The difficult questions concerning university autonomy and accountability
As readers of this blog will know, in 2011-12 I chaired a review of governance in Scottish higher education. The main products of the report we issued in 2012 so far are the Scottish Code of Good Governance and, more recently, a Bill now before the Scottish Parliament.
It is not my intention, at least in this post, to restate the case for the recommendations we made or to critique the code and the Bill. However, in the course of our deliberations we came across one recurring theme: how do you reconcile university autonomy (which both we and really all of those who gave evidence strongly supported) with the modern desire for accountability? As universities are free to follow their chosen strategic direction, how are those who take the decisions on strategy answerable to those affected by it, or indeed to anyone at all?
There is, I think, a widespread consensus that this cannot be resolved by allowing governments to direct universities or review their decisions, except that where universities are spending public money they must answer for the expenditure; this indeed is the issue being debated now in the context of the Higher Education Governance (Scotland) Bill. But if university governors are rightly not accountable to government, then to whom, and how is that accountability expressed? Furthermore, how can it be assured that any framework of accountability does not undermine effectiveness and operational success? How can universities be held to what one might describe as their traditional responsibilities to the wider society, as recently expressed by the new President of Cornell University?
These questions are at the heart of governance review and reform, and having a satisfactory answer will be the key to securing acceptable forms of governance into the future. It is important for universities to accept that autonomy does not mean that those taking the decisions are answerable to none of the key stakeholders; university autonomy is being misused if it is seen by the decision-makers as autonomy from the wider university community of staff and students. And it is important for governments to understand that controlling higher education institutions condemns them to educational and intellectual mediocrity and compromised integrity.