"Unjustified use of Algebra 2"

The U.S. Department of Education organized a meeting (“California Math Convening: Gateways to Access – May 31, 2016”) to discuss California's use of Algebra 2 (a.k.a. Intermediate Algebra) in higher education. The meeting was held at the chancellor's office of the California State University (CSU) system. The participants included representatives from the CSU, the University of California, the California Community Colleges, K-12 educators, and educational policy organizations.

The meeting was the DOE's response to a September 30, 2015 letter from Christopher Edley, Jr., to the Catherine Lhamon, Assistant Secretary of Civil Rights, U.S. Department of Education. The letter begins with:

“I write to request that your office investigate the educationally unjustified use of Algebra 2 as a gateway course by all three segments of California’s higher education system: the University of California system; the California State University system; and the California Community College system. There is evidence to suggest that, in varying ways, these institutions have adopted policies and practices that impose a disparate impact on protected groups in violation not only of the equal protection clause of the California State Constitution, but also in violation of federal regulations implementing Title VI of the Civil Rights Act of 1964.”

The letter cites the success of Statway, a project of the Carnegie Foundation for the Advancement of Teaching, as evidence that Intermediate Algebra is not actually necessary for success in completing math requirements for baccalaureate degrees in some majors. The letter concludes with:

“If there are villains here, they are the indifference and inertia that confirm and perpetuate unequal educational opportunity. I believe this discrimination is, for the most part, without animus. Regardless, the injury is real.” 

At the meeting, Christopher Edley Jr. explained that neither intent nor a history of practice would be considered relevant when determining if there is a violation of the Civil Rights Act. The presence of both Catherine Lhamon and also the Under Secretary U.S. DOE, Ted Mitchell, made abundantly evident that the DOE wants California's higher education community to recognize and address the issue.

Another speaker was William McCallum, mathematician with numerous distinctions including being one of the three lead writers of the Common Core State Standards in Mathematics (CCSSM). Bill explained that because College Algebra was the de facto mathematics requirement in U.S. baccalaureate granting institutions at the time of writing the CCSSM, the document needed to include the math that would lead to College Algebra, namely Algebra 2. He commented that it is  inappropriate for colleges or universities to cite the CCSSM to define what is currently needed to be college ready--it makes no sense to argue against modifying college math requirements based on the content of the CCSSM, as the CCSSM were created trying to reflect what the earlier college math requirements had been.

The U.S. DOE evidently intends to hold another such meeting in 3 or 4 months to check on what progress has been made.

Strategies to help developmental math students

Nationally about 70% of incoming community college students are placed into developmental (a.k.a. “remedial” or “foundational”) math classes that earn no college degree credit. But only 10% of these students successfully move past developmental math to earn their degrees.

Four broad areas are being addressed to increase student success through developmental mathematics (1) Placement, (2) Pedagogy, (3) Curriculum, and (4) Student attitudes.

Improving Placement

Failing a class is not the only barrier to completion--the length of the developmental math path defeats many students. More developmental math students drop out of college without ever failing a math class than flunk out of math. One strategy to reduce the number of “exit points” is to help students place into as high a math level as reasonable.

For example, Cañada College uses its Math Jam both as an intensive preparation for the math placement exam and also as a recruitment tool to get more students into STEM fields.

The placement instrument itself, typically a machine-graded standardized test, can be augmented or replaced.  High school GPA, recency of the previous math course, weekly work hours, and total course load could be part of “multiple measures.” Some schools have abandoned placement into developmental math courses, typically offering supplementary resources for students in credit-bearing classes.

Modifying Pedagogy

James Stigler lists three key types of learning opportunities that students need to experience to become flexible learners: productive struggle, explicit connections, and deliberate practice.

Modularized courses can allow students to spend time only on topics they need to study. The Emporium Model relies on software to do the pretest, primary instruction, and mastery testing, with human interaction largely limited to one-on-one tutoring in the computer lab (where students work lessons and take assessments). The University of Illinois uses software for placement and remediation, and California State University Northridge uses software as part of its hybrid lab remediation for students considered “at risk.”

Technology also plays a key role in both MOOCs (Massive Open Online Courses) and the “flipped” classroom. However, the “MO” aspects of MOOCs appear not to improve student success compared with the online developmental math courses that have existed for decades.

Another way to address the attrition between courses in a sequence is to offer “compressed” courses. The students take two courses during one term, but each course meets the standard number of hours per term--students are essentially immersed in math, which comprises most or all of their studies for that term.

Adjusting the Curriculum

The American Mathematical Association of Two-Year Colleges (AMATYC) has a 2014 position paper that states, “Prerequisite courses other than intermediate algebra can adequately prepare students for courses of study that do not lead to calculus.”

There are numerous “pathways” that have been created to allow developmental math students to pass a transferable math course--typically statistics or a quantitative reasoning course--that do not require many topics typically associated with intermediate algebra. The pathways normally reduce the number of developmental math courses required before earning transferable math units.

• Path2Stats is part of the California Acceleration Project, based on a program developed by Myra Snell at Los Medanos College.
• Statway and Quantway are projects of the Carnegie Foundation for the Advancement of Teaching.
• The Dana Center’s Math Pathways include pathways for both STEM and non-STEM students.
• Mathematical Literacy for College Students (MLCS) and Algebraic Literacy grew out of an AMATYC project. They can serve as alternatives to beginning and intermediate algebra classes for STEM majors, or the MLCS  can serve as prerequisite for a transferable non-STEM math course.

Addressing student attitudes

The “affective domain” includes attitudes, values, beliefs, interests, and motivation.

Carol Dweck’s research indicated that students (from grade school through graduate school) with “growth mindsets” persist and succeed better than peers with “fixed mindsets”. And importantly, students can learn to move from a fixed mindset to a growth mindset.

David Yeager’s research suggests that the performance gap in math--specifically developmental math--suffered by women and other underrepresented groups can be eliminated by specific brief interventions.

City University of New York's Accelerated Study in Associate Programs (ASAP) is an initiative that does not attempt to modify what occurs in the classroom. ASAP stipulates full-time enrollment and provides participants with academic advisement, career services, tutoring, financial supports, specially blocked or linked courses.

Common Core Goes to College

The New America Foundation’s position paper by Lindsey Tepe gives recommendations for how higher education can support the Common Core State Standards. However, this paper and related articles in the Chronicle  and Hechinger Report  miss the most important way for higher education to support the CCSS, namely, to work to repair or ameliorate the existing flaws in the CCSS. 

An implicit assumption in Tepe's paper is that the CCSS have successfully captured what all students need to be college and career ready. If the assumption is false, the paper is advocating moves to change higher education to accommodate inappropriate standards, changes that could harm students and impede their paths to college degrees.

The CCSS have missed the mark at what is necessary for all students to succeed in college.

Many of the non-plus CCSS are currently introduced to students in credit-bearing courses of baccalaureate granting institutions. That is, the CCSS overshoots what is needed to be ready for college and includes topics that are part of what some college students need to learn while in college.

The intent of the CCSS was to help get students college (and career) ready. It is an abuse of the CCSS to use those standards as an opportunity for colleges and universities to raise admissions and/or degree requirements, and that abuse will work against the goal of giving more students the opportunity to earn college degrees.

Math Initiatives for Student Success

The LearningWorks paper Changing Equations: How Community Colleges Are Re-thinking College Readiness in Math, written by Pamela Burdman, is a nice summary of current initiatives attempting to help capable students negotiate developmental math needs to succeed in transfer-level mathematics.

Much of the paper discusses the strategy of alternative pathways. In this strategy, students pass a course that is identical to, or has the same content and rigor of, accepted transfer math courses, but instead of first passing an intermediate algebra course, the students take a math course designed specifically to prepare them for the transfer course—that preparatory course omits some standard topics of intermediate algebra which are not necessary to succeed in the transfer math course.

The initial data on alternative pathways, some cited in Changing Equations, show that a much higher percentage of students initially placed in a developmental math course can pass a transfer level math course following an alternative pathway than by following the traditional chain of prerequisites. 

But both the University of California and the California State University systems require that intermediate algebra be a prerequisite for any transferable course. Keeping the intermediate algebra prerequisite based on the data that have shown success in intermediate algebra is a predictor of college success is, as pointed out in Changing Equations, following the error of confusing correlation with causation, and in fact the widespread practice of requiring success in intermediate algebra (a.k.a. Algebra 2) as a admissions requirement virtually guarantees the high correlation that has been often noted.

More on Alternative Pathways and transferability in California

California's adoption of the Common Core State Standards in Mathematics (CCSSM) helps to shape the expectations of universities regarding the mathematical background of their incoming students.

The July 2013 statement (http://senate.universityofcalifornia.edu/committees/boars/BOARSStatementonMathforAllStudentsJuly2013.pdf) from the University of California's Boards of Admissions & Relations with Schools (BOARS) comments that most California Community Colleges (CCCs) continue to use "traditional Intermediate Algebra (i.e., Intermediate Algebras as defined prior to CCSSM implementation)" as prerequisite to a transferable mathematics course.

The BOARS statement continues, "Specifying that transferable courses must have at least Intermediate Algebra as a prerequisite is not fully consistent with the use of the basic mathematics of the CCSSM as a measure of college readiness...Requiring that all prospective transfer students pass the current version of Intermediate Algebra would be asking more of them than UC will ask of students entering as freshmen who have completed CCSSM-aligned high school math courses. As such, BOARS expects that the Transferable Course Agreement Guidelines will be rewritten to clarify that the prerequisite mathematics for transferable courses should align with the college-ready content standards of the CCSSM."

Meanwhile, the Academic Senate of California Community Colleges (ASCCC) has endorsed the CCSSM, but has no formal position on alternative pathways.  A Fall 2012 resolution to support innovations to improve success in under-prepared non-STEM pathways was referred to the executive committee.  However, former ASCCC president Ian Walton did publish in the ASCCC Rostrum an opinion (http://asccc.org/content/alternatives-traditional-intermediate-algebra) that "The wide range of conversations demonstrates that a strong case can be made for the exploration and implementation of alternative preparations for transfer level math courses that differ from the content of the traditional intermediate algebra course."

Alternative Pathways and transferability in California

California is home to the Carnegie Foundation for the Advancement of Teaching, the current force behind two pathway projects:  Statway and Quantway. 

An underlying assumption behind alternative pathways is that mathematics requirements for degrees and/or certificates should vary according to discipline. California's Student Success Task Force report contends, "Improved student support structures and better alignment of curriculum with student needs [Emphasis added] will increase success rates in transfer, basic skills, and career technical/workforce programs." The National Center on Education and the Economy 2013 report, "What Does It Really Mean to Be College and Work Ready?" states, "But our research...shows that students do not need to be proficient in most of the topics typically associated with Algebra II and much of Geometry to be successful in most programs offered by the community colleges."

The Carnegie Foundation, The Charles A. Dana Center at U.T. Austin, and the California Community College Success Network (3CSN) all promote alternative pathways to allow students in non-STEM disciplines an option of completing a university-transferable mathematics course without requiring the students to demonstrate completion of an intermediate algebra course.

The two California university systems, the University of California (UC) and the California State University (CSU) have been cautious in embracing the idea of alternative pathways in California Community Colleges (CCCs).

One pathway strategy is to provide students with an alternative  prerequisite to an existing transferable statistics class.  The alternative prerequisite does not have all traditional intermediate algebra topics and does not have elementary algebra as prerequisite. And in response to this strategy, Nancy Purcille of the UC Office of the President sent a March 7, 2013 email to CCC articulation officers:

"The prerequisite for UC-transferable math courses continues to be intermediate algebra or equivalent.  No attempt at this time will be made by UC to define specific content/courses that may be deemed “valid” alternate prerequisites.  When submitting a course for TCA review, if CCC faculty propose a prerequisite that they judge to be the equivalent of intermediate algebra, then UCOP articulation analysts will treat the prerequisite as such and evaluate the course outline as usual.  UC will not be evaluating the prerequisites listed – unless it is jointly requested by the CCC and UC faculty."

This position appears to respect the tenet that the community college should be able to decide the appropriate developmental math required to prepare its students for the articulated transfer-level math course.

The CSU provided a different position to accommodate alternative pathways.   Ken O'Donnell of the CSU Office of the Chancellor sent a November 2, 2012 email to CCC articulation officers that appeared to be discouraging alternative pathways:

"Please take this email as a reminder that only courses with a full prerequisite of intermediate algebra, as traditionally understood, will continue to qualify for CSU Area B4 [math/quantitative reasoning requirement to transfer].

"The CSU has made a recent exception for the Statway curriculum, under controlled and very limited circumstances, so we can evaluate whether other approaches will satisfactorily develop student proficiency in quantitative reasoning.  In the meantime, we count on the articulation community to uphold the current standard."

But Ken O'Donnell sent an April 2013 email acknowledging without objection the strategy of keeping the intermediate algebra the official prerequisite for the transfer math course but facilitating CCC student challenges to that prerequisite.

The CSU Chancellor’s General Education Advisory Committee has looked into this use of the prerequisite challenge process, and determined that it has no grounds to comment.  How community colleges meet curricular requirements that are below baccalaureate level is up to the colleges, and not up to the receiving transfer institutions.  In other words, community colleges may participate in initiatives like Acceleration in Context and the California Acceleration Project without jeopardizing articulation, because the transferable B4 course is unchanged; only the intermediate algebra prerequisite is challenged. 

Thus both the UC and the CSU are tacitly giving CCCs the go-ahead to develop alternative pathways.

Contradictory mandates to community colleges

A goal of the Common Core State Standards (CCSS) is to prepare students to be college and career ready.  That goal is also part of the mission of community colleges.  There has been considerable discussion regarding how  the CCSS might affect students' chances for getting into college, but scant discussion about how community colleges fit into the implementation of the CCSS.

Community Colleges might be assumed to have a distorted view of what it means to be college or career ready.  After all, they typically use the word "college" when naming themselves, yet eligibility to become a community college student does not require any minimum GPA nor any minimum score or ranking in any test.  It is sometimes said that the University of California serves the top 12.5% of California high school graduates, the California State University system the top 33.3%, and the California Community Colleges serve the top 100%.  But this is too limiting--a high school diploma is not a requirement for enrollment at any California Community College.

So at community colleges, we may worry less about "college ready" but rather focus on "transfer ready".  UCLA and CSUN are my school's two nearest public universities, and both report that our transfer students perform slightly better than their native students.  So there is evidence that community colleges are not grossly underestimating what is needed to be transfer ready.

California Community Colleges are presented with two conflicting mandates .   Community colleges  are encouraged 1) to align with K-12 standards for college and career readiness (according to the California Community College  Student Success Task Force  http://bit.ly/xOC5aK), and 2)  to provide alternative pathways to transfer (according to the Carnegie Foundation for the Advancement of Teaching  http://bit.ly/y1EZhX, the Charles A. Dana Center  http://www.utdanacenter.org/mathways/, etc.).

Explicitly, a consortium of the Charles A. Dana Center, Complete College America, Inc., Education Commission of the States, and Jobs for the Future, asks community colleges to provide a  "fundamentally new approach for ensuring that all students are ready for and can successfully complete college-level work that leads to a postsecondary credential of value.

"...The content in required gateway courses should align with a student’s academic program of study — particularly in math... Institutions need to focus on getting students into the right math and the right English." (from "Core Principles for Transforming Remedial Education: A Joint Statement" : http://bit.ly/TPqqCp)

The researcher at my institution estimated that 75% of our students interested in transfer are in disciplines that require no mathematics beyond an introductory statistics class to earn a baccalaureate degree at CSUN.  Evidently there are many students who can earn baccalaureate degrees without taking  single course from the mathematics department of any 4-year school.

The California Community College Success Network (3CSN.org), the Carnegie Foundation, the Dana Center, and the Student Success Task Force all recommend removing  curricular requirements  that act as barriers rather than aids to program completion.  The SSTF report contends, "Improved student support structures and better alignment of curriculum with student needs will increase success rates in transfer, basic skills, and career technical/workforce programs." [emphasis added]

The existing and proposed curricula of alternative pathways for non-STEM students omit many topics of intermediate algebra.

On the other hand, neither the University of California nor the California State University accepts a math or statistics course to meet  math transfer requirements unless that course has intermediate algebra as a prerequisite. 

If aligning with the CCSS implies that "intermediate algebra" should mean CCSS Algebra 2 (which includes circular trig and some inferential statistics), then the math requirements for transfer math courses will increase significantly.

And because intermediate algebra is the California Community College minimum math requirement for an associate's degree, the requirement for an AA degree will also increase simultaneously.

It is impossible for community colleges to remove unnecessary but currently required topics (for transfer to non-STEM disciplines) while simultaneously not merely maintaining but augmenting that list of required topics for all students.

Alternative Pathways vs Common Core State Standards

A primary goal of the Common Core State Standards (CCSS) is to provide a curriculum to ensure that all high school graduates are college and career ready. The CCSS  math topics through grade 11 include not only all of the topics of the traditional U.S. Algebra 1-Geometry-Algebra 2 sequence, but also topics typically taught in courses named trigonometry and statistics.

Alternative pathways provide a means for non-STEM (i.e., non- Science, Technology, Engineering, and Math) students to transfer from a two-year college to a four-year institution and earn a bachelor's degree without needing to show mastery of traditional intermediate algebra topics. The promotion of alternative pathways challenges the premise that the CCSS for math are needed for all students to be college ready.

The common goal of both alternative pathways and the CCSS is to improve U.S. education.

 "Core Principles for Transforming Remedial Education: A Joint Statement" from the Charles A. Dana Center, Complete College America, Inc., Education Commission of the States, and Jobs for the Future, calls for revamping the two-year college remediation structure.  The paper lists seven Core Principals for a "fundamentally new approach for ensuring that all students are ready for and can successfully complete college-level work that leads to a postsecondary credential of value.

"...Principle 2. The content in required gateway courses should align with a student’s academic program of study — particularly in math.

"Gateway courses provide a foundation for a program of study, and students should expect that the skills they develop in gateway courses are relevant to their chosen program. On many campuses, remedial education is constructed as single curricular pathways into gateway math or English courses.

"The curricular pathways often include content that is not essential for students to be successful in their chosen program of study. Consequently, many students are tripped up in their pursuit of a credential while studying content that they do not need. Institutions need to focus on getting students into the right math and the right English.

"This issue is of particular concern in mathematics, which is generally considered the most significant barrier to college success for remedial education students. At many campuses, remedial math is geared toward student preparation for college algebra. However for many programs of study, college algebra should not be a required gateway course when a course in statistics or quantitative literacy would be more appropriate….

"...One final note: Postsecondary leaders must work closely with K–12, adult basic education, and other training systems to reduce the need for remediation before students enroll in their institutions.  Postsecondary institutions should leverage the Common Core State Standards by working with K–12 schools to improve the skills of their students before they graduate from high school. Early assessment of students in high school, using existing placement exams and eventually the Common Core college and career readiness assessments, which lead to customized academic skill development during the senior year, should be a priority for states. Similar strategies should be employed in adult basic education and English as a second language programs."

Alternative pathways

It seems that student-success discussion at two-year colleges is shifting from "course redesign" to "alternative pathways" for the math required to transfer.

The topics overlap considerably, because the idea of alternative pathways normally involves modifying course prerequisites in format and/or content.

Some community colleges are exploring alternative pathways via multiple versions of intermediate algebra.  For example, several campuses have a "pre-stats" course which prepares students for the regular statistics course, but the pre-stats course does not cover all of intermediate algebra (and may not have elementary algebra as a prerequisite). 

The Carnegie Foundation for the Advancement of Teaching, the Dana Center at UT Austin, and 3CSN (California Community College Success Network) are three groups promoting the development of alternative pathways through dev math for non-STEM majors. The California State University system has agreed to accept Statway™ (Carnegie's two-semester course beginning at the elementary algebra level and ending with a transferable statistics credits) for meeting the Area B4 (math/quantitative  reasoning ) requirement for transfer.

But  last month the CSU emailed California Community College articulation officers the following:

"When the CSU reviews community college courses proposed to satisfy Area B4, we look for a prerequisite of intermediate algebra. We’re aware that many community colleges are experimenting with alternative prerequisites to their approved B4 courses, in an effort to improve student persistence. Some of these alternatives take away topics traditionally included in intermediate algebra; others substitute a different course altogether.

 "Please take this email as a reminder that only courses with a full prerequisite of intermediate algebra, as traditionally understood, will continue to qualify for CSU Area B4.

 "The CSU has made a recent exception for the Statway™ curriculum, under controlled and very limited circumstances, so we can evaluate whether other approaches will satisfactorily develop student proficiency in quantitative reasoning. In the meantime, we count on the articulation community to uphold the current standard."

That email seems to cast doubt on the future of alternative pathways.  But in the meanwhile, the CSU appears to be fine with the strategy proposed by Palomar College.  Palomar is not changing the intermediate algebra prerequisite for statistics, but evidently students who pass the alternative pre-stats course will be allowed to waive the intermediate algebra prerequisite.