Reimagining Nepal's Higher Education: A Call for Strategic Reforms

The proposed reforms ideas are the result of review of higher education reports study, observation, discussions, and comments provided by numerous educators and scholars, including high-level university officials (see acknowledgement section). This paper serves as an organic document presented as a starting point to trigger discussions on the crucial matter of higher education and reforms in Nepal.

Preamble:

This paper sets out to envision a transformative path for Nepal's higher education system by presenting a comprehensive approach that highlights various concerns, with political meddling standing out as the most significant issue.  Furthermore, it proposes a well-structured 3-Tier mechanism to address these concerns, encompassing coordination, academic environment, quality, healthy competition, inclusiveness, and operational tools and methods.

This proposal is put forth with the conviction that a public higher education system can be both affordable and of high quality.  Let us take, for example, some of the US's publicly supported higher education systems like the University of California system, whose select departments are ranked extremely high in the world rankings. Many of these departments boast the presence of several Nobel laureates. This demonstrates that Nepal's public university system must be reformed, revived, and nurtured to lead the nation in the production of its human capital. This can be achieved as long as we do not turn it into a political rent-seeking platform by separating faculty, students, and administrators from political clutches and being willing to have an open mind about new ideas.

Furthermore, the notion that Nepal's only option is to push toward a private education enterprise is ill-advised and myopic. In fact, the proliferation of so-called private colleges with international affiliations is more likely to serve a narrow segment of our society, whose graduates are even more likely to seek higher education and job opportunities abroad. Many of these expensive elite schools, such as the Academy of Culinary Arts and Hospitality, Softwarica College IT & E-Commerce, Herald College Kathmandu, ISMT College, Presidential Business School, Texas International College, International Center for Academics, IIMS College, The British College, Islington College and many others, have annual graduation costs as high as a million NR, making them beyond the reach of the vast majority of the population. This proposal urges all stakeholders to refocus their attention on the urgent need to rethink our public higher education system, and it is hoped that this proposal serves as a starting point for a constructive debate.

The emergence of private educational enterprises has also resulted in a crowding-out effect, diverting talents and societal resources away from the public sector and towards the private sector. Consequently, the parental involvement of the educated middle-class society has been lacking in the public sector, which is essential for enforcing accountability and maintaining the quality of these institutions. The division in our education system has clearly led to two distinct outcomes: graduates of the private education system pursue higher education and job opportunities in foreign countries, while graduates of public schooling system are often relegated to blue-collar work in the Gulf and the Far East. This highlights the stark disparities and challenges that the education system faces.

The key components of this proposal are as follows:

Identification of Critical Issues: The paper first identifies and delves into the crucial areas of concern within the current higher education landscape. It then offers essential tools and mechanisms to tackle these challenges effectively.

A Structural Framework (3-Tier System): Inspired by the successful California higher education model, the paper advocates for a strategic three-tier system. This framework delineates universities and colleges into three distinct categories using objective measures: research universities, teaching universities, and community trade schools system. Each tier serves a unique purpose within the higher education ecosystem at the provincial levels.

Restructuring Tribhuvan University within the New Framework:  The government's inability to address the main elephant in the room—the oldest Tribhuvan University system with its 60 plus constituent campuses and hundreds of affiliates—is a crucial concern. Addressing overlapping concerns and conflicting interests with other emerging universities vis-a-vis Tribhuvan University, and restructuring it into seven provincial autonomous TU universities, is urgently warranted. The proposed solutions offered in this paper achieve precisely that, with a suggestion to start with a pilot program first in Gandaki and Koshi provinces and completing the process within a time frame.

Separation of Power and Checks and Balances: To address the issue of efficient governance and minimize political interference, the paper emphasizes the need for an independent governance mechanism. This approach incorporates transparent and objective hiring practices for academic officers, tenure and promotion guidelines guided by faculty handbooks, and the establishment of faculty senates and committees. The concept of the Board of Trustees as a governing body needs to replace the current practice of political leadership and government bureaucrat-led Senate structures. These measures will safeguard academic freedom and integrity.

Promoting Inclusivity: The paper explores initiatives to prioritize and address the socio-economic and cultural needs of diverse regions within the provincial university structure. By incorporating area studies programs and focusing on regional comparative advantages such as medicinal herbs, mining, horticulture, tourism, and water resources, universities can better serve their respective communities while producing skilled professional manpower.

Operational Rules and Sustainability: The paper outlines a set of operational rules, methods, measurements, and initiatives to ensure the sustainability, competitiveness, and quality of the university system. Topics such as accreditation, merit-based promotion and hiring strategies, and the promotion of a research-friendly environment are valued.

Throughout the paper, our aim is to comprehensively address these aspects, citing examples of successful higher education systems whenever relevant, while acknowledging that certain details may warrant further consideration in the future. By exploring these key areas and proposing concrete solutions, this paper strives to make a meaningful contribution to the ongoing debate and pave the way for revitalizing Nepal's higher education system.

Introduction

Nepal's higher education system is currently grappling with a myriad of challenges that have significantly impacted its quality and effectiveness. These pressing concerns include declining standards, a growing exodus of nearly 100,000 students each year seeking higher education abroad, and an alarming level of politicization within the academic environment. The lack of a coherent and organized structure in the higher education landscape further exacerbates these issues. Currently, there are 15 universities (or 17, depending on the counting method), 22 medical schools (including stand-alone medical academies and the proposed 5 new ones), 17 engineering programs, and over 1400 campuses (Tribhuwan University’s constituents, affiliates, and community), with many more being proposed.

Despite the establishment of various commissions in the past to address higher education-related issues, particularly concerning Tribhuvan University and other professional degrees, progress has been limited. The proliferation of new institutions continues in an unstructured and poorly planned manner, exacerbating the challenges faced by the higher education system. Moreover, the fundamental issues surrounding Tribhuvan University, as the largest and oldest university, have remained unaddressed.  Recent reports have provided detailed statistics and offered various reform suggestions. While these reports raise valid concerns regarding academic quality, financial viability, politicization, and oversight, they often fall short in providing concrete mechanisms and tools to effectively address these issues.

While politics may influence the operational mechanisms of our educational sector, the proponents of this proposal firmly believe that a comprehensive approach, which includes well-designed institutional mechanisms, a clear separation of power, and effective checks and balances, can guide the educational sector towards positive reforms. These essential measures will lay the foundation for innovative programs and initiatives that will shape the future of higher education in Nepal. The paper aims to thoroughly examine these aspects and present concrete proposals to tackle the challenges faced by the higher education system, thereby contributing to the ongoing debate and advocating for meaningful reforms.

Recent deliberations at the parliament on the University Act, related to the proposed new university system, fall short in addressing many of the issues raised here, especially concerning the complementarity with existing institutions in the target region, including the institutional presence of Tribhuvan University (TU).

This paper begins by identifying and outlining a few key problem areas within Nepal's higher education system. Subsequently, it presents a set of solution tools, each designed to address specific challenges and foster positive change: a structural framework known as the 3-Tier System, the establishment of a separation of power and checks and balances, a focus on inclusivity, and the implementation of operational rules and standards.

Critical issues

We begin with a set of critical issues currently faced by the higher education sector.

Firstly, there is a concerning proliferation of colleges and institutes, without any strategic and or structural vision, coupled with an ever-increasing demand for new university systems. The push to develop educational sector from both the public and private sectors and what they have accomplished in the production of professionals and graduates is highly commendable.  However, the problem lies in the absence of strategic planning and relevance to Nepal's federal structure, including the consideration of each province's unique geography and socio-economic and cultural needs. As a consequence, the higher education landscape, despite its success, has become fragmented, lacking stability, coherence, organization, and public confidence. 

For instance, within a provincial region, there seems to be no effort to assess the potential duplication or complementarity to other existing institutions when granting permission for new ones to operate. An illustrative example is the Bagmati province, where even far-flung provincial universities prefer to open branches, contradicting the concept of a federated education system. Moreover, any new requests for a university or specialized schools (e.g., medical or engineering) need to be carefully weighed against existing programs in the region, a crucial evaluation that is currently lacking. Furthermore, permitting these institutions to operate outside the purview of a university system is counterproductive, especially those supported by the government’s ministry or otherwise.

Furthermore, one significant issue that persists in many of these 17 universities is the lack of clear delineation regarding their status as research-oriented or teaching-focused institutions. This lack of clarity creates ambiguity and hinders their ability to define their core mission and strategic goals effectively. As a result, universities may struggle to prioritize their resources and investments in research initiatives, academic programs, and faculty development, leading to inefficiencies and suboptimal outcomes. This proposal offers a 3-Tier system to organize the universities and their affiliate institutions.

Secondly, the government's inability to address the main elephant in the room—the oldest Tribhuvan University system with its 60 plus constituent campuses and hundreds of affiliates—is a crucial concern. Managing its brand and the over-stretched "assets" scattered across the nation, along with the bureaucratic burden and political baggage it carries, pose significant challenges.

While the university is often blamed for inefficiencies, such as exam scheduling and result processing, it is vital to recognize the role of other factors contributing to the problem. For instance, the lackluster resources allocated to the university as compared to its burden, coupled with a non-competitive fee structure, can hinder its capacity to operate optimally. Additionally, charged student and faculty politics, along with deep political penetration in the hiring and firing of academic officers, have often impeded the university's smooth functioning. Addressing TU’s restructuring should be given priority in any discussion regarding the higher education of Nepal, including the request and consideration of any new university systems. The parallel existence of hundreds of constituent and affiliated campuses throughout the provinces has further complicated the situation. Therefore, any debate on higher education-related requests and/or reforms must include TU as a central part of the discussion.

Thirdly, the detrimental impact of political interference and the influence of student and faculty unions on the functioning and quality of public education cannot be underestimated. This interference has significantly hampered the autonomy of academic institutions and compromised the overall educational environment, leading many parents and their children to seek alternative educational opportunities abroad. Consequently, this brain drain not only depletes the nation's financial resources but also robs it of intellectual potential.

The issue is particularly evident in the case of the oldest institution, Tribhuvan University, which has been turned into a political playground by various leaders and parties since its inception, a trend that continues to this day. This paper aims to offer mechanisms that can effectively break this cycle through the implementation of various checks and balance mechanisms and transparent rules.

Fourthly, a significant concern lies in the unequal distribution of academic institutions across Nepal's seven provinces. The current scenario shows a disproportionate concentration of educational facilities in certain provinces, particularly in Bagmati Province. Out of the 1400+ campuses, a staggering 624 are located in Bagmati Province, while Madhes Province, with an equally dense population of 6 million, is left with only 123 campuses. Almost half of all medical and engineering schools (approximately 39) are clustered in Bagmati Province, which also houses four universities, including two flagship institutions - Tribhuvan University and Kathmandu University - and the Open University. In stark contrast, Gandaki and Lumbini provinces have only three universities each, while other provinces have merely one or two. Beyond the numerical disparity, there has been a lack of effort to prioritize and address the regional socio-economic needs of the people residing in the provinces where these academic institutions are intended to serve. This paper intends to provide suggestions, supported with examples, on how to achieve the goal to address needs and challenges of each province to promote inclusivity.

Key Structural Solutions

To address Nepal's higher education challenges, this paper proposes structural solutions inspired by successful models, tailored to the country's unique realities.

Firstly, a strategic three-tier system is emphasized, drawing inspiration from California's higher education model. This system comprises a research and innovation-driven university system (Tier 1), specialized teaching-focused universities (Tier 2), and community colleges promoting trade skills (Tier 3). Clear guidelines for university categorization will ensure appropriate resource allocation and mission alignment. Establishing a National Science Foundation-type grant agency for research innovation is recommended.

Secondly, Tribhuvan University should be restructured to become flagship provincial university systems in each of the seven provinces. Leveraging its assets and brand name, it can contribute to well-structured higher education landscapes. Constituent campuses can form the foundation for provincial TU systems with a research focus (Tier 1), while affiliated campuses can integrate into teaching-focused universities (Tier 2). Provincial university systems will be overseen by an umbrella board of trustees to ensure autonomy.

Thirdly, an independent governance mechanism is strongly advocated to protect academic freedom and integrity, minimizing political interference. Transparent and objective hiring, tenure, and promotion practices should be established, guided by faculty handbooks. Faculty senates and committees dedicated to academic freedom will protect faculty autonomy. Avoiding board involvement in hiring key academic officers ensures merit-based appointments. The current practice of forming a governing body (e.g., Senate) with political leadership, cabinet members, and government bureaucrats should be replaced with the concept of a Board of Trustees.

Furthermore, operational measures like establishing an accreditation system, eliminating quotas in professorial ranks, and promoting specialized areas of study will strengthen the higher education system. Limiting political activism within institutions and preserving indigenous culture through area studies programs at Tier 1 universities are also crucial.

By adopting these solutions, Nepal's higher education system can strive for excellence, fostering research, innovation, and socio-economic development while preserving cultural heritage. Embracing healthy competition with private endeavors like IITs will further enhance the educational landscape.

Anatomy of Tribhuvan University’s Struggle and the Emergence of KU

The struggle faced by Tribhuvan University (TU) is undeniable, given its status as the oldest academic institution in Nepal. Educating a significant portion of the student population, TU's wide network of institutions and colleges across the country has led to competition with regional universities and private colleges. This sprawling structure, coupled with ineffective oversight and rampant politicization, has adversely impacted the quality and delivery of education. Unfortunately, TU has garnered a reputation for student strikes, vandalism, political appointments, power-sharing issues, weak infrastructure, and delays in exams and result processing, contributing to a low graduate rate.

Before the 1990s, the situation was even more challenging, as TU was the sole source of higher education for Nepali students. However, there was growing frustration with TU's inability to meet the increasing demand for technical and professional degrees, as well as its lack of geographical outreach and accessibility. Students seeking degrees in fields like engineering or medicine had to wait for scarce scholarships from India and elsewhere, exposing TU's limitations. As a result, alternative educational institutions within the country became necessary.

In response to this demand, Kathmandu University emerged as an independent system, gradually expanding its offerings to encompass a multi-disciplinary US-style approach with degrees in Science, Social Sciences, Medicine, Engineering, and more. Under the visionary leadership of Dr. Suresh Raj Sharma and a group of educators, Kathmandu University transformed from a science college in the Kathmandu valley to a top-notch flagship university in Nepal. This transformation demonstrated that breaking away from the traditional model of a single national university system (TU) was feasible and showed the potential for developing a more specialized and effective higher education system through public-private partnership.

Inspired by Kathmandu University's success, the demand for specialized education, private colleges, and technical institutions soared, leading to the establishment of numerous technical institutes and hundreds of community and private colleges. Similarly, several provincial university systems were established across the nation, aiming to address the country's manpower production needs.

However, while Kathmandu University and a few others have thrived, many of the new public universities and campuses across different provinces are now grappling with challenges due to a lack of comprehensive planning and strategic vision. Also, there is no clear consensus on the roles these universities should play – whether they should be research and innovation-focused institutions or teaching and service-oriented universities. This state of affairs, primarily concerning financial sustainability and effective program delivery, has been highlighted in various reports.

Against this backdrop, this paper aims to offer several key ideas to establish a structural framework that can help address the current issues and enhance the higher education system in Nepal. By drawing upon successful models and experiences, the proposal seeks to pave the way for meaningful reforms and improvements in Nepal's higher education landscape.

 Drawing Inspiration from Successful Models: California and New Mexico Systems

In seeking a solution, it is crucial to widen our perspective and draw inspiration from successful models around the world. One such model that has gained popularity and been emulated by many is the California Higher Education system, which comprises three distinct segments or tiers.

In the first segment (Tier 1), each state typically boasts a flagship university or multiple institutions, depending on its population size (e.g., University of California System --UC). These flagship universities house several schools, encompassing disciplines such as law, medicine, engineering, arts and sciences, education, fine arts, and more. Examples include the University of New Mexico, U of Colorado, U of California, U of Arizona, and so on. Furthermore, within this segment, the presence of several 4-year branch campuses extends the university's reach and impact across the state. In a highly populated state like California (40 million), all the teaching colleges are brought under the California State University system (Tier 2: CSU) separate from the group of research oriented universities (Tier 1: UC). In a sparsely populated states like New Mexico, 4-year teaching colleges are included as a part of the flagship university system as its satellites. Under the California’s UC system, there are seven autonomous research universities structured under a single 27-member governing Regents.

The second segment (Tier 2) can have two options.  Apart from a general multi-faculty university system, a region or state can also boast universities specialized in fields like agriculture, horticulture, forestry, irrigation, and engineering, among others. As stated above, this segment may also have a university system with a focus on teaching (undergraduate and graduate), especially in a highly populated state (e.g., CSU system).  Institutions falling under this category are generally named or known as New Mexico State University or California State University or Colorado State University. Over time, these universities have evolved to offer degrees in various other fields as well. However, it is essential to note that this segment typically avoids duplication to the extent possible by not covering degrees in law, medicine, education, arts, and similar fields. Colorado has a school of mines in addition to its University of Colorado (multidisciplinary colleges/faculty) and Colorado State (agriculture focused) systems. Under the California’s CSU (Tier 2 teaching system) there are 26 campuses and is governed by a 26-member board of trustees.    

The third and final segment (Tier 3) of this three-tier system consists of 2 or 4-year community colleges, providing vocational associate degrees and trade certificates. These colleges play a vital role in offering accessible and practical education to students aiming to develop specific skills or pursue immediate career opportunities. While adhering to state guidelines, there might also be independent institutions (e.g., Stanford, Clermont, and Cal Tech universities in California) operating within the state's educational framework.

A model akin to California's three-tier system, with necessary modifications to suit Nepal's unique needs and conditions, could offer a strategic solution to address the current crisis in higher education in Nepal. As for the administrative oversight, each system is governed by a board of trustees, ensuring no direct interference in the operational aspects, hiring, or firing of the academic leadership of these institutions. This approach promotes a sense of ownership.

The structure and organization of New Mexico's higher education system differ slightly from that of California. Due to the sparse population, New Mexico has a research-oriented flagship university, the University of New Mexico, which comprises various faculties and colleges, including medical, law, sciences, engineering, education, arts, and more. This flagship university serves as the primary research hub.  In addition to the flagship university, New Mexico has satellite campuses spread across the rural landscape, focusing primarily on teaching. These satellite campuses play a crucial role in providing accessible and quality education to students in remote areas.

Moreover, New Mexico boasts a separate agriculture-focused technical university, such as New Mexico State University (just like the Colorado State University), which operates under its own governing body. This specialized institution caters to the unique needs of the state's vast agriculture and pasture land. Furthermore, in alignment with India's Indian Institutes of Technology (IIT) model, New Mexico also has its own Indian-style IIT technical institute, contributing to the development of skilled professionals in various IT and engineering fields.

Overall, the higher education system in New Mexico reflects a tailored approach, combining flagship research universities, teaching-focused satellite campuses, specialized technical institutions, and Indian-style IITs to meet the diverse educational needs of the state.  In New Mexico, all three university systems, including the research-oriented flagship university with its teaching-focused satellite campuses, and the specialized technical university, are publicly funded institutions.

The details about the two examples (California and New Mexico) are presented in the Annex.

Moving Nepal’s Higher Education to a Three-tier System

This paper strongly urges policymakers to study and adopt successful higher education models that are specifically tailored to suit Nepal's unique realities. To achieve this objective, the proposal puts forth the idea of establishing a province-wise university system, each consisting of three segments or tiers.

As explained earlier, the first tier of this proposed system will house a comprehensive university structure offering various disciplines, including law, engineering, medicine, arts, sciences, education, and more. This tier will have a strong focus on research and innovations. Notably, the main campuses of existing universities like Tribhuvan University and Kathmandu University in Bagmati Province can be considered as Tier 1 institutions in this category. As part of the restructuring proposal, Tribhuvan University and its assets across the provinces could be reorganized to form an independent flagship university system, comprising seven distinct universities, each catering to the unique needs of its respective province.

For instance, the Bagmati-based TU's Kirtipur campus can be transformed into a center of excellence as part of Tier 1. However, the designation of other provincial campuses of TU under this model as Tier 1 or Tier 2 will require careful deliberation and discussion. Making this determination holds significant implications for resource mobilization, defining service goals, faculty hiring, and curricular development. As such, a thorough examination and dialogue among stakeholders will be essential to make informed decisions about the categorization of each university within the proposed system. 

Under the proposed concept, the main campuses of Tribhuvan University and Kathmandu University in Bagmati province should primarily focus on managing their schools and campuses within their respective province. Their branches and affiliates in other provinces should be managed by the provincial-level university structure. The idea of affiliations outside of the province should be discouraged, and management should be left to the respective provincial university umbrella authority. The examples from California and New Mexico presented earlier can serve as viable models for the provincial restructuring in Nepal, with necessary modifications to suit Nepal's unique conditions.

Moving on to the second segment (Tier 2), flexibility is key. One option is to have an umbrella teaching-focused university system, similar to California State University (CSU), with several teaching campuses. Alternatively, a model similar to New Mexico's system can be adopted, where teaching-oriented satellite campuses become part of the flagship Tier 1 University. This approach allows room for other specialized stand-alone universities in the region, such as an agriculture or IIT university. Thus, multiple stand-alone university units like Sanskrit, Buddhist Studies, Gandaki, East, Mid-West, Far-Western, etc., can coexist in any province alongside the flagship university. Each of these parallel universities should be carefully evaluated for their designation as Tier 1 (research) or Tier 2 (teaching) systems. Further, many of the affiliated colleges scattered across the provinces can be integrated under a Tier 2 system, overseen by a common umbrella university protocol, akin to California State University's structure.

As for the third segment (Tier 3), it will encompass a community college-type structure offering associate degrees in trades and skills. The existing Council for Technical Education and Vocational Training (CTEVT) system can be transformed into a community college structure in each of the seven provinces, with the option to offer courses up to four years. Other trade and skill-oriented community colleges can also join this system.

By implementing this three-tier system, each segment focusing on distinct roles and goals, Nepal's higher education system can undergo a transformative shift, better addressing the diverse needs of its students and contributing to the nation's overall academic and vocational development.

Tribhuvan University’s Missed Opportunities

Tribhuvan University has faced missed opportunities in utilizing its existing infrastructure and colleges to build a robust university system. Instead of initiating new university ideas from scratch, the constituent campuses of TU in different provinces could have been utilized as a strong foundation for the development of publicly funded provincial universities. However, the lack of clarity and confusion in decision-making processes has led to missed opportunities and additional complexities in the higher education landscape. For example, while the Far-Western and Mid-West universities opted to create their provincial university systems by incorporating various affiliated campuses, including those linked to TU, no such initiative was made by TU to advance their own vision in those provinces.

Given the vast network of constituent campuses and many more affiliates, this paper argues with urgency that TU's constituent campuses in the provinces can serve as the basis for creating its own provincial university structure. The designation of Tier 1 (research-oriented) or Tier 2 (teaching-focused) depends on research output and goals, which can be assessed by a national or international body.

Further, the establishment of new and independent institutions outside TU's sphere, especially in regions outside the oversaturated Bagmati Province, should be welcomed if they offer complementarity and align with the overall structural vision of higher education. Such additions, not requiring public funding, can contribute positively to Nepal's higher education landscape.

To revitalize the Tribhuvan University system at the provincial level, the paper suggests the creation of seven flagship Tribhuvan University provincial structures, each operating independently and offering diverse degrees in various fields. For example, Tribhuvan University's constituent campuses in Lumbini Province could form an independent university named "Tribhuvan University, Lumbini Province" (TU Lumbini). Other campuses can choose to join TU's structure (Tier 1) or merge with another teaching-focused university system (Tier 2). This strategic approach allows each province to capitalize on Tribhuvan University's established reputation and resources while maintaining a unique identity and focus tailored to the specific needs of the region. By adopting these measures, Tribhuvan University can strategically position itself.

Conducting pilot programs in Gandaki Province (Pokhara Campus) and Kosi Province (Morang Campus), with a clear timeline for the rest of the provinces, is a practical approach. This allows for insights and adjustments to be made before implementing the restructuring on a larger scale. Integrating existing medical schools under TU's umbrella (or under the alternate university system) in the provinces further enhances the strategic approach, leveraging TU's reputation and resources to cater to the specific needs of each region. By adopting these measures, Tribhuvan University can strategically position itself and make a significant contribution to Nepal's higher education landscape.

Safeguarding Academic Freedom against Political Influence and Faculty Governance

Public universities must remain vigilant against hostile legislative and political actions that could potentially impact academic freedom and faculty governance. Such interference can manifest in various ways, including curricular imposition, ideological constraints in debates and deliberations, and even meddling in the hiring and firing of key academic officers.

Political Meddling

For example, the culture of power sharing among political parties and their leaders has deeply permeated all institutions across Nepal, including academic establishments like Tribhuvan University (TU) and various other new universities. This politically motivated practice extends beyond the governing board and also affects high-level academic officers such as Vice Chancellors, Rectors, Deans, and even campus chiefs. Even in the case of an autonomous university like Kathmandu University (KU), where the Prime Minister serves as the Chancellor, the selection of the Vice Chancellor has not been exempt from political interference. The idea of Prime Minister serving as a Chancellor needs to be reevaluated if we are serious about removing politics from academia.   The Chancellor's role is vital in providing overall leadership and direction to a university, and having a political figure as the Chancellor can lead to undue political interference in the institution's affairs. This interference can compromise the autonomy and integrity of the university, affecting decision-making processes, faculty appointments, and academic policies.  Having a chancellorship overseeing the entire provincial level public higher education system might not be a bad idea. However, the position of Chancellor should be filled through an open competition by individuals with a strong academic and educational background, rather than being based on political appointments.

Transparency in Hiring Process

The root of the problem lies in the flawed selection process, where politically appointed governing boards or their committees have the authority to handpick Vice Chancellors without any open calls, transparent criteria, or the involvement of an independent and separate committee. This lack of transparency and independence in the selection process compromises the integrity and quality of academic leadership, hindering the progress and development of these institutions. Blatant examples exist of instances where parties have shared high level university positions according to the party affiliation of the candidates.  

Safeguarding academic freedom and preserving faculty governance is essential to maintain the integrity and independence of public universities in fulfilling their educational mission. In Nepal’s university system, politically guided student and faculty unions have significantly damaged the overall governance and quality of the academic environment.  There must be a commitment from political party leaders to refrain from involving the academic sector in their recruitment and organizational drives.

While dealing with the highly politically charged environment poses the greatest challenge, transparency and objectivity in hiring academic officers are crucial factors in the success of any university system. While a board of trustees oversees the university's overall functioning and mission, the academic officers are responsible for the day-to-day operations. To ensure transparency and consistency in hiring, each university follows a faculty handbook that outlines rules, qualifications, and logistical procedures. This approach fosters academic freedom, creative thinking, and the exchange of ideas, which are the core values of any university. It also safeguards the academic institution from direct interference by political bodies responsible for funding. While political bodies may raise issues related to societal needs, the academic community's autonomy is maintained.

Additional checks and balances are integrated into the university's governance through mechanisms like the faculty senate and the committee of tenure and academic freedom. The faculty senate oversees the curricular design and other faculty welfare-related issues, including academic programs, while the committee of tenure and academic freedom ensures protection for faculty members' academic freedom and justice in case of biased or unfair decisions. Furthermore, the appointment of the university's head, often referred to as the president, is conducted independently by a hiring committee through an open competitive process, free from interference by trustees or government bodies. Qualifications and guidelines are clearly spelled out beforehand to ensure quality and transparency. The same approach is followed for the appointment of deans, rectors (provosts), and other academic officers. The process involves open advertisements, screening, shortlisting, interviews, presentations, and careful deliberation before presenting the final selected slate to the board of trustees, especially for key positions like provosts and presidents (VC in Nepal's case).

Similarly, the qualifications and timelines for hiring and promoting professorships at different levels are clearly defined in the faculty handbook to ensure transparency and prevent any malfeasance. The rest of the shortlisting process follows a similar pattern as described above. These measures collectively contribute to a conducive environment that upholds academic integrity and independence within the university system.

Removing Quota System in Academic Ranks

The Nepali higher education system has adopted the American system of professorial ranks, including Assistant, Associate, and Full Professors. However, it has retained an arcane bureaucratic quota system to assign the number of positions within each rank. This system hinders productivity, as promotions to higher ranks, like full professor, are often contingent on someone retiring rather than being based on individual merit and accomplishments. Instead, a more productive approach practiced in successful university system in the west would be to allow qualified faculty to request an evaluation for promotion after a certain timeline. This would encourage faculty to strive for excellence and recognition based on their own achievements, leading to a more dynamic and merit-driven academic environment. For example, in the western higher education system, a qualified faculty member can request an evaluation after 5 years for the Associate Professor position and another 5 years for the Full Professor position. However, in Nepal, due to the limited quota system, numerous university faculty members wait for years to apply for only a handful of positions. Unfortunately, this practice does nothing but discourage scholarship and creativity among faculty members. In Nepal, Kathmandu University has adopted the western system, whereas Tribhuvan University (TU) still follows its age-old quota system. This difference in approach highlights the need for reform within TU's promotion and evaluation practices.

Constitutional Clause Ensuring Political Non-Interference

Finally, and perhaps most importantly, the provincial constitution should include a clear non-interference clause to ensure the independence of universities, similar to the example set forth in the California constitution: "the university shall be entirely independent of all political and sectarian influence and kept free therefrom in the appointment of its Regents and in the administration of its affairs." Such a clause would explicitly state that universities should operate autonomously and free from any political or sectarian influences in the selection of their governing bodies and in the administration of their affairs. This measure is crucial to safeguarding the academic integrity and autonomy of higher education institutions, allowing them to function without undue external pressures. With such a non-interference clause in place constitutionally and autonomy ensured, the formation of the board of trustees or the Regents, often appointed by the provincial head with the approval of the legislative body, tends not to create much conflict. In Nepal's case, however, such a clause does not do much unless there is a full commitment from the political leaders.

The size of the board depends on the scope of the university’s structure and the population it serves. In California, the UC system with seven universities is overseen by a 27-member body, whereas the University of New Mexico’s Regents has 7 members. Usually, these bodies are represented by a student on a one or two-year term.

By implementing these transparent and fair hiring and promotion practices, universities can foster an environment of trust, creativity, and excellence, enabling them to fulfill their educational mission effectively.

Promoting Specialization, Collaboration and Diversity

In many US states with vast agricultural land, the establishment of specialized universities focused on agricultural research and services exemplifies the importance of customizing educational offerings to meet the nation's unique needs. For instance, universities like Colorado State University, Arizona State University, and the University of New Mexico have tailored their academic programs to cater to the specific requirements of their regions. In Nepal’s case, a few examples come to mind, such as herbal plants, horticulture, mountaineering and tourism, water resources, cultural tourism, IT-driven gig economy, and geo-economics.

Furthermore, technical institutes, comparable to India's IITs or esteemed institutions like Cal Tech in California, have emerged as centers of excellence for specialized fields. Notably, the Massachusetts Institute of Technology (MIT) serves as another example, although it operates as a non-governmental entity. The United States is home to many such non-governmental academic institutions, including Stanford, Brown, and Penn, which are known for their exceptional quality of education and research contributions.

However, public universities all across the country are of high quality and world-standard. Notable examples include the University of California system, which serves the majority of the public's educational needs. State governments play a crucial role in funding these universities, making education a priority in their budgets. Also, they provide scholarships for deserving students, and the federal government offers affordable loans to support higher education. This collaborative effort ensures that students have access to quality education and diverse opportunities for personal and academic growth. By carefully planning and implementing strategies, Trubhuvan University's provincial structures in all provinces can be put on a similar path to excellence, bolstering the overall quality of higher education in Nepal.

As the world progresses, universities are breaking down traditional barriers between disciplines to foster collaboration and cross-disciplinary initiatives. While liberal arts colleges prioritize humanities and social sciences, larger universities introduce programs to facilitate interaction between diverse disciplines. Such initiatives cultivate well-rounded professionals, evident in state-funded programs like BAMD of the University of New Mexico, which successfully produces doctors with a robust foundation in liberal arts. It is worth noting that universities themselves may not necessarily be characterized as liberal arts institutions, whereas individual colleges (or schools) within the university system might adopt such a designation.

To promote cross-fertilization across different disciplines, universities, together with their provosts, design various initiatives. Currently, STEM scholars are encouraged to collaborate with social scientists to address societal issues through innovative teaching and research.

This forward-thinking approach to education encourages a culture of collaboration and synergy among scholars from different disciplines, sparking novel solutions to complex challenges. By embracing specialized fields and fostering interdisciplinary interactions, higher education institutions prepare their students to become adaptable, creative, and versatile professionals capable of making meaningful contributions to society. As universities continue to evolve and promote collaboration between liberal arts and other hard sciences, they play a pivotal role in driving progress and shaping a brighter future for our global community.

A federated and devolved education system carries a higher meaning when its mission includes the welfare of the region it serves. While the main focus may be to produce skilled manpower, higher education institutions often need to address the socio-economic and cultural needs of the region in which they operate. The State or Provincial government can appropriate budgets to support programs conducting studies on region-specific socio-economic and cultural issues. For instance, the BAMD program at the University of New Mexico is a great example of such an initiative designed to serve the state. The Department of Economics at the University of New Mexico has been receiving special funding to conduct research on New Mexico-related socio-economic issues. Similar initiatives can be instituted at provincial universities, especially within the Tier 1 research university system.

Financial Consideration and a Cautionary Note

It is crucial for Nepali educators to ensure that, regardless of the education models studied or explored for ideas, they account for their own unique challenges. These challenges encompass various aspects, including funding for higher education in general, student fees, student loans, and other subsidies. Adapting these models to suit Nepal's ground reality is paramount, particularly given the escalating cost of higher education, especially in a country like the United States.

According to estimates from Global Data, worldwide annual spending on education reached $3.5 trillion in 2020. Some of the leading countries with the highest education expenditures include the United States, Japan, Germany, the United Kingdom, Canada, France, and Australia. While certain European Union countries may be more generous in terms of providing tuition-free education for students, the same cannot be said for the United States and even Australia. Particularly in the U.S., the cost of higher education is steadily increasing, burdening students with significant debt.

To illustrate, consider the ongoing core funding of the California State University system, which amounts to $8.3 billion in the year 2022-23. Out of this total, $5.1 billion (61 percent) is sourced from the state General Fund, $3.2 billion (38 percent) comes from student tuition and fee revenue, and $73 million (1 percent) is derived from the lottery. There are numerous similar instances where tuitions and fees are a crucial component of the equation, and despite the availability of subsidized government loans, the financial strain on students and their families is substantial.

Turning our attention to institutions like Tribhuvan University and many other public establishments in Nepal, the lack of sufficient government subsidies, coupled with low tuition revenues and a dearth of alternative sources of income, can undoubtedly impact the quality of education delivery, particularly when compared to the private sector. These issues necessitate in-depth and comprehensive study to better understand their implications.

In conclusion, while exploring and adopting educational models from other countries is valuable, it is imperative to carefully consider the financial aspects and other challenges specific to Nepal. Adapting these models to align with Nepal's economic and social context is essential to ensure that higher education remains accessible and of high quality for all aspiring students.

Ensuring a Sense of Ownership through the Board of Trustees

The formation of a governing body holds significant importance in determining the success of any university system. Whether referred to as a board of trustees or a board of regents, the primary objective of these bodies within a university system is to cultivate a sense of ownership and accountability towards the community it serves, namely the parents, students, and the mission of the country at large. In Nepal's university landscape, exemplified by institutions such as Kathmandu University (KU), Tribhuvan University (TU), Mid-Western University (MWU), and Gandaki University (GU), variations in governance structures exist.

Gandaki University employs a Board of Trustees model, while Kathmandu University, Tribhuvan University, and Mid-Western University adopt a Senate-based approach. In addition to senates, various councils play roles within these systems. Notably, for example, Kathmandu University's system incorporates a Senate comprising close to 40 members, with the Prime Minister at its helm, and representation from government officials, academic administrators, community members, and student representatives. It also appears that Gandaki University does not possess a Senate. In the case of Mid-Western University, its Senate is chaired and vice-chaired by the Prime Minister and the Education Minister, respectively, with other members largely drawn from the university's administration.

While the selection process and functioning of Gandaki University and Kathmandu University's Boards of Trustees remain unclear, these bodies exhibit promising potential, although KU's BOT does not seem to have any legal status. It is also worth examining the concept of lifelong membership within Kathmandu University's Board of Trustees, which may appear unconventional. In the case of KU with the two parallel systems – Senate and the BOT, a question arises: whether the latter body is primarily ceremonial or actively involved in setting direction and mission, and how it differs from the PM-led Senate. The evidence seems to suggest that KU's BOT may lack any legal status.

In a country like Nepal, where a culture of collusive power-sharing and position distribution by political parties permeates the institutional landscape, as seen in these university governing bodies, a comprehensive overhaul seems warranted. Establishing a transparent and objectively structured Board of Trustees (BOT) looks like a logical choice to counterbalance the prevailing practices. Under such circumstances, the continued existence of a Senate dominated by the Prime Minister, cabinet members, other governmental officials, and university administrators may not hold substantial relevance. Thus, the current Senate system, mostly appointed and handpicked by political leadership, should be abolished and replaced by a faculty Senate.

This three-tiered framework, comprising a faculty Senate, the university administration, and a distinct Board of Trustees with minimal or no overlap—particularly in terms of government representation—holds the potential to foster a robust system of checks and balances. The Board of Trustees, constituted with members of diverse expertise and backgrounds, including individuals from academia, industry, and the public, serves as a guardian of the institution's integrity, mission, and long-term strategic goals. This distinct entity, operating with a clear focus on the university's welfare, minimizes political interference and ensures a checks-and-balance body to secure the accountability of the administration.

However, none of these ideas will come to meaningful fruition unless we all commit to removing politics from academia, starting with the removal of Prime Ministers, cabinet members, and bureaucrats from governing boards. Similarly, it is crucial to establish a non-interference clause to prevent political influence within academia. Additionally, prohibiting the display of party banners during any campus elections, such as those for the faculty senate, is of utmost importance.

Conclusion

Nepal's higher education system faces significant challenges that call for a thoughtful and strategic approach. Drawing inspiration from successful models like the California Higher Education system and its three-tier model, the country can reshape its higher education landscape to cater to its unique needs. A key aspect of this transformation is the reorganization of Tribhuvan University, utilizing its assets and brand name to strengthen provincial universities while allowing TU’s central campus in Kirtipur to focus on excellence in the Bagmati Province. This paper identified four crucial issues and proposed solutions to address them.

In summary, envisioning a provincial university system with flagship universities (Tier 1) using TU's assets, specialized or teaching focused universities (Tier 2), and community colleges operating independently (Tier 3) can provide a strategic structure. Proper oversight through an umbrella provincial university board of trustees can enhance cohesion, collaboration and a sense of ownership. Moreover, permitting independent Indian IIT-style technical institutes can further enhance technical education specialization.

Efforts to establish independent structures (Tier 1), like Kathmandu University, should be encouraged if they demonstrate success and do not rely on government funding. Integrating specialized programs into provincial universities can foster resource sharing and avoid duplication, optimizing resources.

By prioritizing transparency and academic excellence, Nepal's higher education system can empower students, produce skilled professionals and leaders, and contribute to the nation's progress. A shared commitment to keep the academic sector free from political interference will pave the way for an inclusive and promising future, ensuring Nepal reaches its full potential. In conclusion, no structural reform will work until political interference ceases and universities are allowed to operate with unreserved academic and administrative freedom.

ANNEX

Author, Alok K. Bohara
Professor, Department of Economics
Founding Director, Nepal Study Center
University of New Mexico
bohara@unm.edu

July 31, 2023

Acknowledgement:
The paper has benefited immensely from the valuable feedback provided by the following esteemed scholars: Kedar Bhakta Mathema (former VC of TU), Dr. Sita Ram Adhikary (former Registrar, Kathamandu University), Naresh Koirala (retired geo-technical consultant), Dr. Shiva Adhikari (Professor, Tribhuvan University), Dr. Keshav Bhattarai (Professor, University of Central Missouri), Dr. Devi R. Gnyawali (Department Head and R. B. Pamplin Professor, Department of Management, Virginia Tech) and Dr. Gyan Nyaupane (Associate Dean of Research, Watts College of Public Service and Community Solutions, Arizona State University).

Their insights and expertise have significantly enriched the content and direction of this paper. However, any errors or omissions that may remain are entirely my own responsibility. It is important to note that acknowledgment should not be interpreted as a wholesale endorsement of the proposal by these scholars.

Sources:
1. California’s Higher Education System, October 2019

2. Report on Higher Education 2019/20 A.D. (2076/77 B.S.), Education Management Information System

3. Higher National Education Commission, 2075 B.S.

4. Status Report on Nepal's Universities and the Foundational Structure of Provincial University Systems, Policy Research Institute, 2079 B.S.

Two Examples

New Mexico System

With a student population of approximately 35,000, the University of New Mexico operates across diverse disciplines, encompassing schools such as law, medicine, engineering, education, arts and sciences, business, fine arts, and more.  Furthermore, the flagship university extends its reach to rural areas through several satellite campuses in towns and communities.

In terms of funding, the University of New Mexico receives about18-20% of its budget from the state. To sustain its operations, it relies on various sources, including tuition fees, investments, program creation, research funding, and endowments. This diverse funding model has been a key factor in the university's success.

The UNM Board of Regents, the governing body, is composed of seven members who are appointed by the Governor of New Mexico with the consent of the Senate, for staggered terms of six years except for the student regent who is appointed for a two-year term. This unique structure ensures that the President and Provosts are selected through open competitions, overseen by a separate committee of academic scholars and educators who adhere to transparent criteria. The State Government or Regent play no part in the selection process other than to pick a final candidate from a short list presented to them by an independent hiring committee after extensive interviews, presentation, and open discussions.   

The assessment of academic leaders takes into account their ability to create financial viability while maintaining and enhancing the program's quality. Their tenure generally lasts for four years with an option for an extension based on the performance and assessment. This robust governance model with checks and balances has been instrumental in the university's ability to navigate challenges effectively and maintain its reputation as a center of academic excellence. By fostering an environment that prioritizes financial sustainability and program excellence, the University of New Mexico stands as a good example.

Given the sparse population, the State of New Mexico does not have a teaching focused umbrella university system for undergraduate colleges.  Instead, teaching oriented satellite campuses are operated under the umbrella of the State’s flagship university –the University of New Mexico.  

The State of New Mexico boasts another university system, with a particular emphasis on agriculture sciences and related engineering degrees.  Known as the New Mexico State University, it operates independently but receives partial funding from the state government. This university is called a land grant university that was given a vast area of land to study agriculture-land related research and teaching.  The Board of Regents is a body made up of five members, one of whom is a student. Non-student members serve staggered six-year terms, and the student member serves a two-year term. Regents are appointed by the Governor of New Mexico with the consent of the Senate. The Board of Regents holds four regular meetings each year. There is a clear separation of power between the Board of Regents and the university functioning especially in the process of hiring its academic officers and defining its academic visions and guidelines.  

The third segment of the state's education landscape comprises a community college (CNM), catering to a student population of over twenty thousand. These institutions offer a diverse range of associate and certificate degrees in fields such as health, hospitality, and various trades, to name just a few. These community colleges are highly subsidized and provide affordable education for low-income families. Many students opt to complete prerequisite courses at these community colleges before transitioning to the main UNM campus for further studies. CNM's Governing Board consists of seven members elected to four-year terms from districts within the overall College district, which includes Bernalillo County plus Corrales and Rio Rancho in Sandoval County.

Also, the State of New Mexico houses an Indian IIT-type institute, known as the New Mexico Tech, which places a singular focus on engineering degrees. This institution stands as a testament to the state's commitment to nurturing specialized fields of study in technology and related advancements.  In New Mexico, there are private technical institutes offering short-term technical certificate programs, such as auto mechanics and IT programming. However, these private institutes tend to be more expensive when compared to the certificate programs offered by community colleges.

The diversity and autonomy of these higher education institutions contribute significantly to the state's educational landscape. By offering specialized programs in agriculture, engineering, and various trades, New Mexico's universities and community colleges address the unique needs of its students, fostering both academic excellence and practical skills for the workforce. This multifaceted three-prong approach to education sets a noteworthy example for other regions.

California System

In larger states like California (40 mill population), multiple flagship universities coexist, each catering to specific research-oriented focuses. In essence, California's higher education system has three public segments: the University of California (UC), the California State University (CSU), and the California Community Colleges. It also includes more than 150 private nonprofit colleges and about 160 for-profit institutions.

The University of California (UC) serves as the state's primary academic research institution. Comprising ten major campuses, five medical centers, and three national laboratories, UC stands at the forefront of academic excellence and innovation. Six of UC's schools - Berkeley, Davis, Irvine, Los Angeles, San Diego, and Santa Barbara - are esteemed members of the Association of American Universities (AAU), alongside 56 other top research-intensive universities. This recognition underscores UC's status as a leading institution in the field of research and higher education. The UC system operates with constitutional independence from the state and is governed by a 27-member board of regents. This autonomy allows UC to pursue academic excellence and conduct research that serves as a driving force for innovation and progress. As a flagship of California's higher education landscape, UC plays a pivotal role in shaping the future of the state and beyond. It is also worth noticing that the UC-Davis campus, one of the campuses of the UC system, is focused on agriculture sciences just like the New Mexico State University.

The California State University (CSU) stands as the largest university system in the nation, providing undergraduate and graduate instruction to approximately 474,600 students across its 23 campuses. Employing about 50,000 faculty and staff, CSU caters primarily to undergraduate students. However, CSU also bestows master's and doctoral degrees in a few professional fields and plays a crucial role in training the majority of the state's K-12 teachers. Governance of the CSU system is overseen by a 25-member board of trustees, with most members appointed by the governor and confirmed by the senate.

The California Community Colleges take the honor of being the nation's largest higher education system. With a total enrollment of 2.1 million students (approximately 900,000 on a full-time-equivalent basis), these colleges are organized into 72 districts, encompassing 114 campuses. Furthermore, over 103,000 students successfully transferred to four-year institutions. In Fall 2019, California's 115th and first fully online community college started enrolling students in pilot vocational programs. The average annual tuition for full-time students stands at $1,104, with many students qualifying for full fee waivers. The system's governance lies with a 17-member board of governors appointed by the governor, while campus presidents and college budgets are overseen by locally elected boards of trustees in each district.  All of the three California’s systems function independently with no intervention from the state government in hiring of any of the university officials.  All hiring are done through open competition by independent committees with no influence from the governing boards or trustees. This separation of power between the university’s function and the board or the state government is the key to their success.