Research the need for remediation classes based on the educational performances of incoming college freshmen in the state of West Virginia
Initial Research Focus (Thinking Process)
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From Remediation to Momentum: An Analysis of College Readiness and Policy Reform in West Virginia
The Landscape of College Underpreparation in West Virginia
For many years, a significant portion of West Virginia's high school graduates arrived on college campuses unprepared for the rigors of postsecondary coursework. This reality necessitated a robust system of remedial, or developmental, education. However, data reveals that the need for these courses was not a marginal issue but a systemic challenge affecting a substantial segment of the state's college-bound population, with profound concentrations in specific subjects and geographic regions. This section will quantify the scale of this challenge, establishing the baseline against which subsequent policy reforms can be measured.
Quantifying the Need: A System-Wide Challenge
Analysis of incoming college freshmen in West Virginia demonstrates a persistent and widespread need for academic remediation. A 2017 report focusing on the 2016 high school graduating class found that approximately 31% of students attending public colleges and universities within the state required at least one remedial course in math or English.1 Other analyses from the same period placed the figure even higher, at 36% of all incoming students.2 These figures underscore the magnitude of the issue, indicating that roughly one in every three students was starting their higher education journey at a deficit.
The problem was particularly acute within the state's two-year institutions. According to one report, about 55% of all students attending a community and technical college in West Virginia required some form of developmental education.1 This highlights the critical role these institutions play in serving underprepared populations and the immense burden the traditional remedial system placed upon them.
By 2017, early signs of progress began to emerge, coinciding with the initial scaling of significant policy reforms. The West Virginia Higher Education Policy Commission's (HEPC) 2018 Academic Readiness Report showed that the overall developmental education enrollment rate for recent high school graduates had decreased to 25.3% in 2017, down from 30.8% in 2016.3 This positive trend, particularly its concentration in certain subjects, provides the first indication of the impact of the state's strategic shift in remedial policy, a topic to be explored in detail later in this report.
The Primacy of Mathematics in Remediation
While the need for remediation was broad, the data consistently show that the most significant academic deficiencies were in mathematics. An analysis of the 2016 graduating class from Kanawha County, the state's most populous, revealed that 28% of college-bound students required remedial math, a figure substantially higher than the 18% who needed remedial English.1
This disparity is confirmed by statewide data. In 2016, 26.0% of all recent high school graduates enrolled in developmental mathematics, compared to 14.9% for developmental English. By 2017, those figures had fallen to 19.1% for math and 14.0% for English.3 While both areas saw improvement, the more pronounced drop in math remediation points to the targeted effectiveness of early reform efforts.
Table 1: Remediation Rates for Incoming Freshmen by Subject (2016-2017). Data sourced from the 2018 Academic Readiness Report.3
The root of this challenge can be traced to K-12 preparation. ACT College Readiness Benchmark data from 2016 provides a stark illustration: while 67% of West Virginia's ACT-tested graduates were deemed ready for college-level English composition, only 32% met the benchmark for college algebra.4 This significant gap between English and math readiness suggests a systemic issue in mathematics preparation that extends throughout the primary and secondary education systems.
A Tale of Two West Virginias: Geographic and Socioeconomic Disparities
The need for remediation was not uniformly distributed across West Virginia; rather, it exposed a deep geographic and socioeconomic divide. Remediation rates were dramatically higher in the state's southern counties. Reports from 2017 showed that in eight southern counties—Calhoun, Fayette, Gilmer, Lincoln, Logan, Mingo, McDowell, and Wayne—more than half of all college-going graduates from the class of 2016 required remedial classes. In some of these counties, the rate was as high as two-thirds.1
In stark contrast, counties in North Central West Virginia and the state's panhandles demonstrated the lowest need for remediation. Monongalia County, home to West Virginia University, was a significant outlier, with fewer than 10% of its college-going students requiring such courses.1
Table 2: County-Level Disparities in Remediation Needs for 2016 High School Graduates. Data sourced from reports presented to the Council for Community and Technical College Education.1
Crucially, analysts explicitly connected these geographic disparities to underlying economic conditions. Maps illustrating high remediation rates showed a strong correlation with low-income areas, leading the report's author to note that socioeconomic status is a powerful predictor of college success.1 This connection reveals that the remediation crisis was not merely an educational issue but a symptom of deeper, regional economic distress. It suggests a cycle wherein economically challenged regions with under-resourced K-12 systems produce graduates who are less prepared for college. These students then face greater barriers to earning a degree, which in turn limits their ability to acquire the skills needed for high-wage jobs, thus perpetuating regional poverty. Addressing college readiness in these specific counties is therefore not just an educational imperative but a direct strategy for targeted economic development.
This situation also points to a "high graduation, low readiness" paradox. West Virginia has consistently celebrated a high high-school graduation rate, reaching a record 91.4% for the 2018-19 school year.5 Yet, at the same time, a third of those very graduates who pursued higher education were deemed unprepared for college-level work.1 This disconnect suggests that the requirements for earning a high school diploma may not be aligned with the skills necessary for postsecondary success, indicating that policies focused solely on graduation rates could mask critical deficiencies in academic rigor.
The High Cost of the Traditional Model: A Barrier to Student Success
Prior to statewide reforms, West Virginia's approach to developmental education was based on a traditional, prerequisite model. This system required students deemed underprepared to enroll in and pass a series of non-credit-bearing courses before they were permitted to take "gateway" courses that counted toward a degree. An extensive body of evidence, both from national studies and West Virginia-specific data, shows that this model was not only ineffective but actively detrimental—creating academic, financial, and psychological barriers that hindered student progress and exacerbated inequities.
Academic Quicksand: How Prerequisite Remediation Hindered Progress
The structure of traditional remediation often became what one national report called higher education's "Bermuda triangle," an academic space from which many students never emerged.7 By forcing students into a sequence of courses that did not advance them toward a degree, the model created multiple exit points where momentum was lost. National data indicates that fewer than half of students who start a remedial program ever complete it, and an even smaller fraction ultimately graduate.2
This national trend was starkly reflected in West Virginia. Within the state's community and technical college system, only 14% of students placed into traditional remedial math ever completed the associated gateway college-level course within two years.8 The failure was often not one of academic capability but of attrition; many students would successfully pass a remedial course but simply fail to enroll in the subsequent class in the sequence, effectively dropping out of the pipeline.8
The negative effects were not limited to two-year colleges. A 2011 quasi-experimental study of West Virginia's four-year public institutions delivered a damning verdict: after controlling for factors like student background and academic preparation, students who took developmental education courses were found to be less likely to graduate within six years than similar students who did not. Furthermore, those who did graduate took longer to earn their degrees.9 This finding is critical, as it suggests the intervention itself was causing harm. Then-HEPC Chancellor Dr. Paul Hill described the system as a "dead end for students," a discouraging process of re-learning information at a "snail's pace" that ultimately pushed them to leave college.10
The Financial Drain: Quantifying the Cost to Students and the State
The academic inefficiency of the prerequisite model was compounded by a significant financial burden. Because remedial courses did not carry college credit but still incurred tuition costs, students were forced to pay for classes that did not move them closer to graduation.2 A 2016 analysis found that students in West Virginia were spending a combined
$7,426,000 annually out-of-pocket on these non-credit courses.2 This spending directly increased student debt without providing any commensurate progress toward a degree.
Federal financial aid regulations exacerbate this problem. While aid can be used for some remedial coursework, it is typically capped at 30 credit hours, after which students become solely responsible for the cost.11 Beyond the direct cost of tuition, the extra time required to complete these prerequisite sequences leads to substantial opportunity costs in the form of additional living expenses and lost wages. Nationally, an extra year at a four-year college is estimated to cost a student over $68,000 in combined expenses and forgone income.2
This system also represented a significant misallocation of public resources. State and institutional funds were dedicated to providing faculty, classroom space, and instructional time for re-teaching high-school-level material, an inefficient use of the higher education budget.10 This represents a massive opportunity cost for a state striving to increase its overall educational attainment. Every dollar of state financial aid, such as the WV Higher Education Grant, spent on a traditional remedial course was a dollar not invested in a credit-bearing course that could advance a student toward a degree and entry into the state's workforce. The state was, in effect, subsidizing a system that produced a negative return on investment.
An Engine of Inequity: The Disproportionate Impact on Vulnerable Populations
The burdens of the traditional remedial system were not borne equally. National research identifies prerequisite remediation as a major threat to racial equity, as Black and Latinx students are disproportionately placed into these courses, which then serve as a significant barrier to their degree completion.12 Nationally, 55% of all Pell Grant recipients—a proxy for low-income status—are placed into remediation.13
While West Virginia-specific racial data on remediation is limited in the available reports, the powerful correlation between high remediation rates and low-income counties points to a severe equity problem.1 With approximately half of the state's public K-12 students classified as having low socioeconomic status (SES), the traditional remedial system functioned as a systemic obstacle for a vast portion of West Virginia's most vulnerable students.14
Beyond the quantifiable metrics, this model inflicted a significant psychological toll. The language used by state leaders and in reports—"dead end," "discouraging," "unnecessary frustration"—is telling.10 The very act of placing a student in prerequisite remediation sends a message that they are "not ready" for college. This process can erode a student's self-efficacy and motivation. The high rate of attrition, where students pass a course but fail to continue, is likely not just a logistical failure but a psychological one. After spending a semester and significant funds just to get back to the starting line, a student's momentum and belief in their ability to succeed are often depleted.
A Paradigm Shift: West Virginia's Co-Requisite Transformation
In response to the clear and compelling evidence of the traditional model's failures, West Virginia's higher education leaders initiated a comprehensive, statewide overhaul of developmental education. In collaboration with national partners, the state pivoted to a "co-requisite" model, a paradigm shift that has since been recognized as a national best practice. This reform fundamentally changed the state's approach from delaying students' entry into college-level work to providing them with immediate access and concurrent support, yielding dramatic and positive results.
Leading the Nation: A Systemic, Statewide Reform
The transformation was a coordinated effort led by the West Virginia Higher Education Policy Commission (HEPC) and the West Virginia Community and Technical College System (CTCS), in close partnership with the non-profit organization Complete College America (CCA).8 This collaboration positioned West Virginia as a national leader; it became one of only five states to commit to implementing the co-requisite model across its entire public higher education system.10
The reform began with the two-year colleges, which served the largest proportion of underprepared students. In a critical act of leadership, then-CTCS Chancellor Jim Skidmore, who lacked direct governing authority to mandate the change, used data and persuasion to secure a voluntary commitment from all community and technical college presidents.8 They agreed to scale co-requisite math courses by the fall of 2014 and English courses by the fall of 2015.8 This process was supported by state-level "academies" where faculty and administrators worked with national experts to develop their implementation plans.8
Following the success in the two-year system, the HEPC set a goal for the state's four-year institutions to transition 80% of their developmental education students into a co-requisite model by the fall of 2018.1 This systemic buy-in, from community colleges to regional universities, was essential for ensuring the reform's widespread impact.
From "If" to "How": The Mechanics of Co-Requisite Support
The co-requisite model represents a fundamental change in philosophy. Instead of asking if a student is ready for college-level work, it operates on the premise that all students can succeed in college-level courses if they are provided with the right support.
Under this model, students are enrolled directly into a credit-bearing gateway course, such as English 101 or a college-level math class.8 Simultaneously, they are required to take a concurrent support course or lab. This "just-in-time" support is designed to address skill gaps as they become relevant to the college-level coursework, rather than pre-teaching an entire subject.10 This approach allows students to "catch up quickly and maintain momentum toward earning a college diploma," saving them the time, money, and frustration that characterized the prerequisite system.10 The success of this model is rooted in a fundamental shift in messaging: it treats students as capable college students from day one, providing support to ensure their success rather than placing barriers in their path.
The Evidence of Impact: A Dramatic Rise in Student Success
The implementation of the co-requisite model in West Virginia produced immediate and remarkable improvements in student outcomes. The data on gateway course completion rates before and after the reform are particularly striking.
Table 3: Gateway Course Completion Rates: A Comparison of Traditional vs. Co-Requisite Models at Select WV Institutions. Data sourced from HEPC and Complete College America reports.8
As Table 3 illustrates, the impact was profound. In the state's community and technical colleges, the success rate in gateway math more than quadrupled, and students achieved this success in half the time.8 At four-year institutions like Fairmont State and West Liberty, completion rates in entry-level math and English nearly tripled in some cases.10 Statewide reports from the HEPC's Advisory Council of Faculty confirmed these successes, citing an overall 80% pass rate for students in English co-requisite classes and a 67% pass rate for those in math co-requisite classes.18
This dramatic increase in the number of students successfully completing foundational courses in their first year is expected to have a "major impact on college graduation rates," directly addressing the primary failure of the old system and building the momentum needed for long-term student success.10 The shift to co-requisites also served as a catalyst for broader institutional innovation, compelling colleges to develop new support structures like dedicated learning centers and tutoring services, and fostering a more data-informed approach to improving the entire first-year experience.20
Bridging the K-12 to College Divide: Addressing the Root Causes
While the co-requisite model has proven to be a highly effective treatment for academic underpreparation at the college level, a comprehensive strategy must also address the root causes of why so many students arrive on campus needing remediation in the first place. This requires a deep and ongoing collaboration between West Virginia's K-12 and higher education systems to ensure that standards, curriculum, and expectations are truly aligned.
The Standards Question: Policy vs. Practical Alignment
On paper, West Virginia has established a robust framework for ensuring K-12 students are prepared for postsecondary success. The West Virginia Department of Education (WVDE) has developed the West Virginia College and Career Readiness Dispositions and Standards for Student Success (WVCCRDSSS), which provide an integrated set of standards for academic development, career planning, and personal growth.21 These standards, contained in policies like 2520.1A for English Language Arts and 2520.2B for Mathematics, are explicitly designed to guide students toward a successful transition to college and the workforce.22
Furthermore, higher education regulations, such as CTCS Series 135-24, clearly define the minimum knowledge and skills students are expected to possess upon college entry, covering core academic subjects as well as essential "soft skills" like time management and effective communication.23 This demonstrates a clear, policy-level effort to create a seamless K-16 pipeline.
However, the persistent need for remediation, even in the co-requisite era, indicates a gap between these written standards and their practical implementation and mastery in classrooms across the state. The "High Graduation, Low Readiness" paradox suggests that the challenge is not one of misaligned curriculum topics, but rather a misalignment of academic rigor. The state's K-12 system may be teaching the correct subjects, but the depth and complexity of instruction may not be sufficient to prepare students for the expectations of college-level work.
Beyond the Test Score: The Role of Standardized Testing in Placement
Historically, the gateway to college-level courses in West Virginia was guarded by a single metric: a standardized test score. A statewide policy mandated remedial placement for any student scoring below a 19 on the math section of the ACT or below an 18 on the English section.1
Table 4: West Virginia ACT-Tested Graduates vs. College Readiness Benchmarks (2017). Data sourced from the 2018 Academic Readiness Report.3 Note: National comparison data for 2017 was not available in the provided sources, but 2016 data showed WV lagging national averages in math and science.4
As Table 4 shows, a large percentage of West Virginia students failed to meet these benchmarks, particularly in math. This over-reliance on a single, high-stakes test score likely contributed to the high remediation rates by failing to capture a holistic view of a student's capabilities. National best practices have since shifted toward using "Multiple Measures" for placement, incorporating indicators like high school GPA, which is often a better predictor of college success.24 While not explicitly stated as a statewide policy, the discussion of low GPAs as a factor in remediation suggests this is part of the consideration at West Virginia institutions.10
Fostering a College-Going Culture: Collaborative K-16 Initiatives
Recognizing the need for deeper partnership, state agencies have launched several initiatives to bridge the K-12 and higher education sectors. The WVDE and WVHEPC jointly sponsor the WV Student Success Leadership Council, which brings secondary and postsecondary student leaders together to cultivate a statewide culture of college readiness.21 K-12 policies also mandate the creation of a Personalized Education Plan (PEP) for every student, a collaborative process to map out a course of study aligned with post-graduation goals.22
To support this planning, the state promotes a suite of resources, including the CFWV.com college and career planning portal, the annual College Application and Exploration Week, and the federally funded GEAR UP program, all designed to provide students with early awareness and guidance.26
Perhaps the most significant recent initiative is the creation of a statewide, state-funded dual enrollment pilot program, which began in the fall of 2023.29 This program aims to provide up to 10,000 high school students annually with the opportunity to take and pass college courses while still in high school. This initiative represents a strategic pivot from reactive remediation to proactive prevention. By allowing students to successfully complete gateway courses before they even matriculate as freshmen, the program has the potential to fundamentally reduce the future need for developmental education in West Virginia.
Contextualizing Reform within Statewide Ambition
The transformation of developmental education in West Virginia was not an isolated policy change. It serves as a foundational component of a much broader and more ambitious strategic vision for the state's educational and economic future. The shift to the co-requisite model is a critical enabler for a suite of interlocking initiatives designed to increase student momentum, boost graduation rates, and ultimately meet the state's workforce demands.
Building and Sustaining Momentum: The "Momentum Pathways Project"
West Virginia's higher education leaders have committed to the "Momentum Pathways Project," a comprehensive framework developed by Complete College America that uses a set of proven, evidence-based strategies to improve student success, particularly during the critical first year of college.30 Co-requisite reform is a cornerstone of this framework, as it ensures that students successfully complete gateway math and English courses in their first term, a key predictor of eventual graduation.24
This project synergizes co-requisite support with other "Game Changer" strategies, including the "15 to Finish" campaign and the use of structured academic maps. Together, these initiatives aim to create a clear, efficient, and supportive path for students, moving them from simply enrolling in classes to enrolling in the right classes at the right velocity to ensure on-time completion.30
The "15 to Finish" Imperative
A key pillar of the Momentum Pathways project is the HEPC's statewide "15 to Finish" campaign.32 This initiative encourages students to enroll in at least 15 credit hours per semester (or 30 per year) to graduate on time—in two years for an associate degree or four years for a bachelor's degree.34 Research shows that students who take a 15-credit load not only graduate faster, saving significant money on tuition and reducing debt, but also tend to achieve better academic outcomes.32
This initiative is inextricably linked to remediation reform. Under the traditional prerequisite model, it was nearly impossible for students needing remediation to take 15 credits, as they were spending time and financial aid on non-credit courses. The co-requisite model, by embedding support within credit-bearing courses, makes a full academic load feasible for underprepared students from their very first semester, enabling them to participate in "15 to Finish" and stay on track for timely graduation.18
"West Virginia's Climb": The Ultimate Goal
All of these reforms—co-requisite support, Momentum Pathways, and 15 to Finish—are in service of a single, ambitious North Star metric for the state: "West Virginia's Climb." Launched in 2018, this campaign set a goal to have 60% of the state's working-age population (ages 25-64) hold a formal certificate or degree by the year 2030.35
This goal is driven by urgent economic necessity. Labor market projections indicate that a majority of jobs in West Virginia will soon require some form of postsecondary education or training.32 With a college-going rate that has hovered below 50% and an overall attainment rate around 35% in recent years, the state faced a significant gap between its workforce's qualifications and its economy's needs.29 State leaders and national partners like the Lumina Foundation and Complete College America have explicitly stated that proven strategies like co-requisite remediation are essential and non-negotiable for reaching the 60% attainment goal.36 Without fixing the "leaky pipeline" caused by traditional remediation, the state's broader economic aspirations would be unattainable. This elevates developmental education reform from a niche academic issue to the linchpin of West Virginia's long-term economic strategy.
Synthesis and Strategic Recommendations for the Path Forward
The state of West Virginia has undertaken a remarkable and nationally significant transformation of its approach to college readiness and developmental education. Faced with a systemic challenge of underpreparation that disproportionately affected students in its most economically distressed regions, the state boldly dismantled a failed prerequisite remediation model. In its place, it erected a system-wide co-requisite support structure that has produced dramatic and immediate gains in student success. This reform serves as the foundational element of a sophisticated and interlocking ecosystem of policies aimed at achieving ambitious goals for educational attainment and economic prosperity. To build on this success and address remaining challenges, the following strategic recommendations are offered for consideration by state policymakers.
Synthesis of Key Findings
The analysis presented in this report yields several core conclusions:
West Virginia historically faced a severe college readiness problem, with nearly a third of incoming freshmen requiring remediation. This challenge was most acute in mathematics and was heavily concentrated in the state's southern, low-income counties.
The traditional, prerequisite model of remediation was a costly failure. It functioned as a barrier to student progress, drained student and state financial resources into non-credit-bearing courses, and actively decreased the likelihood of degree completion.
The statewide shift to a co-requisite support model has been an evidence-backed success, dramatically increasing the number of students who pass gateway courses in their first year and building critical momentum toward graduation.
A "high graduation, low readiness" paradox persists, indicating a need for deeper alignment of academic rigor and instructional methods between the K-12 and higher education sectors.
Remediation reform is the linchpin of West Virginia's broader economic strategy. Its success is a prerequisite for achieving the state's goal of having 60% of its workforce hold a postsecondary credential by 2030.
Actionable Policy Recommendations
To solidify these gains and accelerate progress, state leaders should consider the following actions:
For the West Virginia Legislature:
Recommendation 1: Codify and Sustain Co-Requisite as the Default Model. Transition the co-requisite model from HEPC policy to state statute. This would make co-requisite support the permanent, default method of developmental education at all public institutions and formally prohibit the use of standalone, prerequisite remedial courses, ensuring the gains of the last decade are protected from future policy shifts.
Recommendation 2: Fundamentally Reform College Placement. Enact legislation that mandates the use of multiple measures for placing students into entry-level courses. Requiring institutions to use indicators such as high school GPA in addition to standardized test scores will provide a more accurate assessment of student capability and reduce the number of students unnecessarily placed into developmental pathways.
Recommendation 3: Expand and Target K-12 to College Transition Funding. Continue and expand funding for the successful state-funded dual enrollment pilot program. To maximize impact and address historical inequities, consider a weighted funding formula that directs additional resources to support the participation of students from the high-remediation, low-income counties identified in this report.
For the WVHEPC and WVCTCS:
Recommendation 4: Conduct a Co-Requisite Impact Analysis on Long-Term Outcomes. While gateway course success rates are a powerful early indicator, the ultimate goal is completion. The HEPC should commission a longitudinal study to measure the long-term impact of the co-requisite model on retention, graduation rates, time-to-degree, and overall student debt, providing a comprehensive evaluation of the policy's return on investment.
Recommendation 5: Develop and Scale a "Math Pathways" Initiative. In conjunction with co-requisite support, champion a statewide "Math Pathways" initiative. This would ensure that students in non-STEM majors are directed to more relevant quantitative reasoning or statistics courses, rather than a default college algebra track that is often a significant and unnecessary barrier to their progress.
For the West Virginia Department of Education (WVDE) and K-12 Leadership:
Recommendation 6: Launch a K-16 "Rigor and Instruction Alignment" Task Force. The WVDE and HEPC should jointly create a task force of high school teachers, college faculty, and curriculum specialists. The charge of this group should be to move beyond aligning content standards and focus on aligning the depth of instruction and pedagogical methods to better prepare students for the critical thinking and independent learning required in college.
Recommendation 7: Re-evaluate High School Graduation Requirements to Signify Readiness. Address the "High Graduation, Low Readiness" paradox by analyzing the alignment between diploma requirements and postsecondary expectations. Consider incorporating demonstrated college and career readiness indicators—such as successfully passing a dual enrollment course or earning a high-quality CTE credential—as options within graduation pathways to ensure a West Virginia high school diploma is a true currency of preparation.
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