Functioning of Unitary Universities in India

Abstract

Functioning of unitary universities occupies a unique character in the system of higher education in post-independence India. Unitary universities in India have exhibited relatively more freedom in their nature of functioning as compared to affiliating universities. This article brings the facts related to the nature of functioning of unitary universities in India, where a case of Ravenshaw University, Cuttack, Odisha, has been brought to the picture for substantiating the matter under consideration, particularly in the context of its autonomy and accountability on three major aspects such as academic, executive and financial. This study found that Ravenshaw University has evolved as the first higher educational institution in the state of Odisha to fulfil the needs and aspirations of its people located in Eastern India. So far as academic autonomy and accountability are concerned, as a unitary university, it has demonstrated stability with persistent efforts in the given array of constraints posed there in taking the responsibility of teaching, research and extension activities and has earned credits among the people. In the context of administrative and financial autonomy, the university is restricted and found to be grappling in the matter of staffing and allocating funds for the creation of teaching-learning support systems, and welfare services including providing financial support to needy and meritorious students. However, irrespective of the positions and nature of works carried out by the university functionaries and university as a whole, it claims to have been held accountable to all stakeholders and takes an important place in Eastern India with restricted freedom and limited support in hand.

Introduction

The system of the unitary university in India is an ideal condition for nurturing quality and excellence both in teaching and research. The unitary universities offer undergraduate, postgraduate and research programmes with a special focus on research and innovation and in most situations, they are confined to a single campus. Jawaharlal Nehru University (JNU), Banaras Hindu University, Aligarh Muslim University and Mysore University are notable examples of unitary universities in India. Since the unitary universities do not have the extra burden of managing the affiliated colleges these universities get more scope of exercising autonomous power and accountability (Yerande, 2018). Studies suggest that the functioning of unitary universities is not as simple as they appear; rather they are often faced with a series of challenges and constraints like the financial deficit, lack of administrative transparency and introduction of self-financing courses leading to the exclusion of economically and socially disadvantaged sections of the society, quantitative growth without complying with qualitative inputs to ensure equity, access and quality in higher education (Salmi, 2008; Ghosh, 2018). There are unexpected circumstances, like politically motivated groups interfering in the functioning of university and corruption in the appointment of VCs, teaching and non-teaching faculty (Kumar, 2018). Prakash (2011) remarks that there is erosion of the principles of autonomy in academic institutions and lack of accountability in the overall environment of higher education in India. It is reported that the university autonomy in the present context is not absolute as the universities’ function within the regulatory framework of states. Due to other reasons like the inability of universities to protect their autonomy, political interference, over-assertive bureaucracy and lack of financial support has resulted in the loss of autonomy in higher education institutions. Pathak (2019) has critically analysed the attacks on many universities in India and remarked that many finest universities of this country are dying and moving to become private institutions because of politically motivated appointed vice-chancellors, philosophically improvised managers, new technology of surveillance, militaristic notions of discipline and punishment. The alternative voices of academics have been repressed by politically motivated power in universities like JNU, Jadavpur University, Jamia Millia Islamia, Viswabharati University, Aligarh Muslim University and the University of Hyderabad and many more universities. To understand the functioning of unitary universities in India from a greater depth, a case of Ravenshaw University in Odisha has been undertaken here.

Case Profile

Ravenshaw College prior to becoming a university as an institution of higher learning is the oldest and largest in eastern India. Ravenshaw University came into existence as a unitary university on 15 November 2006 from the status of an autonomous college. Ravenshaw College, with all its glorious academic achievements and ceaseless scholastic pursuits, had created a distinct niche for itself in India and beyond. The history of this great institution is, in a manner of speaking, the history of modern Odisha, a major state in the Indian Union. It was the cradle is of ideas fostering national unity and nationalism, promoting social mobilisation and gearing up the freedom struggle. Ravenshaw represented and symbolised the history of modern Odisha like no other institution has, beginning as the harbinger of higher education in the state, nurturing its budding talents who heralded a renaissance in the state and contributed to the process of the creation of a separate state for its people, who ignited the freedom struggle in India and helped this college emerge as one of the foremost in the country (Tripathy, 2017). Ravenshaw College came into being at a crucial moment in the history of modern Odisha. The language agitation which gathered a perceptible momentum in mainland Odisha bore testimony to the fact that the latter was ready to protect itself from an attempted cultural invasion and to aim at an all-round growth of the land. Ravenshaw College in a way became its intellectual nerve centre and a symbol of the fulfilment of the aspirations of the people of Odisha (Mohanty, 2017). Even today, every individual aspiring for higher education in Odisha would be enthusiastic to be part of this university. Now Ravenshaw celebrates 150 years of its foundation with more than 8,000 students in various streams such as Arts, Science, Commerce, Information Technology, Computer Science, Management, and Hotel and Hospitality Management. Ravenshaw University offers undergraduate, postgraduate, MPhil and PhD programmes under twenty-six academic departments. At present, the university actively engages in teaching and research cutting across disciplines and faculties. The university campus is also known for its student politics and activism. There have been several incidents while campus politics has gone out of control when the management ignored the students’ opinions, views and interests when making decisions on behalf of their welfare and studies. Student politics introduced different political ideologies and ideas and provided an opportunity for young men and women to emerge on the political scene. This increases their understanding of political, social and economic issues and their solutions.

Objectives of the Study

1. To study the status of academic, administrative and financial autonomy and accountability of Ravenshaw University, and

2. To study the nature of problems and challenges faced by students, teachers and administration of Ravenshaw University, while exercising autonomy and accountability.

Methodology of the Study

In this study, Ravenshaw University as a whole has been taken as a case study. The required data for this study have been collected from 450 students, 28 teachers and 10 administrative Heads of the Departments through open and close-ended questionnaires on Google Forms and from secondary sources. The data have been analysed by using percentages and content analysis techniques. The students’ responses have been analysed in percentages, followed by a similar study of teachers and Heads of the Departments through content analysis technique. The findings of the study have been drawn by adopting the triangulation technique.

Findings of the Study

The findings of the study have been drawn around autonomy and accountability, which comprise matters related to academic, administrative, financial autonomy and accountability of students, teachers, and administrative heads of Ravenshaw University.

Academic Autonomy and Accountability

Academic autonomy and accountability are the heart of any university which could sustain its identity as an apex body of knowledge generation and expansion. In this regard, Ravenshaw University demonstrates moderate status in its existence. In the university, students have the autonomy for opting for courses and freedom to participate in academic activities. They also maintain regularity in reading, writing and completing assignments as a practice of accountability towards teachers, departments and the university. The students of the university viewed that due to the limited nature of choices in selecting courses coupled with the semester system and support services, they compromise their autonomy and accountability. The teachers have autonomy in reading, writing, adopting teaching methods, research activities, and organising and participating in seminars, conferences and workshops. Most of the student and teacher respondents reported that there was an acute shortage of teachers in the university and due to the shortage of teaching staff, there was an increased load of teaching which also caused restricted nature of attention, guidance, research and extension works. In this context, highlighting the other problems in the university, one teacher respondent stated that ‘acute shortage of teaching faculty has always been the major problem for the university. Besides that, poor academic and administrative infrastructure, overburdened unacademic activity, students’ indiscipline and unrest, lack of teachers’ commitment, undue interference of internal authorities and insufficient resources both human and material resources stand as the major challenge in the university’.

The teachers also unanimously attributed this to insufficient infrastructural supports. However, most of the teachers have been found to be accountable in terms of their engagement in all possible affairs of the university, which include regularity in classes, completion of courses, updating knowledge, and providing guidance, supervision, support and counselling, encouragement for innovative and creative works by the students. However, it was also reported that in some departments, the existing teachers did not have expertise in their respective fields of study and the skills of using information and communication technology. Some teachers were not much detailed and updated in their respective subjects. This has been felt by students in times of need. Due to lack of experience and qualified teachers, the act of teaching and learning is largely carried out by guest teachers. Most of the students expressed that the teaching–learning process was theoretical and monotonous and there was a lack of practical exposure. Most of the student respondents reported that there was no research environment inside the campus. Expressing anguish over the prevailing state university academic affairs a student said ‘there should be better and sufficient infrastructure with smart classrooms, Wi-Fi connected campus, new books, journals and magazines in the university library as well as in the department library; digital library and reading room need to be improved, appointment of skilled teachers having profound knowledge, managerial and teaching skill, proper guidance, cooperation and support must be given to students; andragogy method must be adopted to teach adult learners, freedom must be given to students for self-directed, collaborative and constructive learning. The focus should be given to the practical application of knowledge rather than just theoretical and examination-oriented education’. In most of the teaching departments, the research scholars had no separate cell to carry out research work, discussion, debates and deliberation on major issues in their respective subjects and disciplines.

Administrative Autonomy and Accountability

Administrative autonomy and accountability of the university determine its success and position to a great extent. By taking advantage of administrative autonomy, an institution can take major decisions related to the development of infrastructure, recruitment and staffing which eventually enable it to function in a responsive manner. In this context, the existing support services in the university such as libraries, classrooms, books, journals, and other reading materials are not sufficient for a large number of students, and it lacks smart classrooms with Wi-Fi facilities, the library is not updated with new books and world-class journals and magazines. The glorious Kanika Library now has been neglected and has become outdated. In the case of the digital library, most of the computers are not updated and operational with the provision of all-time internet connectivity. Almost all computers have old version softwares and are not providing services for data analysis and plagiarism checks. Although the university has reasonable autonomy in these regards, it is found to be lacking in creating enabling situations for students and teachers while carrying out academic activities. The university has the autonomy for launching new courses or programmes at undergraduate and post-graduate levels. However, while launching the new courses of study/programmes, the concerned department/university needs to take permission from the government. The opening of new programmes and courses has been challenging because of insufficient resource support. The university has the freedom to design the syllabus and courses of studies for new programmes in different fields of knowledge. But while designing syllabi/courses of studies, the university has to follow the common curriculum system at the under-graduation level prescribed by the state government which curtails the institutional autonomy in designing undergraduate curriculum. Hence, there is a need of flexibility in deciding the courses of studies as per the need and demands of the students and time. More than half of the teacher-respondents viewed that the university had restricted autonomy in giving admission as state government interfered by imposing the common admission system and deciding the fee structure for some courses. The fee structures in self-financing courses were decided by the university itself. However, the administration of Ravenshaw University was transparent and accountable while giving admission to students and setting the fee structure, although protests surfaced against the fee structure of self-financing courses. Most of the teachers and heads opined that the university had full autonomy in conducting the examination. During the time of the COVID-19 pandemic also, the university successfully conducted examinations and published the results on time. The examination was conducted fairly with accountability as per the rules and no unfair activity was promoted in the examinations. Most of the teacher-respondents reported that the university had below-average autonomy to develop required infrastructure and teaching-learning support materials. On the matter of administrative autonomy, one professor says ‘the institution often suffers from indifference and favouritism, political interference, nepotism and negative social environment within the management while executing administrative autonomy and accountability. It has been restricted as there is no full autonomy to plan the vision and actions and executing the same to some extent. Many administrative decisions are monitored and controlled by the Vice-Chancellor of the university as per their own wish and as per the direction of the government which restrict autonomy of our university’. Due to lack of proper coordination between the vice-chancellor with officials of university, conflict arises within the management of the university. Required financial supports were not available and internal administrative policies were not so conducive to develop these facilities in the university. The university administration also lacked accountability in terms of effective management and proper planning for teaching-learning support materials with suitable infrastructure. The university has provided health and fitness support services such as physiotherapy, gyms, yoga and medical facilities. But almost all the teachers reported that only a number of students were active in availing these resources and the rest of students did not. It was found that hostel accommodation was a major issue for many students as it was not provided to every needy and deserving student. The quality of food was not so good and the boarders faced problems in getting safe drinking water, and used unhealthy and unhygienic toilets and bathrooms. Most of the teachers also had not been provided with the required residential facilities and many of them were staying outside the campus. Teachers and heads of teaching departments viewed that one of the major issues in the management of the university that was faced was interference by the Government of Odisha in the affairs of the university by amending the Odisha University Act, 1989, and repealing the Ravenshaw University Act, 2005. The university had full autonomy to recruit teaching staff, but after the Odisha Universities Amendment Act, 2020, the autonomy of the university to recruit teaching faculty had been handed over to the Odisha Public Service Commission (OPSC).

Financial Autonomy and Accountability

Financial autonomy and accountability play a major contributory role in the effective functioning of a university. Ravenshaw University in this regard possesses an average character through the mechanism of transparency and auditing. The teachers of the university stated that they had very restricted autonomy and accountability in procuring the required support system for reading, writing teaching and research. Teachers hold the view that ‘the departments get small development grant from the university every year. The departmental financial autonomy is limited to spending development grant and utilising seminar fund only’. One comment of a student-respondent highlighted the financial constraints of the department: ‘it has been seen for a long period in the departmental tradition of Ravenshaw that the students themselves raised a seminar fund by their contribution during their entry year. This fund is deposited in the saving account of the Department and is spent for the purpose of purchasing books for the seminar library and organising special lectures and remunerating resource persons’. No incentive or encouragement was given to the teachers to procure these support systems with existing autonomy and ability. Most of the teacher-respondents and Heads of the Departments viewed that the departments and university had very restricted freedom and ability to remunerate teaching and non-teaching staff. The different departments of the university also did not enjoy full autonomy and were unable to procure the required support systems with respect to reading, writing, teaching and research. The departments running self-financing courses got better facilities and autonomy in comparison to other departments. The departmental financial autonomy was limited to spending development grants and utilising seminar funds only, generated by them from students. The university also had very limited autonomy and ability to create welfare activities, recreational scope and provide scholarship and financial support to poor and meritorious students. Most of the students got financial support and scholarships mainly from the Central and state governments and NGOs. Bureaucratic delay and government policies stand as a barrier to the financial affairs of the departments and the university as a whole. Lack of funds at the disposal of the university and the rigid nature of government financial rules were the major challenges to run itself as an autonomous body and ensure its accountability towards different stakeholders.

Discussion

A university is ideally an autonomous educational organisation with a set of responsibilities towards the stakeholders. An ideal institution with autonomy and accountability provides quality education, teaching with high quality of research and innovation and strives towards excellence (Sharma et al., 2017). It has the scope of experimentation, innovation, quality improvement with transparency in teaching, evaluation and providing other academic services including the scope of educational reforms and speedy implementation (CABE Committee, 2005). Ravenshaw University in this regard has enough strength and potential, barring some avoidable constraints and challenges, to carry out the work of teaching, research and extension. Being a unitary university, it has autonomy with many avoidable restraints and challenges. Ravenshaw University has almost full academic autonomy to carry out academic activities at different levels, for example, the students have freedom in opting courses, freedom to participate in academic activities like classroom discussions, seminars and workshops, selecting research areas and undertaking research works. However, due to limited courses offered in the university, they get limited choices to select courses of studies of their interests. Most of the students were also found accountable while ensuring regularity in classroom activities, reading, writing, completing assignments and participating in other academic activities along with the responsibility assigned by their teachers and departments. The teachers had autonomy in reading, writing, selecting teaching methods, research activities, organising and participating in seminars, conferences and workshops. Most of them were accountable while ensuring regularity in classes, completion of courses, updating knowledge, and providing guidance, supervision, support and counselling, encouragement for innovative and creative works to the students. However, the students and teachers were not in a position to take full advantage of their autonomy due to inadequate and insufficient human and materials resources. University with its oldest library is providing limited academic support services. Since the university is grappling with inadequate resources, its effects are visible in teaching, reading, writing and research. The university carries some reasonable autonomy and maintains accountability in the matter of admission, formulation of syllabus and courses, regulation of courses, the opening of new programmes and terminating obsolete ones, deciding fee structures, conducting the examinations, publication of results, maintenance of law and order in the university. The university’s financial autonomy is limited to spending development grants and funds from the government. Bureaucratic delay, government policies and lack of effective management and proper planning stand as barriers to financial uses and affairs of the departments and the university as a whole. Lack of funds, support, leadership, and rigidity in governance are the major challenges for this university system to run itself as an autonomous body and ensure its accountability towards stakeholders in the form of teaching, research and extension activities.

Conclusion

From the given realities in India, it is quite clear that there is a need to strike a balance in terms of support and interference by the governments, Central or state, in the functioning of unitary universities. So far as the situation of Ravenshaw University is concerned, given the glory of the past and challenges of the present, the university has to function more independently and holistically. The university cannot afford to function in isolation of the needs and demands of immediate stakeholders or the distant ones, as felt by the respondents. It has to function beyond limited boundaries of its locality. It has to work by keeping the global needs and circumstances in mind as well. The university should have more enabling environment with all required resources and decision-making power in its hand so that whenever time and situation demand, it can act in an accountable manner. It requires more academic autonomy with respect to launching new programmes and prescribing norms and standards. It should have more administrative and financial authority, especially in the matter of recruitment and channelisation of resources without any external interference. Taking feedback on the present circumstances and the possibilities in the university, the existing faculty members are quite unstinting to express their serious concerns that there is a need of support from the Central government. The name and reputation associated with the university and its existing nature of governance, where it is found to be restricted in many ways in its functioning, make it deserving for becoming a Central university in eastern India.