experience in Washington Page 2 of 19 2. Identified primary campus contacts and convened a statewide conference. A one day conference of 93 Primary Contacts and additional college faculty and staff was convened to share the PLA work group’s progress. Information shared with campus representatives included current practices across the state, a proposed cost analyses, and set the agenda for implementation of recommendations across the system. The Primary Contact is being published on college and university websites, and a complete list is available on agency sites. 3. Reviewed PLA best practices and produced tools for faculty and staff development. National and state best practices were reviewed. A new survey identified how PLA is being implemented on baccalaureate campuses in Washington. The WA-Prior Learning Assessment web page ‘wiki’ is used as a forum for work group members and is now open to everyone interested in work group progress. The wiki collects and shares research, best practices, training materials, and resource documents. 4. Evaluated options for consistently tracking data. Data gathering processes do not currently exist across the system. The work group identified data gathering requirements and reviewed options. 5. Developed PLA cost recommendations. An assessment of current costs for PLA was completed by the State Board for Community and Technical Colleges, and recommendations were developed that could be applied broadly across the system. 6. Reviewed work-based and other common training programs and developed a template for career categories or clusters to assist in establishing program articulations. A mechanism was developed through the Centers of Excellence to begin crosswalks between work-based learning and community and technical college courses. Additionally, examples for each career cluster were developed that will aid in establishing more articulation agreements. 7. Initiated policy discussions with the regional accrediting association regarding acceptance of PLA credit. The Northwest Commission on Colleges and Universities (NWCCU) was contacted regarding revisions to policies that limit acceptance of experiential learning course credits. Work Group Goals for 2012 The work group continues to develop recommendations for achieving goals identified in legislation that ensure more adult learners efficiently move through postsecondary education and enter the workforce well-prepared. Goals for 2012 include: 1. Develop and implement a tracking system for PLA students and credits. 2. Increase transparency and consistency of information available to students and stakeholders, faculty and staff. Develop a handbook for faculty. 3. Refine the cost analysis and fee structure for providing PLA at community and technical colleges and baccalaureate institutions. 4. Research and develop recommendations for financial aid options to support students pursuing PLA. 5. Increase recognition and acceptance of credit towards general education requirements based on nationally recognized and standardized examinations. 6. Explore options with the regional accrediting association (NWCCU) regarding experiential learning courses and credit acceptance. E2SHB 1795 directed the HECB to annually report progress on the goals and outcome measures. Progress will be reported to Legislative Higher Education Committees in December 2012. Credit for Prior Learning Experience in Washington Page 3 of 19 2011 Report to the Legislature: Credit for Prior Learning Experience in Washington Introduction The Higher Education Opportunity Act (E2SHB 1795), passed by the Legislature in 2011, identified prior learning assessment (PLA) as an innovative means for improving degree and certificate attainment and improving cost effectiveness and efficiency within Washington’s higher education system. The Act defines prior learning as “the knowledge and skills gained through work and life experience; through military training and experience; and through formal and informal education and training from in-state and out-of-state institutions including foreign institutions.” Research supports the benefits of awarding credits for prior learning. A 2010 nationwide study of 62,000 students found that it has a positive impact on student persistence and completion, especially for Hispanic and African American students. A report based on the research also concluded that awarding prior learning credits establishes a value on learning acquired by students on their own, helps identify additional knowledge they will need in order to achieve their personal goals, and cuts tuition costs by reducing the number of courses a student is required to take. A 2010 Council for Adult Experiential Learning (CAEL) study involved 62,000 students at 48 institutions across the United States.1 Highlights from a 2011 CAEL report2 reviewing this research concluded: • Students who are awarded credit for prior learning are more likely to persist and complete. • Hispanic students who received credit for prior learning earned Bachelor’s degrees at a rate nearly eight times that of Hispanic non-PLA students. • Awarding PLA credit decreases time to degree, with the most dramatic decrease in Black, non-Hispanic students. CAEL’s benchmarking study3 found that awarding credit for prior learning • Validates the worth of learning students have achieved on their own. • Identifies what students need to learn in order to achieve their personal, career, or academic goals. • Shortens the time necessary to earn a college credential. • Saves tuition by reducing the number of required courses. 1 Brigham, C. and Klein-Collins, R. Availability, Use and Value of Prior Learning Assessment within Community Colleges. July 2010. Retrieved from http://www.cael.org/pdf/PLA_CommunityColleges.pdf 2 Klein, Collins, R. Underserved Students Who Earn Credit Through Prior Learning Assessment (PLA) Have Higher Degree Completion Rates and Shorter Time-to-Degree. April 2011. Retrieved from http://www.cael.org/publications/get_article.php 3 Council on Adult and Experiential Learning. 1999. Serving Adult Learners in Higher Education: Findings from CAEL’s Benchmarking Study Credit for Prior Learning Experience in Washington Page 4 of 19 E2SHB 1795 directed the HECB to convene an Academic Credit for Prior Learning Work Group comprised of a broad range of stakeholders to address the following goals: • Increase the number of students who receive academic credit for prior learning and the number of students who receive credit for prior learning that counts towards their major or towards earning their degree, certificate, or credential, while ensuring that credit is awarded only for high quality, course-level competencies. • Increase the number and type of academic credits accepted for prior learning in institutions of higher education, while ensuring that credit is awarded only for high quality, course- level competencies. • Develop transparent policies and practices in awarding academic credit for prior learning. • Improve prior learning assessment practices across the institutions of higher education. • Create tools to develop faculty and staff knowledge and expertise in awarding credit for prior learning and to share exemplary policies and practices among institutions of higher education. • Develop articulation agreements when patterns of credit for prior learning are identified for particular programs and pathways. • Develop outcome measures to track progress on the goals outlined in this section. E2SHB 1795 directed the HECB to annually report progress on the goals and outcome measures. The remainder of this report summarizes progress made by the work group in 2011, and identifies work to be accomplished in 2012. Credit for Prior Learning Experience in Washington Page 5 of 19 Progress on Goals Established in E2SHB 17954 1. Definitions of Prior Learning and Prior Learning Assessment were developed a. Legislative Goal Area: Transparent policies and practices b. 2011 Outcome: A single definition of Prior Learning and Prior Learning Assessment was developed. The work group determined that before we could move forward with other goals of ESSHB 1795, operational definitions of ‘Prior Learning’ and ‘Prior Learning Assessment’ acceptable to all stakeholders were required. ESSHB 1795 established a general definition for prior learning – “the knowledge and skills gained through work and life experience; through military training and experience; and through formal and informal education and training from in-state and out-of-state institutions including foreign institutions.” In the broadest sense, options for prior learning assessment can include: 5 1. Direct transfer and awarding of credit from an accredited college or university.6 2. Awarding of credit for taking nationally-recognized standardized examinations like: a. AP - Advanced Placement Examinations administered by the College Board b. IB – International Baccalaureate administered by the International Baccalaureate Organization c. Cambridge Examinations administered by the University of Cambridge International 3. Awarding credit for taking other nationally-recognized standardized examinations that assess content knowledge of college level courses or examinations established by academic units. Examples include: a. CLEP - College-Level Examination Program administered by the College Board b. DANTES Subject Standardized Tests program (DSST) administered by the Educational Testing Service c. ACT/PEP - The American College Testing Proficiency Examination Program 4. Course challenge examinations sponsored by college and university departments. 4 A wiki was created to facilitate work of the group. Reference materials, source documents, meeting minutes, and collaborative activities are located on the PLA Wiki and can be accessed by anyone interested in PLA in Washington at http://wa-priorlearningassessment.wikispaces.com/. 5 Gambescia, S.F. & Dagavarian, D. (2007). Review of prior learning assessment options for adult continuing education degree programs. Journal of Continuing Higher Education, 55 (3), pp. 35-48. 6 Although included in the broadest definition of ‘prior learning,’ transfer credit for course work completed at a previous institution was not considered for prior learning assessment by the work group. National standards and practices for transfer credit evaluation used by all institutions in Washington follow guidelines outlined in a Joint Statement on the Transfer and Award of Credit available at http://www.acenet.edu/Content/NavigationMenu/ProgramsServices/CLLL/Credit_Transfer.pdf . Credit for Prior Learning Experience in Washington Page 6 of 19 5. Awarding of credit in advanced standing for Educational Credit by Examinations recognized by the American Council on Education (ACE). Options include: a. Military formal courses and/or occupations b. Other formal and well documented training programs conducted by non-collegiate sponsors c. University of the State of New York Board of Regent’s National Program on Non-collegiate Sponsored Instruction (National PONSI) d. International Association for Continuation Education and Training (IACET) 6. Awarding of credit or advanced standing from Portfolio Assessment. a. The portfolio is a complex written document through which a student assesses learning from prior work/life experience and demonstrates that this learning meets the substantive theoretical and practical learner objectives commensurate with a college-level course. b. Experience, per se, does not necessarily mean learning took place. Credit is awarded for learning and not simply for experience. The Council for Adult Experiential Learning (CAEL) references Prior learning assessment (PLA) as a term used to describe “the process by which an individual’s experiential learning is assessed and evaluated for purposes of granting college credit, certification, or advanced standing toward further education or training.”7 ESSHB 1808 (the Launch Year Act) was adopted by the 2011 Legislature and addressed dual enrollment/dual credit programs that include: • Advanced Placement (AP) • International Baccalaureate (IB) • University of Cambridge International Examinations • Early College • Gateway to College • Running Start • Technical College Direct Funded Enrollment Programs • Tech Prep The work group determined that dual enrollment/dual credit programs, although considered prior learning assessment in the broadest sense, did not meet the intent of ESSB1795 and would be excluded from our definition. Clear definitions of PLA were necessary to develop a consistent method of tracking PLA and begin developing outcome measures for goals outlined in ESSHB 1795. The definitions include flexibility to allow for a variety of assessment methods. 7 http://cael.org/home accessed December 12, 2011. Credit for Prior Learning Experience in Washington Page 7 of 19 Definitions8 Prior Learning is the knowledge and skills gained through work and life experience; through military training and experience; and through formal and informal education and training from in-state and out- of-state institutions including foreign institutions. Prior Learning Assessment is accomplished through standardized tests (i.e. CLEP and DANTES), course challenge examinations, portfolio assessment, and crosswalks between work-based learning and college courses. 2. Primary Contacts at all institutions in Washington were identified and published a. Legislative Goal Areas: Develop transparent policies and practices, improve PLA practices, create tools and share practices, develop articulation agreements, and develop outcome measures b. 2011 Outcomes: Primary Contact identified for each college/university, information posted to web pages, and convened the first meeting of Primary Contacts The first recommendation of the 2010 SSB 6357 work group was to identify a Primary Contact (PC) on every campus for students interested in Prior Learning Assessment. In 2010, fewer than half the institutions surveyed in Washington were able to identify a primary contact for PLA. As of November 2011, at least one primary contact was identified for colleges and universities in Washington: • 42 at Community and Technical Colleges • 10 at Public Baccalaureates • 29 at Private Baccalaureates (including for-profit and non-profit institutions) As mentioned previously, the work group is comprised of 68 members that are points of contact within their sectors for information regarding PLA. The work group convened the first gathering of all Primary Contacts on November 15, 2011.9 Colleges and universities were encouraged to send teams of participants that included the Primary Contact, faculty, and representatives of enrollment services units that process and record PLA credits. More than 90 participants attended this full-day conference where work group members shared their progress, informed campus representatives of current practices and future plans, reviewed the cost analyses, learned of mechanisms for creating articulation agreements and of crosswalk development by the Centers of Excellence and Veterans programs, and found resources for continued support (e.g. training materials, website development). Teams of participants identified which recommendations they would implement first on their campus and the first action they would take. Participants also provided feedback that helped set the agenda for follow-up meetings requested by those in attendance. 8 Further information is available in Appendix B and on the Washington-PLA Wiki located at http://wa- priorlearningassessment.wikispaces.com/. 9 The November 15th Conference agenda, results of participant input on PLA expansion in Washington, and a roster of Primary Points of Contact are available on the Washington-PLA Wiki located at http://wa- priorlearningassessment.wikispaces.com/. Credit for Prior Learning Experience in Washington Page 8 of 19 Primary Contacts are being posted to college and university websites, online at both the HECB and SBCTC PLA sites, and on the WA-Prior Learning Assessment wiki.10 3. PLA Best practices were reviewed and tools produced for faculty and staff development. a. Legislative Goal Areas: Develop transparent policies and practices in awarding academic credit for prior learning, improve prior learning assessment practices across the institutions of higher education, create tools to develop faculty and staff knowledge and expertise in awarding credit for prior learning, and share exemplary policies and practices among institutions of higher education. b. 2011Outcomes: System wide policies and practices were reviewed. A wiki was developed that includes: current policies, examples of national research and best practices, multimedia presentations, reference materials, and training aides. The work group was fortunate to hear several presentations and have ongoing dialog with Amy Sherman of the Council of Adult Experiential Learning (CAEL). Presentations included national best practices, results of extensive nationwide research studies demonstrating the value of PLA, and ongoing discussions on improvements in the expansion of PLA nationally and in Washington. In addition, best practices by institutions in Washington were reviewed, including presentations by: Edmonds Community College, Highline Community College, Whatcom Community College, Bellevue College, South Seattle Community College, Pierce College, City University, Eastern Washington University, private colleges and universities represented by the Independent Colleges of Washington, and Western Governors University (WGU) Washington. This research set a foundation for work group progress and informed progress in all other goal areas. A survey of practices at the community and technical colleges was completed in 2010 by the previous work group. In late 2011 baccalaureate institutions were surveyed to determine how PLA was being implemented at each institution. Results will be reviewed by the work group in February 2012 and will help guide further development of transparent PLA policies in Washington. An online ‘wiki’11 established a place for Washington Prior Learning Assessment work group members to collect background information and resources, and become the online center for sharing information and training materials across the system. The site is actively used by work group members to discuss issues, add new information and comment on proposals, and provide new resource documents and training materials. The wiki was originally developed for use by group members as a means of expanding collaborative work. The wiki was opened to anyone interested in PLA in Washington in December 2011to improve transparency and provide tools for all faculty and staff. The wiki is not static – it is a living and evolving resource of information for all interested in moving PLA forward in Washington and is continuously updated with new information. 10 The Washington-PLA Wiki is located at http://wa-priorlearningassessment.wikispaces.com/ 11 A “wiki” (Hawaiian word meaning fast or quick) is a website whose users can add, modify, or delete content via a web browser. Wikis are created collaboratively by multiple users. Credit for Prior Learning Experience in Washington Page 9 of 19 4. Data gathering processes do not currently exist across the system. Options for a consistent method of tracking data were evaluated. a. Legislative Goal Areas: Develop a process to measure legislative goals to increase the number of students receiving PLA and number of PLA credits accepted towards degrees, certificates or credentials. b. 2011 Outcome: Colleges are looking at their systems and determining identification and measurement tools. The work group is researching options. The 2010 SSB 6357 report identified the following challenge regarding data collection: • Coding and tracking: PLA is virtually impossible to track. Currently in the community and technical colleges, PLA is noted in the comments section of student transcripts, but with no conformity. This makes it extraordinarily difficult to obtain accurate numbers of students who are receiving PLA and for which courses. A survey of community and technical colleges conducted in 2010 by the SSB 6357 work group indicated that they were unable to provide data because there was no tracking mechanism in place for PLA. A 2011 survey of baccalaureate institutions determined a variety of methods being used to award PLA credit but did not identify a methodology for reporting PLA data. Both surveys supported the need for a consistent, clear definition of PLA in Washington in order to develop data tracking methods. Discrete data elements do not exist in the Public Centralized Higher Education Enrollment System (PCHEES)12 used to collect data for the public baccalaureate. Likewise, data elements specific to PLA students or credits do not exist in the Data Warehouse that is used to collect data for community and technical colleges. Primary Contacts attending the November 15th Conference responded to the question: “Which of the PLA work group recommendations would you most like to implement on your campus,” by saying that their top priority was development of a consistent method of tracking PLA credit, including a database for collecting PLA participation data. As mentioned previously in this report, a single definition was developed by the work group and we are now moving forward to determine processes to collect data that describe the number of students receiving PLA credit and the number of PLA credits accepted towards degrees, certificates or credentials. 12 The Office of Financial Management (OFM), in partnership with Washington state public four-year higher education institutions and the Higher Education Coordinating Board (HECB) created PCHEES in 1998 to collect data from the four- year public baccalaureate institutions. PCHEES has recently been updated. Credit for Prior Learning Experience in Washington Page 10 of 19 5. A cost study to determine clear and consistent fee structures for PLA options was completed by SBCTC. Recommendations were developed. a. Legislative Goal Areas: Improve PLA practices across institutions, develop transparent policies, and share exemplary practices b. 2011 Outcome: A clear and consistent fee structure with options was developed and is being shared for review by institutions in all sectors The Community and Technical College system investigated a standard approach to recovering the costs for specific methods of prior learning assessment: • Portfolio review • Formal examinations • Practical assessments or demonstrations of skills • Oral interviews Discussions by leaders within the community and technical college system produced the following assumptions used in developing this cost analysis: 1. There is no standard for this work and multiple forms of assessing prior learning credit based on the unique experiential background of students that seek this service are required 2. Faculty hold the core competency for making prior learning assessments 3. Students are expected to save both time (fewer courses to take) and money (less tuition and fees paid and fewer textbooks purchased) 4. Institutions will not necessarily save money (state allocations). Currently, student demand exceeds course supply. Any savings achieved by requiring fewer courses for any one student will be applied to meeting unmet demand 5. Increased application of PLA needs to be cost-neutral and will require a fee structure for the colleges to recover costs of significantly more assessments. These assessment methods were analyzed to understand average time and resources consumed in the assessment, average credits awarded following each assessment, and how the colleges currently charge students for prior learning assessments. The study recommended that a consistent method for determining fees for assessing prior learning be adopted across the higher education system. Cost recovery for prior learning assessments should include • Direct costs unique to the assessment process. This is the proportional share of faculty salary and benefits dedicated to the assessment • Indirect costs - the proportional share of costs directly associated with supporting faculty in their role as prior learning assessment leaders. Facilities and grounds, libraries, and targeted academic programs (e.g. corrections education) are excluded from the indirect cost allowance.