Policy-making for structural reforms in Welsh higher education landscape

Abstract

In this working paper we present an analysis of the merger process in Wales in the period from 2002-2012. The mergers were initiated to reduce the overall number of universities as part of an effort to increase the overall competiveness of the Welsh higher education system in the wider United Kingdom higher education system. The Welsh merger structural reforms have been analysed by using a governance approach to HE mergers. The aim is to understand whether the structural reform process can be understood as functioning as an open method of coordination. The OMC can provide a conceptualization of bottom-up driven merger processes. This is certainly the case for countries like the UK where universities have high levels of institutional autonomy. Various elements of the OMC approach can be detected in Welsh merger reforms. The structural reforms provided for strong coordination and also strong initiative taken by the universities themselves. It is difficult to determine whether the coordinated mergers have been successful. On the one hand, it reduced the overall number of universities. The capacity of the system has improved and the average size of the institutions has increased. On the other hand, the desired end point of six institutions has not been met and the average size of the institutions remains relatively low in the UK context.

Collaboration, alliance, and merger among higher education institutions

“…Governments can be closely involved in institutional-level CAM planning and implementation. The Higher Education Funding Council for Wales (HEFCW) helped fund the preparation of joint business plans for institutions that agreed to merge, and subsequently reviewed the plans to determine whether it would provide full grant support, while also providing feedback and advice (Benneworth and Zeeman, 2017). The Swedish government provided financial support for planning committees and working groups for the Växjö University-UC of Kalmar merger, and also appointed the "pre-rector" and "preboard" for the resulting Linnaeus University (Bennetot Pruvot et al, 2015;.…”

“…However, evaluations can help inform future CAM at other institutions and support accountability for public resources. The HEFCW required that institutions evaluate CAM using its support funds, and made those evaluations (including lessons learned and recommendations for future improvement) available online to other institutions and stakeholders (Benneworth and Zeeman, 2017). In New Zealand, the Ako Aotearoa Regional Hub Project Funds programme evaluation produced a guide for future interinstitutional collaborations that is also available online.…”

“… Extensive protections against reassignment or terminations among many higher education staff  Widespread belief that governments are responsible for ensuring public institutions' survival, be this based on legal or political circumstances  Uncertainty if external authorities will maintain relevant policies (Boggs and Trick, 2009) All these factors combined are sufficiently powerful that institutions typically pursue only less intensive collaborations of their own accord. Analysts consider that purely voluntary, institutionally-driven mergers are rare (Benneworth and Zeeman, 2017). Even where mergers are pursued voluntarily, they may be "forced by circumstances" that governments influence or even shape (Ripoll-Soler and de-Miguel-Molina, 2014; Skodvin, 2014).…”

“…In other cases, they can set expectations for institutions to implement these tests in advance of CAM, especially where they provide grants as incentives to collaborate or to help cover associated costs. In Wales, HEFCW funds supported institutions to develop CAM scenarios (Benneworth and Zeeman, 2017).…”

“…Still, such measures are often controversial especially where they significantly affect whole communities, as is often the case in smaller, more isolated and more economically disadvantaged rural places. Such fears can also prevent mergers from occurring, as in the case of Glyndwr University in Wales (Benneworth and Zeeman, 2017).…”