101013 Governance for Quality in Higher Education in Odisha, India August 2015 Abbreviations ASC Academic Staff College AISHE All India Survey of Higher Education BoS Board of Studies CABE Central Advisory Board on Education CCTV Closed Circuit Television CDC College Development Council DoHE Department of Higher Education GER Gross Enrolment Ratio GoO Government of Odisha GSDP Gross State Domestic Product HE Higher Education HEI Higher Education Institutions IASE Institutes of Advanced Studies in Education ICAR Indian Council of Agricultural Research ICCSR Indian Centre for Corporate Social Responsibility ICT Information and Communication Technology IUC Inter University Consortium KIIT Kalinga Institute of Information Technology MHRD Ministry of Human Resource Development Abbreviations iii NAAC National Assessment and Accreditation Council NCERT National Council for Educational Research and Training NCTE National Council for Teacher Education NKC National Knowledge Commission OBC Other Backward Classes OPSC Odisha Public Services Commission PC Placement Cell PG Post-Graduate QAC Quality Assessment Cell QAS Quality Assurance System RIE Regional Institute of Education RUSA Rashtriya Uchchattar Shiksha Abhiyan SC Scheduled Caste SCERT State Council for Educational Research and Training SHEC State Higher Education Council SSA Sarva Shiksha Abhiyan ST Scheduled Tribe STR Student-Teacher Ratio UG Under-Graduate UGC University Grants Commission iv Governance for Quality in HIGHER EDUCATION in Odisha, India Contents Preface vii Chapter 1: Introduction  1 Objective of the Paper  1 Methodology and Data Collection 2 Chapter 2: Possible Ways Forward  3 Chapter 3: The Higher Education Landscape in Odisha  9 Chapter 4: Overview of the Higher Education Institutional Structure in Odisha  11 Chapter 5: Affiliated Colleges 12 Chapter 6: Autonomy for Colleges  15 Chapter 7: Faculty Recruitment, Deployment and Quality  17 Training, Promotion, Career Progression  18 Chapter 8: Research and Development  21 Establishing a Research and Publication and Culture  22 Chapter 9: Curriculum and Development  24 Self-Financing Courses  25 Chapter 10: Ict Utilization  26 Chapter 11: Making Institution Inclusive  27 Affiliating Universities, Affiliated Colleges and Quality Assurance  Chapter 12:  28 Chapter 13: Quality as Relevance  30 Chapter 14: Leadership and Institutional Quality  32 Chapter 15: Recent Initiatives  33 Chapter 16: Financing of Universities and Colleges 34 References  36 Contents v Preface The Government of Odisha, in March 2014, The team would like to express its gratitude to all the requested the World Bank to support its effort to university and college staff at the eight universities reform its universities and colleges through technical and colleges taking part in the study who were assistance. The governance of the universities and interviewed and shared their precious time as colleges became one of the key issues where the part of gathering material for the this report. Their Department of Higher Education sought advice insights and willingness to share information were from the World Bank on setting up an enabling instrumental in drafting this report. A special thanks framework of organizational structures with a level goes to Shri Gagan Kumar Dhal, IAS Principal of governance and accountability which allows Secretary; Dr. Ajay Kumar Nayak, Joint Secretary, excellence in education to grow at universities and Dr. Mihir Kumar Das, Officer in Charge all and colleges. from the Department of Higher Education for their strong support in making this study happen. The Two World Bank consultants were engaged to draft discussions and updates with them were critical to the report on “Governance for Quality in Higher ascertaining assessment of sectoral management Education in Odisha”, namely Dr. Hena Mukherjee, and academic issues. The report was also peer former Lead Education Specialist at the World Bank reviewed by Vice Chancellors of Utkal University, and Dr. C.B. Sharma, Chairman of the National Berhmapur University and Fakir Mohan University Institute of Open Schooling in India. The World of Odisha. Bank team guiding the study comprised Kurt Larsen (Senior Education Specialist), Soumi Saha (Analyst) We thank DfID for providing resources through a and Nalin Jena (Senior Education Specialist). The Trust Fund and the Office of the Country Director, team would also like to thank Toby Linden (Lead World Bank Delhi office for facilitating the execution Education Specialist) for peer reviewing the report. of this report. Preface vii Chapter One Introduction The rise of the global economy, where social and with special focus on the role of the Higher economic development are driven by knowledge Education Department of the GoO, university coupled with the information and technology management, college management and the revolution, signifies that tertiary education relationship between these structures. everywhere cannot continue with business as  To analyze and re-examine the concept of usual. The hope is that by creating, applying and increased autonomy for HEIs in Odisha. disseminating new ideas and technologies to greater numbers, higher education systems will graduate a  To make recommendations on how to skilled, flexible and productive work force. improve efficiency, effectiveness and accountability for increased autonomy in Throughout India, as elsewhere, tertiary education higher education governance. has expanded immensely bringing with it not only opportunities to greater numbers but also new The scope of the study includes primarily the challenges. This situation is reflected in the state governance and management system across the under study, Odisha. Long-standing systemic Higher Education (HE) sector in Odisha; the current challenges require adequate responses which Quality Assurance System (QAS) including affiliation include the need to: expand the higher education and accreditation and the inter-relationship between system in a sustainable way, eschewing ad hoc short- QAS and HE governance system; issues associated term solutions; take on board complex issues of with autonomy in Higher Education Institutions (HEIs) quality and relevance; address inequalities of access in Odisha; the existing policy and legal environment and outcomes; and put into practice more flexible in view of systemic transformation of governance government structures and management practices. for excellence; and international experience of good Above all, the state has the responsibility to set up an practices of governance and management system enabling framework of organizational structures with focusing on quality assurance. a level of governance and accountability which allows excellence in education to grow. Such structures The framework for the study was provided by need to be responsive to changes in knowledge Odisha’s objectives to reform Higher Education creation and application, translating these to meet for the 21st Century. The State’s Mission statement changing labour market requirements. highlights the following goals in the State Higher Education Plan at a Glance for Odisha: V Objective of the Paper  Provide greater opportunities of access to higher education to all eligible persons and in This paper aims: particular to vulnerable sections.  o describe and analyze the state of T  Expand access by supporting existing governance in Odisha higher education institutions, establishing new institutions, Chapter One: Introduction 1 supporting State Governments, and Non-  Utkal University, Bhubaneswar. Government Organizations/civil Society  RD Autonomous Women’s College, affiliated to Supplement public efforts in removing to Utkal University. regional or other imbalances of the contemporary System.  North Odisha University, Mayurbhanj.  Initiate Policies and programmes for  Badipada Women’s College, affiliated to strengthening research and innovations and North Odisha University. encourage institutions, public or private  Ravenshaw University, Cuttack. to engage in stretching the frontiers of  Rayagada Autonomous College, a private knowledge. institution.  Skill development as corollary to reap the  Centurion University of Technology and benefits of the demographic profile. Management, Khorda (Private State  Promote quality of higher education with University). the improvement of the infrastructure and  KIIT, Bhubaneswar (Deemed University). faculty, academic reforms, improvement of governance, and institutional restructuring. Financial Management Study V Methodology and Data A parallel study on Financial Management of Collection Universities and Colleges in Odisha was undertaken during the same period as this study on governance The preparatory stage of the study was devoted to and quality. It drew its data from questionnaires a desk review of the key documents which spell out administered in 20 universities and colleges the regulatory framework for institutional governance representative of the different categories of higher and autonomy for India and the State of Odisha, in education institutions in Odisha. The findings of the both public and private higher education institutions. recently completed study report provided a key data Three background reports focusing on governance, source for this study. quality and equity issues in Odisha higher education provided an updated context for the desk review. Stakeholder workshop Periodic discussions and updates from State Senior officials from the Odisha Department of Higher Education Department officials were critical Higher Education, two Vice-Chancellors, academic to ascertaining their assessment of sectoral and administrative staff from universities and management and academic issues. Field visits colleges participated in a stakeholder workshop were undertaken to eight HEIs in Odisha to better held in Bhubaneswar on April 25, 2015. The understand issues impacting institutions and their views and comments of the 30 participants have teaching-learning outcomes. The study report contributed to the discussions and findings of draws specific information heavily from individual this report. and group interviews with personnel from the institutions listed below which include: three The report’s analysis has viewed the institutions government universities, two government colleges- through the lenses of governance and quality an autonomous government college and a non- while paying attention to the relevance of their autonomous government college; an autonomous programs to the world of work, as well as their private grant-in-aid college; a private state university effectiveness and efficiency as higher education and a deemed university: institutions. 2 Governance for Quality in HIGHER EDUCATION in Odisha, India Chapter TWO Possible Ways Forward Based on this study’s findings, some possible higher education sector provide the basis for the ways forward were identified and discussed at the suggestions. These are summarized as a matrix with April 25, 2015 workshop in Bhubaneswar. Systemic major issues and points elaborated in this paper and institutional issues characterizing the Odisha (see Figure 1: Possible Ways forward). Figure 1:  Possible Ways Forward Short-Term Medium- to Long-Term Issue Action By {Within 12 Months} {Within 2-3 Years} Faculty Human Resource Complete identification of teacher Develop a strategic staffing plan DoHE Review vacancies in colleges by number, which (i) demonstrates reasonable subject area and location followed teacher-student ratio; and by recruitment of teachers (ii) rationalizes staff responsibilities for academic and administrative tasks Key supporting tasks Identify in consultation with Appoint or redeploy existing staff DoHE, VCs, not adequately staffed student bodies those areas in the HEIs for handling tasks like Principals placement, quality assurance, alumni association etc. Transfer of teachers in Review impact of transfer policy Increase authority to VCs with restored affiliated colleges on college staffing with special Vice-Chancellors so that they authority attention to impact on rural have a bigger role to play in colleges transfers of college teachers Promotion scheme for Develop a promotion scheme for Reactivate the merit-based DoHE teachers faculty that highlights merit and promotion policy without totally not solely seniority discounting seniority Teachers for self- Develop guidelines for selection of Streamline payment for guest- DoHE financing courses teachers of self-financing courses faculty with guidelines for remuneration Curriculum Curriculum design, Decision to continue present State may provide guidelines/ DoHE, review and renewal practice of Academic Councils framework for curriculum on Universities and deciding on curriculum different subject areas Colleges (CABE Report, 2009) Chapter Two: Possible Ways Forward 3 Short-Term Medium- to Long-Term Issue Action By {Within 12 Months} {Within 2-3 Years} Curriculum too Curriculum design reviewed Develop and include more Universities’ and theoretical, requires to identify aspects and practical activities, soft skills and Colleges’ stronger work/ methodologies to strengthen work-related activities including Curriculum vocational orientation institution-work linkages internships with private and public Committees sector employers; impact of changes to be evaluated and fed back to BoS Composition of Board Assess composition and Board membership Terms of DoHE, of Studies functioning of Board of Studies Reference to be amended to Affiliating include representation from Universities qualified curriculum experts, College industry and students (e.g. Development Student Faculty Committee in Councils JNU, IIT; representatives from industry in China) Need for more Assess relevance of BoS Assist BoS to formulate Affiliating proactive role of members’ skills in curriculum curriculum evaluation and renewal Universities, Affiliating University design, evaluation and renewal; scheme to be used on an ongoing College Provide technical training to BoS basis Development members on curriculum design Councils and renewal Inclusion Support for all Assess extent of awareness Organize awareness seminars/ Universities and categories of learners: on campus with assistance workshops with faculty and Colleges SC/ST/OBC, physically of students from the relevant students on inclusion issues challenged and girls categories Insufficient Identify facilities which require Provision for co-curricular and DoHE, infrastructural facilities improvement and apply/seek recreational facilities for all, with Universities and (including hostels) for clearance for the funds to disabled friendly infrastructure Colleges all categories, noting implement these and security for women the need for proper security for all Inadequate number of Assess demand for specific areas Evaluate outcomes of pilot and Universities and courses/programs for and develop programs on pilot launch revised programs Colleges tribal population basis Professional Development Limited capacity Form small joint group Organize own Academic Staff DoHE, for training and comprising representatives from Colleges for orientation and Universities and professional DoHE, Universities and Colleges refresher training, e.g. Pattern of Colleges development (only to organize state-based training Inter-Univ. Consortium (IUC) of 2 Academic Staff centres and programs, develop UGC1; contribution and role of ICT Centres) in Odisha proposal and seek appropriate facilities for training funds 1 IUCs are autonomous centres established by UGC within the university system, to provide common advanced centralized facilities for universities to play a vital role in offering expertise to teachers and researchers and to provide access for research, to state-of-the-art equipment and library facilities. 4 Governance for Quality in HIGHER EDUCATION in Odisha, India Short-Term Medium- to Long-Term Issue Action By {Within 12 Months} {Within 2-3 Years} Need to strengthen Prepare a phased training plan Directorate to be staffed DoHE capacity of DoHE for staffing of Directorate in DoHE adequately in number and training to lead and monitor (expanding duties to cover all for range of tasks; special attention quality reforms in the externally funded quality and to be given to include younger staff higher education sector infrastructural improvement) with specialized training College teachers Universities to assist affiliated Associations be constituted and Affiliating need content and colleges to organize discipline annual/periodic meetings be Universities methodology updates specific associations (e.g. organized (e.g. Science teachers with support from periodically Science Teachers Association association in BARC etc.) DoHE in BARC2) and help identify providing ongoing support to areas of focus and expertise to urban and rural teachers through support activities activities such as newsletters, seminars, workshops, etc. Inadequate utilization HEIs to conduct rapid ICT based short term hands on Universities and of ICT facilities despite assessment of utilization of programs to be organised for all Colleges growing investment available ICT to identify extent to who are not computer-literate which facilities utilized by staff, including policy makers, and students and what the gaps in top-level executives infrastructure are Gap in training Identify areas of competencies, Develop training modules in DoHE supported programs for non- updating and enrichment required priority areas and pilot with small by HEIs academic staff in for chief executives and relevant group before going to scale for universities and officials in financial, administrative which appropriate funds need to colleges and other areas be earmarked Research & Development Absence of systemic Universities to provide leadership Colleges undertake action Affiliating action research to colleges in developing skills research in key areas and Universities to support quality in rapid action research in key departments providing reports improvement in areas such as specific subject and findings with possible teaching and learning area, impact of Implementation or solutions to appropriate as well as building Quality Assurance Cells, etc. authorities for action staff capacity Low level of academic Universities to provide leadership Universities may include college Affiliating research and in developing academic research staff in collaborative research Universities publications skills such as training in (i) research particularly those which may be methodology and statistics; funded or sponsored by industry (ii) writing of proposals; (iii) seeking funding; and (iv) publication in refereed journals Extremely low to State needs to take proactive role State to set up a competitive DoHE negligible level of in increasing funding allocation research grant open to all public funding for research for research from its own, central and private higher education or UGC budgets; also channelize institutions, identifying priority appropriate information on areas of research in the first funding available from external phase bodies such as ICSSR to colleges; colleges also to seek out sources of funding 2 BARC (Bhaba Atomic Research Centre). Chapter Two: Possible Ways Forward 5 Short-Term Medium- to Long-Term Issue Action By {Within 12 Months} {Within 2-3 Years} Quality Assurance & Accreditation Institutions require Organize orientation programs Institutions be given preparatory DoHE funds to improve on NAAC accreditation for higher funds for meeting accreditation facilities, staffing education institutions including process requirements within an etc. for meeting support for preparing Self- agreed timeframe accreditation process Assessment Report requirements Responsibility for QA Lead person selected among Institutional Quality Assurance VCs and and accreditation- staff members for heading the Cell will be responsible for all Principals related tasks often Institutional Quality Assurance ongoing Quality Assurance unclear in institutions Cell (IQAC) and executing all QA- work regarding alignment with related work for which there will agreed norms and standards on be clear Terms of Reference and a continuous basis, including expected results training of fellow staff members in QA work periodically Graduate Employment Placement Cells not Affiliating University College Head of Placement Cell develops Affiliating working at optimal Development Council in with assistance of college University level collaboration with college identify principal and faculty a program College and train staff member to head of activities such as career Development the Placement Cell with clear TOR guidance and counselling, annual Council and employment fairs, etc. College Principal Stakeholders require Specific training to be given to Starting with a pilot tracer College graduate employment Placement Cell teams to mount study, colleges agree to support Placement track records over time Tracer Studies and disclose placement cells in organization of Cells results to stakeholders tracer studies tracking graduate employment patterns, with full disclosure of results Vice-Chancellors VC’s tenure too short Extend VC’s term to five years on DoHE to bring about needed the basis of a review at the end of changes in universities three years and colleges VC has insufficient VC’s financial powers and the DoHE financial autonomy to Accounts Manual of 1997 be be effective reviewed with the objective of giving more autonomy to the VCs VCs lack high-level Position of Pro-VCs be created DoHE administrative support to assist the VCs to improve to accomplish tasks administration (e.g. all Central effectively Universities and Bihar) VCs to develop VCs to meet formally and Establish a Committee of Vice- VCs collegial support informally Chancellors who will meet across universities to at regular intervals and sharing regularly including Principals and share knowledge and experiences to find common Registrars, depending on the good practice solutions agenda (example of ‘Universities UK’ as a strong advocacy group) 6 Governance for Quality in HIGHER EDUCATION in Odisha, India Short-Term Medium- to Long-Term Issue Action By {Within 12 Months} {Within 2-3 Years} Colleges - Autonomous Colleges - Universities Weak overall capacity DoHE and affiliating universities Implement these priorities with DoHE, Affiliating of colleges prepare an agenda of quality affiliating universities’ CDCs Universities’ reform priorities such as filling taking a more pro-active role College in sanctioned posts, upgrade and deploying faculty members Development qualifications, expedite for specific tasks with goal of Councils accreditation process, support increasing number of autonomous research etc. colleges and universities only if they meet criteria for upgradation Colleges have Transition plan developed on the Transition plan provides basis for Colleges to be difficulties functioning basis of consultation and survey a phased Institutional Strategic upgraded well as autonomous of good practice with (i) time and Development Plan which allHEIs colleges or universities funds from DoHE and (ii) guidance should develop when upgraded from affiliating universities Process of upgradation Decision to increase output Strengthen all regulatory, DoHE in too slow for developing numbers of upgradation to administrative, inspection, collaboration system as required autonomous colleges, universities supervision support to maintain a with UGC and cluster universities by healthy system 2016/2017 System Management Functional State Higher Operationalize SHEC according Functional SHEC will be DoHE Education Council to the RUSA guidelines to carry responsible for implementing out planning, monitoring and several of the recommendations evaluation, quality assurance, on overall strategy and planning advisory and funding functions of in Higher Education and quality the higher education sector assurance Need for a focused Constitute a team to work full Ten-year Strategic Plan to include DoHE through State Higher Education time on a 10-year Strategic Higher vision for higher education; shape, State Higher Plan Education Plan for Odisha; team size, projection of numbers of Education Council to include seconded staff from institutions, types, enrolment other Ministries, research bodies at under-graduate and post- and private sector and work to graduate levels; staffing numbers specific set of Terms of Reference and disciplines; research areas which is time-bound including priority STEM areas; quality issues and reforms required etc. Report to be finalized after state-wide stakeholder consultations and becomes the foundation for a State Higher Education Plan Overall capacity Based on the State Higher A phased HR Plan is developed DoHE, SHEC of DoHE needs Education Plan, and specific which includes categories of strengthening information and data from the staff, qualifications and specific Ten-year Strategic Plan, a team experiences and skills required; is set up to examine the match details with names of staff between HR requirements and available, staff requiring training identify the gaps and upgrading of qualifications, and additional staff required to fill the gaps Chapter Two: Possible Ways Forward 7 Short-Term Medium- to Long-Term Issue Action By {Within 12 Months} {Within 2-3 Years} Financing of Universities And Colleges Institutional budget Budget allocations need to Increased per capita expenditure DoHE allocations not increase per capita expenditure to shows increased expenditure on aligned with state or meet national average expenditure non-salary areas of development institutional quality and support such as research and development goals infrastructural facilities HEIs lack funds at their Decision required to increase Funds transferred from DoHE disposal to implement funds transfer from Department of DoHE to HEIs show greater and sustain quality Higher Education to HEIs decentralization from current 7% enhancing activities (working towards national average of 43%) Institutional strategic Institutional Strategic Plan (ISP) Annual review, evaluation and Colleges development plans working group to be formed with adjustment of ISPs to changing Universities to be developed as a the aim of developing a three- features, e.g. larger student DoHE basis for utilization of year plan with specific details intake, recruitment of staff fund transfers for the first year; process and for specialized subject areas’ methodology of developing such a reflecting changing priorities plan needs to be worked out with for expenditure; arrange with affiliating universities’ assistance; university and DoHE support a draft needs to be developed moving to electronic monitoring within a 3-month period for system consultation and discussions with stakeholders 8 Governance for Quality in HIGHER EDUCATION in Odisha, India Chapter THREE The Higher Education Landscape3 In Odisha Most of Odisha’s population of 419.7 lakhs technology/architecture disciplines (127.41%) and (census 2011) is concentrated in rural areas with only law (64.27%). Growth has been low in commerce 17% in the urban areas. The SC and ST population (3.08%) and arts (7.72%). Enrolments in science constitute 17.1% and 22.8% respectively. The 18- increased by 27.45% but agriculture and education 23 age group comprises 47.1 lakhs, of which 23.4 saw no growth over the same period. Surprisingly, lakhs male and 23.7 lakhs female. While 13.4% have enrolment in management studies decreased by completed secondary education, there has been no 8.54%. Despite expansion policies, 15-20% of total access to any educational institution for 6.79% of intake capacity remains vacant across the different the population (Issue Paper on Access and Equity, colleges. Explanations include low female, ST and pp. 2-3). The literacy level is 72.9, comparing well SC participation in general stream colleges and is with the national level of 73.0. more pronounced in specialized colleges such as engineering and medicine. The Gross Enrolment Ratio (GER) for the 18-23 age group in Odisha is 16.3% (18.4% male and Among Odisha’s 18 universities, there are 12 state/ 14.3% female) compared to overall India’s GER of public universities, 1 central university, 2 deemed 20.4% (21.6% percent male and 18.9% female). universities and 3 private universities. Affiliated India aims to reach 25.2% (MHRD 2013) by 2017 colleges attached to state universities number 1,130 and 30% by 2020. Clearly, system expansion is one of which 32 (19 government and 13 government- of the predominant features of the Indian higher aided) are autonomous colleges and only 162 have education landscape. In Odisha, the highest number been accredited by NAAC. Under-graduate courses of students (74.47%) is enrolled in under-graduate in general streams are offered by 704 colleges, in studies followed by enrolment in diploma courses addition to colleges offering technical and medical (12.42%) and post-graduate studies (9.96%). Male courses. About 97% of colleges are affiliated to enrolment (52.94%) is higher than female enrolment Universities with the remaining 3% either constituent (47.06%). or University colleges. Between 2007-08 and 2009-10 growth in The total number of teachers in Odisha is just under enrolments has been most dramatic in medicine 40,000 (2012-2013). In 2011, Student-Teacher Ratio (168.11%), as shown in Table 1, in engineering/ (STR) across different types of institutions is fairly comparable: 17.55 in universities, 19.37 in colleges, 3 Data for this section have been taken from three background papers prepared for an international workshop held in Bhubaneswar, 16.18 in stand-alone institutions averaging out July 2014 entitled ‘Shaping Higher Education in Odisha for 21st to18.45 in all Odisha institutions. A shift is seen in Century: Learning from National and International Experiences’: (i) Issue Paper on Quality; (ii) Issue Paper on Access and Equity; and 2012-2013 where the STR is 20 compared to the (iii) Issue Paper on Management and Governance. national average of 23. Chapter Three: The Higher Education Landscape in Odisha 9 Table 1:  Growth in enrolment at UG and PG by faculty 2007-08 (UG+PG) 2009-10 (UG+PG) Growth (%) Arts 128110 138006 7.72% Commerce 33540 34573 3.08% Science 42981 54778 27.45% Eng/Tech/Arch 50027 113767 127.41% Medicine 10231 27430 168.11% Agriculture 693 693 0.00% Management 13447 12299 -8.54% Teacher Education 812 812 0.00% Law 5122 8414 64.27% Others 24407 24407 0.00% Total 309370 415179 34.20% Post School Diploma 22080 22080 0.00% Post-Graduate Diploma 769 769 0.00% Source:  Statistics of Higher and Technical Education 2007-08, 2009-10, extracted from Issues Paper on Access and Equity, 2014, Odisha. 10 Governance for Quality in HIGHER EDUCATION in Odisha, India Chapter FOUR Overview of the Higher Education Institutional Structure in Odisha The Indian higher education operates through three both Deemed as well as Private, the Chancellor types of institutions: is appointed by the apex statutory body of the i. Public (funded): university.4 (a) Central Universities In Odisha, there is one Central University in Odisha (b) State Universities which was established in 2009 at Koraput. There ii. Private Universities major general and technical universities in Odisha are Utkal University (Vani Vihar, Bhubaneswar), iii. Deemed to be Universities Sambalpur University (Jyoti Vihar, Sambalpur), The public funded universities receive complete Berhampur University (Brahmapur) and North funding from the public exchequer while the private Orissa University (Mayurbhanj). Utkal University universities are supported by private initiatives. is the oldest and the largest university in terms of Both public as well as private institutions are student population. expected to be not-for-profit institutions. Deemed Odisha has a big network of Government Colleges. to be universities were initially supposed to be The colleges are established by the Government single faculty institutions (like the Indian Institute of Odisha but are affiliated to the autonomous of Science, (Bengaluru), Tata Institute of Social universities. In response to social demand, and Sciences (Mumbai) and others) but during the upward pressure exerted in the system as primary 1990’s the criteria were relaxed by the University and secondary level completion rates improved, Grants Commission (UGC) and a number of private higher education institutions in Odisha have institutions functioning as private institutes were increased steadily despite scarce resources, given the status of deemed universities. The Kalinga resulting in quality issues of some programs. The Institute of Information Technology (KIIT) is one of major strand of expansion in the system was that of the Deemed universities in Odisha. affiliated colleges. For the public universities the Governor of the State is the Chancellor; for the private universities, 4 The only exception is Centurion University of Technology and Management, which is a state private university, with the Governor as the Chancellor. Chapter Four: Overview of the Higher Education Institutional Structure in Odisha 11 Chapter FIVE Affiliated Colleges The system of affiliated colleges was seen not signifying the need for more qualified human only as an instrument of enrolment expansion, resources at various levels, facilities, equipment, quality aspects of growth would be supervised by and instructional materials. Funding constraints the affiliating university. Affiliating universities are particularly in the public sector and by students and responsible for the academic well-being of their parent for such an increase is a major consideration, affiliated colleges rangefrom 9 to 322 colleges in if the sector is to stem further erosion of quality in Odisha (Table 2) although the UGC advisory has100 education delivery and indeed be ready to admit as the upper limit. more students to meet GER goals. Current per capita expenditure in higher education in the state is low Affiliated colleges in nine affiliating state universities as demonstrated by public expenditure per student numbered 1,130 of which only 162 of these colleges of about Rs. 2700 in 2010-11 (EY 2015) compared have been accredited by NAAC. Of these, only five with the national level of Rs. 3800 in 2010-2011. have received an A status from NAAC, a telling evaluation of the quality of the colleges. The GER of Colleges present a heterogeneous ownership Odisha, currently at 16.3%, aims to reach 30% by landscape: public, private, government-aided, 2020, a national target, and affiliated colleges are private un-aided, some run by the State Government largely expected to meet the increased demand, and others by local bodies. Enrolment in affiliated Table 2:  Number of affiliated colleges in State Universities Sl. No. University No. of Affiliated Colleges 1 Utkal University 332 2 Berhampur University 91 3 Sambalpur University 177 4 Fakir Mohan University 63 5 North Orissa University 80 6 Jagannath Sanskrit University 165 7 Utkal University of Culture 37 8 Orissa University of Agriculture & Technology 9 9 Biju Patnaik University of Technology 149 Total 1130 Source: Issue paper on Access and Equity, 2014, Odisha. 12 Governance for Quality in HIGHER EDUCATION in Odisha, India colleges represent the large majority of total student or unit in the affiliating university who would handle enrolment in the state. Student enrolment per college affiliated college functions; and fully implement the ranges from 73 in University Colleges, 627 in Private cluster college concept which would still require Un-Aided to 1669 at University level. The average some affiliating university responsibilities. enrolments in different types of colleges of Odisha India has long been aware of the consequences of (Table 3) indicate that overall average enrolment rapid expansion and has tried to introduce reforms per college is low and many colleges appear to to re-organize the university and college sector. be functioning below physical capacity. In order Primarily, these efforts were seen in the attempt to to increase enrolments in the state, colleges with improve the affiliating system with the concept of under-utilized capacity could increase their intake. autonomous colleges in 1986 (National Policy on Table 3:  Average enrolment by category of college Education). Under the 11th Five-Year Plan (2007- 2012) a number of reforms were introduced which Type Average Enrolment were envisaged to directly impact affiliated colleges. These include: State Government 556 Local Body 222  Making accreditation compulsory for all HEIs and the establishing of in-house Quality University 1669 Assessment Cells. Private Aided 576  Initiating a two-step system for university Private Un-Aided 627 affiliation for new colleges of which the first Constituent/University/Colleges 73 requires compliance with infrastructure Affiliating Colleges 167 and faculty requirements securing a five- year temporary affiliation status, moving to Source:  AISHE 2011-12 extracted from Issue paper on Access and Equity, 2014, Odisha. permanent affiliation status after that. The permanent status renders affiliated colleges Many higher education reports have concluded eligible for UGC grants. that the system of affiliation has lost its relevance  Directing universities and colleges to as there appears to be little interaction between the introduce academic reforms such as the colleges and the university except that the university semester, grading and choice-based credit conducts examination, conducts evaluation and systems, regular curriculum development declares results. Based on the interviews carried and reform of examinations. out as part of the study, it seems that the colleges are governed and monitored by the Department of  Improving emoluments for faculty under the Higher Education more than the university that they 6th Pay Review Committee which looked at are affiliated to. There are cases where teachers Teacher Salary and Service Conditions. are transferred even without any approval, or for that matter, information to the vice-chancellor of Over and above these reforms, in order to elevate the university. As far as the affiliating university is well-performing institutions, the concept of concerned, particularly those with large numbers autonomy was introduced by UGC under the of affiliated colleges under their wing, faculty XII Plan both for colleges and universities where the are hard pressed for time. Notwithstanding the following rationale was put forward for supporting existence of the College Development Council, college autonomy: university faculty find the mix of responsibilities as The affiliating system of colleges was university teachers and researchers and college originally designed when their number in a academic supervisors unwieldy. Suggestions from university was small. The university could the interviews for improving the situation included: then effectively oversee the working of capping the number of colleges per university; the colleges, act as an examining body identifying designated staff (perhaps by rotation) and award degrees on their behalf. The Chapter Five: Affiliated Colleges 13 system has now become unwieldy and Unless such a climate prevails, it is difficult it is becoming increasingly difficult for a to achieve excellence in our higher education university to attend to the varied needs of system. With students, teachers and individual colleges. The colleges do not have management being co-partners in raising the the freedom to modernize their curricula or quality of higher education, it is imperative make them locally relevant. The regulations that they share a major responsibility. of the university and its common system, Hence, the Education Commission (1964- governing all colleges alike, irrespective of 66) recommended college autonomy, which, their characteristic strengths, weaknesses in essence, is the instrument for promoting and locations, have affected the academic academic excellence (UGC, 2012). development of individual colleges. Colleges that have the potential for offering At the next level, well-performing autonomous programmes of a higher standard do not colleges may apply and be considered for have the freedom to offer them. The 1964-66 university status. Two examples are Ravenshaw Education Commission pointed out that the University which was Ravenshaw College; and exercise of academic freedom by teachers Rama Devi Women’s Autonomous College which is a crucial requirement for development awaits notification from the Department of Higher of the intellectual climate of our country. Education. 14 Governance for Quality in HIGHER EDUCATION in Odisha, India Chapter sIX Autonomy for Colleges Affiliated colleges have been encouraged to qualify The government recruits regular faculty members for academic autonomy and have been provided or have them transferred. This presents a peculiar with additional funding from UGC to strengthen situation where the colleges are allowed to introduce institutional capacity. Qualifying for autonomous self-financing programmes, but have no powers to status involves inspections by NAAC and the state recruit faculty or staff to run these programmes. Department of Higher Education, and attainment of at least a B grade from NAAC as well as other criteria. Autonomous colleges have the freedom to plan This has proved to be a slow process with inspections and implement Diploma and Certificate programs: taking place sequentially: joint inspections would under-graduate and post   graduate programs accelerate the process. To date, only 32 out of however implement the curriculum set by the the 1130 colleges have achieved autonomy status affiliating university, only 20% of which can be and only 162 or about 14% of colleges in Odisha adapted or adjusted by the college. The Guidelines have achieved NAAC recognition. To accelerate the indicate however that autonomous colleges can process, the State may consider providing funding ‘determine and prescribe its own courses of study to facilitate colleges’ ability to implement changes and syllabi, and restructure and redesign the courses required for NAAC accreditation. to suit local needs’. However overall, management, administration and financial controls by the state All autonomous colleges follow a common set of leave often very little space for autonomous colleges programmes which include: a semester pattern to exercise and expand their own innovative and of study, continuous internal assessment, credit/ creative aspects. grading system, student feedback, and self-appraisal by teachers. Benefits of achieving autonomous The promise of better funding gives an incentive status as reported by colleges include the additional to colleges that are prepared to meet the eligibility funding for much-needed infrastructural facilities, status and prepare themselves to receive autonomy timely examinations and results. Delayed results status. In the colleges visited, there has however imply that applying for much-needed jobs or not been much visible improvement in the quality higher degree programs are put on hold, and may of teaching-learning process of autonomous result in lost opportunities. In some cases there colleges, despite their NAAC rating (minimum B). are disagreements within the same college – that Few colleges were able to speak in terms of long- autonomy has put pressure on teachers to rush and term goals and progress in teaching, learning and finish the syllabus to fit in with examination timing. student outcomes, much less in terms of innovation and creativity of approach. The principal is responsible for the day-to-day administration of the college. The college however The considerations for granting autonomy to the does not have any freedom in recruitment of colleges are not very different to the considerations for regular faculty members or non-teaching staff. converting an autonomous college into a university. Chapter Six: Autonomy for Colleges 15 Since the National Knowledge Commission (NKC) development for those involved. Additionally, a clear recommended establishment of 1500 universities transition plan agreed among colleges, the affiliating and the MHRD accepted the idea of establishing university and DoHE needs to be in place before more universities there is much competition for notification of changed status is sent. attaining university status. At both levels there are guidelines for preparatory activities. Autonomous The concerns regarding the large number of colleges colleges waiting for notification for university status and their heterogeneity becoming too cumbersome from DoHE were visited but there was no evidence for affiliating universities to handle effectively had that a university would be in place at the start of the led to the decision to confer autonomy to well- new semester, a scant three months away. There was performing colleges with confidence that they information regarding new student intake but scant would follow their strong trajectory of performance knowledge of the new management, administration, and gain excellence. Currently only 32 colleges programs of study and faculty or a vision of priority have gained autonomy and 162 of the affiliated targets and goals. colleges have been accredited by NAAC. It would appear that major changes in this scenario will not At both levels – from affiliated college to autonomous be forthcoming as 3-year Perspective Plans (State college and from autonomous college to university Plan at a Glance, p. 97) propose modest increases status – it would be beneficial if institutions were to for increasing the number of autonomous colleges prepare their own strategic plans and demonstrate to university status (3); conversion of colleges to ownership of the changed status. Ownership will cluster universities (3); and five existing degree not occur immediately: change has to take place colleges to model colleges. The capacity required in an environment where terms and conditions for expansion and quality improvement may exceed of work are conducive to professional and career the planned changes quite significantly. 16 Governance for Quality in HIGHER EDUCATION in Odisha, India Chapter SEVEN Faculty Recruitment, Deployment and Quality Probably the biggest challenge facing the shortfall of staff had been filled on an ad hoc basis development of quality higher education in Odisha with ‘guest faculty’ or contractual staff, including is the recruitment, deployment and retention lecturers for self-financing programmes. The lack of qualified academic staff and maintaining a of regular faculty members, whose qualifications reasonable teacher to student ratio. Currently, are not in compliance with UGC requirements, has large numbers of vacancies exist in government a negative impact on teaching and learning. Since colleges. In March 2014, the Comptroller and contractual staff are not regular, receive salaries Auditor General’s Report noted that ‘42.58 per which do not reflect need for preparation and full cent of teaching posts in governmental educational time engagement in teaching or research, they institutions, 35.41 per cent in universities and have little motivation to work for an institution’s 15.10 per cent in aided educational institutions long-term goals or equally in research activities, were vacant.’ Moreover the ‘vacancies were also tending to look out for better paid regular employment not logically allotted. For example, seventeen and/or take on other part-time employment. subjects in thirteen government educational In-breeding is promoted by the hiring of their own institutions have no teachers at all, while twelve unemployed graduates. There is evidence of subjects surplus teachers were recruited for the subjects being taught without any regular teacher on board. in five other educational institutions’ (EDU Tech Current practice may include a teacher providing the Magazine, 17th February, 2015). The table below same content in the same way over decades without puts the picture in numbers. response to student demands nor the keeping pace with changes and growth in knowledge. The fact that the Odisha Public Services Commission (OPSC) has not been functional and not made any Teaching-learning difficulties have been teacher appointments over the last two decades exacerbated by the unavailability of teachers in explains the large number of vacancies. The some specializations such as English Language but Table 4:  Status of sanctioned faculty posts Professors Total Readers & Lecturers Total Sanctioned 24 1795 Filled 4 1439 Vacant 20 356 Adhoc/contractual 352 Total 24 1795 Source: State Plan for Higher Education at a Glance, Odisha, 2013-2014 - Base line data. Chapter Seven: Faculty Recruitment, Deployment and Quality 17 nonetheless programs on these subject areas are are on hand for other ad hoc tasks. Across colleges, offered; new programs have also been launched teachers described the negative impact of their without the required staff recruited and in place. To being directed to take on such tasks, with time impart and maintain quality education it is necessary taken away from classroom teaching. Additionally, that faculty be appointed for all disciplines which are within colleges, laboratories and libraries often do taught. Teachers should also be on task: complaints not have the required technicians or support staff. have been made about teachers who teach and These tasks also fell to teachers. leave the school. The lack of a healthy and work- friendly infrastructure is sometimes the cause. An encouraging sign is that efforts in DoHE are The UGC has fixed norms for minimum number of in place to tackle aggressively the issue of staff teachers in each department. At Under-Graduate recruitment, deployment and vacancies across Level (UG) the number of teachers required include colleges and universities. After a two-decade hiatus, 1 reader and 2 lecturers; at the Post-Graduate Level the Public Services Commission has re-activated (PG) there must be 1 Professor, 2 Readers and 3 its Teacher Selection Committee for government lecturers. Some colleges conducting PG courses colleges while the State Selection Board for private do not have designated positions for Professors. college teacher recruitment has to date identified 1,625 vacant positions in various subject areas; the Generally, urban colleges are better staffed than announcements for applications for these identified the rural. An urban Women’s Government College posts are imminent. visited, for example, has 63 permanent filled out of 72 sanctioned posts. The location provides the V Training, Promotion, Career explanation: many from the rural areas press for Progression transfers to urban colleges in metropolitan areas such as Bhubaneswar, Cuttack and Sambalpur which Training opportunities, which provide powerful enjoy better staff numbers leaving rural colleges incentives for enhanced workplace interest and under-staffed with long-term vacancies. Apparently performance, are few and far between. Most of faculty the Vice-Chancellors have lost the authority they interviewed had participated in one or two courses had formerly possessed of being responsible conducted by Academic Staff Centres (ASCs), set up for teacher transfers. Currently, they are unable in different universities, only for lecturers and assistant to change transfer orders made by government professors: these are (a) the one-month Orientation officials as teachers of government colleges are course usually the first course after recruitment employees of the state. The restoration of the VC’s (within five years of appointment) and (b) the three- administrative autonomy over the movement of week subject-specific Refresher Programme training teachers might achieve a more balanced teacher course. These are mandatory for promotion but deployment situation. In the case of government perceived by many as ineffective. The training should universities, according to RUSA guidelines, 80% include every level of higher education employees of sanctioned posts should be filled and faculty who would benefit from cutting edge training to members cannot be transferred. handle challenging situations including changes in rules and regulations. The ASCs were established Qualified teachers in place may not always be in comparatively backward areas with few resource optimally utilized, particularly when staff have not persons available in institutions in the vicinity. An area been hired for certain categories of tasks. Some of which deserves special attention is that of leadership the Odisha colleges have senior secondary classes training which should be seen as essential for top (i.e. +2 or classes 11th and 12th). The curriculum as management as well as those next in line. well as teacher eligibility is prescribed by the school education sector, but the institutions are within Capacity for training therefore tends to be limited. college campuses. While these schools are expected Odisha has only two Academic Staff Centres with to be independent of the colleges, college teachers many trainees having to travel out-of-state for their provide administrative and technical support and training. Reportedly, inadequacy of training received 18 Governance for Quality in HIGHER EDUCATION in Odisha, India was in terms of the long intervals between available provides security to those who have devoted years sessions, unsatisfactory or inconsistent quality to teaching, it does not provide the right incentive of resource persons/course lecturers, lacking an for quality improvement and innovation in teaching. innovative approach, poor infrastructural facilities, In fact, it could deter the young and talented whose relevance of course curriculum particularly to competence is seen of less value than seniority local needs, insufficient use of ICT in professional where promotions to upper grades are concerned. development courses, and minimal offerings mounted Recognition and rewards for the talented need to for non-academic staff in HEIs and administrative be built into the system to keep both morale and staff in the Department of Higher Education. interest high. This may be particular significant in more isolated rural areas in order to retain qualified Odisha needs more such training centres and would staff who may respond positively to attractive terms. do well to establish its own not only based on the In some countries such as Malaysia, housing and ASC model but also specialised centres which would other special allowances have worked in the past to provide career-long updating of discipline areas and improve teacher deployment in rural areas. also be in the vanguard of bringing new information to urban and rural teachers such as areas linked to ICT. In terms of career progression, changes in With improved connectivity, ongoing professional professional designation were recommended by the development support can bring the world to the rural 6th Pay Review Commission which declared that the institution if the management wills it and sets up a Lecturers/Readers/Professors scheme be converted suitable organizational framework. The Government to Assistant Professors/Associate Professors/ of Odisha may consider establishing its own staff Professors. This has not been implemented in the training institute on the model of the MS University State and remains a bone of contention. of Baroda, the Centre of Professional Development of Delhi University, a precursor to the ASCs, or the The various salary scales also provide a constant Inter-University Consortium of UGC. The highly source of dissatisfaction as revealed by staff in one positive outcomes of commitment to ongoing rural grant-in-aid autonomous college (Table 5). training and career-long professional development There are five different salary scales in place with support for teachers at all levels in countries such as the following breakdown and, as is to be expected, Finland and Singapore are globally acknowledged. there is constant heated discussion about these among staff members. Professional, discipline-based teacher associations have in many countries helped to maintain interest and A teacher hired on an ad hoc basis had started at professional advances among teachers. Teachers, the level of Rs. 2000 a month reaching Rs. 8000 particularly in more isolated geographical areas, need after 13 years of service. Another teacher on the to interact on a regular basis to share their expertise other hand earned Rs. 100 per class and was given as well as learn from peer groups. A common 25 classes a week could take home Rs. 10,000. platform provided by seminars and workshops helps to energise teachers’ routine classroom approaches. Table 5:  Staff Salary categories in an autonomous The State may take the initiative, providing funding grant-in-aid college and identifying institutions to host the associations’ Scale No. of Teachers activities.In the long run such activities, if well organised, develop competition resulting in better UGC 12 quality teaching and research. Central 13 Block Grant 3 Promotions are based largely on seniority in service College Management 19 in keeping with UGC’s ‘merit-promotion scheme’ in early 1980 through which teachers were promoted Ad hoc/Contractual 2 after completing a designated number of years of Total 48 service in a particular position. While this practice Source: Authors Chapter Seven: Faculty Recruitment, Deployment and Quality 19 Confounding the situation is the issue of teachers for The large majority need massive training support self-financing courses who do not need to comply which can happen through opportunities to pursue with UGC eligibility norms as well. Moreover, they higher degrees in their major disciplines. That is may be looking for regular employment and leave however just one step. During a long teaching once their search is successful. It was reported that career, ongoing programmes need to be set up regular teachers may have to step in at that point. which are professionally stimulating and which serve as conduits to updating and supporting newly learnt The Odisha DoHE would do well to review the content, pedagogy and relevant skills. Access to situation closely and determine if adhering to the 6th financial and physical resources and opportunities Pay Review guidelines would work better to support for research is another powerful way to update the state’s objective of re-energizing teachers. staff knowledge. 20 Governance for Quality in HIGHER EDUCATION in Odisha, India Chapter EIGHT Research and Development The process of elevating government colleges idea to institute third party evaluation studies of into autonomous colleges and autonomous bodies within institutions and also overall study of colleges into universities has resulted in severe institutions. The process of third party study has infrastructural stress with crowded facilities and borne fruit in the Sarva Shiksha Abhiyaan (SSA) insufficient equipment, libraries and documentation and there is a possibility of its succeeding in higher access, and high level ICT set-up. Teachers and education as well. research scholars sit in dark and dingy rooms. They have no private space in the libraries as As for the second category, key quality markers in well. The physical environment requires to be the higher education sector are seen in the body of modernized and upgraded if improved performance basic and applied research, publication of research is expected in teaching, research and publications in national and international refereed journals, and (Beteille, 2010). citations of publications. A prerequisite to quality research and publications is the participation of Quality tertiary level teaching and learning are qualified and experienced staff who work under characterized by two categories of research: a strong academic leader, research facilities and (a) action research activities which feed into appropriate funding. This is particularly true of newer programmes and courses, providing a built- institutions or those without a tradition of research in mechanism for review and change; and and publications. (b) academic research into basic and applied disciplines or multi-disciplinary areas. The staffing pattern in Table 3 suggests that academic leadership is a major drawback in In the first category, the interviews carried institutions’ research and publication endeavours out in this study suggest a need for systemic with only four Professors in the entire state to action research to be undertaken in areas such provide leadership. The absence of such leadership as curriculum revision and examinations. The is perhaps part of the explanation for the paucity of performance of Boards of Studies (BoS) and their outputs seen in Table 6. The data and information impact on college curricula would be one such gathered in this study show that the research key area. Similarly the NAAC and the UGC have outputs are modest and perspective plans for the strongly supported the establishments of Quality next three years are equally modest. The following Assurance Cells, Student Placement Cells, as well table gives a snapshot of the current situation state- as Instrument Units in Science Faculties. Little is wide of universities and colleges under DoHE and known about the performance of these cells/units, the targets aimed at by 2016-2017. It does not if they have met objectives or what changes need include the technical universities and colleges under to be put in place to improve their functioning. the Department of Science and Technology nor the Apart from faculty involvement, it may be a good research institutes. Chapter Eight: Research and Development 21 Table 6:  Current and Planned Research Outputs 2013-2014/2016-2017 in DoHE HEIs Parameter 2013-2014 2016-2017 No. of research publications in refereed Indian journals 640 700 No. of research publications in refereed international journals 226 255 No. of patents 00 00 No. of sponsored research projects completed 85 100 Source: State Plan for Higher Education at a Glance, 2014. Contributing to the analysis of institutional and instrumentation to help them translate their productivity and having a strong bearing on creativity into workable innovations and local research policy, output and knowledge transfer solutions based on technology. are publications and citations. The target of 60 additional articles in Indian journals, and 29 planned V Establishing a Research and for international journals from 2013-14 to 2016-17 as per the State Higher Education Plan at a Glance, Publication Culture does not paint a positive quality scenario for Odisha. Governments invest a great deal in research The fact that completion of only 15 additional activities and researchers who lead them with the sponsored research projects are expected in three expectation that the country benefits in the long- years’ time is probably a reflection of research term from increased productivity and enhanced funding levels, expertise and the state research social development. In Malaysia, the Government infrastructure as a whole. Over two years five Odisha has designated five well-performing universities out Universities spent only 1% on research activities and of its 20 public universities as research universities 64% on Salary, Allowance and Retirement Benefits which entitles them to higher levels of allocations (EY, 2015). The picture from 15 Odisha Colleges for research in the annual approved budget. is equally grim: with 87.9% expended on Salary, National and international collaborative projects Allowance and Retirement Benefits, the category of are encouraged as are university-industry linkages, Research Activities merited only a negligible 0.3% expecting some of these may be in time designated (EY, ibid. Figure 19, p. 20). While research grants Centres of Excellence. In Bangladesh, their UGC are available from UGC, HEIs reported that the manages an Academic Innovation Fund open UGC research application and award process are to public and private universities, administered unnecessarily cumbersome. on a competitive basis. The additional funds and a transparent public system of research funds A useful proxy measure of an institution’s allocation has energized the university sector as technological inventions and innovations which seen in recent research outputs. have potential economic value may be derived from a country’s level of patenting. They also In several colleges visited, including those which indicate technological readiness for moving into conduct PG courses, faculty had never been a knowledge economy. Faculty personnel and awarded research funding for projects nor had they graduate students reported that equipment and printed an article in a journal of repute. However, machines often are not available for laboratory given the general conditions of remuneration and experiments as well as research activities. A working conditions, the finding was not unexpected. background of supportive management practices Moreover, allocations for research funding are needs to be crafted for HEIs in terms of experienced negligible and access to other funds, given the leadership, funding allocations, framework for absence of a research culture, seem insurmountable. national and international collaborations, an HEIs and DoHE could start a Research Fund which enabling infrastructure of facilities, and equipment could work in phases, starting with participation 22 Governance for Quality in HIGHER EDUCATION in Odisha, India in seminars and workshops, participating in the grant scheme for HEIs, opening it up to public and affiliating university’s research seminars, perhaps private institutions to stimulate healthy competition moving on to joint research projects where they and increasing qualitative inputs. A well-organized could develop research skills almost as interns. competitive public research funding system, even College teachers need to develop skills to access if it starts small, can sow the seeds of significant and receive research grants from external funding research possibly leading to the commercialization bodies such as the UGC, ICSSR, ICAR and others. of research outputs, helping to place institutions Those who are successful could be rewarded with on the first few rungs of national and global matching funds or participation in conferences research activities. Such a system needs to be at home and abroad. However, availability and transparent, well monitored with a database in the maintenance of research facilities and equipment public domain, an information system compatible are basic to any research activity for which recurrent with those of participating institutions, and a funds need to be earmarked. website which prompts full disclosure regarding announcements of available funds, details of At the State level, the Department of Higher application proposals, the process of selection Education needs to set up a competitive research and awards, and research findings. Chapter Eight: Research and Development 23 Chapter nINE Curriculum and Development All colleges follow the state approved curriculum Curriculum revision is regularly taken up by the with 20% room for adaptation in curriculum to local Board of Studies (BoS) in which specialists from situations, a positive sign if colleges had the relevant other colleges are invited as required, a major expertise and experience to benefit from the policy. responsibility being to review and monitor the The common under-graduate curriculum was seen curriculum during the academic year. The Board’s as restrictive, overly theoretical both in content and findings provide the basis for changes to the presentation, with insufficient attention to the need curriculum within the 20% leeway which exists. to prepare students for the job market. Pervasive Many of the changes reported dealt with peripheral curriculum issues include a focus on information rather than core issues of design and outcomes. recall and rote learning at the expense of critical and One college cited the introduction of term projects, analytical thinking. These features are reinforced student presentations and new novels with relevant by the nature of assessments and examinations themes in a college which had a significant which focus on rote learning and information recall proportion of tribal students. Examples were given rather than higher order cognitive skills as making also of recommended reading of texts which were inferences and judgements based on information not available and opening of courses for which and data or critical analysis. teachers had not been recruited. Members of Boards need to be abreast not only with changes in their Observations and field findings appeared to discipline areas but also possess specialized skills indicate that on becoming autonomous, colleges in curriculum monitoring, review and development. are anxious to both complete the syllabus/course The composition of Boards as well as the training on time as well as show good student results. In and professional development opportunities which order to achieve this, there are reports that the currently prevail within the college sub sector curriculum has been diluted. Firstly, most colleges strongly suggest that this is not the case generally. did not have the expertise locally available to It would be timely to examine the impact of Boards review and renew the curriculum; secondly, they of Studies on teacher performance and student did not have the funds available to invite experts achievement to identify ways in which the system from different parts of the state and nation to could have a more positive impact on teaching collaborate. Some mechanism can be developed to and learning. improve the curriculum with affiliating universities having a larger role. Different universities have their Broadening the composition or activities of Board own mission and vision and they must be allowed members to include stakeholder views, such to follow their own mission. as those of employers, industry and student 24 Governance for Quality in HIGHER EDUCATION in Odisha, India representatives might increase the relevance of programs. The process of recognition of altogether V Self-Financing Courses new courses is time consuming and ill-equipped to In order to generate funds, colleges conduct self- respond quickly to changes in knowledge as well financing courses which fall outside the purview of as the market. Proposing a new course is laborious Boards of Studies. Students pay tuition fees for these and time consuming with inspections undertaken courses which are largely run by part-time faculty separately by affiliating universities and the local who are paid on a lecture basis. Sometimes a ceiling inspection team. A joint inspection effort would is fixed for payment to any single guest-faculty who help make colleges more responsive to market cannot survive on this source of income alone. They demand. tend to look for other part-time work restricting their time for teaching-related activities. Concerns Curriculum design is a crucial issue. All universities include the fact that guest lecturers need not be in and all colleges need not necessarily have the same compliance with UGC qualification requirements nor or identical syllabus. There is a difference between is their course content and methodology subject to any kind of supervision by the college. this issue is the clientele of different institutions (autonomous more serious in private institutions. Performance of colleges and universities) and this difference self-financed learners may be better than in regular needs to be understood as well as respected. The programs as the course is run on time and properly. Biswas committee report (2009) has highlighted Students would benefit however if there were clear this role of the universities and the report has also guidelines set by UGC or the State, regarding been accepted by the Central Advisory Board on teacher qualifications, fees, course content and Education (CABE). conduct of classes. Chapter Nine: Curriculum and Development 25 Chapter tEN ICT Utilization Emphasis on and investment in modern efficiency, both teaching and non-teaching ICT communication technologies are ubiquitous. networks need to be embedded in institutions Funds have been given making campuses Wi-Fi as an essential element in the lifelong learning enabled and use of communication technologies and development process. For managers and has become common amongst students administrators as well as academic staff, on-line especially for social media. However, despite training and enrichment modules are available on available funds and better connectivity actual recent developments in content, policies as well as use of institution supported connectivity governance processes. Institutions need to work for academic use is often absent. For the on popularising the use of infrastructure as well as professional development of staff and greater connectivity. 26 Governance for Quality in HIGHER EDUCATION in Odisha, India Chapter eLEVEN Making Institution Inclusive As a policy, India intends to make education for SC/ It is suggested to enhance access and equity ST and OBC categories of students completely free to labor market relevant higher education for as well as support them through various measures. marginalized youth in remote areas. This could be However large sections of these learners as well as done through a targeted effort to strengthen the and the physically challenged are not provided the quality of universities and colleges in remote areas support they require from the institutions. Children with a high tribal population. Components of such from weaker sections of society require special an effort could be to develop: assistance in language (especially English and  Satellite campuses to be established in sometimes other National Languages), Computer remote areas to provide alternative innovative application, Mathematics and the Sciences, among demand driven short-term courses which are others. Institutions should design and provide linked to livelihood and income generating special classes in these areas to children. Some opportunities in the region. institutions are making serious efforts but concerted public will and supporting funds are required.  Online and web-based courses focusing on institutions' and students' needs in Hostel as well as recreational facilities for listed remote areas including piloting MOOCs categories are inadequate. There are instances of courses. girls who have represented the State during their school days but have no sport facility at the college  ‘Earning-while-learning’ type of vocational to develop their talent further. Sport centres and education will be developed and scaled- facilities need to be built for both boys and girls. Most up in remote areas. Short-term courses campuses are unfriendly for the blind, orthopedically would be designed by the university/college challenged as well as mentally retarded learners. in consultation with local industries and During discussions, officers/authorities appeared corporate houses. Resource persons from sensitive towards this issues but very little has been those industries/corporate houses could be done in these areas on the campus. engaged as resource persons. Chapter Eleven: Making Institution Inclusive 27 Chapter TWELVE Affiliating Universities, Affiliated Colleges and Quality Assurance Affiliating universities provide the teaching and the 16,000 colleges under UGC’s purview in 2008, assessment materials but do not follow up regularly 5,813 (36%) colleges received UGC grants having with much-needed academic supervision and met the minimum standards required. Nationally less on-going teacher support which would be key than 10% of 3,492 colleges had been accredited to quality enhancement in the many cases of by NAAC, with major deficiencies attributed to under-staffed and inexperienced faculties at availability of qualified faculty, physical and other colleges. While regulatory norms prescribed by infrastructural facilities (Lee, 2011). the state and UGC for taking on affiliated colleges In Odisha, in Table 7 (extracted from State Higher exist and are known, it would appear that there is Education Plan at a Glance), it is noted that NAAC insufficient expertise or capacity to enforce them. accreditation has a long way to go. Only 41.67% of Quality improvement grants are available from State Universities, where affiliating universities are UGC but colleges cannot always meet conditional key to the quality of the college system, have been requirements for receiving them and it would accredited; Government Colleges, numbering 43, appear that this is a nation-wide phenomenon. Of are doing better with 81.4%; and the large number Table 7:  Basic Profile of Higher Education Institutions – NAAC Accreditation Total 2f 12B NAAC Accredited % NAAC Accredited to Total State Universities 12 12 12 05 41.67 State Private Universities 03 03 03 00 00 Deemed Universities 02 02 02 02 100 Government Colleges 43 32 32 35 81.4 Aided Colleges 318 318 318 93 29.255 Private Colleges 316 00 00 34 12.03 Total Post-Graduate 174 00 00 00 00 Departments in State Universities Academic Staff Colleges 02 00   00 00 Source: State Plan for Higher Education, 2014, Odisha. 28 Governance for Quality in HIGHER EDUCATION in Odisha, India of Aided and Private Colleges are doing poorly arise regarding the failure of the large majority of with only 21.25% and 12.03% respectively having institutions in meeting quality goals. The pertinent received accreditation. Most worryingly, none of question then is one of implementation: to what the State’s 174 Post-Graduate Departments have extent have state level structures been successful been accredited. in setting the scene for college level reform and help them move towards excellence? And To what extent 75. It may be the case that NAAC is over- do colleges meet the criteria set out for becoming burdened and is unable to cover the institutions at a an affiliated college and how satisfactory is the more accelerated rate; or that the institutions have process which is in practice? not been able to meet the required criteria. If the former, the State must hold frequent discussions India’s Quality Assurance and Accreditation with NAAC State coordinator to accelerate the framework is well-known among South Asian process; if the latter, the Government may need countries and indeed provides an important model to fund higher education for meeting accreditation for quality enhancement in the college sector. process requirements and organize orientation However, weakness in implementation, structural and workshops and provide capacity building support organizational challenges and access to sufficient for preparation of self-assessment report. development funds for basic infrastructural facilities render this important segment of higher education Given the set of policies for reform, and the in Odisha less effective than need be in terms of framework for implementing them, serious concerns contribution to human capital growth. Chapter Twelve: Affiliating Universities, Affiliated Colleges and Quality Assurance 29 Chapter THIRTEEN Quality as Relevance Concerns about graduate unemployment resonate according to academic area. Disaggregated data across the globe, with stakeholders calling for better sharpen the issue but given the preponderance linkages between higher education institutions and of college graduates in the higher education the work place, helping students develop work sector it may not be incorrect to say that college related experience and skills in efforts to improve education does not match what employers look employability upon graduation. Linkages can for, particularly at post-graduate level. It would happen in many ways often relying much on local appear that the increases in enrolment are going industry. There are cases where such a relationship in the right overall direction in terms of selection brings about: participation by employer/industry in of discipline  –  Science, Engineering, Technology Boards of Studies orienting the curriculum to market and Architecture  –  reflecting one of the state’s signals; a cluster of institutions who work with objectives of providing quality education with industry in different ways; and a source of student multi-skills to make graduates more employable. internships (which may lead to jobs on graduation). The fact that Diploma and Certificate programs Sometimes the result of such relationships can lead did not show any increase perhaps indicates that to industry-sponsored degrees and certificates and students are reading the market signals. The outlier open up to a lifelong learning-work connection. seems to be the ordinarily popular Management programs whose enrolments have dipped in 2009- Quality of colleges may be measured by several 2010 by 8.5%. All HEIs have Student Placement indices: academic staff qualifications, student Cells but not all are equally functional. Cells are achievements in examinations, school-community headed on a part-time basis by a member of faculty relations, teacher participation in seminars and who is a full-time teacher of a discipline, fitting in workshops, and publications. Probably the acid test management of the cell where able. None of the of quality is that of graduate employment, bearing colleges visited had cells run by full-time staff with witness to the value of acquired learning and work- suitable qualifications and experience. Students related skills to society and the economy. interviewed during field visits indicated that they would want to see the Cell provide professional In Odisha, unemployment is highest at post- career guidance and counselling; provide individual graduate level amounting to 42.86% which shows psychological counselling; organize internships an increase by 66.6% over the previous year. Of with industry/employers to equip students with Diploma and Certificate holders, 29.3% were practical work-oriented skills; organize regular on- unemployed compared with 23.1% of graduates campus fairs with employers providing information (Issue Paper on Quality, Odisha). on their requirements and building networks; and build soft skills applicable to the world of work such Table 1 showed the percentage change in under- as communication and enhanced ICT skills into UG graduate and post-graduate student enrolments and PG programs. 30 Governance for Quality in HIGHER EDUCATION in Odisha, India Skills development, much sought after by as Student Placement Cells could usefully track employers, were supported by some colleges employment destinations of graduates, the wait period through well-planned co-curricular activities and prior to job appointment, employer feedback on processes. Experience with interactive sessions performance, and develop over time a profile of skills outside the regular classroom environment increase which appear to be in demand. This is recognized as the flexibility and ease with which graduates can a continuous process as demand for a set of skills in adapt to new environments. One college listed one year may be followed by a surplus in the next. the following: seminars, workshops, debates, HEIs which have already initiated such studies may elocution competitions, study tours, participation provide assistance/training to those who have not. At in performing arts, quizzes and various extension the very least, affiliating universities need to take the activities, seeing in them the nurturing of cooperative initiative and undertake a sample tracer study which learning, teamwork, and analytical thinking. could reveal important findings relative to several aspects of teaching, learning and assessment. These The increasing attention to employability issues findings would benefit those responsible for identifying is seen globally as the following example from subject priorities and overall program design. Study the Melbourne-based Australian Technical and findings could also link up with financing of students Management College demonstrates. One of its in priority discipline areas. attractions to students is its focus on helping students build their careers by: emphasizing information Notwithstanding market demand and supply, HEIs on the Australian and International labour market need to ensure the quality of learning outcomes. and workplace culture; working on internationally While norms, regulations and guidelines exist, sought after workplace skills; helping students find they are not enforced equally across the system. internships and part-time employment; clarifying The findings reported earlier on Quality Assurance rights and responsibilities of workers; assisting with Cells and Student Placement Cells are cases in resumes and interview skills; introducing students to point. Similarly regulatory norms for the affiliation online resources; career coaching and counselling; relationship are not observed, resulting in lack and providing graduate work placement assistance of support for regular academic supervision. A confounding factor in the setting of norms and (www.amtc.edu.au). ensuring their enforcement is the fact that while While it is difficult to handle precisely the mismatch affiliating universities oversee all academic matters between education programs and employment, of affiliated colleges, some colleges are under the Graduate Tracer Studies mounted by units such purview of UGC, AICTE and NAAC as well. Centurion University of Technology and Management (CUTM): An example of blending education with skills development in Odisha CUTM is a unique private State University in Odisha. The institute is focused towards imparting appropriate and relevant education. Their objective is to broaden the definition of University to include skills development. Even in research, the focus is more on action research projects. The University is trying to implement a faculty led governance system. This implies faculty led admissions, research and other reforms. Faculty councils to deliberate and decide on courses, grading pattern and blending of skills component are held every month. Faculty development programs are conducted regularly every weekend. Also, domain knowledge trainings are held such as courses on New Age Teaching on innovations in teaching methods. The focus is on practice- oriented pedagogy. The autonomy of the institution allows it to be market oriented and develop a skill-based curriculum which is a new and worthwhile approach for creating relevant knowledge base and preparing students for employment. Curriculum is revised every 3-4 years. Faculty, students and alumni are involved in this process. The University has also developed online course content and makes MOOC courses available to students. Besides general courses, the University runs various short term skill development courses through its social outreach entity, Gram Tarang, and also runs Industrial Training Institutes (ITIs). Students undergoing these courses also have the facility of taking the Board examination for XIth and XIIth standards from CUTM which has a tie-up with National Institute of Open Schooling (NIOS) of Government of India, for this purpose. The students of certificate, diploma and degree courses share the same hostels and frequently work jointly in the workshops. This inculcates a spirit of inclusion among the two groups which are very different socially and economically. Chapter Thirteen: Quality as Relevance 31 Chapter FOURTEEN Leadership and Institutional Quality Vice-Chancellors (VCs) of affiliating universities in the civil service and many served a three-year stint Odisha play a key role in managerial, administrative and at least two did not complete their tenure. Few and academic leadership. Not only is this true had the experience or could not develop these skills in terms of their own university and constituent during their brief tenure to ‘steer a large complex colleges but also in terms of the heterogeneous educational institution through a highly political body of colleges affiliated to them which, as in the environment. Many have, therefore, relied heavily case of Utkal University, numbers more than 300. on rigid government guidelines with scant regard for managerial, academic and financial autonomy’ To bring the range of responsibilities, institutions and (Mukherjee and Wong, 2011). In the continuing human resources into a functional and productive set efforts to climb world ranking tables, NUS has of entities, the VC needs to propel personnel forward demonstrated how it has outshone UM and sound based on sound vision, strategic planning, strong leadership over time has been acknowledged as a academic and management experience as well as major element of its success. interpersonal skills, to name a few characteristics. Given a three-year stint with no Pro-Chancellor Vice-Chancellors in Odisha have on their own (as there is in all Central Universities, and in the initiative begun to meet together to discuss areas of State of Bihar) to share his many administrative mutual concern and to identify possible solutions to responsibilities, he or she has little space to function them. Such meetings on a regular and possibly more freely and nurture his vision. His or her powers are formalized basis would do much to unearth rich constrained by rules and regulations: examples experiences as well as establish a thriving horizontal include restrictive financial powers as defined by relationship among institutions. It may be beneficial the outdated Accounts Manual of 1997 and the loss to extend some of these meetings to Principals and of authority over transfers of government teachers Registrars to share and embed principles and ideas in affiliated colleges. across the system. The successful outcomes of the Committee of Vice Chancellors and Principals in Studies have highlighted the value of continuity of the UK (now known as ‘Universities UK’) provides a sound leadership in enhancing institutional strength. working example of a strong advocacy group which In a performance analysis of the National University brings people together to share knowledge and of Singapore (NUS) and the University of Malaya good practice. To sustain the benefits of positive (UM) between 1962 and 2008, it was found that managerial experience on institutions, extending the during this period NUS had five respected scholars VC’s term to five years, perhaps based on a review at as VCs. This experience contrasts with UM’s ten VCs the end of three years, may reap good dividends for over the same period: some were scholars, few from the higher education sector as a whole in Odisha. 32 Governance for Quality in HIGHER EDUCATION in Odisha, India Chapter Fifteen Recent Initiatives The Odisha State Higher education Department of teachers in all government colleges to has put in place a number oftechnology-based whose bank accounts salaries are sent tools to increase accountability and efficiency in the directly. All training completed by teachers system. It would be of value for the DoHE to carry is captured in this system neatly facilitating out an impact evaluation of these innovations and overall faculty status information and assess the extent to which they have contributed development/training needs. A grant from to good governance. A more efficient governance UGC will support the HED in its plan to and management system is not only more effective extend such digitization to non-government but also frees up resources for a stronger focus on colleges. learning outcomes: (iii) The ground-breaking Student (i) The implementation of examination reforms Admissions Management System with its where examination scripts are scanned e-administration and e-admissions tools now and uploaded and examiners place their permits student application to multiple HEIs marks on the answer sheets leads to the electronically without having to be physically makings of a transparent and efficient present, expanding program choices for system. The initial effort is directed at the students without the burden and expense ‘plus 2’ level examinations and is expected of travelling in person to various campuses. to be implemented at under-graduate level Student performance is also tracked in 2016. The system is linked electronically electronically. to the Higher Education Department which Other electronically-based reforms increasing (iv) is able to zero in on any aspect of the overall system efficiency include: the examinations and their evaluation from its management of scholarship application offices. Additional measures to increase and award (known as e-medhabruti) with trust in the initiative is the presence of CCTV funds transmitted from the Department of surveillance which operates during the actual Higher Education directly to students’ bank examination taking as well as the process of accounts; establishment of 55 language evaluation of exams. laboratories in collaboration with IIT- (ii) A key initiative in streamlining system Kharagpur; and the Biju Patnaik SMART management is seen in the digitization of campus in College and University Scheme personnel databases as well as payroll which aims at developing Wi-Fi ready management. The Personnel Information campuses, library automation, language Management System is a complete database laboratories and SMART classes. Chapter Fifteen: Recent Initiatives 33 Chapter SIXTEEN Financing of Universities and Colleges Financing of higher education institutions in Odisha fees from these courses provide some leeway for draws from the following sources: Annual State independently determined institutional expenditure. Budget, grants from UGC, budgets of various Little information is available on how the revenue Central Government schemes, donations and from fees are spent. Expenditure on infrastructure internal revenue from student fees, examination and high value purchases require approval from fees, affiliation, etc. The total expenditure on the government, a process which causes delays. higher education by Odisha State government is Colleges have access to funds for some levels of approximately Rs. 1,200 Crore which represents purchases and expenses but overall their financial 0.5% of its Gross State Domestic Product (GSDP). autonomy is limited. Odisha state has the lowest This includes plan and non-plan for revenue and level of financial decentralisation in India with only capital expenditure. The state’s annual per capita 7% of expenditure of state funds accessible by expenditure on higher education for its 18-23 institutions contrasted with the national average years old population is about Rs. 2,700 (EY, 2015). of 43%. Limited financial autonomy constrains Odisha stands nineteenth in terms of per capita administrative processes and institutional potential expenditure on higher education among all 30 to act nimbly or creatively in response to changing Indian states with Goa (above Rs.14,000) and Tamil circumstances. Nadu (about Rs.13,000) leading the way and Uttar Pradesh and Jharkhand bringing up the rear, both Budget planning in institutions do not show alignment below Rs.1,000 (EY,2015). Odisha ranks among with institutional strategic development plans or the lowest in India in capital expenditure on higher indeed overall Government sectoral development education with high levels of revenue expenditure plans. A bottom-up approach of preparing formal on teacher salaries. Teacher salaries constitute institutional strategic plans would support the approximately 98% of total expenditure in the development of priority quality enhancement steps, state, higher than the national average of 85%, with earmarked funds. An institutional strategic indicating a lack of funds available for instructional plan, while taking on board national and state and research support such as laboratories, development plans, would focus on its own needs libraries, industrial visits, and training workshops in terms of institutional vision and goals, students, and seminars. Even infrastructure maintenance is staff, clientele and the territory it serves. Given seriously underfunded. greater financial autonomy, institutions would be in a position to enhance identified quality inputs Colleges determine fee structures for their various required for their growth. Without such leeway, programmes. Salaries of regular staff follow expenditure will continue to be standardized for government salary norms with colleges deciding all, with expenditures going largely for salaries on ad hoc staff salaries. Student fees and salaries and little attention to specific needs unique to of guest lecturers/ad hoc are fixed by colleges and individual institutions such as increasing intake 34 Governance for Quality in HIGHER EDUCATION in Odisha, India capacity. Outputs and outcomes of implementation of ownership to undertake reforms/changes which would be identifiable and monitorable, keeping bring about greater qualitative improvements. institutions accountable. With the State’s success in recent, electronic-based initiatives, educational To improve the health of the higher education system management systems could be upgraded to with incentives for institutions to implement and strengthen accountability measures. sustain quality enhancing steps, findings of this study support the financial management study proposals The national and state goal of increasing GER, for that (i) per capita expenditure be increased in Odisha example, should set in train plans with required based on a comparison with all states in India, budget for additional staff for new programs, and allowing for increased expenditure on non-salary development of facilities and overall infrastructure areas of development and support such as research to accommodate increases in student enrolment. and infrastructural facilities; and (ii) the low level This is not the case. The current practice is to (lowest in India) of funds transfer or decentralization increase the previous year’s budget by a certain from the State Higher Education Department to percentage which does not help to target growth state institutions needs to increase significantly and teaching-learning priorities. Delays in receiving from the current 7% (national average is 43%) funds in a timely fashion from both State and (EY, 2015). To optimize the utilization of higher levels Central Governments add to institutions’ financial of funds transferred from the center, well-considered management difficulties. Greater autonomy in institutional strategic development plans need to financial and administrative terms is essential, if become a regular feature of HEIs and be monitored staff are to be sufficiently motivated with a sense periodically to satisfy accountability requirements. 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