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Journal of Economic Regulation, 2021,12(3): 76-85 DOI: 10.17835/2078-5429.2021.12.3.076-085
INSTITUTION OF HIGHER EDUCATION AND SCIENCE AS A FACTOR OF ECONOMIC DEVELOPMENT
ARTYOM A. MASKAEV,
Southern Federal University, Rostov-on-Don, Russia, e-mail: maskaev@sfedu.ru
Citation: Maskaev A.I. (2021). Institution of higher Education and science as a factor of economic development. Journal ofEconomic regulation 12(3): 76-85 DOI: 10.17835/20785429.2021.12.3.076-085
^h The modern economy is undergoing a structural transformation that enhances the role of knowledge and
° technology for economic development. Knowledge and technologies are created by researchers who received
rá professional training in universities. The higher education system in Russia is changing similar to those in Western
z: countries earlier. Institutional design should analyse knowledge about management routines, values, working
c\j rules, and the functioning of the institutional environment. The institutions operating in society can be identified
5 by studying the narratives ofthe actors and the explanations for their actions. In the article, the in-depth interview
is used for studying institutional changes in education and science. Data collected in projects «Identification of
% institutions and organizational mechanisms for the merger of universities in the context of the socio-economic
development of the region» (10 interviews) and «Institutional traps of optimization of the sphere of education
s and science» (20 interviews, 3 expert focus group interviews). The narrative analysis identified interest groups in
o education and science that are involved in the functioning of institutional traps. The presence of special interest
g groups is an integral attribute of institutional traps that arise in conditions of quasi-optimal equilibrium. Combining tj)
o; research data shows the importance of the institution of higher education and science for economic development.
Keywords: institutional economics; narrative economics; higher education; economic
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о development; interest groups
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b JEL: B52, I23, I25, O32
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ИНСТИТУТЫ СФЕРЫ ВЫСШЕГО ОБРАЗОВАНИЯ И НАУКИ КАК ФАКТОР ЭКОНОМИЧЕСКОГО РАЗВИТИЯ
§ МАСКАЕВ АРТЁМ ИЛЬИЧ,
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ш Южный федеральный университет,
о г. Ростов-на-Дону, Россия,
^ e-mail: maskaev@sfedu.ru
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ш Цитирование: Маскаев А.И. (2021). Институты сферы высшего образования и науки как фактор
экономического развития // Journal of Economic regulation (Вопросы регулирования экономики) 12(3): 76-85 DOI: 10.17835/2078-5429.2021.12.3.076-085
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о © Маскаев А.И., 2021
Современная экономика переживает структурную трансформацию, которая повышает роль знаний и технологий в экономическом развитии. Знания и технологии создают исследователи, прошедшие профессиональную подготовку в университетах. Система высшего образования в России проделывает путь аналогичный пройденному странами Запада. При проектировании институционального дизайна должны использоваться полученные знания о процедурахуправления, ценностях, действующих правилах и функционировании конкретной институциональной среды. Институты, действующие в обществе, можно идентифицировать, изучая нарративы, объясняющие поступки, действующих лиц. В исследовании для изучения институциональных изменений в образовании и науке используются методы глубинного интервью и фокус-групп. Данные собраны в результате проектов «Определение институтов и организационных механизмов объединения вузов в контексте социально-экономического развития региона» (10 интервью) и «Институциональные ловушки оптимизации сферы образования и науки» (20 интервью, 3 экспертных фокус-группы). Нарративный анализ выявил группы интересов в сфере образования и науки, которые участвуют в функционировании институциональных ловушек. Наличие групп особых интересов - неотъемлемый атрибут институциональных ловушек, возникающих в условиях квазиоптимального равновесия. Объединение данных по исследованиям позволило показать значение института высшего образования и науки в системе факторов экономического развития.
Ключевые слова: институциональная экономика; нарративная экономика; высшее образование; экономическое развитие; группы интересов сч
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1. Development of higher education institutions
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as a factor of economic structural transformation cn
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The modern economy is undergoing a structural transformation that enhances the role of knowledge and technology for economic development. Institutional change is required > to create new knowledge and technologies that improve the link between production and • innovation (Goden, 2010; Golichenko, 2014; 2020; Leydesdorff, 2010; 2012: 25-35; Popper et T al., 2020). The main positive effect of creating effective institutions is to reduce uncertainty | and increase the stability of society. Information technology is reducing geographic and ° linguistic barriers by increasing the amount of information available. However, society is constantly changing under the influence of scientific and technological progress. T. Veblen noted that the institutions operating at the current moment do not fully meet the requirements of the present, since they were created because of processes that took place in the past (Veblen, 1984). Achieving favourable rates of economic growth requires consistency between technological, institutional, cultural changes and the growth of well- % being (Balatsky, 2021: 40), as well as the ability of elites to overcome the asymmetry of 3 economic development (Balatsky, 2021: 42). The implementation of institutional changes o is associated with significant costs and institutional inertia when resistance from actors or g groups who receive benefits and are satisfied with existing institutions increases (Acemoglu, Robinson, 2012). In addition to the "intertemporal" inconsistency of institutions, there is ^ an individual or group (non-) complementarity of institutions. The current institutional ^ environment affects the actors who occupy different positions in society. This extends the available options for persons belonging to the special interest groups and has the power and serves as the institutional barrier to the effective use of available resources.
The emergence of the information society and the transition to a knowledge economy increase the value of human capital as a significant factor for economic development. P. Romer, developing the approach of R. Solow and considers human capital as a factor of economic growth in addition to capital, labour, and the level of technology (Romer, 1986; Romer, 1990; Evans, Honkapohja, Romer, 1996). The Institute of Higher Education and Science is important for three reasons. First, new technologies and innovations are generated inside it. Secondly, it is a social technology that ensures the creation and reproduction of
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human capital, prepares qualified personnel for the national economy. Thirdly, the system of higher education preparing the elite, who will manage the economic and political life based on acquired knowledge, skills, abilities, values, and ideology (Maslyukova, Maskaev, 2019: 144).
World Bank experts S. Yusuf and K. Nabershima argue that most technological advances could not have arisen without a functioning educational system. Knowledge and technologies are created in universities and research units, or it is the product of researchers who received professional training in universities (Yusuf, Nabeshima, 2006). Knowledge, information, and human capital are the main resources of the new information economy. Achieving high and sustainable rates of economic growth and development is impossible without an appropriate level of investment in higher education (Palickova, 2014: 141—142; Johnsen, 2016: 3).
The higher education system in Russia is changing like those in Western countries earlier (Loomis, Rodriguez, 2009; Tahar, Boutellier, 2013; Holmberg, Hallonsten, 2015). It is a globally unified education system based on a cost-benefit approach with a focus on engaging consumers of educational services through digitalization and distance learning (Strielkowski, Volchik, Maskaev, Savko, 2020). Changing demographic characteristics of students, needs, technological progress, and the digital economy require a revision of existing ideas about organizational mechanisms, commercial activities, directions, and quality of education. S The influence of values on the institution of higher education presupposes consideration
<m of the institutional context: current rules, social values, corporate culture, organizational ^ characteristics (Elsner, 2012; Volchik, Maskaev, Savko, 2017: 147). Regulatory institutions should be analysed through the prism of actors' thinking. The subject interprets the rules and ™ regulations considering the available information and experience (Veblen, 1984; Hodgson, o 2005: 10—11; Hodgson, 2019: 115). Researchers should study the discourses of the main
actors in their perception of institutional change. ® The narrative turn that took place in the social sciences several decades ago is now
g reflected in economics. Research by D. Akerlof and R. Schiller, D. Snower, P. Collier, actualize the problem of insufficient use of qualitative data in economics (Akerlof and Snower, 2016; Collier, 2016; Shiller, 2017). Actors isolate relevant narratives from the
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space. The institutions operating in society can be identified by studying the narratives of the actors and the explanations for their actions. This is the main hypothesis of narrative analysis in economics. This approach is used to consider informal rules and traditions that cannot be analysed quantitatively.
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g 2. Qualitative Analysis of Economic Policy in Higher Education
a. In the study, the in-depth interview method is used as a relevant toolkit for studying
o institutional changes in education and science. Interviews allow collecting complete "" information about the narratives of the main actors about the formation and transformation o of institutional traps. 30 in-depth interviews with academic staff were used to analyse <5 the organizational change in education and science. Data collected as a result of projects "Identification of institutions and organizational mechanisms for the merger of universities in the context of the socio-economic development of the region" (10 interviews) and "Institutional traps of optimization of the sphere of education and science" (20 interviews). o The selection of respondents was carried out up to the saturation point by the method of peered referrals constituting network sampling, which is a kind of targeted sample. In both cases, lu the interviews were conducted until the saturation point was reached, when the amount o of new information received makes further interviews impractical (Kvale, 2003: 108). The < distribution of respondents depending on the field of science and education, role, and age is ct presented in Table 1. o
Table 1
Distribution of interviewees
Field of science and education
Science and mathematics Humanity and social sciences Engineering Psychology and pedagogy Architecture and art
8 (28%) 12 (41%) 6 (17%) 2 (7%) 2 (7%)
Role
Lecturer Senior Lecturer Assistant professor Professor Researcher
1 (3.5%) 3 (11.5%) 15 (48%) 6 (20%) 5 (17%)
Age
under 35 36-60 after 60
5 (17%) 19 (63%) 6 (20%)
The second source of empirical data is three expert focus group interviews in the framework of the project "Institutional traps of optimization of the sphere of education and science". In the epidemiological situation of summer 2020, it was decided to conduct focus groups remotely via Microsoft Teams. Which imposed certain restrictions on the composition of the groups and practical implementation: the first focus group (14 participants), the second focus group (13 participants), the third focus group (8 participants). Thomas Greenbaum pointed out that a focus group size of 8-12 people seems most appropriate (Greenbaum, 2000), but conducting research using digital technologies could be associated with technical problems (Forrestal, D'Angelo, Vogel, 2015). This could impede an organized discussion, so in the first and second groups, the number of participants was slightly increased. After the third focus group, the saturation point was reached (Belanovsky, 2010: 60-61). Participants of the focus group research are actors of the higher education system: scientific and pedagogical workers and management personnel in education and science. The sample was formed by a targeted selection of respondents working in different departments of the Southern Federal University. The participants were invited after correspondence by email.
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Table 2
Distribution of focus group participants
Field of science and education
Science and mathematics Science and mathematics Science and mathematics Science and mathematics Science and mathematics
9 (25%) 16 (46%) 1 (3%) 6 (17%) 3 (9%)
Academic title
No title Assistant professor Professor
14 (40%) 15 (43%) 6 (17%)
Academic degree
No degree PhD Doctor of Science
2 (6%) 23 (66%) 10 (28%)
Age
under 35 36-60 after 60
5 (14%) 25 (72%) 5 (14%)
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Highlighted the narrative about groups of special interests in focus groups (Shiryaev, Maskaev, Mokrousova, 2020: 99-100). A distinctive feature of special interest groups in the creation of formal or informal structures for lobbying political and economic decisions, as well as participation in the redistribution of limited resources. The selected groups can be typologies in two ways. First, are the insiders (internal) or the outsiders (external) for the
university. Secondly, by their functional affiliation: scientific and professional communities; part of the "technostructure" involved in the preparation of recommendations and decisions; management groups.
Table 3
Special interest groups operating in SFedU
Scientific and professional communities Technostructure Management
External Professors' meetings Expert commissions of various levels Ministry Key universities
Internal Professors' clubs Associations of young scientists Pre-Solution Teams University management Heads of the structural unit Leaders of the Department
Source: (Shiryaev, Maskaev, Mokrousova, 2020).
Pre-Solution Teams are part of the Information and Pre-Design Technostructure. For example, working groups for the development of local documentation have a significant impact on the institutional structure. g The value of these groups is limited by the level of organizational rules and regulations. But
0x1 expert groups may exist to change the top-level rules. Expert Commission acts on the above-^ university level and prepares solutions for a scientific and educational system. The construction of formal institutions by experts is influenced by personal or group interests. Personal interest was seen in the development of formal rules used by public authorities in making decisions.
Progress in the reform corresponds to the long-term performance targets — improving the quality of higher education. Some of the interviewees noted that there is an equalization of the quality of education (weaker universities are catching up to the leaders) as a result of the reorganization and unification of educational programs:
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The unification gives a positive effect that a large number of universities provide a wide choice for applicants, on the other hand, it is difficult to control the quality of education in any of these universities. Therefore, enlargement increases certain manageability in the education system, since it is easier to manage and control a smaller number of subjects. The flagship and federal universities already have a certain level of education quality. And small universities are joining them to raise this level. This leads to an increase in the quality of education.
(professor, 41 years old)
On the other hand, there is no evidence of a systemic logic of reform. Conflicting requirements and guidelines are issued; the standards introduced are changed and rewritten before they come into effect. This indicates the lack of a systematic understanding of the state educational policy.
I understand that it [the logic of reforms] is absent because the requirements are constantly changing. As soon as you get used to something that has been asked of you for 3 months, new requirements appear. (associate professor, 37 years old)
This policy is quite chaotic, very ill-considered, and talentless. The principle is "destroy to the ground and then build something." It seems to me that we have already destroyed it a long time ago, and for some reason, we are delaying the construction. (professor, 63 years old)
We do not have effective demand from both industry and business. Therefore, everything falls on the state or the administration of the university. We need a competent policy and prudent use of money within the university to ensure the development of its laboratory facilities.
(focus group 1, assistant professor)
The merger of universities complicates the management process and reduces the independence of local entities. As a result, there is an increase in transaction costs:
One person cannot manage such a large organization. Even if these universities have merged, they should remain separate universities. And each university should have its director, its separate budgetary structure. Each profession has its specifics, and it's even ridiculous to take it all together at the general council of a single university. When a civil engineer sits on a council, and they talk about biology, about the finishing of artistic material. He thought, "What am I doing here, why do you call me? I am engaged in other activities". (associate professor, 56 years old)
I believe that federal universities and flagship universities are a big mistake. This decision led to the emergence of a hulking giant. Schools of science collapsed, but nothing was created. It is impossible to manage completely separate universities with different levels of training, with different traditions, and each of them had a very good level. (professor, 63 years old)
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The educational system is viewed as a market for educational services from the point of view of the concept of new public management. The reorganization of universities also changes the existing market structure: the number of actors and the nature of competition is decreasing. Reducing student enrolment should improve the quality of education in the struggle to attract students, as well as lead to the elimination of ineffective departments, faculties, universities. But applying the same competitive approach will lead to market monopolization, higher prices, and lower quality. If the number of universities, departments, and educational programs is reduced, then in the future there will be a decrease in competition. Competition "quality" of education has transformed into unfair price competition and various types of non-price competition, reducing the requirements for students' knowledge.
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There is a struggle between universities, this is a struggle for students and funding. This cannot be said about the fairness of this competition. They close their eyes to the quality of education, the passing score goes down. Yes, universities maintain their contingent through these measures, but the quality of the recruits suffers. (associate professor, 43 years old)
Yes [competition] is present and price competition has become fierce lately. Now a student entering a university looks at the price of education as one of the main criteria for choosing a university. This is due to a reduction in budget places and a decrease in the overall income of the population. If a person cannot afford a university with expensive education, he has to choose from what is available. The second type of competition is not competition in the field of education quality, but competition between universities in the social sphere - how much a student will be socially engaged, socially applicable. And unfortunately this is also a minus. The quality of education is becoming a third-rate criterion after money and social infrastructure. (associate professor, 40 years old)
The subjects of the educational process talk about the lack of complementarity of the ongoing changes to the current rules.
It seems to me that the feeling of stability or instability is generally a shaky concept, and it is also very difficult to tie it together. In our country, the feeling of stability is probably always like a bomb, regardless of different organizations and universities. It's about the system as a whole. (professor, 63 years old)
There is competition, but it is unnatural. Thank God, we have at least reduced the number of applications that can be submitted for each specialty and in different universities. Also, the deadlines for submitting applications were limited. Of course, we have already passed when there are more graduates than universities. There are simply lazy students who did not write an application, but we accepted everyone. (associate professor, 37 years old)
A narrative analysis of the interviews showed that there are two groups of problems: bureaucratic burden1 and an orientation towards quantitative indicators (Volchik, Savko, Maskaev, 2018: 165): — there is a significant increase in the bureaucratic burden for all subjects of university ^ mergers, the organizational structure has become more complex, the number of administrative ° barriers has increased2;
có — attention is paid to quantitative indicators in the merger of universities. University
^ leadership is increasingly focused on individual performance indicators, values and rules ^ aimed at cooperation are ignored.
s When norms and rules change, existing routines are no longer effective, and it takes time
^ to adapt to new conditions and develop new behavioral strategies. If changes occur gradually 9 in the course of natural evolution, then working rules reduce the cost of decision-making "x and increase the efficiency of coordination. The directive way of managing educational
I institutions leads to over-regulation and bureaucratization as opposed to the creation of ° horizontal ties. One of the reasons for the reorganization of universities is proclaimed to § reduce the costs of management functions. But in practice, this leads to centralization and ^ strengthening of bureaucracy and an increase in transaction costs:
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Many documents are signed by the rector or vice-rector, but the director of the branch cannot sign them. Problems with the speed of preparation of documents increased. It is difficult to find a balance between the independence of the branch network with a separate structural unit. Because as soon as you increase independence, you can lose quality. The opposite solution leads to bureaucratization and increases transaction costs. (associate professor, 37 years old)
The spread of COVID-19 infection and restrictive measures did not slow down the implementation of the reform, but also led to accelerated institutional change, new educational and management practices. This has both positive and negative aspects:
The continuous flow of messages, as well as the lack of personal, emotionally rich communication, does not allow a person to develop. There is another group of risks of losing the quality of education - social risks and socio-cultural context, which we are losing. The context in which student success is discovered and motivation is formed. We can influence not only knowledge but also their involvement, life goals.
(Focus group 2, assistant professor)
q; 1 Called the "institutional metrics trap". For more details on the "institutional metrics trap" see (Volchik, 2019; Shiryaev, Fursa, Mokrousova, Maskaev, 2018).
2 For more information on time costs and transaction costs in the universities of the Rostov region, see Maskaev, Savko, 2019.
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If we introduce third-party online courses, there are problems with the difference in discipline content in the curriculum and the online course. Secondly, there is a difficulty in controlling knowledge with a larger number of students. It is impossible to ensure that students do not cheat, do not use third-party materials to help. If the number of students is limited, this can be done. But it is very difficult to take an exam in a limited time frame for an entire course.
(Focus group 3, assistant professor)
There is also a positive component. We are adapting to the use of digital technologies in education, this opens up opportunities for attracting visiting professors through digital technologies, which will save financial resources. This will act as a development driver. (Focus group 3, assistant professor)
3. Impact of higher education institute on economic development
The analysis of the materials of in-depth interviews and focus groups shows that there is stable, but generally ineffective institutions of higher education and science. Digital technologies are purposefully introduced in universities, which complicates the transfer of implicit knowledge, control, and feedback during training increases the expected costs of educational and managerial activities and increases the dependence on the reliability of information and communication technologies. According to the respondents, the existing problems lead to disruption of the functions of conveying ideas, beliefs, and values, hinder the formation of elites and highly qualified specialists. The Institute of Higher Education and Science ceases to be a transmission link between a working institutional structure, scientific and technological progress, and ideas, values, beliefs, which reduces opportunities for sustainable economic growth and development.
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Fig. 1. Economic development and education Source: Compiled by the author.
The government's policy in higher education and science is aimed at redefining the role of the university and higher education in society. If traditional universities performed the function of an integrator of labour resources due to the formation of skills that are necessary for the labour market. Then the reorganized universities solve a new problem, they form skills
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that allow subjects to act non-routinely, introduce innovations, and transform institutions and behavioural patterns. The transaction costs of measurement and negotiation are prevalent among faculty actors. New technologies should improve the efficiency of knowledge transfer in the digital economy, and not become a daily routine. The focus on creating a rigid hierarchy in reorganized universities limits the ability of institutions to evolve.
The continuous top-down nature of institutional change leads to a conflict between informal institutions and social values with the proposed reforms. Achieving key indicators becomes the main goal of university management, but metrics only partially reflect reality and increase transaction costs, bureaucratization, and lead to a "battle for indicators" strategy. But there are also positive results from the reorganization of universities — there is an opportunity to use the effect of increasing returns.
Institutional design should analyse knowledge about management routines, values, working rules, and the functioning of the institutional environment. The combination of original institutionalism and neo-institutionalism in economic transformation is based on the use of qualitative and quantitative data. The narrative analysis identified interest groups in education and science that are involved in the functioning of institutional traps. The presence of special interest groups is an integral attribute of institutional traps that arise in conditions of quasi-optimal equilibrium.
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