City University and utilisation of existing higher education institutions

By Sunil Dahanayake and Samanthi Senaratne

The launch ceremony of the City University took place at the President’s Office and it was followed by a discussion, on TV Derana, among high-ranking officials of the University Grants Commission (UGC). Thereafter, we googled the words ‘City University of Sri Lanka’ and noted the following utopian phrases provided on the City University website.

“COME. DREAM. DO.

There is a beginning to every story, and it is now more vital than ever, to ensure that you have the right start. City University is your platform to launch your dreams into the world.”

This is a catchy phrase used to lure prospective students to these new City Universities planned by the government. Is this a reality or a fantasy? Are Sri Lankan General Certificate of Education (GCE) Advanced Level (A/L) qualified students deceived by such a university project? In this review, we critically analyse these questions and explain the current situation of university and technical education in Sri Lanka. We also provide an alternative proposal for the City University, on how to utilise the existing higher education institutions to improve university education in Sri Lanka.

The dialogue on school and higher education in Sri Lanka was initiated by the President’s policy statement, ‘Soubagye Dakma’ or ‘Vistas of Prosperity’ in November 2019. The presidential policy statement and his verbal presentations emphasised three major areas in higher education reforms to (a) decrease the time gap between the release of GCE A/L results and the university enrolment date; (b) increase the number of students for university enrolments and (c) produce employable graduates. The President has appointed one Cabinet minister for education with four state ministers and among them; two state ministers are responsible for higher education reforms. They are State Minister of Education Reforms, Open Universities and Distance Learning Promotion, and State Minister of Skills Development, Vocational Education, Research and Innovations. This article focuses on the City University concept initiated by the State Minister for Skills Development, Vocational Education, Research, and Innovation (SMSDVERI). The relevant state ministry plans to operate the City University under the Gazette Extraordinary No.2209/14, dated January 4, 2021, as indicated on its website.

Many students who pass the GCE A/L examination fail to gain admission to state universities in Sri Lanka. As per the statistical handbook published by the UGC, the number of students admitted to state universities in 2019/2020 was 41,641 (23 percent) compared to students qualified for admission, which was 181,206. This means that 77 percent of students could not gain admission to state universities in 2019/2020. These students, who are unable to get university admissions, explore various other avenues such as overseas universities, private non-state higher education institutes, professional examinations, the Open University of Sri Lanka (OUSL), and technical colleges to continue their education. The President has emphasised the need to fulfil the aspirations of these GCE A/L qualified students by increasing the enrolment numbers of the state university system of Sri Lanka, with degree programmes that produce employable graduates. The City University project was initiated as a solution to address these concerns.

What is this City University? On the website of City University, it is described as “the first and only tertiary education institution in the country, that will establish a highly industry-centric focus on all the programmes offered.” As mentioned on the website, the focus of the degree programmes offered by the City University is the employability of graduates. Also, the students who are enrolled in its degree programmes will be given practical experience in different disciplines. Thus, the objectives of these City University campuses are human resource development, stakeholder collaboration, development of regional areas and facilitating technology transfer. The City University’s website provides the following information.

“The State Ministry of Skills Development, Vocational Education, Research and Innovation has been vested with the task of establishing City Universities. It has been planned to open a City University in every district. After a feasibility study, five locations were selected to start with. The first CU will be opened in Wagolla, Rambukkana, in the Kegalle District.”

The City University campuses plan to offer bachelor’s degree programmes in Applied Information Technology, Sustainable Tourism and Hospitality Management, Post-Harvest Management and Value Addition.

We appreciate the praiseworthy objective of this City University concept. It can increase the student enrolment numbers in the state university system. Since this project is backed by the government, there is also a possibility of securing some funds from the treasury or donor agencies such as the World Bank and Asian Development Bank. However, there are many weaknesses, which could doom the City University project in the long run, when considering the issues faced by the existing state universities and technical colleges in the country. Hence, we argue that the SMSDVERI ought to evaluate the needs of prospective students and should optimally utilise the available higher education institutions and resources for this purpose.

We are not pessimistic about the intentions of the Ministry of Education and the UGC, but we review this project pragmatically under the concept of ‘Marketing Myopia’ by Theodore Levitt. Levitt (Harvard Business Review, 1960) argues “that most of the dead and dying industries have shown the self-deceiving cycle of bountiful expansion and undetected decay.” Similarly, the designers of the City University concept seem to operate with the perception that thousands of students will enrol in this university without information on academic accreditation, programme details and standard of the academic staff. The City University website does not provide sufficient details on faculty structure, programmes and course descriptions, and the academic staff involved in these programmes. The lack of such information raises the question whether this City University and its degree programmes are properly planned. It seems that the designers of this project have adopted a production-oriented approach rather than a market-oriented approach. Thus, they should not work with the assumption that the GCE A/L qualified students are a vulnerable group who would enrol in any programme offered under a label of a university. They should realise that there are many local and international higher educational institutes operating in Sri Lanka other than state universities. As such, prospective students compare information available on this City University with that of other higher educational institutions in making their enrolment decisions. Further, the best universities in the world are not merely teaching-focused; rather they are vibrant institutions, which focus on all three functions of a university, teaching, research and community service. However, it is questionable whether this proposed City University has been designed to meet all these purposes.

There are 14 state universities, including the OUSL, operating under the UGC, apart from specific purpose universities such as Bhikku Universities and Visual and Performing Arts University. Further, the Sri Lanka Institute of Advanced Technological Education (SLIATE) and its 20 technical colleges also enrol GCE A/L qualified students in their diploma programmes. These existing universities and technical colleges are under-resourced and exhibit many hallmarks of underdevelopment. These include the lack of state-of-the-art lecture halls, the absence of well-developed informational technology (IT) platforms, largely manual administration and finance systems, inadequate funds for research and staff development, and inadequate student accommodation and other facilities. State universities in Sri Lanka except for the two oldest universities, Colombo and Peradeniya, are not among the top universities in the world as per world university rankings due to the above-mentioned limitations in the university system. Most Sri Lankan state universities are mainly teaching-focused instead of both teaching and research-focused, as research funds are inadequate. Under such a resource strained environment, the UGC and SMSDVERI plan to establish 25 City Universities throughout Sri Lanka in addition to the existing 14 main universities making a total of 49 state universities in the country.

We question the rationale behind the government’s plan to spend capital and operational outlay for these City Universities without effectively utilising the resources of existing universities and other higher educational institutions. Therefore, we provide an alternative to utilise the available infrastructure facilities of SLIATE and its technical colleges, OUSL, and Colleges of Education (Teacher Training Colleges) to increase the student enrolment numbers to state universities. We argue that the breeding of new universities does not resolve higher education problems in Sri Lanka unless the existing universities and technical college education system in the country is streamlined.

Missing link between university and technical education

One of the major flaws in our university and technical education system is that these two organisational structures are not connected for the students to enrol in the relevant degree programmes of universities after completing the diploma programmes from technical colleges. Therefore, we suggest combining university and technical college education systems under this City University concept and developing one centralised university with regional university colleges, after absorbing the technical colleges. This combined approach of higher education is similar to the system that exists in developed countries like Australia. For example, Australia has three major levels of education; schools, Technical and Further Education (TAFE) Institutes and Universities. Students who are unable to get direct admission to the universities can enrol in a TAFE College and complete a diploma programme after completing the year 12 examination. Subsequently, these students can enter a university and complete a degree programme. The TAFE Colleges in Australia also provide education options for adult learners and school dropouts to improve their careers. Therefore, the UGC and SMSDVERI can develop a similar scheme to link universities and technical colleges to increase the number of students admitted to state universities.

Technical colleges are administered by SLIATE and come under the purview of SMSDVERI. These technical colleges offer diploma level and certificate level programmes under various subjects such as business studies, accounting and engineering. Diploma qualifications of technical college students are not currently considered sufficiently in enrolling students in undergraduate and postgraduate degree programmes in the state universities despite the provisions for such, in the Sri Lanka Qualification Framework (SLQF). Examples are the Higher National Diploma in Accountancy (HNDA) and Higher National Diploma in Commerce (HNDC) conducted by the technical colleges under the SLIATE. These two diplomas are considered inferior to the degrees in Accounting and Commerce conducted by the state universities. Hence, the students of technical colleges are at a disadvantage when finding jobs and pursuing university education in Sri Lanka. This missing link between university and technical college education does not support the young and adult learners, who have missed direct entry to the university system through GCE A/L results. Therefore, we suggest combining and streamlining the higher education programmes of state universities and technical colleges under the concept of City University.

Utilising organisational structure of SLIATE and Technical Colleges

The SMSDVERI can reorganise and streamline the SLIATE and its 20 technical colleges into one centralised university with affiliated university colleges, instead of constructing 25 new universities under the City University Concept. The current 20 technical colleges can operate as affiliated university colleges, under the umbrella of the proposed centralised university. The proposed centralised university can be established in the Maradana or Dehiwala Technical College utilis­ing the available resources and facilities. This proposal may require amendments to the SLIATE and University Acts, evaluation of the diploma programmes conducted by the technical colleges and upgrading some of them as degree programmes under various faculties. Finally, this process of reorganisation should be followed by launching a marketing campaign to attract students, parents, and other stakeholders. We believe that reorganising and streamlining the SLIATE and its technical colleges will result in an increase in university student enrolment, as expected by the City University concept.

It is also necessary to evaluate skilled occupation areas identified by developed countries during reorganisation of higher education systems. We examined the Australian skilled migration occupation categories as provided in the web link of the Australian Department of Home Affairs. Accordingly, skilled employment areas with the highest demand are Medicine, Engineering, Architecture, Accounting, Auditing and Finance, Information Technology, Allied Health Sciences and Nursing and Hospitality and Tourism Management. The demand is also high for technically proficient personnel such as Motor Mechanics, Bricklayers, Welders and Electricians. Hence, we are of the view that the UGC and higher education authorities should assess the local and global employment needs when developing university education programmes instead of haphazard development of City University campuses in every district.

The proposed centralised university and its affiliated university colleges can establish schools or faculties for the subject streams based on employer demands as highlighted above. Accordingly, Engineering, Accounting and Business Administration, Information Technology, Hospitality and Tourism Management, Allied Health Sciences and Nursing can be considered as priority subject areas. Further, a Faculty of Humanities and Social Sciences should be established to cater to students’ languages and social sciences knowledge and skills improvement. Diplomas that are currently offered by SLIATE through its technical colleges should be revised under the above subject categories. The duration of the basic diploma or associate degrees should be limited to a two-year period or four semesters. Diploma holders or associate degree holders, who want to continue their studies, should enroll in university level degree programmes offered by these affiliated university colleges of the centralised university.

In this proposed centralised university and affiliated university college system, students should be allowed to complete double major diploma or degree programmes such as Engineering and Business Administration, Business Administration and English Language and Tourism and Hospitality Management and Accounting. Hence, students who want to launch their own enterprises are facilitated as they are equipped with the necessary subject knowledge and technical skills in entrepreneurship. For example, a student who wants to open a hotel can opt for a joint diploma or degree in Tourism and Hospitality Management, and Business Administration. These proposed diplomas or associate degree programmes should be incorporated with internships, in addition to the theoretical knowledge. Thereby, these students can find local and foreign jobs as soon as they complete the diploma or degree programmes. We noted that the proposed City University has given due consideration to the provision of practical training, which is commendable.

Combining with OUSL and Colleges of Education

The proposed centralised university and affiliated university college system can also be combined with the existing academic programmes of OUSL, and Colleges of Education. The OUSL with its main campus in Nawala, nine regional centres and 19 study centres operate distance mode degree programmes under six academic faculties. Consequently, this City University can introduce inter-university enrolments with OUSL. The OUSL requires classrooms that are compatible with state-of-the-art teaching technologies in the Nawala campus, which can support both in-house and distance mode education programmes to increase student enrolment numbers. The academic coordination for each subject unit can be done by a senior lecturer at the main campus with the support of a few assistant lecturers in regional centres. Therefore, opportunities and resources are available to execute this proposed university system with the support of the OUSL.

There are also several Colleges of Education in Sri Lanka such as Nilwala National College of Education, Ruwanpura National College of Education, and Sri Pada College of Education. A few of these Colleges of Education can be upgraded to universities and combined with this proposed centralised university and its affiliated university colleges. These upgraded Colleges of Education can commence degree programmes in other subject streams in addition to the diploma programmes in education. The diploma in education programmes can be upgraded into a BA degree in education. We also noted a news item in the Daily Mirror, dated September 2, 2021, which reported that Jeevan Thondaman, State Minister for Estate Housing and Community Infrastructure, was in discussion with the Chief Minister of Tamil Nadu on getting assistance to establish a university for upcountry Tamil students. As such, what we have suggested in this article on upgrading the Colleges of Education meets the demands of the social and political system. Thus, Sri Pada College of Education can be upgraded to a university to offer degree programmes in education and other subject streams. We noted that the ministerial sub-committee appointed to propose solutions for the salary anomalies of school teachers has also proposed the upgrade of these Colleges of Education into universities.

In summary, the proposed city university can be operated using the SLIATE and its technical colleges as a new centralised university with affiliated university colleges. Further, it can be linked with the OUSL and upgraded Colleges of Education as universities. In our opinion, this is a more pragmatic solution than establishing new city universities in every district, which is unrealistic when considering the fragile economic state of the country.

We have discussed the proposed City University concept and alternative solutions for the development of higher education institutions in Sri Lanka. In this analysis, we raise the question why the government is not utilising the available resources of the SLIATE and its technical college campuses, OUSL and Colleges of Education to increase the student enrolment numbers at universities and re-vitalising these organisations. We noted that the Ministry of Education focuses on constructing new universities without considering the effective utilisation of these existing resources. Hence, we argue that the City University concept is a utopian fantasy rather than a pragmatic project when considering the current economic and socio-political environment of Sri Lanka.

Universities and higher education institutions fulfil three main functions; teaching, research, and community services. However, universities and technical colleges in Sri Lanka do not have adequate resources to carry out these tasks effectively. For example, lecture halls and information technology systems are outdated and cannot compete with universities in the developed world. The administration and financial management systems are outdated and are largely manually operated. The academics are not provided with adequate research funds. State universities in Sri Lanka mostly focus on teaching and not on research as reflected in the world university rankings. State universities in Sri Lanka have received poor ratings in the world university ranking indexes such as Quacquarelli Symonds (QS) and Times Higher Education rankings due to the lack of quality research publications. The University of Colombo and the University of Peradeniya have been ranked between 1,000 and 1,200 best universities in the world by QS ranking whereas Times Higher Education ranked University of Peradeniya between 401 nad 500 and University of Colombo between 801 and 1,000. The other 12 state universities have not been included in these rankings. The City University, with the above indicated deficiencies, can lower the bar of accreditation of degrees awarded by state universities in Sri Lanka in the international arena. This would negatively impact skilled employment and higher education opportunities for Sri Lankan university graduates in developed countries.

What Sri Lanka needs is the streamlining and reorganising of existing universities, technical colleges, and colleges of education under the UGC for mutual recognition of degree and diploma programmes offered by these institutions. Hence, we have provided an alternative solution to increase the student enrolment of the existing universities, technical colleges, and colleges of education under this City University project using the available resources. The SLIATE maintains about 20 technical college campuses scattered around Sri Lanka and offers 14 diploma programmes. Therefore, it is apparent that the SLIATE and its technical colleges have the required organisational structure, staff, and academic programmes. Hence, what is required is the reorganisation or streamlining of SLIATE and its technical colleges into one centralised university with affiliated university colleges under the concept ‘City University’. A new centralised university campus can be set up either at Maradana or Dehiwala technical college.

The OUSL and its regional centres can also be used to offer degree programmes under the proposed system, which will enable an inter-university enrolment system. The OUSL can offer degree programmes for students of these affiliated university colleges. Further, a few Colleges of Education scattered around Sri Lanka can be upgraded into universities and the current diploma in education programmes can be restructured as a BA degree in Education, under its faculty of education. Further, these Colleges of Education, which are upgraded into universities, can commence degree programmes in other subject streams such as Management, Information Technology, Hospitality and Tourism Management, Engineering and Health Sciences.

We emphasise that the existing capacity of universities should be effectively utilised while focusing on obtaining international accreditation for state universities through expansion of research activities. Further, the Sri Lankan university system should be made flexible by abandoning the archaic systems of student enrolments, embracing inter-university and inter-faculty enrolments, and introducing double major degree programmes. These changes would enhance the quality of university education. We reiterate the fact that the Ministry of Education, two State Ministries for Higher Education, UGC, SLIATE, OUSL, other state universities, National Institute of Education (NIE) and Colleges of Education need to act together to optimally use the existing organisations and their resources to achieve long-term objectives of higher education in Sri Lanka.

Promoters of the City University concept have crafted an image of a utopian university, which reminds us of Thomas More’s concept of ‘utopia’ (1516) , John Henry Newman’s ‘Idea of a University’ (1873) and Robert Maynard Hutchins’ ‘The University of Utopia’ (1953). Hutchins, who served as the President of the University of Chicago, argued that the function of a university is to develop learned responsible citizens, instead of producing mere technicians. Hence, the proposed City University falls short of those philosophical concepts and will add another expenditure line item to the national budget.

Sunil Dahanayake, PhD, FCA is a Chartered Accountant and Samanthi Senaratne, PhD is Senior Professor in Accounting, Department of Accounting, University of Sri Jayewardenepura. She can be reached via email at samanthisenaratne@sjp.ac.lk)