GLOBAL: OECD calls for greater internationalisation

Governments should position their higher education systems in the global arena, develop a strategy and framework for internationalisation and encourage institutions to be more proactive internationally, says an OECD report published last week. Tertiary Education for the Knowledge Society offers this and other policy advice to countries striving to build tertiary education in ways that stimulate innovation, competitiveness and economic growth.

The new report has two volumes - the first focusing on governance, funding and quality and the second on equity, innovation, the labour market and internationalisation - and draws on a study of tertiary policy in 24 countries, the OECD Thematic Review of Tertiary Education.

On internationalisation strategy, the report points out that countries vary greatly in terms of their power, size, geographic location, dominant culture, tertiary education systems, the role of their language globally and their previous internationalisation strategies.

"Obviously, this strategy needs to adapt to country-specific circumstances, building upon natural advantages and acknowledging constraints, and there is no ideal internationalisation strategy other than maximising the benefits of internationalisation in the national context."

Also, the report says, while the international dimension of tertiary education is influenced at the national-sector level by policy steering and coordination, funding and regulations, internationalisation activities are conducted by institutions and, within them, by disciplines.

The potential for national policy is therefore primarily creating framework conditions for institutions to become "proactive actors of internationalisation" by removing blockages, granting institutions the autonomy to be more responsive to the external environment or by including internationalisation in annual negotiations between governments and institutions.

"Greater sustainability of internationalisation strategies can be achieved by promoting the diversification of international activities," says the OECD report.

Given that only a small proportion of students are mobile, national and institutional efforts should strive to develop internationalisation on-campus. Institutions should be encouraged to deliver part of their programmes in foreign languages and to intensify international enrolments in order to widen the scope for inter-cultural exchanges on-campus.

The report investigates many other aspects of tertiary education policy, from governance, funding and quality assurance to equity, research and innovation, academic careers, links to the labour market, and policy implementation. Among other recommendations, as outlined in its executive summary, are:

* Goals - Ensure that tertiary education contributes to economic and social objectives: foster links to employers, communities and labour markets; and promote effective university-industry links for research and innovation.

* Governance - Devise sound instruments to steer tertiary education: improve the capacity of ministries to develop policy and evaluate performance; and establish and maintain a balance between institutional autonomy and public accountability.

* Funding - Develop a funding strategy to optimise tertiary education's contribution to society and the economy: cost-sharing between students and government; a comprehensive student support system; and subsidies related to the benefits programmes bring to society.

* Quality assurance - Emphasise quality and relevance: improve quality assurance frameworks; develop a strong quality culture; and focus more on student outcomes.

* Equity - Give greater prominence to equity in national tertiary policy: systematically monitor equity issues; and devote significant resources to address inequities.

The OECD report identifies several major tertiary trends in recent decades. Tertiary education has expanded remarkably - from 68 million students worldwide in 1991 to 132 million students in 2004 - average annual growth of 5.1% a year. There has also been diversification, with new types of institutions emerging, offerings within institutions multiplying, private provision growing and new modes of delivery introduced.

Student bodies have become more heterogeneous, with the rise of female participation the most noteworthy trend, and a growing number of mature students raising the average age of student bodies. "In addition, in most countries, tertiary student bodies are increasingly heterogeneous in terms of socio-economic background, ethnicity and previous education."

Changes to funding include diversification of funding sources, greater targeting of public resources, performance-based funding, competitive procedures and expansion of student support in several countries.

The development of quality assurance systems is one of the most significant trends, says the report: "The expansion of tertiary education has raised questions about the amount and direction of public expenditure for tertiary education. In addition to fiscal constraints, increased market pressures have also fostered a growing focus on accountability."

There have been important changes in institutional governance including new perspectives on academic leadership and new ways of organising decision-making structures: "Academic leaders are increasingly seen as managers, coalition-builders or entrepreneurs."

Finally, tertiary education has become more internationalised with "intensive networking" among institutions, scholars, students and other actors. "International collaborative research has been strengthened by the dense networking between institutions and cross-border funding of research activities."

The report identifies several major policy challenges facing tertiary systems and authorities. In steering tertiary education, a nation's expectations need to be clearly articulated and institutions' priorities aligned with national socio-economic goals.
It is important, says the report, to find the proper balance between steering and institutional autonomy, and to develop institutional governance to respond to external expectations.

Funding challenges include ensuring long-term financial sustainability, devising a funding strategy consistent with the tertiary system's goals, and using public funds efficiently.

Quality imperatives include developing mechanisms for accountability and improvement across a diversity of offerings, and "generating a culture of quality and transparency". Equity requires ensuring equal opportunities, devising cost-sharing arrangements that do not impede access equity, and improving participation of least-represented groups.

Enhancing research and innovation requires fostering research excellence and relevance, building links with other research organisations and the private sector, and improving the dissemination of knowledge, the report says.

Challenges regarding academics include ensuring their adequate supply, increasing flexibility in management and helping them cope with new demands. Including labour market perspectives and actors in tertiary policy is also necessary to tackle the task of forging close links with the labour market, along with ensuring institutions are responsive to graduate job outcomes, and providing flexible work-oriented study opportunities.

Important aspects of internationalisation that need to be tackled are designing strategies to meet national needs, ensuring quality across borders, and enhancing tertiary education's international comparability.

Tertiary Education for the Knowledge Society

karen.macgregor@uw-news.com