setting the stage: on garbage cans and institutional differentiation glen a. jones ontario research...
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Setting the Stage: On Garbage Cans and Institutional Differentiation
Glen A. Jones
Ontario Research Chair in Postsecondary Education Policy and Measurement,
Higher Education Group, OISE/UT
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Outline
• An introduction to institutional diversity
• Possible approaches for Ontario
• Garbage cans …
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Institutional Diversity
• Research literature (with Birbaum’s 1983 book as a foundational work)
• Accessibility is the key theme/rationale– Diverse students have diverse needs– Creating new, less-expensive institutional
types to address the needs of mass higher education
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From an international perspective …• The “university” is not a universal
institutional type
• Huge variations in “non-university” institutions (often degree-granting, limited research activity)
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Where do first year students go?
Derived from Taylor et al (2008), Non-University Higher Education in Europe. Dordrecht: Springer.
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From an international perspective …• Without government involvement,
pathways between differentiated institutions are unlikely to emerge.
• Without government involvement, academic drift will occur.
• Public policy challenge is to find an appropriate balance (enough, but not too much, diversity)
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Ontario in the 1960s
• Expanded the existing university sector and created new, similar universities
• Colleges of Applied Arts and Technology created as comprehensive PSE institutions but without a transfer function
• Created two quite different policy and regulatory environments for the two sectors
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Ontario Universities
• Quite limited systemic (type/mission) diversity within the Ontario university sector
• Systemic diversity has actually declined over time (OISE, Ryerson Polytechnic, OCAD, Algoma)
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Ontario CAATs
• Common institutional type distinct from universities
• Increasing programmatic diversity, especially in relation to degree-granting
• Limited “traditional transfer” and major concerns with “vocational transfer”
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Ontario System
• High levels of participation
• Two distinct sectors, but with limited diversity within the university sector
• There has never been a system-wide plan, or vision/strategy (decisions have tended to be incremental and ad hoc)
• How to address the current issue?
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We were asked:
• To review the evolution of the Ontario system and determine whether, compared with other systems, there were gaps.
• What are some of the policy options that the government might consider in addressing the future needs of the province?
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Options to address anticipated demand?1. Create Satellite Campuses of Existing
Universities
2. Create New Universities of a New Type Focusing on Undergraduate Study and With a Limited Role in Research
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Options …
3.Providing selected colleges with a new substantial role in baccalaureate programming
4. Improving transfer arrangements
5. Create an open university
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Garbage Can Model
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Organized Anarchy
• Problematic preferences
• Unclear technology
• Fluid participation
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Garbage Can Model
• Rather than a rational, orderly process, decision-making takes place in an environment where there are separate streams of participants, problems, solutions, and choice opportunities.
• This is a wonderful example …
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Participants
• Come and go …– Many have specific problems or solutions that
they carry with them– The participants in this discussion include a
wide range of individuals representing institutional and regional interests, as well as individuals who have particular views about solutions and problems
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Problem stream …
• Predicted demand for increased access to degree programs
• Current model of comprehensive institutions is expensive
• Quality of undergraduate education
• Limited institutional diversity
• Regions without universities (historical injustices)
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Problem stream …
• Some existing institutions face a problem declining demand
• College-university transfer
• Failure to differentiate “research universities”
• Access for certain groups/populations
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Solution stream …
• Primarily teaching, undergraduate university
• Increase missions/status of some existing colleges
• On-line institute
• Open university
• Improve transfer arrangements
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Solution Stream
• Create satelite campuses of existing institutions (perhaps those that are concerned about future enrolment)
• BUMBY
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Choice opportunities …
• Occasions when organizations are expected (or think they are expected) to make decisions
• In the absence of clear priorities or strategies, choice opportunities become “garbage cans” where problems and solutions are dumped and become stuck to each other.
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And so …
• We need to step away from a garbage can approach
• Today is about engaging in a public discussion of problems and solutions
• We need an integrated plan or strategy for Ontario higher education that will form the basis for informed decisions about moving forward.