Improving Efficiency in Tertiary Education

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Improving Efficiency in Tertiary Education 2 Improving Efficiency in Tertiary Education Greece lags behind many EU and OECD countries in making fundamental reforms to improve the global competitiveness of its tertiary education system. Over the past decade, Greece has taken only limited actions while other countries are moving ahead to: • Set forth long-term strategies with goals and benchmarks to improve the quality and efficiency of their tertiary education systems. In Europe these changes are being driven by the Lisbon Strategy and the Modernisation Agenda for Universities: Education, Research and Innovation. • Make far-reaching changes in governance and finance designed to bring about increased flexibility and responsiveness to national priorities and adjust to the realities of severe constraints in state funding (OECD, 2008b; European Commission, 2008a). Greece also remains behind many OECD and EU counties in important innovation assets such as the proportion of the population that has achieved a tertiary education degree and the competitiveness of research. In the long-term, the most important path to economic recovery is the development of these core assets. Making more efficient use of existing resources, including the use of human resources, is a critical means to improving Greece’s global competitiveness. STRONG PERFORMERS AND SUCCESSFUL REFORMERS IN EDUCATION: EDUCATION POLICY ADVICE FOR GREECE © OECD 2011 61 2 IMPROVING EFFICIENCY IN TERTIARY EDUCATION COMPETITIVENESS OF TERTIARY EDUCATION Educational attainment The proportion of 25-34 year-olds who have completed at least upper secondary education and tertiary education is larger than among older age cohorts (Figure 2.1), but the educational attainment of the Greek population with tertiary education, an indicator highly correlated with a country’s per capita income, continues to lag behind the EU19 and OECD averages (Figure 2.2). Figure 3. Net teaching time in hours: Greece compared to OECD and EU21 (2009) • Figure 2.1 • Population with at least upper secondary education (2008) Greece OECD average EU19 average 90 80% 82% 80 75% 75% 76% Percentage 71% 72% 69% 69% 70 68% 61% 56% 58% 59% 60 50 39% 40 30 20 10 0 25-64 25-34 35-44 45-54 55-64 Age group Source: OECD (2010c), Chart A1.2a. • Figure 2.2 • Population with tertiary education (2008) Greece OECD average EU19 average 40 35 35% Percentage 32% 30 28% 28% 29% 25% 27% 27% 25 23% 25% 22% 22% 20 20% 18% 15 15% 10 5 0 25-64 25-34 35-44 45-54 55-64 Age group Source: OECD (2010c), Table A1.3a. 62 © OECD 2011 STRONG PERFORMERS AND SUCCESSFUL REFORMERS IN EDUCATION: EDUCATION POLICY ADVICE FOR GREECE 2 IMPROVING EFFICIENCY IN TERTIARY EDUCATION Research output Despite considerable improvement in recent decades, the research output of most Greek tertiary education institutions remains relatively low by international standards. Greek scientific publications increased from less than 3 000 in 1993 to more than 10 000 in 2008 (Figure 2.3). • Figure 2.3 • Research output of Greek tertiary education, including research centres (1993-2008) 12 000 8 000 Greek Scientific Publications Greek 4 000 0 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 Source: Ministry of Education, Lifelong Learning and Religious Affairs, Greek scientific publications, as a share of OECD and EU publications, increased from less than 0.5% and 1.2%, respectively, in 1993 to more than 1.2% and 2.5%, respectively, in 2008 (Sahini, E., et al., 2010). Major issues related to efficiency A number of issues related to the efficiency of the tertiary education system need to be addressed through short- and medium- term actions: • a comparatively high percentage of upper secondary school graduates entering tertiary education but comparatively low completion rates and an inefficient allocation of students between the university and Technological Educational Institute (TEI) sectors and among academic departments; • the proliferation of small departments and degree programmes, many enrolling few students and producing few graduates; • the increasing blurring of mission distinction between the universities and the TEIs; • misalignment of tertiary education provision (especially at the TEIs) with the needs of the labour market; • ineffective internal governance and management of institutions resulting from both the persistence of severely out-dated centralised finance and regulatory controls, and dysfunctional internal governance and management structures; • finance policies that provide limited incentives for improved performance and efficiency and responsiveness of institutions to national strategic priorities; • lack of steering capacity to ensure that individual institutions as well as the overall size and shape of the system are accountable for implementing essential reforms; • inadequate data and information systems that are essential for institutional management, accountability, for system strategic leadership and steering; and • low levels of non-public funding, including limited cost-sharing by students within the constraints of the Constitutional mandate for free education. Current reforms Over the past decade, Greece has taken important steps to address some of these issues. Among the reforms were: • The establishment of the Hellenic Quality Assurance Authority for Higher Education (Law 3374/2005). • The enactment of a new higher-education framework law (3549/2007), making changes related to quality assurance, accountability, internal assessment processes and autonomy. The law included a potentially significant provision for a new allocation model of state funding. The law requires institutions to develop a four-year development plan that covers all the operational costs, STRONG PERFORMERS AND SUCCESSFUL REFORMERS IN EDUCATION: EDUCATION POLICY ADVICE FOR GREECE © OECD 2011 63 2 IMPROVING EFFICIENCY IN TERTIARY EDUCATION academic and financial matters, plans for development and investments, as well as the planning for obtaining more diverse funding sources other than the recurring state budget. The law grants the Ministry of Education authority to withhold approval of the institutional plan if the institution fails to comply with the quality assurance requirements of the Hellenic Quality Assurance Authority for Higher Education. The current government has taken other steps to pursue further reforms. The most significant of these is a draft Higher Education Framework law that would make considerable advances in the autonomy of higher education institutions (HEIs), improve internal governance and management, and strengthen public accountability. Key provisions of the law would: • increase institutional financial autonomy of institutions, relieving them of some of the centralised regulatory controls by the Ministry of Finance (as described in the introduction of this report); • strengthen internal governance and management; and • consolidate departments within larger faculties. The government is also pursuing reforms within the current legal framework, including: • improving the data on the higher education system including basic information on student enrolments, graduates, and institutional finances; • developing a new funding model as authorised by the 2007 law on four-year agreements but never fully implemented; and • making important steps to spur the closure and consolidation of small departments, especially at the TEIs, by curtailing the assignment of students to these departments for the 2011/12 academic year. These reforms will be referred to in greater detail in the subsequent sections of this report. Finally, two laws enacted in 2010 have important implications for tertiary education: a new law on Lifelong Learning (2879/2010) and a law establishing a National Qualifications Framework in accordance with the European Qualifications Framework (3879/2010). Both laws are in the early stages of implementation. While not within the scope of this study, both laws have the potential of contributing to more effective transition of youth to the labour market and to stronger links between tertiary education, especially the TEIs to nationwide and regional labour market training and education needs. ISSUES RELATED TO EFFICIENCY AND EFFECTIVENESS High entrance rates but comparatively low completion Enrolment trends Over the past 15 years, Greece has experienced a dramatic increase in enrolment rates in tertiary education. The number of students completing upper secondary education has increased as well as the number of students taking the university entrance examinations. The demand for tertiary education has risen as reflected in the number of students taking the university entrance examinations, but the actual numbers entering the system in any year is determined by the Ministry of Education. The Ministry determines the numbers of students actually given places and the departments to which they are admitted (within numerus clausus set by the ministry). Therefore, the number of new entrants to the system each year is determined by Ministerial decision, not directly by student demand. The enrolment rates increased significantly from 1999 through 2005 and have stabilised and decreased slightly since then (Figure 2.4). • Figure 2.4 • Gross enrolment rate, ISCED 5 and 6 (1999-2007) 100 90 80 Percentage 70 60 50 40 30 20 10 0 1999 2000 2001 2002 2003 2004 2005 2006 2007 Note: Gross enrolment rate is defined as total enrolment in a specific level of education, regardless of age, expressed as a percentage of the eligible official school-age population corresponding to the same
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