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Responding to New Demand in Tertiary Education …………… CHAPTER 5 RESPONDING TO NEW DEMAND IN TERTIARY EDUCATION …………… SUMMARY A growing number of young people, and increasingly adults as well, are participating in tertiary education. The expansion in the first years of tertiary education has to a large extent been driven by demand – by the desire of a wider group of people to be educated to higher levels, together with a growth in the acquisition of upper secondary and other qualifications that gain them access. New groups bring new interests and needs, which oblige tertiary systems to diversify structures, programmes and styles of delivery. This chapter looks at where the new demand is coming from, at how systems and institutions are responding, and at the degree to which they are able to offer suitable courses that lead to completion rather than drop-out. A continuing rise in demand can be seen not only in countries where tertiary education has expanded relatively recently, but also in those where it has been growing for some time. But new demand is coming from a greater range of age groups; even among people in their late twenties, participation rates are above 10 per cent in Denmark, Finland, Germany, Norway and the United States. Students therefore come to tertiary education with a wide range of prior experiences. They enter tertiary education programmes with either academic or vocational qualifications acquired in upper secondary education, often with some other post-compulsory or tertiary education experience as well and sometimes with validated experience gained outside educational institutions. This range of student background adds to the diversity of their interests and needs. An increased number of students come from relatively disadvantaged backgrounds, although their share in the total student body does not appear to have risen markedly. A more dramatic change is in the number of women, who now comprise a majority of students in most countries. As a result of these changes in demand, the character of tertiary education and of students’ experiences is evolving. Three features are particularly notable: • The widening of vocational or professional studies, whether through new “non-university” programmes or institutions or changes in the curricula of existing study programmes; • The opening up by institutions of alternative pathways, particularly in countries where students have previously been channelled in pre-set directions within highly segmented systems; • The opening up of such pathways by the students themselves, who are making new kinds of choices and thus creating new norms. In managing these changes, an important challenge facing tertiary institutions is to reduce the incidence of inefficient routes and drop-out. Although non-completion is a big concern for many countries, it is difficult to measure how many students leave tertiary education for negative reasons, how many never intended to complete a full degree or diploma, and how many go on to complete tertiary courses other than those in which they enrolled initially. Thus governments face the challenge of encouraging the development of diverse and flexible options which are clear in expectations, outcomes and links. Students need to be able to find courses that are well suited to their capacities, interests and needs. This greater flexibility has to be balanced with good information, guidance and structured programmes to ensure that learning efforts are not wasted. 80 RESPONDING TO NEW DEMAND IN TERTIARY EDUCATION 5.1 INTRODUCTION helped to acquire a complex range of advanced- level knowledge, skills and dispositions. They Tertiary education traditionally has educated an elite cannot do so simply by choosing from a vast, un- group of young people to higher levels immediately differentiated array of course options. The key after they complete upper secondary educa- role of institutions is their ability to organise tion. Today, it provides opportunities for learning in ways that reflect the complex struc- learning to a much larger section of the youth tures of knowledge, its uses and the interrela- and adult population. Figure 5.1 indicates that tionships among its elements. The challenge is tertiary institutions now reach a quarter to a how to provide for diversity and choice while third of people in their late teens and early ensuring the effectiveness and efficiency of well- twenties in a number of countries, and in some designed, coherent programmes. cases over 10 per cent of the population are enrolled even in their late twenties. This A further policy challenge is to address the expansion has been driven primarily by needs of the economy and of society alongside demand from a wider and more diverse individual demands. The OECD Jobs Study (1994) group of people for study beyond secondary signalled the imperative of improving flexibil- schooling, as a result of social and economic ity in the population to foster economic growth developments common to all OECD countries. and employment. That flexibility can be partly The challenge for tertiary education systems realised through a progressive implementation is not merely to meet demand with an expan- of a lifelong approach to learning as set out by sion of places, but also to adapt programmes, OECD Education Ministers (OECD, 1996a). But and teaching and learning to match a more governments cannot expect to promote strate- diverse set of student needs while also meeting gies for lifelong learning by directly controlling the needs of the economy and society. tertiary education. On the contrary, there is a need to build up the capacity of institutions to This final chapter looks at the structure of the manage themselves and to forge new partner- demand, at how systems are responding and at ships with employers and others, to help meet the degree to which they are succeeding in economic and social demands. An important meeting new needs and interests. It focuses on requirement of these new partnerships is to the first years of tertiary education (see Box 5A). move beyond a view of graduates as people with Specifically, the chapter addresses the following homogeneous attributes and knowledge, and questions: beyond a single narrow conception of what a first degree or diploma should certify. This does • How much has demand risen? not mean abandoning standards or quality con- • What are the routes into tertiary education? trol. Rather, within and among the diverse range • What is the profile of today’s entrants? of learning options, each study programme • What kinds of option are being offered to needs to have well-defined standards, content these students? and qualifications. The characteristics of programmes should be made transparent to • How many entrants fail to “complete” a employers and others, and students should be first cycle of tertiary education, and how able to move more flexibly among them. can drop-out be avoided? These questions pose some clear challenges 5.2 THE RISE IN DEMAND for policy makers. A system that caters for an increasingly heterogeneous group of students New demand for tertiary education has come must work not only to develop its diversity, but from a variety of sources. Rising aspirations, also to ensure that students are in practice changing patterns of employment and careers offered a range of choices that they can match and rising incomes and wealth have made some to their needs. However, diversity and choice continuation of education beyond the secondary are not without limits. Students need to be level both an expectation and a perceived RESPONDING TO NEW DEMAND IN TERTIARY EDUCATION 81 Figure 5.1 indicates that demand continues to Box 5A grow not only in countries where rapid expansion occurred relatively recently, such as WHAT IS MEANT BY THE FIRST YEARS OF France, Portugal and Norway, but also in those TERTIARY EDUCATION? with longer experience of high levels of Tertiary education refers to a level of broadly participation such as Canada and the United defined studies, provided through established States. But the age range at which enrolment forms of higher education, but also in other rates are rising fastest varies from one country ways – through new kinds of institutions, by to another. In France, for example, the biggest enterprises and in other non-formal settings. growth from the mid-1980s to the mid-1990s was for the age group 18-21: the enrolment rate Nevertheless, it is mainly through institutions for this group rose from one-fifth to one-third – colleges, polytechnics, universities, whether of the total. But in the United States, one-third public or private – that tertiary education is of the population aged 18-21 were already provided. enrolled by 1985, and the growth in demand came rather from people in their mid-twenties. The first years of tertiary education, the subject Higher participation among older age groups of this chapter, refer to the period of study in some countries reflects a lengthening of the (typically three to five years) undertaken prior duration of studies, but it can also indicate to the award of an initial qualification that is more frequent alternation between work and recognised on the labour market. Adult study, or a growth in combined or complemen- education, in a wide variety of forms, is tary qualifications. All these possibilities add generally excluded from this definition, as are to the diversity of demand that tertiary programmes that lead primarily to awards at education must respond to. sub-degree level. Since 1980 the proportion of young people who An element of imprecision is inevitable, given complete a full cycle of secondary education, the different structural arrangements in and therefore qualify (in most cases) for Member countries and the choices students entrance into tertiary education, has increased themselves make. See OECD (1997b). in all countries (see OECD, 1996b, p.15). By 1995, the proportion of the cohort completing upper secondary education exceeded 90 per cent in Belgium (Flemish Community), Finland, necessity for a growing number of individuals.
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