Studies on Higher Education Implementation of the Standards and Guidelines for Quality Assurance in Higher Education in the Central and East-European Countries – Agenda Ahead by Jan KOHOUTEK (Editor) Bucharest 2009 UNESCO-CEPES Studies on Higher Education Editor of the Series Melanie Seto Editorial Assistance Viorica Popa This publication was peer-reviewed. This publication is the outcome of the Research Plan Tertiary Education in the Knowledge Society (identification code MSM0023775201) of the Centre for Higher Education Studies, Prague, Czech Republic ISBN 92-9069-189-1 © UNESCO 2009 Table of Contents Preface ......................................................................................................................................5 Acknowledgements.......................................................................................................................9 Chapter 1. Setting the Stage: Quality Assurance, Policy Change, and Implementation...................................................................................................11 Jan Kohoutek Chapter 2. Quality Assurance in Higher Education: A Contentious yet Intriguing Policy Issue.................................................................................21 Jan Kohoutek Chapter 3. Implementation Analysis in Higher Education with Regard to the European Standards and Guidelines: Beyond Heuristics..............................................................................................51 Jan Kohoutek Chapter 4. Implementation of the European Standards and Guidelines in External Quality Assurance of Higher Education Institutions and Programmes in Latvia.........................................................93 Agnese Rusakova, Andrejs Rauhvargers Chapter 5. The European Standards and Guidelines in Quality Assurance Mechanisms in Hungary.............................................................119 Christina Rozsnyai Chapter 6. National External Quality Assurance System in Poland and Implementation of the European Standards and Guidelines...........................................................................................................147 Ewa Chmielecka Chapter 7. The State of Implementation of the European Standards and Guidelines in the Slovak Republic in 2004-2008...............................173 Jozef Jurkovič Chapter 8. The European Standards and Guidelines in Quality Assurance Mechanisms in the Czech Republic.........................................201 Helena Šebková Chapter 9. Implementing the European Standards and Guidelines at Institutional Level: Case of the University of West Bohemia in Pilsen.............................................................................................235 Eva Pasáčková, Hana Rendlová Chapter 10. Participation of the University of West Bohemia in European Quality Projects for Institutional Improvement....................265 Eva Pasáčková, Hana Rendlová Chapter 11. Developing Higher Education Quality Assurance in Central and Eastern Europe: Practising the Science of Muddling Through...........................................................................................277 Jan Kohoutek, Eva Pasáčková, Hana Rendlová REFERENCES ........................................................................................................................293 Annex 1. Application of Perellon’s Comparative Framework to CEE Quality Assurance..................................................................................313 Annex 2. Analysis of Strengths and Weaknesses of HEQEC and the Current Quality Assurance System in Latvia.......................................319 LIST OF CONTRIBUTORS.................................................................................................321 PREFACE “Quality assurance” must be part of a long term policy There is no doubt that it is a timely publication. Its topic – quality assurance – is one of the key issues in contemporary policy debates at the international, European, national and institutional level. This multi-level concern is reflected in the structure of this volume different chapters analysing various conceptual considerations, historical developments, institutions responsible for quality assurance as well as organizational arrangements, academic and bureaucratic concerns and practical arrangements at Central and Eastern Europe level (see the first three chapters as well as the concluding one), followed by “national case studies” including Latvia, Hungary, Poland, Slovak Republic and Czech Republic; and finally supplemented by two chapters presenting the “institutional perspective”, i.e. that of the University of Western Bohemia in the Czech Republic. It is self-evident that as this publication’s geographical remit is Central and Eastern Europe, the “quality assurance agenda” is reflected upon in the context of major changes which took place in that region since the early 1990s. The analysis presented had to take into consideration the consequences of departure from the previous conceptual and administrative model of higher education, a model in which a genuine concern for “academic quality” was not altogether absent but it was woven into a complex mix of ideology, party politics and bureaucratic procedures. In addition, the “departure reforms” had to deal with the “educational boom”, spectacularly illustrated by the dramatic increase in student enrolments in higher education. The sector was one of the exponents of opportunity which emerged at the beginning of the 1990s, when the countries and their societies of this region were finally given an opportunity to depart from the political and ideological shackles of the past. The boom has also provided a fertile ground for the emergence of private higher education with a whole range of local and foreign institutions and programmes. The means and ways of establishing such institutions and programmes were plentiful and yet, as in many other domains, the lack of regulatory mechanisms and experience with regard to financial and academic matters, required courage, ingenuity, determination and not least, luck. It has not been a “smooth journey” as some have disappeared as quickly as they appeared in the sector, but a substantial number has continued to function and some of them even managed to grow in academic status and labour market relevance and become an integral part of the system of higher education. No less important was the accompanying diversification of educational offers coming from the public higher education institutions also keen on taking advantage of and responding to an enormous demand for studies in higher education. The above briefly sketched historical background of the major challenges for higher education in the region explains why the “quality agenda” and principal concern of those in charge of governance at the system as well as institutional level was, and still is, 6 JAN SADLAK the introduction and operationalization of one particular aspect of quality: accreditation. A prevailing number of contributions and practically all “national case studies” provide a detailed analysis of the way how accreditation was introduced and how it now functions in the respective jurisdiction. It is an important record, and an interesting one, as it shows some “small print” of the accreditation legal regulations and practical arrangements, which, for example, in the case of Latvia, makes a distinction between a “registration” which means the “right to legally exist and practice” (for a particular institution) while “accreditation” is the legal recognition of degrees and qualifications within the national system, or that accreditation procedure carried out by the Polish State Accreditation Committee (PAK) is free and its operations, being an integral part of the Ministry of Higher Education and Science, are financed from the state budget. Exactitude and details with which such workings are being presented and analyzed contributes to a better understanding of the complexity of accreditation process. It is interesting to note that in all the countries presented in this volume accreditation is a suri generis expression of the public authority control over higher education as well as assumed guarantor of the academic value of the programmes offered by higher education institutions as well as labour-market validity of the degrees awarded by accredited-institutions. As such it is no longer a copy-cat of earlier inspirations of the US approach which is based on a soft formal policy measures with regard to quality assurance in which accreditation is mostly voluntary and carried out by bodies which can hardly be considered as integral part of the state or federal government. In those countries, voluntary and supplementary accreditation is exercised by national academic bodies, particularly well analyzed in the case of the Polish higher education, or by supra-national bodies such as the system developed for business education by the European Foundation for Management Development (EFMD) called EQUIS, the European Quality Improvement System. The terms of reference of the research project which is at the origin of this set of contributions presented in this volume also required taking into consideration the degree of implementation of the Standards and Guidelines for Quality Assurance in the Higher Education Area (ESG), which was elaborated by ENQA, the European Association for Quality Assurance in Higher Education. It is probably the framework for the next generation of measures under the “quality assurance” agenda in higher education in Central and Eastern Europe and the way how national systems and particular institutions are going to respond to growingly stringent quality requirements in the framework of the Bologna Process as well as an increasingly competitive suri generis “educational market” to be affected by declining demographic trends and as of yet unknown consequences of a global financial and economic crisis. In this regard a creation of the European Quality Assurance Register under the overall umbrella of the Bologna Process is going to be part of the new supra-regional framework for all aspects of quality assurance. This timely volume confirms that quality assurance in higher education is a highly complex phenomenon in which a variety of what is now referred to “stakeholders” has various interests. The improvement of quality standards must be part of a long-term policy – on the part of universities to embark on searching for “creative solutions”, and PREFACE 7 on the part of public authorities to create regulatory frameworks and financial conditions to respond to such challenges1. Searching for an appropriate balance between “regulatory interventions” and “self-steering” is what represents the potential for a better mastering of quality assurance while avoiding “assessment fatigue”. And it should always be kept in mind that the predominant responsibility for quality assurance will remain with those directly involved in higher education – teachers, researchers, students and administration staff. This publication, which UNESCO-CEPES has gladly included in its publication programme, is also demonstrating an enormous transformation on the road to normalcy and development of higher education which occurred over recent years in Central and Eastern Europe. Jan Sadlak Director UNESCO-CEPES 1 For a more detailed analysis see, Sadlak, J. (2007). “Quality Assessment and Indicators in Higher Education: Needs, Problems and Potential”. In: Cavalli, A. (Ed.). Quality Assessment for Higher Education in Europe. London: Academia Europaea and Portland Press Ltd.