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"Education is not the filling of a pail,
but the lighting of a fire."
W. B. Yeats (1865 – 1939)
Although developing countries contain over 80 per
cent of the world’s population, they account for just half
of its higher education students, and a far smaller proportion of
those with access to high-quality higher education. Overcoming these
gaps is a daunting challenge that will require a concerted effort
between developing and developed countries.
In this concluding chapter we return to the three
core questions asked in the Introduction, summarizing the report
by synthesizing the answers to each question as they cut across
the various chapters.
- What is the role of higher education in supporting and enhancing
the process of economic and social development?
- What are the major obstacles that higher education faces in
developing countries?
- How can these obstacles best be overcome?
The preceding chapters broke these overarching questions
into a set of manageable and reasonably self-contained – though
not exhaustive – issues. We have tried to frame each issue
and to explain its importance today and, more significantly, the
role it is likely to play in the 21st century. We have concentrated
on what higher education offers society as a whole, emphasizing
those aspects of higher education where the public has interests
that are distinctly different from or more extensive than private
interests.
It is clear that higher education institutions come
in all shapes and sizes, and this means that solutions will need
to be organic. A standard set of remedies will also not work when
countries are so diverse. Despite this diversity, the main objective
of the Task Force has been to determine strategies for higher education
reform, as well as general guidelines and principles for assessing
the operation of higher education systems and institutions. These
benchmarks offer guidance for informed dialogue aimed at educational
reform – helping to cut through the often confusing thicket
of institutions and practices. Our analysis and conclusions are
a blend of research and discussion with colleagues from around the
world and the professional expertise of our members. We have consciously
tried not to emphasize the lessons of one country at the expense
of others.
This Report’s findings can be boiled down to
two simple conclusions.
- Significant obstacles. Higher education must overcome formidable
impediments if it is to realize its potential contribution to
society. Some – such as demographic change, fiscal stringency,
and the knowledge revolution – are determined by external
forces of considerable power and must be taken as given. Others
can be removed or mitigated. One example is the ineffective management
that plagues so much of higher education, yet this is largely
in the overlapping domains of higher education institutions and
national governments to overcome. Change will not be easy. The
problems are deep-seated, and efforts to rationalize and strengthen
systems and institutions will require sustained effort. This work
will certainly span several political cycles in most countries.
- Hope for progress. The problems facing higher education are
not insurmountable. Existing resources can be used more effectively,
and there are a number of areas in which the mobilization of additional
resources, both economic and political, will result in big gains.
Conversely, countries that continue to neglect higher education
will tend to become increasingly marginalized in the world economy,
suffer from relatively slow social and political progress, and
find it ever more difficult to catch up. Progress is most likely
in countries that develop a clear vision of what higher education
can contribute to the public interest. Piecemeal fixes must be
avoided in favor of a holistic approach, focusing on the complementary
and mutually reinforcing nature of a range of possible solutions.
How Higher Education Supports Development
Statistical analysis, case study, and common observation all point
to the fundamental importance of higher education to development.
Higher education promotes the following.
- Income growth. The vitality of higher education is a fundamental
– and increasingly important – determinant of a nation’s
position in the world economy. It contributes to labor productivity,
entrepreneurial energy, and quality of life; enhances social mobility;
encourages political participation; strengthens civil society;
and promotes democratic governance. It does this by creating public
goods such as new knowledge – a catalyst for rapid development
– and by providing a safe space for the free and open discussion
of the values that define the character of a nation’s development.
Economic growth is a powerful determinant of poverty alleviation
and improvements in people's lives. Higher education’s contribution
to growth, therefore, means better living standards for people
at all levels of a society.
- Enlightened leaders. Higher education can give leaders the
confidence, flexibility, breadth of knowledge, and technical skills
needed to confront effectively the economic and political realities
of the 21st century. It also generates cadres of well-trained
teachers for all levels of the education system.
- Expanding choices. Development is fundamentally concerned with
expanding the choices people can make. As such, an accessible
higher education system – offering a wide range of quality
options for study – is a major achievement, bolstering social
mobility and helping the talented to fulfill their potential.
- Providing relevant skills. Higher education is absolutely necessary
for training scientists, engineers, and others to help invent,
adopt, and operate modern technology in all sectors. Insofar as
scientists in developing countries are inspired to define and
address local problems, they are likely to contribute to appropriate
solutions in such vital areas as environmental protection, the
prevention and treatment of illness, industrial expansion, and
infrastructure provision.
These benefits are not automatic. They are linked to the character
of higher education systems and institutions, as well as to the
broader social, political, and economic systems within which they
are situated. Even a well functioning higher education system, operating
under the most favorable of circumstances, is not sufficient for
social and economic development. But better higher education will
certainly be necessary in most countries, if more vibrant development
is to take place. Indeed in some countries, especially those with
extremely low levels of per capita income, non-higher-education
initiatives will dominate the policy agenda for the foreseeable
future. Higher education will remain important for these countries,
but they may do best by relying, for the time being, on institutions
outside their countries, possibly with donor assistance, as a prelude
to building stronger higher education systems of their own.
We have not asked whether higher education matters more than other
key sectors such as agriculture, health, transportation, and basic
education. But we are absolutely confident that it is much more
important to development than one would surmise from the comparative
neglect it has received in most quarters of the international development
community in recent decades. Higher education’s benefits must
now be recognized more widely so it can take its place in the mainstream
of the international development agenda. The information revolution
that is driving the new economy is dependent on educated and literate
workers; and more than ever, the new ideas fueling this expansion
have come from people with tertiary degrees.
The Major Obstacles
The experience of higher education in developing countries has
been disappointing to date. Its contribution to social and economic
development has not mirrored accomplishments in developed countries.
The signs of this failure are most apparent when judged by international
standards as demanded by the emerging world economy. Poor educational
quality, a dearth of significant contributions to knowledge, and
a failure to advance the public interest are all too common.
Strategies for addressing these problems need to proceed from an
understanding of their underlying roots. We believe higher education
in many developing countries is significantly weighed down by three
sets of conditions.
- The absence of vision. The social and economic importance of
higher education systems, and of individual institutions within
those systems, is insufficiently appreciated. Unlike primary and
secondary education, there is little in the way of a shared vision
about the nature and magnitude of the potential contribution of
higher education to development. But this understanding is crucial
to a sector that requires long-term investment in return for social
benefits that are hard to measure. Without it, higher education
institutions are treated, essentially by default, in the same
way as other large bureaucracies, leaving them without the power
to make choices that improve their individual and collective performance.
- Lack of political and financial commitment. Policy-makers face
a host of pressing problems under conditions of severe resource
constraints and highly competitive political settings. It’s
no surprise in such a policy environment that higher education
often misses out. There is a common view that it is not deserving
of political support because it is the preserve of the elite,
who are eminently capable of taking care of themselves. While
investment in higher education will surely benefit many already
wealthy students, its social benefits outweigh this, raising a
nation’s average income and reducing its poverty. Meanwhile,
demand is increasing at a great rate, creating complex challenges
associated with managing the expansion of any system. Without
significant national support and guidance for managing and planning
expansion, quality inevitably suffers.
- Conditions of initial disadvantage. Higher education in developing
countries is severely disadvantaged by its poor baseline. Knowledge
begets knowledge. Fruitful scientific inquiry is often aided by
having a suitable intellectual culture. And a critical mass of
scholars and teachers is often required before higher education
can thrive. Escaping this low-level trap necessarily requires
substantial and wide-ranging improvements, rather than the all-too-frequent
patchy and incremental steps.
- The disruptions of globalization. The best and brightest faculty
and students will continue to be attracted to the wealthier countries,
and competition for quality graduates will remain fierce. The
money markets will ensure that economic fluctuations travel rapidly
around the world, potentially jeopardizing institutional budgets
when currencies collapse. Institutions are at great risk of falling
behind if they do not keep up with the rest of the world in the
information revolution and take advantage of the opportunities
it offers. It is a two-sided coin, however, and information technology
in the form of the Internet can ensure that universities are not
pushed further outside the information network.
These ills will not cure themselves. They must be confronted now,
and aggressively. Otherwise developing countries will miss out on
the powerful boost higher education can give to development, and
will face increasingly daunting barriers to system improvement.
What To Do?
This report offers numerous suggestions for unleashing the potential
of higher education's contribution to society. In doing so, our
aim has been to stimulate and provoke, and to demonstrate that a
menu of creative options exists. Higher education is, by its nature,
optimistic and forward-looking. It is in this spirit that we offer
our conclusions. In addition, a strategy for educational reform
must be closely tailored to conditions in different countries –
it makes little sense to endorse specific suggestions for application
in any generic context. Policy-makers must also be careful to do
more than emulate developed-country models. Many richer countries
have outdated systems that are also in need of reform. Developing
countries have the opportunity to leapfrog outmoded models, planning
for tomorrow’s world, not yesterday’s.
The Task Force’s recommendations fall into two main categories:
increasing resources, and improving the efficiency with which resources
are used. A larger and more diversified resource base is needed
for:
- improving educational infrastructure, especially computer and
Internet access, scientific laboratories, and equipment, but also
more traditional infrastructure such as libraries, classrooms,
dormitories, and recreation and cultural facilities.
- the design, testing, and implementation of new curricula and
academic programs, including the expansion or introduction of
general education.
- the recruitment, retention, motivation, and long-term development
of well trained faculty.
- increasing access for economically and socially disadvantaged
populations
- conducting more and better science education and research,
both basic and applied.
Investment in the quality of secondary education is also needed
to strengthen higher education, by improving the preparation of
its new entrants. Also, if higher education institutions are more
respected and accessible, secondary students will feel it is worthwhile
to strive to attend them.
Although the Task Force urges international donors to increase
their support for higher education, the majority of additional resources
will necessarily have to come from within developing countries.
There is no generally accepted formula for assigning responsibility
for the generation of these resources, and the Task Force did not
dwell on this important issue. Nevertheless, common sense suggests
that beneficiaries should share responsibility, with students, private
firms, and the public all included. Countries should focus on rational
and effective use of existing resources, while remembering that
outside partners are happier placing good money on top of good money.
Institutions that squander resources and supply sub-standard education
should not be surprised if they continue to find resource mobilization
difficult.
The Task Force has highlighted a number of approaches to increasing
the effectiveness with which resources are used. We believe that
poor management is often the single greatest obstacle to stronger
higher education. Management practices can be vastly improved by
adhering to the principles of good institutional governance described
in earlier chapters. Equally large gains can be enjoyed by designing
a more rational and coordinated architecture for the system as a
whole. This will help eliminate unnecessary duplication of effort,
and cater to neglected social interests in areas such as curriculum,
teaching materials, admissions processes, and information systems.
In meeting increased demand at a reasonable cost, new information
technology affords remarkable opportunities. But more work needs
to be done, especially in communicating how these opportunities
can be advantageous. The public sector must also assume an increased
role in providing constructive oversight for private institutions,
thus helping to expose the system to greater internal competition,
which is in itself an important driver for educational quality and
managerial efficiency.
Perhaps the most natural starting point for higher education reform
involves crafting a vision of a rational system – one based
on verifiable facts and justifiable assumptions. To achieve this
reform a transparent and informed dialogue needs to take place,
bringing together educators, industry, government, prospective students,
and other relevant stakeholders. The system must be customized to
fit a country’s stage of development, political system, social
structure, economic capacities, history, and culture. It is also
important to avoid the process becoming too political, where a long
wish list is produced and agreement is only for the least objectionable
measures. A common vision should yield a framework to guide expansion
and reform of higher education, while also organizing and managing
the system in a way that is compatible with societal goals. This
work will require long-term political and financial commitment,
as well as high-level support to convince the public of the widespread
importance of higher education.
Effective efforts to improve higher education in developing countries
will reflect an overlapping division of labor among tertiary institutions,
public policy-makers, and international donors. As we have argued,
institutions must take the lead in:
- strengthening their internal governance.
- improving the quality of existing academic programs such as
those involving science and technology, and developing new programs,
especially for the provision of general education and for helping
bright and motivated students from disadvantaged backgrounds to
overcome their academic deficits.
- faculty development and motivation.
Public policy-makers have primary responsibility for:
- developing the architecture of a rational system of higher
education and orchestrating its smooth operation in a manner that
promotes both mass education and excellence.
- advancing the public interest in higher education, by:
- providing special support for the natural sciences and the
preservation of culture;
- combating the tendency for financial concerns to sideline the
principle of equal opportunity;
- setting standards for degrees; and ensuring that the international
trade in bogus credentials is brought to public attention;
- generating and disseminating unbiased and relevant information
about different institutions and degree programs;
- protecting higher education as a venue for free and open discourse
on a range of matters, even if the subjects are sensitive from
society's point of view;
- investing in the establishment of learning commons through
which students from many institutions gain access to educational
resources that individual schools sometimes cannot afford; typical
examples would be the Internet, libraries, and laboratory facilities;
- regulating the private portion of higher education so as to
encourage high standards while deterring abuses;
- addressing all planning issues in a global context, and considering
how their systems can be linked to the wider world.
Finally, international donors would do well to support activities
where the principal goals involve:
- catalyzing self-reliant and sustainable initiatives including
assessments of higher education systems and institutions.
- the provision of international public goods, which arises commonly
from agricultural, medical, and environmental research, and can
help foster cross-national research partnerships as well as student
and faculty exchange programs.
- promoting equity between and within countries through, for
example, scholarship programs such as the Japanese-funded World
Bank Scholars program, or by facilitating access to textbooks,
computers, or other equipment.
The Task Force also emphasizes the importance of implementation.
The field of international development is littered with good ideas
that have yielded no fruit. Only rarely does the policy design process
adequately anticipate the harsh and unforgiving realities found
in the field. Projects routinely fail because they do not take adequate
account of the competence and experience of the staff who will be
relied upon to administer the policy or manage the project. Other
projects fail because they do not involve stakeholders early in
the planning process. We must – above all – be practical
if we are to achieve successful reform.
The Bottom Line
Currently, 2 billion people live in the world's low-income countries.
Their average income has a purchasing power less than one-sixteenth
of that enjoyed by the 1 billion people who live in the high-income
countries. Even more astonishing is the ratio of the average income
of the poorest and the richest 1 billion people on the planet: it
is – conservatively – in the region of one to 80. The
disturbing truth is that these enormous disparities are poised to
grow even more extreme, impelled in large part by the progress of
the knowledge revolution and the continuing brain drain.
The Task Force believes that strengthening higher education is
a rational and feasible way for many countries to mitigate or avert
further deterioration in their relative incomes, while positioning
themselves on a higher and more sharply rising development trajectory.
Higher education cannot be developed to the exclusion of other
policy initiatives. The development of infrastructure, better governance,
public health improvements, trade reform, and financial market development
– these and others will be needed as well. The benefits of
higher education require a long gestation period. There may be shortcuts
to establishing educational infrastructure, but shaping people to
understand and convey higher education values and best practice
will take decades, as opposed to a few years. For this reason the
Task Force urges policy-makers and donors – public and private,
national and international – to waste no time. They must work
with educational leaders and other key stakeholders to reposition
higher education in developing countries. Only then will it produce
larger and better trained pools of graduates and research of higher
quality. The chance is simply too great to miss. As H.G. Wells said
in The Outline of History, “Human history becomes more and
more a race between education and catastrophe.”
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