The Complex Web of Policy Choices: Dilemmas Facing Indian Higher Education Reform
Roopa Desai Trilokekar & Sheila Embleton
November 9, 2012 BRICS Recent Trends in Higher Education
University of Campinas (UNICAMP)
OUTLINE OF PRESENTATION
1. Introduction 2. Policy Context 3. Key Policy Issues 4. Higher Education as Public Policy 5. Recommendations 6. Conclusion
2
1. Introduction
Enders (2004) astutely observed that “‘internationalisation’ and ‘globalisation’ are nowadays performing a kind of “icebreaker” function for national reform agendas. In many cases, neither the diagnoses of the perceived problems of the system nor the corresponding prescriptions for reform are in any way new. But the international argument lends fresh wind to national debates on higher education reform which can now sail under the flag of ‘internationalisation’ by claiming to strengthen national capacities in the face of global competition.” (365-366). Enders, J. (2004). Higher Education, Internationalisation, and the Nation-State: Recent Developments and Challenges to Governance Theory. Higher Education, 47(3), 361-382.
3
2. Policy Context
4
Federal system 28 states+ 7 union territories
Education is a joint responsibility (concurrent list)
University Grants Commission (UGC) National Assessment and Accreditation Council (NAAC)
All India Council for Technical Education (AICTE) 13 National Professional Regulatory Bodies
2. Policy Context
Large and complex
Highest number of institutions for higher education in the world
600 Universities and 32,000 colleges (2011) Third largest enrolments in the world
Student enrollment 17 million Approximately twelve percent of GER (2009)
Wide diversity
Public and private Central, state, & ‘deemed’ institutions Affiliating & unitary universities Institutions of national importance at central and state levels Affiliated colleges (aided and unaided)
5
Growth in number of students
6
605 1864
3359
7073 5932
10406
13942
17000
02000400060008000
1000012000140001600018000
No. of Students
No. of Students
Source: Educational Statistics 2004-2005.MHRD 2007 ; Tilak, 2012
Growth in number of institutions
7
Year Universities Colleges Total Higher Education Institutions
1947-48 20 496 516
1950-51 28 578 606
1960-61 45 1,819 1,864
1970-71 93 3,277 3,370
1980-81 123 4,738 4,861
1990-91 184 5,748 5,932
2000-01 266 11,146 11,412
2004-05 348 17,625 17,973
2005-06 355 18,064 18,419
2006-07 367 19,000 19,367
2007-08 416 20,677 21,093
2008-09 480 22,000 22,480
2009-10 504 25,951 26,455
2. Policy Context
The Global Knowledge Economy
1. National Knowledge Commission (2005) 2. Committee to Advise on Renovation
and Rejuvenation of Higher Education (2009) (Yashpal Committee)
3. Eleventh Five Year Plan (2007-12) 4. Twelfth Five Year Plan (2012-17)
8
National Knowledge Commission (2005) & the 11th 5-year Plan (2007-2012)
NKC 15% gross enrolment ration (GER) for 2015 to move up to 30% gross enrolment ratio by 2020 1500 universities and 50 new national universities by 2015 New centralized independent regulatory body, Independent Regulatory Authority for Higher Education (IRAHE).
11th Five-year plan
15% GER by 2012 30 new central universities
(20 NIT, 6 or 7 IIMs, 7 or 8 new IITs, 5 IISER, 4 IIIT 2 Schools of Planning and Architecture); 14 ‘Innovation Universities’ Colleges in 340 districts in India identified as low enrolment areas. Overall system growth, an addition of 2000 Colleges of Engineering and Technology, 1300 Polytechnics and 400 Undergraduate Colleges and 50 Centers for Training and Research in the system.
9
Committee to Advise on Renovation and Rejuvenation of Higher Education (2009)(Yashpal Committee) & the 12th Five Year Plan (2012-17)
Yashpal Committee National Commission for Higher Education and Research (NCHER). Institutional autonomy (not just financial and administrative, but also academic). More focus on the nature of change within existing institutions than the growth or addition of entirely new institutions. Against the setting up of foreign and/or private institutions in India and encouraged the hosting of international visiting scholars/faculty as ways to stimulate internationalization. Equalization policies (e.g. funding) so as to eliminate the current differentiation between the central and state universities
12th Five-year plan on higher education Access through expansion of the system. Encourages the inclusion of foreign educational providers and more private-public partnerships A focus on excellence and innovation is established through increase in research funding, greater institutional autonomy and support for interdisciplinary work and academic collaborations. Set up of innovation universities and ‘meta’ universities New regulatory body, the NCHER.
10
2. Policy Context
New legislation The Bill to Enable Public Private Partnership in Education The Educational Tribunals Bill The Foreign Educational Institutions (Regulation of Entry and Operations) Bill The Institutes of Technology Bill The National Academic Depository Bill The National Accreditation Regulatory Authority for Higher Educational Institutions Bill The National Commission for Higher Education and Research Bill (NCHER) The National Institutes of Technology Bill The Prevention of Unfair Practices in Technical Educational Institutions, Medical Educational Institutions and University Bill The Protection and Utilization of Public Funded Intellectual Property Bill The Universities for Innovation Bill
11
3. Key Policy Issues
1. Privatization
2. Regulatory Frameworks/ Governance
3. Internationalization
4. Social Equity/Reservation Policies
12
3a. Privatization
De facto not de jure
Phenomenal growth in number of institutions, particularly offering professional degree programs
Politicians/political elites new investors
Universities, unaided colleges, distance education, self financing programs by public institutions, foreign institutional providers, non university sector growth, parallel educational services
Deterrent to ‘genuine’ philanthropy
Growth of very poor quality education, unethical practices and crass approaches to commercialization
Has become center stage in the debate of Indian higher education
Break-down of the state system?
13
3b. Regulatory/Governance Frameworks
Complex regulatory structure UGC, AICTE, 12 professional regulatory bodies Control all aspects of institutional governance (financial, administrative and academic)
Political interference and unethical practices Judiciary new role within the system Detracts quality talent away from academic
Recommendation for a single apex body. National Commission for Higher Education and Research (NCHER)
Will this resolve the main problems within the system? Policy planning vs. strict regulator? Visualized as regulator with vast and overriding functions
“The solution might be worse than the disease” (Tilak, 2010,88).
14
3c. Internationalization
•Out –going: •After China, India sends the largest no. of students to other countries for higher education. • 2005-6: 160,000 ; 50% to the US. • Spend $3.5 billion to study abroad
•Setting up of foreign institutions in India: Rationale:
Keep out-going foreign exchange in India Improved access and quality Growth of “innovation universities”
Opposition: Total commercialization of higher education Exacerbate social equity Cultural imperialism and loss of sovereignty of nation state More harmful than advantage or remedy for system 15
3d. Social Equity/Reservation Policy
What is the role of higher education in promotingsocial justice and equity?
Core public policy issue Sparks the most divisive and contested politics on identity Conflicting views on the success of reservationpolicies
Powerful political policy tool
Visible forms attract attention
16
4. Higher Education as Public Policy
17
Not a policy “vacuum”
Been on government radar Created heated discussion and debate
Public Policy is inherently political
Multitude of roles and purposes of higher education and number of stakeholder groups “trilemma”: size, costs and quality
Factors Influencing policy:
Internal and External factors High level of policy interest
Policy Instruments
Commissions Discourse
4. Higher Education as Public Policy
World Class Universities “Half-baked capitalism and half-baked socialism”?
Penchant for Centralization
18
5. Policy Recommendations
1. Institutional Autonomy/distance from state control and political interference
2. Access with a focus on quality vs. quality restricted to national/central elite institutions
3. Privatization of system –de jure and governed 4. Steering role for government vs. role of controller/regulator
of system Mechanism to move from debate/discussion to policy
decision within a reasonable time period Academic collegiums to be at the heart of policy making
processes
19
20
6. Conclusion: Can the influence of globalization be considered deterministic on higher education policy?
