Setting the Stage: On Garbage Cans and Institutional Differentiation

Setting the Stage: On Garbage Cans and Institutional Differentiation Glen A. Jones Ontario Research Chair in Postsecondary Education Policy and Measurement, Higher Education Group, OISE/UT

Outline • An introduction to institutional diversity • Possible approaches for Ontario • Garbage cans …

Institutional Diversity • Research literature (with Birbaum’s 1983 book as a foundational work) • Accessibility is the key theme/rationale • Diverse students have diverse needs • Creating new, less-expensive institutional types to address the needs of mass higher education

From an international perspective … • The “university” is not a universal institutional type • Huge variations in “non-university” institutions (often degree-granting, limited research activity)

Where do first year students go? Derived from Taylor et al (2008), Non-University Higher Education in Europe. Dordrecht: Springer.

From an international perspective … • Without government involvement, pathways between differentiated institutions are unlikely to emerge. • Without government involvement, academic drift will occur. • Public policy challenge is to find an appropriate balance (enough, but not too much, diversity)

Ontario in the 1960s • Expanded the existing university sector and created new, similar universities • Colleges of Applied Arts and Technology created as comprehensive PSE institutions but without a transfer function • Created two quite different policy and regulatory environments for the two sectors

Ontario Universities • Quite limited systemic (type/mission) diversity within the Ontario university sector • Systemic diversity has actually declined over time (OISE, Ryerson Polytechnic, OCAD, Algoma)

Ontario CAATs • Common institutional type distinct from universities • Increasing programmatic diversity, especially in relation to degree-granting • Limited “traditional transfer” and major concerns with “vocational transfer”

Ontario System • High levels of participation • Two distinct sectors, but with limited diversity within the university sector • There has never been a system-wide plan, or vision/strategy (decisions have tended to be incremental and ad hoc) • How to address the current issue?

We were asked: • To review the evolution of the Ontario system and determine whether, compared with other systems, there were gaps. • What are some of the policy options that the government might consider in addressing the future needs of the province?

Options to address anticipated demand? • Create Satellite Campuses of Existing Universities • Create New Universities of a New Type Focusing on Undergraduate Study and With a Limited Role in Research

Options … 3.Providing selected colleges with a new substantial role in baccalaureate programming 4. Improving transfer arrangements 5. Create an open university

Garbage Can Model

Organized Anarchy • Problematic preferences • Unclear technology • Fluid participation

Garbage Can Model • Rather than a rational, orderly process, decision-making takes place in an environment where there are separate streams of participants, problems, solutions, and choice opportunities. • This is a wonderful example …

Participants • Come and go … • Many have specific problems or solutions that they carry with them • The participants in this discussion include a wide range of individuals representing institutional and regional interests, as well as individuals who have particular views about solutions and problems

Problem stream … • Predicted demand for increased access to degree programs • Current model of comprehensive institutions is expensive • Quality of undergraduate education • Limited institutional diversity • Regions without universities (historical injustices)

Problem stream … • Some existing institutions face a problem declining demand • College-university transfer • Failure to differentiate “research universities” • Access for certain groups/populations

Solution stream … • Primarily teaching, undergraduate university • Increase missions/status of some existing colleges • On-line institute • Open university • Improve transfer arrangements

Solution Stream • Create satelite campuses of existing institutions (perhaps those that are concerned about future enrolment) • BUMBY

Choice opportunities … • Occasions when organizations are expected (or think they are expected) to make decisions • In the absence of clear priorities or strategies, choice opportunities become “garbage cans” where problems and solutions are dumped and become stuck to each other.

And so … • We need to step away from a garbage can approach • Today is about engaging in a public discussion of problems and solutions • We need an integrated plan or strategy for Ontario higher education that will form the basis for informed decisions about moving forward.

Thank you gjones@oise.utoronto.ca www.glenjones.ca

Setting the Stage: On Garbage Cans and Institutional Differentiation