Recent Reforms of Germany’s University System: Improving the quality of education
Transcript of Recent Reforms of Germany’s University System: Improving the quality of education
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Recent Reforms of Germanys University System:
Improving the quality of education
Alyssa N. Geiger
5.20.2010
Monterey Institute of International Studies
IPOL633 Comparative Public Administration
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Table of Contents
I. Introduction3, 4
Problem tree5
II. Background..6-12
A. Overview of the German Public Administration System..6-10
B. The German university system 10-12
Figure 2: Decision-making process of educational policy.11
Figure 3: Degree Structure.12
III. Reforms of the German university system13-20
A. The Bologna Process13-16
1. Description.13
2. Analysis.14-16
B. Financing Education..16-20
1. Description16-18
2. Analysis18-20
IV. Recommendations.20-25
V. Conclusion.25
Appendix A: Bologna Declaration.26
Appendix B: Insights from the Chilean Education System...27
Bibliography..28, 29
Endnotes30, 31
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I. Introduction
Throughout the first half of the 20th century, Germany enjoyed a world-renound
reputation for quality college education. This was reflected internationally, as 45% of
Nobel prizes were being awarded to people educated in Germany. Today, however, many
German universities that were once among the top 50 in the world have since fallen
behind. In 2008, for the first time in a quarter-century, more students and faculty left
Germany than came in. Attracted by higher salaries and research opportunities
elsewhere, and as a response to overcrowding, many university students and faculty have
left Germany, highlighting the growing problem known as 'brain drain.' By 2025, a
quarter of the workforce will be older than 55, compared with 15% now, and the number
of students leaving college to enter the work force will shrink by a thirdi, meaning more
students are staying at their university longer adding to Germanys demographic
problems. In response to these problems, Germany has adopted a competition mantra,
undergoing reforms to its higher education system, treating it as a production factor (to)
win back Germanys best minds.ii In this paper, I focus on the problem of maintaining
quality within the German university system, and how reforms to the system have
affected the quality and competitiveness of German higher education.
The first set of reforms I describe are part of the Bologna Process, which
internationalizes the German university system by adopting the Anglo-American degree
system, and intends to address the issue of brain drain by making the German university
system more competitive and appealing to the international community. My analysis of
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the Bologna Process reveals how the current scope of the reforms compromises quality
and overlooks other areas that need improvement in the university system.
The second set of reforms to the university system concerns the financing of
education. The question of whether to raise tuition fees in order to improve quality and
competition among state universities has encouraged debate surrounding the German
Higher Education Framework Law under Article 13, which gives each German state
autonomy over how it administers its education system. The Excellence Initiative as
well as the Federal Training Assistance Act (Bundesausbildungsfderungsgesetz) or
Bafg also represent reform efforts addressing the financing of education. My analysis
shows how these reforms are not enough.
In order to better understand these reforms as well as the underlying problems that
affect the quality of education, I first provide a general overview of the German Public
Administration system concerning the relative context and environment, including
historical, political, socio-economic, and cultural aspects. Then, a general introduction
of the University system as a subsystem will serve as a background to provide a better
understanding of its current practices. Keeping the German P.A. system and subsystem
in mind, I then describe the two major sets of higher education reforms to the university
system as outlined above, and analyze problems of these reforms regarding quality of
education. Finally, I provide recommendations for increasing the quality of the German
university system based on my analysis and discuss possible policy and management
implications.
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Figure 1: Problem Tree
The major root cause to the problem of quality within the German university system is a
lack of competition. Two underlying sources to the lack of competition include:
insufficient federal and state financial support for university education and the German
university system. Negative effects of brain drain and the German demographic problem
stem from this main problem. Reforms designed to address the sources of the main root
cause to the problem of quality within the university system are depicted in blue.
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II. Background
A. Overview of the German Public Administration System
The German Public Administration System has been greatly shaped by history and
tradition. Instability brought about through breakdowns and abrupt changes in political
regimes and the economy throughout the First and Second World Wars and the German
reunification in 1990, has been balanced by the Germans' strong tradition of civil service
to the state, which has always obeyed the orders of regimes in power. There was
therefore a resistance to the wave of new public management reforms of the 1980s, as
the reforms threatened to change the highly valued civil service system. Instead, the
public administration remained and remains to this day a symbol of continuity and
stability in a country with such a rich background of political discontinuity and instability
in its recent history, a reliable structure in times of uncertainty (Seibel 75). This model
represents, according to Max Weber, a classic administrative system of bureaucracy
that continues to keep order through a hierarchical structure. Although the central
government plays a big role in society, the German basic law or constitution
(Grundgesetz) has decentralized power to the sixteenBundeslnder (German states), their
federal ministries and civil servants.
Germanys federal system reflects its history of feudalism, rooted in a tradition of
local autonomy and authority. The Basic Law gives each of the individual states
(Lnder) jurisdiction over their administrative activities, allowing the Lnder more
autonomy in interpreting and carrying out policies. Policies in eachLandcan therefore be
very different and remain highly influenced by the local ruling political party. The central
government presides over the legislative branch, which makes policy decisions to be
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interpreted by theLnder who then act as vehicles for administration. This keeps
policy-making initiatives decentralized at the level of theLnder, which receive little
policy direction from the top (Heady 5, 207). This autonomy gives each state a larger
working capacity than the federal level. As a result, domestic policy-making functions are
for the most part bottom-up, with 90% of all German bureaucracy existing in the
administrative services of theLnder. Federal ministries behave more along the lines of
policy-makers instead of bureaucrats, while public officials behave according to state as
well as political interests of a particular party, serving as state-political bureaucrats.
The bureaucracy in the German public administration system, is mainly made up of
the social elite, a reflection of a socio-economic system that is based on academic
achievement.iii Access to policy-making positions higher in the civil service remains open
only to those with a university degree. The civil service is generally made up of self-
selected individuals who are performance-motivated, carrying personality traits of
rigidity and intolerance of ambiguity, traits that have shown not to be conductive to
active policy-making (Heady 5, 209). However, this is changing as the younger
generation enters the service.
Although this decentralized policy-making process brings about more responsiveness
and flexibility for each state, it also creates some fragmentation in the system. Achieving
political consensus from the bottom up is extremely difficult, leaving unresolved policy
issues to be dealt with by the bureaucracy by default. Many decisions are made at the
state level despite challenges that eachLandfaces concerning the whole German
academic system. In both governments of the Lnder and at the federal level are made up
of either one ruling party with the majority of the votes or coalition so that political
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consensus may be achieved. Coalition governments are much more likely at the federal
level because there are more political parties represented, making it more difficult for one
party to receive more than 50% of the votes, whereas one particular party might be able
to dominate and maintain more authority over the local level for a greater length of time.
Much of this has to do with the participatory process of how the authorities are elected.
Officials for Germanys parliament,Bundestag, are directly elected by the people of
Germany. Each voter has two votes in the elections to theBundestag; the first allows
them to first elect their local representatives, deciding which candidates are sent to the
Parliament from the constituencies, the second allows them to choose a particular party,
determining the strength and representation of the parties represented in theBundestag.
Federal authorities, such as the Federal Chancellor who heads the executive branch of the
Federal Government, are elected by and responsible to theBundestag. Individual federal
states (Bundeslnder) work together with political leadership but are also bound by local
political constraints. To address impediments of the policy process caused by a lack of
coordination amongst theLnder, the Standing Conference of the Ministers of Education
and Cultural Affairs of theLnder (Kultusministerkonferenz-KMK) exists as a permanent
secretariat uniting the ministers and senators of theLnder to discuss and reach common
policies on issues concerning education, higher education, research and cultural affairs.
The current political system of the Federal Republic of Germany favors competition
amongst parties in order to provide for popular representation and political accountability
for government action. Under Article 21 of the Basic Law, "the political parties shall
participate in the forming of the political will of the people. They may be freely
established. Their internal organization must conform to democratic principles. Only
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parties with at least five percent of the vote are allowed to have representation in national
andLandparliaments. Currently, the political system is led by a coalition government
consisting of the liberal Free Democratic Party (FDP) and the conservative Christian
Democratic Union (CDU)/Christian Social Union (CSU). Political parties in the
opposition include a left-wing Social Democrat Party (SPD) and the Green Party.
Coalition leadership relies on a focused network in order to form consensus and pass
laws.
Historical political and economic instability has created a culture that places a high
value on order and stability, and is cautious and resistant to general change, especially if
it involves uncertainty. Germans have a tendency to keep resisting change, especially if it
comes from outside Germany, until a certain point. The Economistaccurately
summarized how the Germans react to change in a recent special report: Change, if it
must happen, is painstakingly negotiated by everyone concerned, from political parties to
the governments of the 16Lnder to the social partners (trade unions and employers
representatives) iv to ensure that it is done right. By following their own approach, they
embark on what is known as a Sonderweg (German special path)*, which aligns with
their own Weltanschauung (world view)*. The Rule of Law manifests itself in a
cultural belief: Ordnung muss sein (there must be order). Germans may seem, at times,
obsessed with adhering to rules and regulations. It has been observed that many Germans
often view giving up certain individual rights as a fair trade in creating a better and more
ordered society (Nees, 49). Thus, there is a value orientation towards egalitarianism as
well as hierarchy. A general lack of trust in globalization as well as the free market has
led to the German societys tendency towards heavy reliance on the government. For
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example, the public service sector is huge because it is comprised of mainly health and
education at theLnder level, which are often privatized in other countries.
B. The German university system
German higher education is regulated partly at the federal and partly at state level.
Despite federal regulations, under the Basic Law, eachLandessentially maintains
complete autonomy over its education policy. The system was built on an principle of
equal opportunity rather than differentiation, supported by Article 13v of the International
Covenant on Economic, Social and Cultural Rights, which guarantees the right to
education as a human right. SomeLnder have, in the name of Article 13, prohibited
college tuition fees all together, while others have not, and this has been the subject of
much debate, prompting reform (which will be addressed later). Another difference in
policy at theLnder level has to do with the number of private vs. public universities, and
the amount of financial support allocated to each. Private universities are sanctioned by
the government, and some remain partially funded by the Lnder themselves.
Educational policies concerning both theLnder and the German government are
widely discussed at the Standing Conference, where the senators and ministers of the
Lnder liase with each other and represent their common interests at the federal level and
the European Union, as well as other supraregional institutions and associations. Each
Landhas one vote, and resolutions are adopted by a majority vote in some cases and only
by unanimity in cases involving financial relevance or educational sector mobility. As the
Standing Conference is challenged with the new joint task of determining the efficiency
of the educational system in international comparisonvi in the educational sector, it
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continues to support the Bologna Process by achieving the highest degree of mobility for
students and teaching personnel.
Figure 2: Decision-making process of educational policy
Decision-making of educational policy occurs at the local level by the Lnder, who formand interpret policies as well as determine the types of educational institutions who
charge or do not charge tuition fees (as seen by the dashed lines). The Lnder also
discuss and agree on educational policies with the Federal Government at the Standing
Conference and may be influenced by the European Unions educational policies.
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Universities, including various specialized institutions, offer a range of academic
disciplines. In the German tradition, university study can be a very lengthy process. A
high value is placed not only on the teaching of concepts, but on research methods, from
very basic techniques, on up to highly specialized applied instrumentation. Students are
given a high level of responsibility to direct their own course of study and deepen their
level of understanding by pursuing their own learning outside of the classroom. Adhering
to a principle, unity of research and teaching, Germanys universities are not only
teaching establishments for students, but also research intensive centres.vii Figure 3 from
qrossroad outlines the current degree structure at the university level, which reflects the
newly introduced master and bachelor degree program from the Bologna Process.
Figure 3: German Degree Structure
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III. Reforms of the German university system
A. The Bologna Process
1.) Description
Launched in 1999, the Bologna Process is a series of reforms intended to modernize
and internationalize higher education in Germany. The aims of the process are outlined in
Appendix A. Through the creation of a Common European Higher Education Area by
2010, the Bologna Process hopes to succeed in the international competition for the best
brainsviii and offset the growing problem of 'brain drain.' The largest result of the reforms
includes the adaptation of the Anglo-American two-cycle study system of bachelor's and
masters degrees in Germany. This serves to internationalize its education system and
increase mobility by providing comparable qualifications, a credit transfer system, and
enhanced quality assurance which stems from standardization. The system is also
designed to reduce the length of studies and enhance employability (Federal Ministry of
Education and Research). Since the beginning of 2008/2009, 75% of all courses at
German higher education institutions have been converted to BA/MA courses,
accompanied by an increase of new courses of study by 20% (Federal Ministry of
Education and Research or BMBF). The Bologna Follow-up Group holds at least two
meetings a year at the Conference of Ministers in order to assess and evaluate the
Bologna Processs implementation, progress and outcomes. Stocktaking, by way of
national reports by Member States has become a crucial component of the process. The
German Federal Government and the Lnder are in charge of implementing the reforms. ix
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2.) Analysis
Through implementing the Bologna Process reforms, Germany has gone against
traditional cultural values, such as adhering to what is traditionally German in terms of
the education system, an aversion to change, inflexibility and rigidity and pessimism
(Angst). Instead, Germany is looking towards the future at the opportunities and
possibilities that moving towards a Common European Higher Education Area presents.
Adapting to the Anglo-American degree system by way of the Bologna Process and
internationalizing its university system has made Germany more competitive within the
European Higher Education Area. As was intended, joining the European Credit Transfer
System (ECTS) has increased mobility, standardization has led to higher quality
standards, and qualifications are becoming more commonly recognized. By offering
more universally recognized degrees and new courses of study, Germany seeks to offset
brain drain. Success of the Bologna Process in terms of these outputs has already been
measured in the large aforementioned increases in the number of BA/MA converted
courses and in the number of new courses offered. Focus on the outcomes of these
outputs in terms of the influence on the quality of education has not been explored
enough. The BMBF declared that, Germany has taken advantage of the biggest higher
education reform for decades to improve the quality of study courses.x However, this
approach remains heavily focused on the assumption that increasing the quantity of
educational offerings will lead to an increase in the quality of education, especially in the
German university system.
The Bolonga Processs greatest emphasis involves raising levels of efficiency
within the system through standardization, reduced length of study time and enhanced
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employability, so that, especially in Germany, students are able to enter the workforce
right away to help the economy and assuage Germany's demographic problem. This
emphasis has come at the cost of undermining Germanys cultural tradition of life-long
learning and the older German university system's intensive research focus that
dominated all levels of education. It removes this life-long learning and research focus to
the last possible stage in higher education, Phd, which would have otherwise provided
valuable learning and growth opportunities throughout a students higher education. The
shortened length of study time at the university under the new BA/MA system may not
afford students the necessary amount of research hours that is typically equated with
traditional German education as it is held in such high regard. If Germany wants to
continue to remain competitive in this regard as a beacon for quality research and
learning, it would be a loss to sacrifice these valuable traditions for the sake of efficiency
without taking measures to preserve them in some way.
Enacting these major changes to the German degree structure and course offerings
has introduced a number of internal structural, methodological and economic problems
that will need to be addressed in the coming years. Many traditional German professors
are not professionally prepared to develop the new curricula for the shorter degree
programs. New accreditation procedures, quality control measures, and standardization
will necessitate a change in teaching style that may require more frequent student
assessments, more interactive and experiential instructional methods, and a change in the
traditional lecture format. Students of this new system must also prepare to change their
study habits and approach to learning. They likely will have to prepare for more tests and
routine assignments designed to assess learning outcomes, leaving less time for
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involvement in long-term research. The Bologna Process has not adapted other practices
from the Anglo-American system besides the BS/MA degree track. For instance, many
professors, cannot afford the time to hold office hours for more than eight hours per
month due to the amount of administrative work that is now required of them. Little time
is left for the development of teacher-student relationships, out-of-the-classroom
learning, and teacher-student feedback
It remains questionable to what extent universities under the reforms of the
Bologna Process will be able to contribute to the larger strategies of qualifying their
students for employment and effectively preparing them for the German job market,
which is likely to be slow to warm up to the new BA/MA degree system. Employers in
Germany are used to graduates who have studied longer and who have acquired practical
experience through research and internships. Although the graduates of new degree
system will be more competitive internationally, it could potentially worsen the brain
drain problem. This could be an unfortunate and unintended side-effect of Germany's
'competition mantra.'
B. Financing Education
1.) Description
The German public university system is based on widely available government
funding, in accordance with Article 13, supporting education as a basic human right. A
2005 rulingxi concerning the Higher Education Framework Law in article 13.2.C. deemed
the current legislation of the SPD, which in 2002 prohibited tuition fees, unconstitutional
because it challenged the authority of each Bundesland to decide its education policy.
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Some state legislatures have passed laws regulating university tuition fees. In some states,
universities are now allowed to demand tuition up to a certain limit, such as 500 euros,
but are not allowed to increase the tuition more than 1.5 times the headline of inflation.
Five of the sixteen Bundeslnder charged tuition fees in 2010xii, a change that is mostly
supported by the conservative parties of the CDU/CSU and opposed by the SPD.
Universities in former East German states do not plan on raising tuition regardless of the
political party in power, in order to be competitive and attract students who are unwilling
to pay the tuition fees. Raising tuition fees has been met with an increasing number of
student protests, most notably in Frankfurt and Hesse, where fees were raised hastily in
the range of 1500 euros.
In 2007, the government and federal states implemented a four-year performance-
based program, the Initiative for Excellencexiii (Excellenzinitiative), designed to boost
excellence and incite academic competition among private and public universities by
rewarding academic achievements with funding and prestige. This initiative is part of the
government's current effort to increase the competitiveness of German higher education.
Public universities do not offer scholarships or financial aid. Instead, it is private
non-German institutions as well as German public institutions like the German Academic
Exchange Service (DAAD) that are taking the lead role in distributing scholarships to
students, covering the cost of living and books. TheBundesausbildungsfrderungsgesetz ,
the Federal Training Assistance Act (Bafg), is a reform ensuring each applicant equal
distribution of financial aid in the form of stipends or low interest loans. The Federal
Government contributes nearly 1.5 billion euros annually to Bafg, while the Lnder
contribute around 8 billion euros (Federal Ministry of Education and Research). The
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amount students receive from this stipend program will be increased once the 22nd
Amendmentxiv of the Bafg has passed. Advancement to the university level remains
based on achievement.xv
2.) Analysis
Reforming how education is financed in Germany is necessary due to the lack of
adequate funding from the government. The current reforms in place have not gone far
enough to improve the quality of the education system for many reasons.
The old system, founded on principles of equity instead of differentiation as seen in
Article 13, conflicts with the very mantra of competition Germany is currently promoting
within the Common European Higher Education Area through the Bologna Process. As
Min Kyung-kuk points out in his article College tuition ceiling: a product of immature
thinking, the tuition ceiling that some of the states have implemented is in fact a price
controlxvi that has negative consequences for competition. Although Min Kyung-kuk
argues that price control will result in poor quality and reduced supply in educational
services and research activities, the prohibition of tuition fees had already led to a
decrease in quality of education and innovation. With the recent introductions of and
increases in tuition fees, German professors who had left Germany seeking more
competitive salaries now have more incentive to return. In this way, these new laws are
helping to offset further brain drain. The effectiveness of implementing and increasing
tuition fees in elevating the quality of education and creating competition has has yet to
be evaluated. So far, the university system, even with the Bologna Process and tuition
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reforms, is still struggling to transform its role as a mere public service provider to a
system of enterprises held accountable to the needs of students.
Private universities, such as the Max Planck Institute, have been able to excel in
research and other subject areas requiring a large amount of funding for experienced
faculty, equipment and facilities. Public institutions, on the other hand, remain at a
disadvantage due to inadequate funding. The higher quality of education at Germanys
private universities, in comparison to the lower quality of education at public universities
represents a vast inequality that is built into the German university system. The system
has come to favor elite universities with no tuition caps, who embody Germanys plan to
become more competitive in the area of higher education, reinforcing the shift from
egalitarian to elitist. The German university system for now, seems to have found its
Sonderweg, where it allows public universities to exist along side private ones in a
dynamic that varies within each state according the local laws on tuition fees. The tuition
fees allow for some increase in education quality and prevention of brain drain, while the
tuition ceiling keeps tuition affordable but also hinders true competition. Other states
prohibiting tuition fees can remain competitive enough to attract those who rely on
equity-based admission, but quality is sacrificed. This Sonderweg has led to much
criticism.
The fact that there are many student protests against tuition fees and tuition fee
increases signals other underlying problems. Since tuition fees have not existed for forty
years in Germany, a strong sense of entitlement to education has developed over the
years. Since only high achieving students are allowed to study at the university, now that
they have reached the university level and are asked to finance their education, they
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maintain a group think mentality and are reluctant to pay. Many students have grown
accustomed to being taken care of by big government with highly affordable, if not free
education and support from Bafg. After all, they pay incredibly high taxes in
comparison to the rest of the world. The backlash can be explained by expectations;
many students were not expecting tuition fees or an increase in fees, since it was not done
incrementally or with enough warning. Students having to pay tuition fees or higher
tuition fees do not see where the tuition fees are going and what the fees are doing to
better the quality of their education. If students were able to see that over time the quality
of education at their university had been decreasing, and if they were able to actually
notice the improvements that their higher fees afforded, would they still resist the
changes? This is hard to say, considering that change itself is not readily accepted in the
German system. Even still, many students, such as Friederike Rass, a theology student in
Hamburg, Germany, do not want or need more money from the Bafg for tuition. Instead,
they would rather the money go towards ensuring that underprivileged students have
access to education.xvii An important question is raised: Access to what quality of
education? Is keeping the public university system accessible by prohibiting or even
having capped tuition fees worth the trade-off with quality and forgone competition?
IV. Recommendations
In order to increase the effectiveness of the aforementioned reforms to improvethe quality of education, I recommend the following:
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A study of the current quality of education
First and foremost, a study of the current quality of education at the university
level must be conducted throughout Germany. The data from the study must be analyzed
and evaluated. Public and private universities should be compared, with attention paid to
the presence or absence of tuition fees, and implications from the findings should be
drawn. This study will be invaluable in informing states with differing policies exactly
how their current policies are affecting the quality of education.
An awareness campaign
Results from the study exposing differences in quality between different
universities, especially regarding research, should be highly publicized in an awareness
campaign. This alone will not be sufficient in changing a problematic mental model of
entitlement and group think mentality, but it will elicit public reaction and government
response, much like the results of the Pisa Study in 2003.xviii The Pisa Shock prompted
the sixteen Bundeslnder to pass measures moving their lower education systems from an
input-controlled to a more output-controlled format that is based on empirical research.xix
Such a campaign could also drive the priority of maintaining quality of education within
the university system onto the governments agenda, so that further steps can be taken to
address the issue. I recommend that the results of this study be discussed amongst the
Bundeslnder within the Standing Conference, so that a consensus can be reached on how
best to solve the problem of a lack of quality in the university system as a result of non-
competitive educational policies. The Federal Government should try to exert more
pressure on the Lnder to better align their policies with its own competition mantra to
ensure consistency.
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Focus on effectiveness, outcomes and results: a needs assessment
If the Conference's current key task concerns mobility, its current focus on
efficiency and outputs should be balanced with a focus on effectiveness in terms of
outcomes and educational needs assessment. This would more thoroughly address the
decline of quality of education within the German university system.
Instead of an output-controlled format, I would recommend the higher education
system move towards more of an outcomes- and results-based format so that the inputs
and outputs into the system can be better justified according to needs. Student, faculty,
business and community needs assessments and analyses must be conducted in order to
see what their concerns are regarding the Bologna Process, as well as education finance.
Finding out if they are satisfied with the value and level of service they are now receiving
from the system in the context of the above reform measures is crucial information
needed to justify the implementation of or increase in tuition fees. Finding out what
services need to be added or improved is also necessary to increase the quality of
education.
Adopt positive aspects of the Anglo-American university system
For example, the Bologna Process has not yet adopted many positive aspects of
the Anglo-American university system, which could further enhance the quality of
education internally. The use of T.A.s and other administrative assistants would free up
professors so that they can hold office hours more frequently and better attend to the
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needs of the students. Although this seems like a small reform, it would have a sizable
impact on helping the students transition and adapt to the new demands of their changing
learning environment. Professional development training and workshops that are
frequently offered in the Anglo-American system could be provided in order to help
teachers adapt their methods of teaching to the new system. These workshops would be
well received because they fit into the German ethic of life-long learning. In order to
address the ineffectiveness of the Bafg program to help those who are actually in great
financial need, I would recommend abolishing equal financial disbursements and making
Bafg available only on a needs basis much like the U.S. FASFA (Free Application for
Federal Student Aid) system.
Transparent and accountable funding
Following the needs assessments, I recommend an initiative that requires the
publicizing of exactly where the money from tuition fees or tuition fee increases is going
to and why. Transparency and accountability are essential in order to justify paying more
money in the minds of students. A cost-benefit analysis of the present conditions at
universities would ensure the most effective use of the money by linking the money
directly to desired student needs and learning outcomes. This way, students who are
forced to pay more than they would like could actually see and benefit from
improvements to the system, and have the right expectations for what changes to their
tuition is accomplishing. This will help to avoid a backlash to sudden increases in tuition,
which we're already seeing in Germany, and which recently occurred in California where
the tuition suddenly increased by 30% without being tied to any results. As an input into
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the system, the money should be spent on outputs such as new research facilities or
programs that are visible to students and are closely linked with the results-based format,
addressing the final desired outcomes of students' learning needs. Students who are able
to notice how the necessary extra funding positively impacts their education will be more
likely to accept the reforms.
Transitioning to a tuition-based university system
Because of the resistance we are seeing to the reforms, and to avoid a short-term
loss of students before the increase in quality of education materializes as the effects of
the tuition increases take hold, I highly recommend the Federal Government step in to
ease this transition. Although the Federal Government itself will not be able to directly
change the mental models of its citizens, its important for it to realize the important role
it has played and continues to play in the creation of them. The Federal Government
needs to come up with a course of action that will continue to support its citizens while
slowly stepping back and lowering their expectations to ones which are more realistic. It
needs to play a more active role in encouraging and empowering them to be more self-
reliant and responsible for themselves and to ensure a future of long-term stability and
prosperity in Germany. The government could help states achieve the standards of the
Bologna Process by assisting them in transitioning their higher education system to a
tuition-based system more smoothly by inputting enough extra funds into the public
university sector to cover the first few years, and having tuition fees subsidized over a
certain amount of time so that the student's fee increases will occur more slowly
overtime. With this approach, Germans will feel supported by the government enough to
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accept the change, since it will not feel as drastic. This change, in fact, will come to be
seen as a necessity, in order to ensure the sustainability of Germany's education system
by addressing its impending demographic problem.
V. Conclusion
Steps towards balancing education quality at public universities with that of
private universities have been taken by way of introducing tuition fees at the public level.
Abstaining from further privatization has allowed universities to keep education
affordable and keep research from becoming too interest-based. Capping tuition fees,
however, remains a short-term policy answer to the larger long-term problem of limited
competition and quality of education at public universities. Given widespread reform
policies and goals at the federal level aimed at making Higher Education in Germany
more attractive and competitive to the global market, it is important for each
Bundeslnder to painstakingly negotiate and come to a consensus on exactly how best to
reach these goals so that federal reform policies can actually be effective in leading
towards increased competition andquality.
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Appendix A
Since the 1999 Bologna Declaration, the aims of the process have been constantly amended at the
Conferences of Ministers to include:
The introduction of a system of easily understandable and comparable degrees (Bachelorund Master's), the inclusion of the doctoral phase as the third cycle of the Bologna
Process, and its recognition as early stage employment
The definition of a framework of comparable and compatible higher educationqualifications at national and European level (qualifications framework) and the
introduction of a credit transfer system (ECTS)
The promotion of mobility through suitable measures, e.g. the introduction andintensification of cooperation between higher education institutions, including joint
degrees, and the removal of obstacles to mobility
Improvements to the recognition of degrees and academic achievements by ratifying andimplementing the Lisbon Convention; the introduction of transparency instruments such
as ECTS and the Diploma Supplement.
European cooperation in the field ofquality assurance and the promotion of qualityassurance at institutional, national and European level; the implementation of the
standards and guidelines for quality assurance agreed in Bergen, inter alia by establishing
a European Quality Assurance RegisterEQARto which quality assurance agencies
which work in accordance with the standards and guidelines for quality assurance in the
European Higher Education Area may apply for admission
Promotion of the European dimension in higher education Integrating Bologna in the concept of lifelong learning by creating flexible higher
education study courses or through processes involving the recognition of existing skills,
including those gained in a non-university environment.
Involving students in the Bologna Process, strengthening the social dimension of highereducation through participative equity.
Enhancing the attractiveness of the European Higher Education Area in the globalcontext. The European Higher Education Area wants to remain attractive and open to
people from all over the world. The "Strategy for the European Higher Education Area in
a Global Setting", which was approved in London, will improve the provision of
information on the Bologna Process, strengthen cooperation based on partnership and
ensure progress in recognizing qualifications and phases of study
Greater focus must be placed on the vocational qualifications/employability ofgraduates from all three cycles. The higher education institutions must provide a broad
knowledge base as well as prepare students for the labour market. The most talented
young researchers must be equipped for an outstanding academic career.
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Appendix B: Insights from William Toerpes: The Chilean Education System
William Toerpes paper: The Chilean Education System investigates how
efficiency, effectiveness and equity of the system can be improved by looking
at the Swedish educational voucher system. Although the paper focuses onK-12 education instead of higher education, it has given me several insights.
Defining efficiency, effectiveness, equity vs. equality and how eachterm is applied to education is important in conveying meaning for the
reader
Privatization as a means of inducing competition in the public sector inthe case of Chile, can lead to socio-stratification and inequality; it is
not the only way (German Excellence Initiative, Bologna Process).
Increasing choice in education to be competitive focusing on outputsby itself does not lead to desired meaningful outcomes=effectiveness(in the case of Chile, parents could not afford the extra cost of
transportation to the different schools, and were uncomfortable withthe interview process with upper-class staff at other schools; this led to
more socio-stratification. More expensive private schools wereinefficient, proving ineffective at achieving value-added).
Chilean voucher system fails in a similar way to Bafg, in that eachstudent gets an equal amount regardless of real financial need whichcan increase socio-stratification
Chile: education is an individual right; Germany: a human right. Thisimportant difference leads to a customer/service orientation towards
education vs. a sense of entitlement
Even a Swedish voucher system, where independent private schoolsare subsidized and accept students on a first come first serve basis is
unrealistic and unsustainable for Germany given its particulardemographic problem.
Comparing the socio-stratification in Germany that is caused by a K-12 system (Gymnasium) based solely on academic achievement with
aspects of the Chilean system would be helpful to look at and learnfrom should Germany decide to change/privatize Gymnasium.
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Endnotes
iThe Economist: A special report on Germany: Older and wiserhttp://www.economist.com/specialreports/displayStory.cfm?story_id=15641069 Mar 11th 2010 | From The
Economistprint edition
iiDe Pommereau, Isabella. To halt brain drain, Germany adopts competition mantra. The Christian
Science Monitor. Pg 1. 9.02.2005 http://csmonitor.com/2005/0201/p07s01-woeu.htm
iiiGermanys education system offers different educational opportunities for students based on individual
ability. Children start at the Grundschule and remain grouped together until the 4th grade (around 10 years
old), when they are separated according to their test scores into different school forms. The lowest-
achieving students must attend the Hauptschule to prepare for vocational school and apprenticeship training
until the age of 18. Other students either go to the Realschule leading to higher vocational schools or
continue study at a Gymnasium where they prepare for study at a university or dual academic and
vocational credential. The Educational System in Germany: Case Study Findings, June 1998. Chapter 1
An overview of the German System of Education
http://www.ed.gov/pubs/GermanCaseStudy/chapter1a.html
ivThe Economist: A special report on Germany: Older and wiser
http://www.economist.com/specialreports/displayStory.cfm?story_id=15641069 Mar 11th 2010 | From The
Economistprint editionvIm Artikel 13 des Internationaler Pakt ber wirtschaftliche, soziale und kulturelle Rechte heit es:
Die Vertragsstaaten erkennen das Recht eines jeden auf Bildung an. Sie stimmen berein, dass die
Bildung auf die volle Entfaltung der menschlichen Persnlichkeit und des Bewusstseins ihrer Wrde
gerichtet sein und die Achtung vor den Menschenrechten und Grundfreiheiten strken muss. Sie stimmen
ferner berein, dass die Bildung es jedermann ermglichen muss, eine ntzliche Rolle in einer freien
Gesellschaft zu spielen, dass sie Verstndnis, Toleranz und Freundschaft unter allen Vlkern und allen
rassischen, ethnischen und religisen Gruppen frdern sowie die Ttigkeit der Vereinten Nationen zur
Erhaltung des Friedens untersttzen muss.
Die Vertragsstaaten erkennen an, dass im Hinblick auf die volle Verwirklichung dieses Rechts ()vi
Kulturminister Konferenz: Standing Conference of the Ministers of Education and Cultural Affairs of theLnder in the Federal Republic of Germany http://www.kmk.org/information-in-english/standing-
conference-of-the
viiForum for European-Australian Science and Technology cooperationhttp://www.feast.org/countries/germany/higheredviii
Federal Ministry of Education and Research http://www.bmbf.de/en/3336.php April 18th, 2010ix
The reform process is supported by a Federal Government-Lnder Group on the "Continuation of theBologna Process", which also includes representatives of the University Rectors' Conference (HRK), the
German Academic Exchange Service (DAAD), students, the two sides of industry, the German Student
Services Association (DSW) and the Accreditation Council.
Federal Ministry of Education and Research http://www.bmbf.de/en/3336.phpApril 18th, 2010xFederal Ministry of Education and Research http://www.bmbf.de/en/3336.phpApril 18th, 2010
xi Urteil des Bundesverfassungsgericht:BVerfG, 2 BvF 1/03 vom 26. Januar 2005, Absatz-Nr. (1 - 94)xiihttp://www.studis-online.de/StudInfo/Gebuehren/tuition_fees.php retrieved on 2008-07-02xiii With a budget of1.9 billion, the Excellence Initiative supports three universities, 18 schools of
universities (Graduiertenschulen) and 17 special clusters (Exzellenzcluster). The winners of the award
automatically gain the title of one of Germanys elite universities.
Forum for European-Australian Science and Technology cooperation: Higher Education Institutions,
4/19/2010 pg 1 http://www.feast.org/countries/germany/highered
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xiv The 22. BAfG Amendment allows further improvements: BAfG rates are raised, the monthly limits on
additional earnings are extended to 400 Euros. Students with children are supported with a special bonus.
The first parts of the amendment became effective at the beginning of 2008. BAfG support is therefore an
important element in encouraging more young people to take up studies and undergo qualified training.
Federal Ministry of Education and Research http://www.bmbf.de/en/892.php April 18th, 2010
xv Germanys education system offers different educational opportunities for students based on individual
ability. Children start at the Grundschule and remain grouped together until the 4th grade (around 10 years
old), when they are separated according to their test scores into different school forms. The lowest-
achieving students must attend the Hauptschule to prepare for vocational school and apprenticeship training
until the age of 18. Other students either go to the Realschule leading to higher vocational schools or
continue study at a Gymnasium where they prepare for study at a university or dual academic and
vocational credential. The Educational System in Germany: Case Study Findings, June 1998. Chapter 1
An overview of the German System of Education
http://www.ed.gov/pubs/GermanCaseStudy/chapter1a.html
xviMin Kyung-kuk, Professor of economics at Kangwon University. CFE Viewpoint: College Tuition
Ceiling: a product of immature thinking.
http://eng.cfe.org/mboard/bbsDetail.asp?cod=mn2007713123749&idx=1910 2/28/2010xvii Klask, Fabian and Markus Verbeet.Reich wider Willen. Spiegel Online.
http://www.spiegel.de/spiegel/0,1518,688665,00.htmlApril 12th, 2010xviii The Program for International Student Assessment (PISA) is a system of international assessments that
focus on 15-year-olds' capabilities in reading literacy, mathematics literacy, and science literacy. PISA also
includes measures of general or cross-curricular competencies such as learning strategies. PISA
emphasizes functional skills that students have acquired as they near the end of mandatory schooling
(National Center for Education Statistics). The study was carried out in 2003. According to the study,
Germany performed quit poorly with competencies in reading, mathematics, and science ranging below
the OECD average.xix
Leutner, Detlev & Joachim Wirth. What we have learned from PISA so far: A German Educational
Psychology Point of View. Pg 1. Duisburg-Essen University KEDI Journal of Educational Policy Vol.2
No.2 2005 39-56