Revisiting Tertiary Education System in Bangladesh: in Quest for Unraveling Existing Issues and Challenges

Journal of Contemporary Governance and Public Policy Vol. 2 No. 1, April 2021, 45-66 Available Online at http://journal.ppishk.org/index.php/jcgpp ISSN (Print): 2722-3981 | ISSN (Online): 2722-3973

Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges

Shah Md. Azimul Ehsan1,2*) 1Global Development Institute, University of Manchester, Oxford Rd, Manchester M13 9PL, United Kingdom. 2Department of Public Administration, Faculty of Social Sciences, Jagannath University, 9-10, Chittaranjan Avenue, Dhaka 1100, Bangladesh.

Received: 2021-02-01; Accepted: 2021-02-20; Published: 2021-04-30

Abstract Once termed as a basket case, Bangladesh is now a development wonder. Recently, it has entered the cluster of lower-middle-income countries and is predicted to join the cohort of developed ones by 2041. However, the challenge that lies ahead is to sustain the current economic growth with the emerging threat of the fourth industrial revolution (4IR). There is no doubt that the country have the upper hand in order to counter these emerging critical scenario with its huge number of youths. Nonetheless, it will be pertinent to turn these youth force into productive human capital through providing both general and technical education in order to yield higher returns. On this backdrop, this study attempts to know whether our existing tertiary education system is rendering quality education to convert our youth force into effective human resources. Using qualitative tools of social research and drawing information from various secondary sources, the study argues that the existing tertiary education system is failing to produce skilled human resources which is again resulting in lower returns to the economy. Undoubtedly there has been quantitative progress in tertiary level education; nevertheless, the worrying factor has been regarding its quality. The crisis has not happened owing to the absence of adequate policy framework rather the translation of those into reality. This study offers a modest suggestion to take immediate steps by the government of Bangladesh to implement the recommendations as stated in the key policy instruments related to education and skill development along with the significant increase in the budgetary allocation for the tertiary education sector. In addition, efforts has to be put for transforming the existing University Grants Commission (UGC) into Higher Education Commission (HEC). Moreover, activation of the accreditation council is now a crying need for further improving the quality of education at the tertiary level.

Keywords: Bangladesh; Education; Employment; Labor Force; Skills; Tertiary

How to Cite: Ehsan, S.M.A. (2021). Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges. Journal of Contemporary Governance and Public Policy, 2(1), 45-66. https://doi.org/10.46507/jcgpp.v2i1.33.

Permalink/DOI: https://doi.org/10.46507/jcgpp.v2i1.33

*) Corresponding Author Email : [email protected] http://journal.ppishk.org/index.php/jcgpp Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 46 of 66

Introduction education receiving students is 16 Bangladesh, a transitional percent (UNESCO, 2012). The number country of South Asia, was once of university students has increased termed as a ‘bottomless basket’ by to 3.9 million in 2019 which was the then US Secretary of the state, 31,000 and 1.9 million in 1972 and Henry Kissinger. However, over the 2009 respectively (Hossain, 2019). As years, the country has done wonders per an estimation of the University in terms of various socio-economic Grants Commission (UGC) of development indicators compared to Bangladesh, the overall enrollment of its neighboring counterparts (Ahsan, students at the tertiary level might 2019). From successfully cutting reach to 4.6 million by 2026 (Mannan, down fertility rates, slashing infant 2017). In a span of ten years, i.e. from mortality rates, and promoting 2009 to 2019, the number of public gender equality in availing universities in the country has risen educational opportunities (both at from 31 to 47. During the same the primary and secondary levels), period, there has also been a surge in the nation has come a long way the number of private universities (Ahsan, 2019). It aims to be a middle- from 51 to 105 (S. Ahmed, 2019). income country by 2021, achieve Despite such rapid growth and SDGs by 2030, and enter the group of quantitative improvement in tertiary developed countries by 2041. The education, in recent years, many country's wealth in achieving these questions have been raised about its goals lies in its youth of 80 million quality and its linkage with who are aged between 15 to 35 years. employability (Hossain, 2019). However, it will be pertinent to turn According to a recent study these youth force into productive conducted by World Bank (2019), human capital through providing Bangladeshi universities have been both general and technical education below par in terms of any along with modern, innovative, and international ranking system. This creative skills (Mannan, 2015). As a again puts a question mark of the matter of fact, the Government of overall quality of education at the Bangladesh (GOB) have reacted to the tertiary level. task. They have rightly recognized Around 20 million youths that there is a continuous need for enter the job market every year in investment into education and skills Bangladesh. However, it is rather development. This is because it will irony that bulk of them fail to get help to boost productivity. Therefore, placement in their expected fields. GOB has made it a priority at the This is because they have limited job policy level in order to implement specific skills and competences which those key strategies (T. Rahman et al., the employers are demanding. It is 2019). no doubt that these youths who It is no longer a debate that an cannot be absorbed by the job market aura of positives changes has may turn out to be detrimental for the occurred in Bangladesh’s tertiary developmental cause of any country education. To be more specific, there (Reza, 2019). Although the report of has been a significant amount of the International Labor Organization expansion, growth and reach for (ILO) states 29 percent of graduates tertiary education in the last few remain unemployed in Bangladesh, a years (Mannan, 2017). At present, the more recent study by the Bangladesh literacy rate in Bangladesh is 63.08 Institute of Development Studies, percent and the rate of higher BIDS (2019) revealed more shocking

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 47 of 66 facts. It states that unemployment techniques of content analysis rate for the university graduates is method to substantiate the currently 38.6 percent (Financial arguments of this study. Express, 2019). Interestingly though, when Bangladeshi graduates are Result and Discussion struggling to get their desired jobs and many suffering from Relationship between education unemployment, Bangladesh has and labor market: Excerpts from become a hub for expatriate workers. existing literature In other words, around 4, 00, 00 Existing literature on expatriates are working in education and the labor market can Bangladesh, that to, with due official be broadly categorized into two process and with all valid documents. continuums. First group of scholars In various sectors, these expatriates have raised an optimistic tone are found to mostly occupy mid-level regarding the fact that graduates with executive positions. Consequently, higher education have a high they are siphoning away USD 5 billion probability of employment annually (Mannan, 2015; 2017). This opportunities. While the other group, complex scenario gives a signal that contesting such claims argue that perhaps the existing tertiary education necessarily does not education system of Bangladesh is ensure the employability of the failing to produce skilled graduates. If laborers. Arguments from both the this situation is to be changed, it is school of thoughts have been imperative to revisit the entire discussed here briefly. tertiary education system of the Education has a robust country using a holistic approach for relationship with employability identifying the challenges which it is (Sharma, 2016). Both classical as well currently facing. On this backdrop, as neo-classical economist, namely this paper is an attempt to revisit the William Petty and Adam Smith, and A. overall tertiary education system of Marshall have broadly discussed how Bangladesh for pinpointing the the level of education can impact the loopholes which have resulted in the productivity of labor leading to a net production of unskilled graduates. increase in payment (Chen & Wu, The study also aims to come forward 2007). Later, Schultz (1961) and with some pragmatic solutions that Becker (1962) strengthened this will help to solve the existing problem argument by theorizing the ‘human of ‘educated unemployment’ to a capital theory’ (Debbarman, 2019). certain extent. This notion was further enriched by the study of Schultz (1975) who Research Methods expounded that education could not This paper is highly only ensure a sustained employment descriptive and qualitative in nature. opportunity, but also has the Data has been conducted from potential to increase employment various secondary sources which incomes through enhancing people’s include books, book chapters, journal “allocation efficiency” in a rather articles, newspaper articles. In volatile economic conditions (Chen & addition, relevant policy documents Wu, 2007). Following the and consultancy reports from prescriptions of Human Capital development partners, unpublished theory, many countries have put dissertations related to the research much of their efforts to educational objective were explored following the development during 1960s and 1970s (Chen & Wu, 2007). Various studies, Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 48 of 66 for instance, Robinson & Sexton an extent that it exceeds the (1994), Chen and Wu (2007), and threshold limit of the demand for Pages & Stampini (2009) have found required labor force. Therefore, when out that education has a strong this sort of rather complex situation positive influence on employment. happens, the applicants despite These studies also argue that a labor having high educational levels fail to force by dint of education can even get their expected jobs. Consequently, create their own employment they are forced to look for certain opportunities through jobs which are rather placed at the entrepreneurship, and result to self- lower spectrum that often requires employment success. According to less educational qualifications. Ansell (2005 cited in Tellegen, 2013), However, this have a severe education has a considerable role in implications on the job prospects for declining the rate of unemployment. the applicants’ with lower He also expounded that education not educational levels. In other words, only assists adolescents by such a scenario is created that further developing them through acquiring squeeze the job market for these skills and knowledge but also applicants with lower educational facilitates them to productively levels. Ultimately, this leads to a participate in the labor market. significant rise of unemployment However, when too many (Boudon, 1974; Hirsch, 1977 cited in graduates enter the labor market that Chen & Wu, 2007). The Job Search can create complexity in ensuring Theory also had similar arguments. It proper employability. The Screening states that higher level of education Theory, put forward by Spence of the applicants open many window (1973), better explains such of opportunities for them. Put simply, complexity. According to Screening an applicant with high educational Theory, educational level of the labor level have high prospects of availing in the markets then plays a signaling an employment opportunity. role to the employers which reflects Conversely, when applicants have low what skills they have. Thurow (1975) educational level, then they are more further solidified this argument exposed to the potential risks of through further clarifications by the unemployment (European formulation of the Job-competition Compassion, 1998 cited in Chen & Model Theory. More specifically, this Wu, 2007). theory postulates that although all Again, there is another the applicants hope to get a job argument as well among scholars. For placement in their desired positions, instance, according to a recent report organizations usually prefer to by UNESCO (2012), education might employ those who have not always equip adolescents with comparatively high educational the skills as the job market requires qualifications. As a matter of fact, (Tellegen, 2013). As a matter of fact, positions at the upper echelons are it is often observed that many occupied by the applicants with adolescents cannot find work. Even, if higher educational qualifications. they can, such work can barely While those with lower educational support them and thus they end up levels find themselves being assigned living below the poverty line with relatively inferior jobs with less (UNESCO, 2012). In order to explain social prestige and recognition. this phenomenon, ILO (2013) Again, it so happens that the market brought the concept of ‘skills gets flooded with labor force to such mismatch’. In simpler terms, it refers

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 49 of 66 to the mismatch between the and the postgraduate programs requirements of the labor market offered by the universities (public with the skills of the potential and private); second, through the employees. According to Thisse and graduate and postgraduate programs Zenou (2000) and Fasih (2008), this offered by tertiary colleges under the sort of imbalance usually results in general education system; third, unemployment. Most of the jobs in through the diploma programs in the this era of globalization and the polytechnics under the TVET system; fourth industrial revolution require a and finally, through theology based degree of competence and soft-skills. education offered by Madrasas(Aliya More specifically, as noted by Fasih and Qawmi) (T. Rahman et al., 2019). (2008 cited in Tellegen, 2013), people These different Tertiary education who possess cognitive skills, critical institutes (TEIs) are the main entities thinking ability, problem-solving which have the responsibility in skills, entrepreneurship, innovation, order to create and disseminate new mindset to work and adapt to knowledge. This will be done through changing work environment, etc., and a continuous innovation and cutting- valued by global employers. It is edge research by these TEIs. The rather ironic that most job seekers, ultimate aim and objective of these particularly in transitional countries TEIs is the preparation of such a do not possess the above-mentioned workforce who will have relevant competence and soft- skills. skills and expertise that will be critical in order to meet the demands Tertiary Education System in of the ever changing technology and Bangladesh: A Synopsis skill-economy (T. Rahman et al., Tertiary education in 2019). Bangladesh is provided through four streams. First, through the graduate

Figure 01: Simplified Organogram for MOE for tertiary Education in Bangladesh1

1 Adopted from (Rahman et al.2019, p. 58) Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 50 of 66

According to NEP (2010), the University Act 2010 (T. Rahman et al., Ministry of Education (MOE) is the apex 2019). When it comes about the tertiary body, which has the responsibility for colleges, they do not have any autonomy giving the policy direction and steering related to their academic affairs. This is the overall management of the higher because, most of them (baring a few) education sector in Bangladesh. There are affiliated to the National University3 are several departments and (NU) (as shown in Figure 01), which is institutions attached to MOE which one of the largest public universities in function like assisting agencies so that it Bangladesh. This NU provides the can implement the governmental policy oversighting role of the tertiary decisions at the grassroots level. Again, colleges4 which mostly covers their through these agencies, MOE entire academic affairs. Currently, 72 implements various development and percent of the total tertiary level non-development programs and students are enrolled with different projects (T. Rahman et al., 2019). The tertiary colleges under NU (Mannan, Secondary and Higher Education 2015). While the administrative affairs Division (SHED) of the MOE (as shown (recruitment of teachers and fund in the figure 01) is responsible for allocation) of these tertiary colleges are managing the higher education sector managed by the Directorate of through two others bodies., viz.- the Secondary and Higher Education Directorate of Secondary and Higher (DSHE). However, the governing body Education [DSHE] and the University (GB), a locally elected entity is generally Grants Commission2 (UGC). The UGC responsible for steering and facilitating being established in 1972, has the the administrative affairs of the non- supervision and coordination mandate government colleges (T. Rahman et al., of both public and private universities. 2019). UGC also has the responsibility to Directorate of Secondary and maintain the quality standard of Higher Education (DSHE). However, the university education. Moreover, it is governing body (GB), a locally elected also mandated to manage the allocation entity is generally responsible for of government funding to universities. steering and facilitating the Furthermore, it provide advice to the administrative affairs of the non- government on issues related to tertiary government colleges (T. Rahman et al., education (T. Rahman et al., 2019). 2019). Nonetheless, the public universities enjoy full autonomous status both academically and administratively. They 3 According to the Act of 1992 (No. 37), the NU has been are either governed by their own Acts or authorized as the only higher education institution with by the Presidential Order (T. Rahman et which all the colleges can be affiliated with. Moreover, the NU will have the academic responsibility of all these colleges al., 2019). Although private universities which usually provide post-secondary general education enjoy autonomy to a certain extent, they (Rahman et al. 2019, p.58). 4 The National University has the control in the affiliated are subject to regulations of the Private colleges in certain affairs like contents of curriculum examinations, student registration, and professional development of teachers. It is important to note here that 2 According to the President’s Order 1973 (No. 10), the role affiliated colleges neither have the authority to develop their of UGC is the that of a principle agency having the curriculum nor they have any such authority to revise that. responsibility to coordinate all the matters that falls within Again, there are few tertiary colleges which are affiliated to the purview of university education pertinent to planning of other public universities rather than NU. In other words, fund allocation and development. In addition, those universities, with which they have been affiliated with implementation of higher education and research programs have the responsibility to oversee their academic affairs. For in public universities also fall within their jurisdiction. instance, in 2017, six government colleges were re-affiliated Moreover, they also have the role of referees in monitoring to University of Dhaka from the NU (Rahman et al. 2019; p. of public and private universities (Rahman et al. 2019, p.57). 58).

The Technical and Madrasa degrees which is given by the Aliya Education Division (TMED) of the MOE madrasa or Islamic Arabic University is responsible for managing the have the same valuation as degrees Technical and Vocational Education given by the Universities. Apart from Training (TVET) sector through the these madrasas, another huge stream of Bangladesh Technical Education Board Madrasa education remains outside the (BTEB) and the Directorate of Technical direct grip of the government of Education (DTE) (as shown in figure Bangladesh. This is popularly known as 01). However, the responsibility of DTE the Qawmi Madrasa system. Quite is more of administrative one which interestingly, it has its own management include-managing human resources, body popularly known as Befaqul development activities, and mere Madarisil Arabia, Bangladesh (BMAB). It academic supervision in the sector (T. needs to be mentioned here that BMAB Rahman et al., 2019). While the power operates independently outside the and authority for the regulation of the direct governmental control. For academic activities of this sector falls Qawmi madrasas, BMAB is also that within the jurisdiction of BTEB. In other entity which has the sole responsibility words, management of the academic for the maintenance of the contents, setting standards, and organizational setup starting from the providing certificates to the TVET primary level to the postgraduate levels graduates, all come within the purview (T. Rahman et al., 2019). Available data of BTEB’s responsibilities. As it is the suggest the madrasa students, both BTEB’s onus to design academic from Alia and Qawmi stream collectively programs of polytechnics, on that stand around 8.2 percent of entire account, polytechnic institutions have tertiary enrolment (Mannan, 2017). very little autonomy in this regard. There is a total of 23 ministries, Key Policy Instruments for Tertiary including MOE, who are offering various Education skills training programs targeting In order to guide the different cohorts (T. Rahman et al., development priorities and strategies at 2019). Currently, 14 percent of tertiary the tertiary level education in level students are enrolled in technical Bangladesh, there are four key and vocational institutions. government instruments which include TMED also has a liability for the (i) Seventh FYP (2016-2020), (ii) supervision of tertiary-level religious National Education Policy (NEP, 2010), education (See figure 01). More (iii) Strategic Plan for Higher Education specifically, Aliya madrasas are in Bangladesh (2018-2030), and (iv) supervised by TMED through its National Skills Development Policy Directorate of Madrasa Education (NSDP, 2011). Table 01 succinctly (DME) (T. Rahman et al., 2019). depicts some of the major However, those tertiary level madrasas recommendations stated in these four have affiliation with the Islamic Arabic key policy instruments. University (IAU), for the educational affairs. The graduate and post-graduate

Table 01: Major recommendations in key policy instruments for tertiary education5 Key Policy Majors Recommendations Instruments

National • Advocates for rigorous application of minimum certification standards Education for TEIs Policy (2010) • Advocates to have such a curricula that will be of international standards at TEIs. • Advocates the urgency of training/retraining teachers of both universities and colleges for incorporating pedagogical and subject-based knowledge. • Have enough encouragement for both teachers as well as students of TEIs for taking part in research activities with the intention of finding out the country’s specific problems. In order to materialize this, the policy also ensures adequate funding for the capable researchers to undertake original researches fellowship as well as grants for young researchers. Moreover, there is also encouragement for the Universities for promoting institution-based consultancy activities within their peer groups, i.e. their faculty members in order to further strengthen not only their research capabilities and but also their outreach activities. • Highlights the importance of access to e-resources. For instance, e- journals, e-books through ICT is as a means of sharing and accessing research results. • There is also encouragement for tertiary-level colleges for engaging in research related activities. • Strongly advocates for a time to time review and revision of TVET curriculum considering the demand of the job markets at home and abroad • Emphasizes on filling up vacancies of teachers and • Advocates for hands on experience on teacher training at industries. • Advocates for conduction of skills demand survey on a top priority basis. Considering the results of the findings, there is an urgent need for alignment of education and skills qualifications Seventh FYP • Calls to diversity the technical education programs, for instance, ICT (2016–2020) • Advocates to modernize the skills of training institutions for improving the quality and relevance of education for filling the gap of skills in the labor market • Advocates to create more and better employment opportunities for youth. • Has highlighted both teaching and research activities as the predominant roles of the universities. The Strategic • Stresses upon the creation of a quality teaching culture at the higher Plan for education institutions Higher • Advocates for recruitment based on meritocracy, continuous Education development of faculty members through training, coaching, mentoring (2018-2030) programs • Advocates for creation of more relevant academic contents • Calls for the urgent formation of the national framework for quality

5 Developed by author by reviewing these policy documents

assurance and accreditation. • Acknowledges the fact that research and development is an indispensable part of modern economic era both in the government as well as the private sector. On that account, there is an urgency to establish a closer relationship between industry and university. This is because academic research will then be market responsive, i.e. geared to the industrial needs as well as the needs of the country National Skill • Set flexible, demand driven, and responsive TVET. Development • Stresses on the upgradation of the competency-based skills qualifications Policy NSDP recognition system, i.e. National Technical and Vocational Qualifications (2011) Framework (NTVQF). • Advocates to involve the private sector greatly in order to set the standard and training provisions. • Highlights the importance of having accurate skills and also emphasizes the role of a labor market information system that helps in planning proper skills and development strategies.

For translating the policy 2017). Moreover, provisions have been commitments into reality and made so that all universities (public and improving the quality of education, the private), have the access to academic e- government has prioritized on certain journals and e-books from world class areas like infrastructural development. publishers. This has been possible This mostly include setting up of because of the installation of the libraries and laboratories as well as the university digital library facility (UDL) procurement of scientific equipment’s in by UGC. Both the students as well as the the educational institutions at the faculty members can enjoy this facility tertiary level. In addition, with the aim (Mannan, 2017; Topader, 2019). In of fostering science and research order to further enhance the quality of education and making the young education at the tertiary level, the generation interested to study science government is planning to initiate the and technology, particularly ICT ‘Higher Education Acceleration and education, the government has invested Transformation” (HEAT) project with significantly in establishing new science the financial assistance of the World and technology universities (T. Rahman Bank. Currently, the government has et al., 2019). Moreover, UGC has focused on the tertiary level colleges successfully implemented the Higher and planning how to formulate a sector Education Quality Enhance Project development strategy for those entities (HEQEP) from 2009-2018 through the (T. Rahman et al., 2019). funding of the World Bank. Through the HEQEP project, public universities have State of Job market outcome of been brought under the internet Tertiary graduates: A Sorry Tale facilities coverage. Moreover, the The above discussion clarifies inclusion of modern virtual classrooms the fact that there is enough (that are connected via the Bangladesh commitment from the government to Research and Education Network) in promote quality education and skill these public universities, is facilitating development in TEIs. Despite such in establishing visual interactive contact commitment at the policy level by not only amongst themselves but also government, higher concerns have been with any university or research raised regarding the tertiary education organizations across the globe (Mannan, system of our country for some valid

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 54 of 66 reasons. This is because TEIs have institutions) to get a decent job. While significantly failed to produce skilled few are seen to pursuing further higher graduates. For instance, the report of education with the intention of gaining Bangladesh Labor Force Survey (2016- more skills and qualifications (Rahman 2017) states the rate of unemployment et al, 2019). If the graduates' for graduates with tertiary educational employment is delayed for obtaining qualifications was around 11.2 percent. higher educational qualifications, that is Quite alarmingly, this rate of quite understandable. However, what unemployment was about three times makes it more frustrating when the higher than the national mean graduates despite having 16-17 years of unemployment rate. More specifically, education (10 years schooling, 2 years in 2017, the country’s average rate of higher secondary, and 4-5 years at unemployment was 4.2 percent. Again, tertiary level) crowd in coaching centers Rahman et al (2019) notes that despite or other specialized institutes for skill completing graduation, more than one development. It again puts a question third of these cohorts are found to stay mark on the quality of education being jobless or without job placements. Put rendered at TEIs in particular because simply, it usually takes around one or these TEIs were supposed to make them two years on average for the graduates well prepared for the market needs. (regardless of the type of graduating

Figure 02: Status of employment for graduates after 1-2 years after graduation6

6Adopted from Graduate Tracer Studies (2016, 2017, 2018) for employment status cited in (Rahman et al, 2019:19)

However, it seems that this for the private university graduates is phenomenon of graduate relatively higher compared to the unemployment, with a certain period public university graduates. To be of joblessness, has become a new more specific, whereas 44 percent norm in Bangladesh. In fact, it has private university graduates can get become such an unavoidable reality job placements, only 32 percent of that most of the graduates in the their counterparts from public country have to encounter with. universities can fair off and stay in Another interesting phenomenon that the hunt by getting employed in has been observed is that there are various sectors. Moreover, the rate of considerable differences across the unemployment is much higher when type of tertiary level educational it comes to Madrasa students, institutions, as has been discussed particularly the Qawmi ones. A recent earlier. As a matter of fact, the study conducted by Abul Barakat has employment outcomes of these found that around 75 percent of graduates from diverse educational students of Qawmi madrasa remain backgrounds also shows significant jobless for a lack of expertise despite variation. Nonetheless, the alarming the recent declaration from the factor is that the graduates from government regarding the colleges affiliated with NU have recognition of a higher certificate of appeared to be performing below par. Qawmi madrasa (Dawra-e-hadith) More specifically, only around one equivalent to a post-graduate degree fifth on the total number of tertiary (Daily Star, 2018). college graduates can avail either full- time or part-time employment Issues and Challenges with current opportunities. However, almost fifty tertiary education system: A Critical percent of the total number of Analysis tertiary college graduates remain Thus, the bottom line is that unemployed (T. Rahman et al., 2019). the tertiary education system of A study conducted by Ahsan (2019) Bangladesh is certainly facing suggests that around 46 percent of challenges to render quality National University graduates require education which is resulting in long a minimum of 3 years to find a job. spells of unemployment. This again Meanwhile, employment outcomes puts two fundamental questions for TVET graduates appear somewhat regarding the fact that whether these better. The possible explanation can graduates from TEIs lack job be that polytechnic graduates are readiness or is it the something valued more in the job market and associated with dearth of relevant have higher chances of availing job skills. Regarding this, Thisse and opportunities in contrast to the Zenou (2000) and ILO (2013) rightly universities or colleges graduates pointed out that when such an because of their competitive imbalance occurs between the skills advantage of having necessary skills required by the market compared to and relevant technical knowledge (T. the graduates acquired skills, this Rahman et al., 2019). Figure 02 ultimately leads to unemployment or illustrates these facts more explicitly. even underemployment. This The state of employment situation has not happened in outcome for university graduates is Bangladesh for one linear reason. also below the satisfactory level. Rather an aura of factors which are However, according to the findings of responsible for this situation in BIDS (2019), the rate of employment

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 56 of 66 country have been unpacked and managing occupational health, and pinpointed below. safety issues are not offered by most 1. Curricula not being updated and universities. Even, the most leading aligned to industry needs and frontline private universities also do not have a specific center on Although NEP (2010) has Corporate Social Responsibility made recommendations for (CSR). Furthermore, the existing formulating curricula that will be of curriculum also lacks some vital international standards at tertiary elements like how to groom students educational institutions, the outcome in becoming smart merchandisers for has been rather disappointing. To say negotiating with buyers (S. Rahman, the least, neither the curricula nor 2019). the academic courses at the tertiary The case is more severe for NU level have been updated at regular where the curriculum is rather intervals. Of course there have been outdated, which have very little exception in certain universities or relevance in addressing the emerging departments, but this have been the challenges of this era of fourth common scenario throughout the industrial revolution. For instance, country. Again, there is barely any the BA in English curriculum has been research concentrated on the designed in such a way that it is not students’ academic (S. Momin, 2019). incumbent on the students to take Reza (2019) rightly noted that most speaking and listening modules. often, curricula are found mainly Consequently, most of students who focused on theoretical knowledge do complete their graduation in with little emphasis on how to link English end up with mere paper the theoretical knowhow into qualifications having limited practice. communicating skills in English. Again, the content of the Ahmed (2019) noted that although curriculum is not in congruence with many tertiary colleges have separate the industry needs particularly the departments for offering science RMG sector. Currently, only two related courses like Chemistry, universities, namely BGMEA Physics, Zoology, Botany, etc., University of Fashion and Technology however, the ground reality is that (BUFT) and Bangladesh University of they are not well placed in terms of Textiles (BUTEX), are there in the logistic support or infrastructural set country that have specific focus on up. More specifically, baring a few, the garments and textile industry. most of these colleges do not have There are some degrees like textile adequate laboratory facilities. This and industrial engineering which are limits the students’ chances to gain being offered by some universities. the practical knowledge which again Graduates from these subjects also can have severe implications after can have high prospects in fulfilling their graduation. Having no the demand of the RMG sector (S. alternative, these students follow the Rahman, 2019). However, what is pathways and trends of their quite shocking is that, despite having predecessors. In other words, they more than a hundred private complete their graduation by universities in the country, very few memorizing answers of certain of them offer courses on industrial number number of questions and engineering. Moreover, modules crowd the job market without in related to labor management, depth knowledge or hands-on skills managing industrial relations, (Ahmed, 2019). The curriculum being

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 57 of 66 followed by madrasa (both Aliya and process, since time immemorial Qawmi) are also outdated and not (Topader, 2019). Moreover, the market sensitive. classroom facilities in TEIs 2. Traditional Teaching throughout the country portraits a methodology picture of many students sitting in several rows of benches, having very There is no denying the fact limited spaces that hardly leave any that there has been a great amount of scope for adopting critical thinking, concern for more than a decade about group discussion, problem-solving, how to design and shape the simulations, role-playing, case academic curriculum and put it in the analysis, and other student same wavelength of the industry interactive techniques. Again, the needs. Moreover, the task do not end absence of essential multimedia there rather to yield positive results, equipment such as projectors and perhaps, more challenging task is speakers prevent lecturers from how to deliver that in the classroom effectively communicating in large and create such a mindset that would classrooms. Albeit leading private emphasize on the application of universities have adopted these into learning, i.e. how to relate the their curriculum, the story remains theoretical knowledge with real the same for the bulk of the TEIs world problems and bring solutions. across the country (Ahsan, 2019). Despite having such concerns, the 3. Lack of continuous supply of education system which TEIs are qualified teachers following is pretty much outdated and rigid. There exists only one way Continuous supply of qualified of interaction between student and teachers is another major concern of teacher (Rahman et al., 2019). ensuring quality education at TEIs. Teaching at these institutions The concern is applicable to both primarily involves rote-learning, public as well as private universities. which induces the passivity of TIB (2019) noted a few irregularities students and does not promote or in the recruitment of teachers in encourage critical thinking and soft- public universities. Mushrooming of skills – all of which are essential skills private universities has also attracted in the modern job market. (T. many to take up teaching as a Rahman et al., 2019). Quite profession who perhaps have never astonishingly, still, lecturing method aspired to be teachers. Not everyone is mostly being used in TEIs. can be teachers and especially when Undoubtedly, this is a problematic it comes to teaching at universities, because there has been a then definitely there is a need for paradigmatic shift in the teaching those faculties who have the proper arena. More specifically, the current qualification and passion to serve paradigm of pedagogy encourages academia. Regarding this problem of education based on ‘learner centric’ intrusion of many free-riders in approach and welcomes the active private universities as teachers, engagement and participation of the Andaleeb (2019) commented students in the learning process. This critically that they were at those is quite contrasting to the traditional positions either not finding proper paradigm that narrowly focused on jobs or they were looking for teacher centric approach that has something on an ad-hoc basis to rather ignored the active engagement support them. Moreover, as the of students in the active learning private universities are largely

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 58 of 66 unregulated, doubts are often cast issue particularly pronounced in over the transparency of the teacher district towns is the high number of recruitment process. vacancies in tertiary colleges. Ahsan There is a dearth of qualified (2019) rightly noted that the teachers in the tertiary colleges centralized teacher recruitment affiliated with the National system ultimately led to time lags University. This is because of the sometimes up to 2 years. The generalized recruitment system selection is further crippled as through which they join the service. pointed by Momin (2019) by high In other words, teachers teaching in rates of turnover within this time government colleges affiliated with period. National University get their 4. Dearth of proper training facility appointments through the for the faculty members of the Bangladesh Civil Service (BCS) Universities examination under the Education Cadre. The assessment process for According to Islam (2016), recruitment is done through lower returns from the tertiary level preliminary examination, where education system is because of the multiple choice questions are mostly dearth in professionalism and skills of set on diverse subjects, which often the teachers It is rather ironic that does not require to be specialized on Bangladesh is such a country where a any relevant field. Rather candidates fresh university graduate, who does can pass out the first huddle through not have any earlier experience or memorizing. Secondly, they have to training of teaching, can instantly be sit for written examinations on appointed as a lecturer and be asked specific disciplines where again, to go to classroom for delivering candidates can make their way out lectures. The key assumption that lies through show-casing their here is that a student who has memorizing skills in the papers (S. performed really well in various Ahmed, 2019). Again, previous academic parameters by dint of merit examinations grade have little effect will also be a good teacher. However, on the selection process much unlike such generalizations might even state-run universities. In other words, backfire. The reality is that in order to the conditions are so set where a prepare someone to be a good candidate with an average result (for teacher, he/she will have to go instance second class) can apply for through several trainings in order to the post. This implies that a graduate get equipped with necessary skills. with a mediocre degree can end up However, sadly there is still no scope being a teacher at NU, and that to for for providing formal training to teaching the Masters level students! university teachers despite the Moreover, Ahmed (2019) observes commitments being laid down in NEP that the candidates even do not need (2010) and Strategic Plan for Higher to go through an interview or Education (2018-2030) about demonstration phase, (as it is done continuous faculty development for both public and private through training on both subject- universities), where the experts of based knowledge and pedagogical their respective disciplines will assess skills. The situation is somewhat his/her subject related knowledge better at the college level (Mannan, and see whether he/she is the best fit 2017). Another strange perception to appointed as teacher to teach at that prevails in the Bangladesh tertiary (S. Ahmed, 2019). Another academia is that obtaining a Ph.D.

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 59 of 66 degree in their respective disciplines promoting technical and vocational will lead to highest form of education is rather a day-dream! professional development of the (Mannan, 2017). It is a general faculty members. After that, very little phenomenon in all the developed importance is given to further train economies of the world that students university teachers regarding get involved in research activities as pedagogical skills. In simpler terms, soon as they get their admission into too much emphasis has been put for the universities, i.e. from the discipline-specific knowledge undergraduate level. Nevertheless, in development in contrast to other context to Bangladesh, Momin (2019) aspects of teaching and learning notes that many students can even strategies (Islam, 2016). complete their post-graduation 5. Poor funding allocation for programs that to without having to tertiary education do any proper research work in any particular area of their subject. This The significance of research in mostly happens because of the lack of any field, be it science, social sciences, research allocations. Lower applied sciences, environmental budgetary allocation along with the sciences, pharmaceutical sector, etc. absence of loan schemes for tertiary can’t be overemphasized. Both NEP level education also hampers the (2010) and Seventh FYP have enough progress of many potential encouragement for the teachers and candidates in getting enrolled in the students of tertiary education public or private universities. institutions (both universities and Exceptionally higher tuition fees of tertiary level colleges) to take part in private universities which is beyond research activities. In order to the reach of the middle class and materialize that, there is further lower middle-class families make the assurance of adequate research situation even worse. Thus, the funding for researchers so that they majority of the students (72 percent can conduct original and empirical of the total tertiary level students) get researches (T. Rahman et al., 2019). themselves enrolled in tertiary level However, such encouragement is not colleges under NU that has often been reflected in terms of budgetary criticized for having substandard allocation for higher education. The curriculum, low teaching quality, and current allocation for education in inadequate infrastructural support GDP is less than 2 percent. Quite (Momin, 2019; Topader, 2019). alarmingly, only 2 percent of that 2 6. Lower participation in STEM field percent is invested for higher education education. It is the lowest among all of South Asian countries! (Mannan, We are living in an era of the 2017) Let’s not forget about the fourth industrial revolution, artificial system loss, a common phenomenon intelligence which demands more not only in Bangladesh but also in graduates from the field of science, most of the transitional countries. So technology, education, and if that is taken into consideration, the mathematic (STEM) field of actual figure of investment for this education. However, the reality is that purpose perhaps will be even lower! only 21 percent of all enrollments at Therefore, with this scanty allocation, the tertiary level of Bangladesh are in expecting to do wonders in tertiary STEM fields whereas it is 40 percent education in terms of improving in India and 28 percent in Sri Lanka research opportunities and (T. Rahman et al., 2019). Again, when

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 60 of 66 it comes about the tertiary college orders, not complying with Private enrollments in STEM fields, it stands University Act 2010, etc. (Rashid, only 9 percent. A survey conducted 2018). In order to grade the quality of by World Bank revealed that as the education at the tertiary level, the costs associated with providing STEM parliament of Bangladesh have education are relatively on the higher passed a legislation in 2017 for side, therefore, colleges prefer to creating an accreditation council that offer more generalized courses in will be an independent body and humanities and business (T. Rahman operate with more autonomy. Despite et al., 2019). the fact that the first Chairman of the 7. Absence of a strong quality council was appointed three years assurance mechanism ago, i.e. in August 2018, it is rather ironic that the council has yet not As mentioned in the earlier been operational (Daily Star, 2018). part of the paper, UGC has the responsibility to supervise and Pathways for improving the quality coordinate public and private of tertiary education system in universities along with the Bangladesh maintenance of the standard of The critical factor on which quality education in the universities. the development of a modern society But, it is rather a pity that it still depends to a great extent is the operates with a mandate that is 48 nature and the quality of the tertiary years old, i.e. of 1973. Moreover, education system. This is because if despite being a statutory body, it the tertiary level education is operates with very circumscribed effective, it can significantly autonomy, in contrast to similar contribute to promoting prosperity in statutory bodies across the globe the developing economies (Topader, (Mannan, 2017). When the mandate 2019). It is quality higher education of 1973 was formulated, there were that has the potential to prepare only four public universities and no people for the economy that will be private universities which now stands knowledge based. Moreover, quality to 47 public universities and 105 higher education also has the merit to private universities respectively. This provide an impetus for innovation begs a question about the relevance and creativity (S. Momin, 2019). of that 1973 mandate in the current Unfortunately for Bangladesh, the context when UGC’s supervisory role entire tertiary education system had has increased immensely. Albeit witnessed a long period of stagnation prescriptions have been made since in terms of quality, despite an 2008 to transform UGC into a Higher impressive performance in terms of education Commission, it has yet not quantity. Various streams of the been materialized. Such a petty state tertiary education system have not of UGC with the obsolete mandate helped the cause either. End result and so much to do seriously hampers has been low returns from tertiary the strong quality assurance education which hovers around 20 mechanism. percent (T. Rahman et al., 2019). Most Several allegations are there countries that are looking to make against universities (both public and remarkable economic strides have private) in particular which include acknowledged the fact that the key to the shortage of quality teachers, inclusive growth is education. More operation of private universities in specifically, they have emphasized rented buildings using court stay more on quality higher education as a

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 61 of 66 means to reach their destination (S. defeating. Thus, this huge number of M. Momin, 2016). As Bangladesh is teachers need to be properly trained also pursuing the same pathways as up through regular training programs other countries, so it is imperative to infuse modern pedagogical ideas. that the current issues and challenges Currently, there is no training of the tertiary education system, institute for university teachers. So which has been haunting it for quite immediate steps should be taken for some time, are adequately addressed. establishing a training institution like It needs to be mentioned here that BPATC (Bangladesh Public corrective measures will yield Administration Training Centre), superior returns in the economy. BCSAA (Bangladesh Civil Service Based on the discussion made in the Administration Academy). If civil previous section, this study offers few servants and other government mitigating strategies for the officials can be sent on foreign concerned policymakers. trainings for capacity building, why First, updating curricula can’t university teachers not be sent? should be given a topmost priority for The government should take this all TEIs (universities, NU affiliated policy prescription of foreign training colleges, and Madrasas) which should of teachers seriously into be aligned to the industry through the consideration as the returns of such introduction of more practical programs would be incredibly higher. courses replacing the existing Fourth, after updating the theoretical ones which have little curriculum and having qualified relevance to present context. For teachers, if the TEIs stick to the making the students sellable in the traditional way of teaching, it will market in the context of the fourth again not serve the purpose. The industrial revolution, the curricula existing classrooms should be must have a special focus on modernized with digital amenities so improving the cognitive skills, that teachers can adapt the learner- communication ability, IT literacy centric way of teaching. As a result, along with the options of internships this will help the students in and field visits. developing not only their critical Second, updating curricula and thinking potentials but also the introducing market needed courses problem-solving ability. Again, the won’t heal the problem if qualified, learner-centric way of teaching will well-trained teachers are not only be fruitful if the teacher-student ensured. In order to make that ratio can be reduced as has been happen, special attention should be mentioned in NEP (2010). given to recruiting teachers in TEIs Fifth, implementation of all that will be free of the spoil system. these suggestions for ensuring quality Private Universities also need to education at TEIs will require a huge follow strict policies in case of hiring investment that current budgetary faculty members. Even, in the case of allocation would simply not allow. tertiary colleges, the government Hence, the government must radically needs to revise the existing raise the allocation for education. recruitment and selection policy Once the budgetary allocation is where the merit of the candidate is increased, the government might also very much less valued. think about providing loans to Third, having an updated prospective students who can’t get curriculum and good teachers in TEIs enrolled in STEM-based education without proper training can be self- owing to a limited funding

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 62 of 66 opportunities. Moreover, the improvement in the tertiary government should also have a education system in Bangladesh, stringent eye so that public funds are however, there are still questions properly utilized because there have regarding to what extent its quality been reports about certain has enhanced. If the education system misappropriation about much talked is viewed from an industry ‘HEQEP’ project in the name of so- perspective, then it suffices to say called infrastructural development that it is failing to produce the (New Age, 2019). adequate number of skilled graduates Sixth, Higher education as per the market demand. In other commission (HEC) and independent words, the contribution of the accreditation council is now a crying education industry to alleviating need for ensuring the overall unemployment or underemployment assurance and removing the issues have been below par. This irregularities in both the public and study has unbundled several the private universities. The underlying factors that have plagued government also needs to regulate the overall tertiary education system the theology-based Qawmi madrasa in Bangladesh. Nevertheless, it does in particular through certain not mean that these issues cannot be mechanisms. It is surprising that fixed. Rather, through a strong most of the recommendations of this political will and adopting a holistic study can also be found at the policy approach, the current scenario which level commitment of government but portraits a picture of gloomy winter sadly a little of those have seen light. can be gradually turned into a sunny Last, but not the least, all these summer one. It is expected that the efforts put for reforming or mitigating measures that this study modernizing the tertiary level has come up with if taken into education will have very little impact, consideration and implemented provided a overhauling and accordingly by the concerned exhaustive changes are not brought policymakers, will help to change the into the subsequent lower level of the existing situation to a certain extent. education pyramid (i.e. primary, Having said that, it also has to be secondary and higher secondary mentioned here that it would be levels.). On that account, if the rather naïve to expect a thorough tertiary level education has to match change overnight. Reaping benefits the global standards, echoing on the from the implemented measures will same tone with Topader (2019), this take some time as it is herculean task. study recommends that the country’s However, Bangladeshi policy makers entire education system should be should put it at the top of the priority viewed from a holistic perspective. In list in the policy agenda. This is other words, historical evidences because the nation have certain goals suggest that mere ad hoc, piecemeal to achieve, for instance vision 2021, and sporadic solutions won’t be Agenda 2030 and Vision 2041. The adequate enough for fixing the role of skilled youths and manpower existing issues and challenges of this in the achievement of those goals sector. cannot be overemphasized. Hence, it is imperative that Bangladeshi policy Conclusion makers take a proactive step for From the above discussion, it enhancing the overall quality of is evident that although there has education system at the tertiary level. been a considerable quantitative

Nonetheless, this study is Andaleeb, S. S. (2019). Future constrained because of its over- readiness of Bangladesh’s reliance on the data from various higher Educational secondary sources. Despite that, this Institutions. Received from macro study has portrayed the bigger The Daily Star website: picture of the story. Nevertheless, https://www.thedailystar.net/ there is enough scope for digging opinion/education/news/futu more into this topic through re-readiness-bangladeshs- empirical shreds of evidence. In fact, higher-education-institutions- further micro studies can be 1702786 conducted by taking each stream of Ansell, N. (2005). Children, Youth and the tertiary education system (for Development (Taylor & F). instance public universities, private USA: Routledge. universities, colleges affiliated NU, BIDS. (2019). Tracer Study of Madrasa, TVET) as a unit of analysis Graduates of Universities in for investigation. Bangladesh. Received from https://think- Acknowledgements asia.org/handle/11540/9678 The earlier version of the Boudon, R. (1974). Education, paper was presented in 7th Opportunity and Social International Conference of Public Inequality. New York: John & Administration and Governance at Wiley and Sons. BPATC, Savar, Dhaka, Bangladesh. Chen, Z., & Wu, Y. (2007). The The author would like to express his relationship between gratitude to the panelists who have education and employment: A provided constructive comments and theoretical analysis and feedbacks that have helped to empirical test. Frontiers of sharpen the arguments of this paper. Economics in China, 2(2), 187– 211. References Daily Star. (2018). Three of four Ahmed, H. (2019a). Enhancing quality madrasa students remain of education. Received from jobless. Received from The The Financial Express website: Daily Star website: https://thefinancialexpress.co https://www.thedailystar.net/ m.bd/views/columns/enhanci city/every-3-four-madrasa- ng-quality-of-education- students-remain-jobless- 1573654753 1526140 Ahmed, S. (2019). Higher education Debbarman, S. (2019). An analysis of and its purpose for labor market integration of Bangladesh. Received from visible minorities in Canada: The Independent website: the case of South Asians. http://www.theindependentb University of Manitoba. d.com/printversion/details/1 Fasih, T. (2008). Linking Education 97907 Policy to Labor Market Ahsan, S. (2019). Tertiary Education Outcomes. Washington: The in Bangladesh: A Sector in World Bank. Need of Reform. Received from Financial Express. (2019). Highly Data BD website: qualified but unemployed! https://databd.co/stories/tert Received from The Financial iary-education-in-bangladesh- Express website: a-sector-in-need-of-reform- https://thefinancialexpress.co 5290 Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges Journal of Contemporary Governance and Public Policy 2 (1), April 2021, 45-66 64 of 66

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(https://creativecommons.org/licenses/by-sa/3.0/).

Shah Md. Azimul Ehsan/Revisiting Tertiary Education System in Bangladesh: In Quest for Unraveling Existing Issues and Challenges