Toward Operational Excellence at Student Success: California Community Colleges

So just saving the campuses more money, by itself, led to actions by at least some campuses invested in improving their operational excellence at enabling student success. But that was really just the beginning. First, to get the subsidy, the campuses had to agree to do certain things. One of which was to adopt the same LMS. There were reasons for this, which I’ll get to shortly. For now, consider the likelihood of getting that many resource-strapped community colleges to migrate LMSs. How hard would it be? How long would it take?

All 114 campuses signed the contract agreeing to move to the common LMS, and many moved quickly to implement. In fact, the migration proceeded so far ahead of schedule that OEI had to go back to the legislature and request additional funding to cover the unanticipated extra subsidies. Saving these campuses money was a powerful motivator. And, as we’ll see, OEI accomplished a lot more than meets the eye with this one seemingly prosaic move of subsidizing an important but work-a-day piece of enterprise software.

How else can businesses make more money? By doing a good job of aligning their investments with their business opportunities. A grocery store doesn’t want to overstock with produce that will spoil on the shelves. But it also doesn’t want to run out of that produce when there’s high demand. And demand is variable. Demand for produce the week before Thanksgiving is likely to be different than the week after.

Colleges have an inventory management problem too. Sometimes courses are under-enrolled; other times they are over-enrolled. Both represent money problems to the campuses. One of the reasons that OEI wanted all the colleges on the same LMS—not just the same brand, but the same instance—was to create a course exchange. Balancing course “inventory” in a single community college is tough. Room availability, instructor availability, changes in the job market and economy, and the unpredictability of part-time student enrollments all work against you. But balancing “inventory” across 114 community colleges is less hard (once you can figure out how to get it to work in the first place). One campus may be over-enrolled in macroeconomics, but chances are pretty good that one of the 113 other campuses is under-enrolled in the same course. If you can get enough campuses to put enough courses on the online course exchange, then you can solve a “business” problem for all of the campuses. And the more courses there are on the exchange, the more valuable it becomes to the campuses. Thus, colleges have incentives to create courses for the exchange, and the more courses that are created, the more incentive the colleges have to utilize the exchange.

You could tell this same story from a student access perspective. Over-enrolled courses prevent students from taking them in a timely way. If the course is required, this could force them to delay graduation (and a full-time or better paying job), take on additional unneeded courses in order to qualify for financial aid, take extra financial aid from the state and federal governments, take up an enrollment space that might have gone to other students, and increase the risk that they will not graduate. Under-enrolled courses risk cancellation, with many of the same knock-on effects. I don’t mean to neglect or downplay this portion of the story.

But the focus on business incentives lets us think more clearly about the machinery of the institution itself. Which, in turn, helps us to think clearly about how that machine works and how it can be tuned. OEI designed a machine to drive operational excellence at enabling student success across the largest community college system in the country. And it runs on only positive incentives because. This design constraint immediately rules out copying some of the most frequently cited examples of innovative universities which, through one mechanism or another, can exert varying degrees of top-down control. At ASU, President Michael Crow has an unusually strong hand to play within a reasonably traditional structure of faculty shared governance. (Ithaka S+R has some interesting and revealing interviews of some of ASU’s top leaders that give some hints about how that governance works.) Western Governors University is more extreme; there is no faculty senate and no shared governance. SNHU’s Paul LeBlanc has tried a combination of strategies, working with with the faculty senate on governance of the traditional college while separating out their College of Online and Continuing Education (COCE) and running it in a way that is only loosely coupled to the shared governance of the rest of the university. Like many universities and systems, OEI cannot redesign the machine from the top down. so thinking about the live-or-die campus sustainability incentives that could be used to drive collective action has been a central principle that influenced the rest of OEI’s design.

Creating the infrastructure

The desire to move all campuses in the system to one LMS wasn’t just for the sake of contracting convenience. It accomplished a variety of goals. First, it became a foundational layer of software infrastructure for rolling out other system-wide capabilities and services, from plagiarism detection to online tutoring to faculty training and help resources. Having everybody on the same instance of the same platform—cloud-hosted Instructure Canvas—made it much easier to do this. In the old world, where campuses were on a hodgepodge of different self-hosted and vendor-hosted LMSs, the best the system could have accomplished would have been common contracting. It would still be up to each campus to integrate and support the tools and services. After all, the way a tool looks and works in Moodle can be different than in Brightspace. Centralized support would have been a nightmare. And remember, these campuses are very tight on resources. Supporting add-on tools and services is costly to them.

In addition, sharing one LMS made it easier for OEI to create faculty training that could be shared across the system, and for campuses to do the same. As with system-wide licensing for LMS-connected tools and services, it’s not impossible to do this in a system with different LMSs. But the added friction makes it less likely to happen. I’m going to use the “B” word again: academia needs to think about business processes. Once again, stripping away the culture- and mission-inflected language lets us see the machinery more clearly. A business process is the way in which a business accomplishes something that is important for the business. For example, how does a business make sure that all its employees have up-to-date software, including critical ones like system updates and the latest anti-virus software? Sure, they could leave that to the individual employees to do. We’ve all updated our software on our personal computers; it can be done. But how likely is it that everyone will do so in a fashion that is timely, reliable, and consistently correct? And what work are all those employees not getting done while they are wrestling with software updates? It’s better to develop a business process for pushing out those updates from a central IT group so that employees don’t have to worry about them. Likewise, there are effiency benefits to centrally rolling out and support services for 115 campuses than to have each campus IT support person duplicate the effort. From a perspective of strengthening the business drivers that hold the group together, all of these benefits can be boiled down to saving money by providing additional capabilities with reduced cost to on-campus resources (in direct licensing fees, support staff time, or both). As we have already seen, the campuses tend to invest the money they’ve saved in enhancements that are specific to their local needs and that benefit their students.

The common LMS also helps with the over- and under-enrollment problem. Having all course exchange courses on a single instance of a common LMS made it easier both to provide more data to the campuses that would help them with their planning and to reduce friction in expanding the course exchange. If everybody is using the same system, that’s one less thing for faculty and students to learn, less help desk support, and more productive support (for both course delivery and course design) because the OEI staff don’t have to try to accommodate multiple flavors of learning environments.

Of course, there are trade-offs, the biggest one being autonomy. In OEI’s case, for example, all the campuses had to agree to use the same LMS rather than choosing their own. Anyone who has run a campus LMS selection process knows it can be an exercise in delicate diplomacy. Imagine doing the same with 114 campuses. As we’ll see, OEI turned this challenge into an opportunity. I’ll have more to say about that in the next section.

Anyway, once you start seeing infrastructure as the structure “underneath” (i.e., “infra-“) that supports business processes, two things immediately start to happen. First, your definition of success changes. You can no longer declare victory just because you successfully installed the software and got people to start using it. You have to start looking at whether it successfully enabled or improved the business processes you were intending to support.

Our Professional Development Coordinator is encouraging the creation of Pro Dev workshops in [common course management system] Canvas, such as health and wellness (“dealing with difficult people”), how to create Open Educational Resources, how to use [Student Learning Outcomes] for better teaching, and a lecture on science and its assumptions. What is developed at Butte can be instantly shared with other schools, and vice versa. I see a renaissance of Pro Dev opportunities!

– Technology Mediated Instruction coordinator, Butte College

In our consulting work, we facilitate LMS selection processes reasonably often. The more forward-thinking institutions view these processes as opportunities. How often do you get to gather a group of faculty and other academic stakeholders from across your institution in one room and have them talk to each other about how they teach and what they need to serve their students well? A search for a product like an LMS can become a rare opportunity for focused, intensive, purpose-driven community-building. Yes, it lowers resistance, enabling people who might not be happy with the final decision to at least feel like they were heard. But it also begins to foster familiarity and dialog that can help foster a broader and more lasting community of purpose. When you’re trying to build such a community across 114 campuses as part of an ambitious and completely voluntary system-wide effort, taking that view of LMS selection is even more important. Needless to say, it wasn’t easy. Or seamless. That said, both during the selection process and and afterward when communicating the results, OEI worked toward building affirmative buy-in—not just lowering resistance but increasing the sense of goodwill and common purpose. For example, the selection committee was near unanimous in its selection, with the sole dissenter acknowledging the importance of what the committee was doing together and supporting the final decision.

The program design elements I’ve described so far helped OEI to foster increased organizational alignment at two levels across campuses. The campus executives who are responsible for financial health and sustainability of their campuses are aligned through infrastructure subsidization and the course exchange. In 2018, the state legislature decided to augment the initiative with an additional $35 million funding. California Community Colleges has chosen to invest that extra money capacity-building. In particular, the money will go toward grant programs intended to enable the campuses to launch more online courses on the OEI-CVC infrastructure, thus further strengthening this alignment while aiming to serve more students effectively. The common infrastructure and the culture-building process around it has helped to build a culture among the academic and technical support staff across campuses. The hoped-for consequence is that improvements on one campus will travel more quickly and easily to others:

I now know that I can ring up any other [Distance Education] Coordinator and we’ll be speaking the same “language” regarding the use, training, and administration of the [course management system]. I’m also really looking forward to faculty being able to share ideas and resources via Commons.

– Director of Distance Education, Santa Rosa Junior College

Building a similar sort of sharing network among the faculty in the system is an even larger challenge. The culture-building work has been ongoing work for years now, but one can acknowledge all the hard work and progress to-date while still also recognizing that this is a huge project that has barely begun. Certainly, having common resources and common platform supported by OEI has provided a boost, as has the inclusion of faculty voices in the OEI planning process. The augmentation grants, which will likely include instructional design support, represent another opportunity. But to me, one of the most interesting vectors for culture-building is the course exchange course quality rubric. Every course on the exchange has to be evaluated against a rubric of evidence-backed effective online teaching practices. As the pace at which exchange courses are developed increases, OEI will not be able to keep up with demand to evaluate these courses using central staff. So they are creating a peer reviewer mechanism in which faculty on the campuses are trained on the rubric and presumably compensated to review courses that are candidates for the exchange.

This opportunity fascinates me. We know that faculty who go through an expert-supported course redesign process often experience intellectually deep and emotionally moving shifts in their teaching strategies. Is the same true when faculty are trained reviewers of their colleagues’ redesigned courses? What effect will simply exposing faculty to more and different course designs have? How will their role as reviewers and critiquers shape or enhance that effect? Can a continuously improved and updated rubric become a vector for sharing new research-supported processes across the system on an ongoing basis? Will the impact be broad and deep enough to foster new kinds of intra- and inter-campus faculty dialogs about the scholarship of teaching and learning (SoTL)? Will these cultural changes help to foster alignment around continuous operational improvement for enabling student success? This is the last mile problem of higher education. Operational excellence at student success cannot be achieved unless it is infused in the daily operations in individual classrooms. That requires affirmative faculty buy-in, support, training, and embedding in a culture that invites them into the larger conversation.

This is highly reminiscent of the cultural transition that doctors had to make from the mid-Nineteenth through the mid-Twentieth Century. In the 1840s, one could begin practicing as a physician with no medical training at all, just as one can start practicing as professor with no pedagogical training today. Doctors learned medicine from whomever they happened to train with and whatever they read in the newspaper ads about cures and treatments ranging from early antiseptics to leeches and literal snake oil, with no easy way to distinguish them. There were no major conferences or respected, peer-reviewed journals. There were no standards for quality research or convincing evidence. There were a handful of teaching hospitals and medical colleges of wildly varying quality that touched only a small minority of practicing physicians. All of these institutions, all of this social infrastructure, needed to be built and bought into by physicians before antiseptics could be differentiated from snake oil, the signal separated from the noise, regarding “progress” or “innovations” that might help their patients’ welfare.

OEI has accomplished some remarkable early successes in an extremely challenging context. But the degree to which they are able to move 114 California community colleges toward better support of student success as a group may well depend on the ability of the social infrastructure they are creating to reach faculty, be embraced by them, and and foster a culture in which academics collaborate differently and more intensively in their day-to-day work of helping students to succeed, one student at a time.