TEACHING PUBLIC ADMINISTRATION IN A BUSINESS UNIVERSITY The case of Estonian Business School. Brief overview of previous developments in Estonia

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1 TEACHING PUBLIC ADMINISTRATION IN A BUSINESS UNIVERSITY The case of Estonian Business School Brief overview of previous developments in Estonia The introduction and incorporation of public administration into the university curricula in CEE (including the Baltic states) derived mainly from the need to prepare specialists for state administration and governance who would have an up-to-date knowledge of public policy, political science and public law. One of the first projects, launched in Estonia in the framework of the PHARE- TEMPUS program during the first half of the nineties, was the development of Bachelors programs in Public Administration (BPA) at Tallinn Technical University (TTU) and Tallinn Pedagogical University (TPU). The labour market demand for public administrators at different levels is sustainable and the interest from potential students in the corresponding programs has been very high. At the moment BPA degrees are offered at the University of Tartu, TTU, TPU, Estonian Business School (EBS), Academy Nord and several other institutions in Estonia. Although offering the same academic degree, all the above mentioned programs emphasize different aspects (legal, economic, political, managerial, technological) of public administration. One of the characteristic features of the public administration profession is a specific technology transfer from business administration and management into public administration and governance. This means that methods and techniques developed and used in business administration and management are gradually transferred and implemented in the public sector. 1. The profile and development of PA programs in EBS EBS was established in 1988 as a private institution of higher education offering a Master of Business Administration program and executive training. Management has become a central keyword for EBS in its program portfolio development. Therefore it is quite natural that the program portfolio has been complemented with academic programs in Public Administration (1998) and IT Management (2000). The Bachelor of Public Administration (BPA) was started in 1998 with an enrolment of 45 students in 1998 reaching a total, in September 2004, of 146 students (the overall student body of EBS is 2134 students). Public Administration is also a subject module in the rest of EBS curricula. BPA curriculum at EBS strives to be a well-balanced set of modules in social sciences, management, public administration fundamentals, law, economics and entrepreneurship, mathematics and informatics, and language studies. Major emphasis is put on management, law, EU issues and language studies. The BPA program was initiated according to the following needs emerging from Estonian society: To establish a new program using the tradition and strengths of EBS in the area of management education to contribute to the development of a public sector labour force with the necessary skills and knowledge. 1

2 To provide an opportunity for young professionals in the public sector to study part-time (in the evening program) other universities do not offer. The objectives of the BPA program are: to provide a broad based first degree education integrating several subjects into a theoretical background in all of the main spheres of public administration (organisation of the public administration, foundations of PA, economics, management, law and European Union policies); academic orientation to give research-oriented education; connection with practice flexible response to the changes in Estonian society, constantly connecting theoretical studies with practice; development of necessary skills alongside the study process firstly, develop skills of analysing public administration systems from the point of view of public policy, law and economics, and secondly, develop managerial skills; proficiency in foreign languages special attention is paid to English, learning a second foreign language is also important; proficiency in communication and information technology The expected field of activities of the graduates The broad base of the program gives the graduates a wide variety of options for working at different levels and in different structures of a public sector organisation. According to the legal acts of Estonia regulating the public sphere, there are three basic groups of officials in the service of state and local governments: higher officials (government officials, managers, advisors etc.), senior officials (analysts, experts, inspectors, instructors, consultants, specialists etc.) and junior officials. The program for Public Administration has taken into account the requirements for qualifying as higher officials. A systematic approach to studying the organisation of Estonian society, managerial knowledge and skills, a comprehensive study of law and several elective subjects within the framework of curriculum also gives the graduates an opportunity to work in the developing third sector of Estonian society Internship The implementation of the curriculum systematically coordinates theory with practice. This gives the students a better understanding of practical problems and orientates the topics of the curriculum towards the needs of practice. For instance the topic, Parliamentary structure and the legislative process, in the subject, Constitutional Law, is taught in the State Assembly where the topic is explained by the coalition and opposition MP s and clerks. In addition to the use of study visits, guest speakers and case studies used in the classroom, the knowledge acquired during the curriculum courses 2

3 is also reinforced by an obligatory internship, which takes place between the sixth and seventh semester. The objectives of the internship are: to reinforce the theoretical knowledge and skills while solving practical problems to become familiar with communication and administration procedures as well as the general work in a public administration organisation; to collect material for student research. Internships must be completed in a government institution (ministry, board, inspectorate, State Chancellery, county government or the local agencies of boards and inspectorates). The place of internship is selected by the student individually. On a needs basis the monitor of the internship appointed by EBS will assist the student in finding a place for their internship. The student presents an internship report, which is followed by its defence and grading in front of a commission. The grading takes into consideration how efficiently the task of the internship has been fulfilled, the quality of the internship report, the defence of the internship report and the opinion of the internship host organisation about the efficiency of the student in fulfilling the task of the internship Program development and quality assurance To guarantee the sustainability and competitiveness of the BPA and other programs at EBS, the corresponding mechanisms for program development and study quality assurance have been put in place. The heart of EBS program development, implementation and quality assurance lies in the program committees. Each committee is chaired by the head of the program, and consists of leading lecturers of the program and representative(s) of employers. There is also an advisory board for every program committee chaired by the head of the program and consisting of representatives of major stakeholders (employers, alumni). The main institutions guaranteeing quality at the university are: program committees chairs faculty members The program committee co-ordinates the implementation of the program. This means that it keeps an eye on the study process implemented by Chairs and monitors this process to ensure it is balanced and appropriate to the program. If necessary, the program committee makes proposals to Chairs about the need to make changes or adjustments to the goals or contents of certain subject modules. At the end of each semester the committee looks through the study results of students studying in the corresponding program (presented by study departments) and the summary of student feedback questionnaires. On the basis of this analysis the program committee prescribes that Chairs change the content of subject modules or certain subjects or improve methodology and if necessary also plans 3

4 changes to the program. Other quality assessment methods include student feedback each semester. The competitiveness of EBS alumni in the labour market serves as the final testing ground of the school's performance Curriculum Development The curriculum of the BPA is under a constant process of development and a dynamic development depends on the following factors: Orientation towards the need for changes in the dynamically developing public sector of Estonia. Due to the changing needs in the public administration sector, the curriculum is constantly being renewed by including new elective subjects. Orientation towards changes in strategies aimed at the development of society and laws. As a result of the above changes the topics and the structure of the course are rearranged. In some cases this concerns the allocation of credit points and capacities. As compared to the 1998 curriculum, changes have been made in connection with the topics concerning the European Union. Orientation towards enhancing the quality of teaching in order to maintain competitiveness. The implementation of the curriculum considers the results from quality control mechanisms (visiting lectures by the Head of the Chair, the feedback results of student questionnaires, examination results, the long-term orientation of the lecturer on cooperation with EBS and participation in the process of research and development), as a result of which there have been changes to the choice of lecturers. This has resulted in changes to course topics, literature and teaching methods. Changes to the capacity of subjects are first discussed and analysed with the Head of the Chair as well as in the Program Committee before being passed on to the Senate for confirmation. Changes to the structure of subjects and topics are discussed in Chairs. A change of lecturer is discussed with the study departments and Rectorate Quality management in tuition and curricula Quality assurance is one of the major focus areas for EBS faculty and management staff. Other interest groups including students, the community, and universities abroad have been involved in the quality management and assurance process. As part of the core of its strategic process, EBS has decided to focus on steering and improving continuously the quality of its study programs and the educational process as a whole. The general scheme of EBS quality management has been outlined in the following figure. FIGURE 1: The quality of the study process 4

5 Faculty members Chair Program committee TEACHING CURRICULUM DESIGN, COMPILATION, DEVELOPMENT PROGRAM COMPILATION DEVELOPMENT Methodological. Following the rules and agreements regarding expectations. Activating students. Applying technology. Goal orientated. Contemporary. In compliance with other subjects. Goal orientated. In compliance with the labour market expectations. In balance. Attractive to potential students. In compliance with norms. 2. Student assessment on BPA program Within the framework of the self-assessment of the Public Administration Bachelor Program, a questionnaire was carried out among the students of the second, third and fourth year. The aim of the questionnaire was to find out what the students thought were the main STRENGTHS and WEAKNESSES of the curriculum and their suggestions for the improvement of the curriculum contents and implementation of the study process. But also to highlight the main obstacles and problems in relation to the curriculum. The number of respondents accounted for 80% of the students. The following is a summarised review of the most common answers given. No alterations have been made to student assessments. The analyses are given in the form the questions were asked. 1. What do you consider as the major strengths and weaknesses of the Public Administration Program: STRENGTHS The general opinion of the curriculum: -a contemporary, innovative and up to date curriculum -the interrelation of the subjects which form an integral whole - the curriculum is recognised by other universities - high-level lecturers who generally are experts in their field WEAKNESSES The general opinion of the curriculum: --few elective subjects -a limited possibility to specialise - few foreign lecturers - proportion of practice too small - the choice of foreign languages is insufficient Opinions of the modules of the curriculum and 5

6 -the option to take elective courses in other universities --a flexible curriculum following the current trends - the curriculum includes a sufficiently wide scale of subjects from a variety of fields - the curriculum has an EU and international orientation Opinions of the modules of the curriculum -the variety and strength of law subjects -a high level of language teaching as compared to other universities --the curriculum includes many subjects which give an overview of the speciality and its implementation in different fields -many subjects in the field of economics and management -interesting elective subjects -an option to choose from among several foreign languages Opinions of the study process - good availability of study materials -the openness of the study process and students being reasonably well informed -the order of subjects in the curriculum: the basic subjects first and the more comprehensive ones later -the students have the right to request the replacement of an incompetent lecturer its subjects: -the fundamental subjects are based on economics too much -the ignorance of some lecturers about the essence of the Public Administration Program (the topics do not concentrate on the exact speciality) -the subject concerning public information systems should be computer based --there should be more lectures in the field of political science, the history of the country, the bases of theories and less in the field of economics -few economic subjects ( too general) -few subjects about the speciality -could be more lectures in the IT field -few comparative subjects -a limited possibility for specialisation -too little capacity of foreign languages Opinions of the study process: -a relatively uneven span of subjects between semesters -little teamwork and practical activity which would help to reinforce theory - the speciality of Business Administration has a greater emphasis on studying abroad than the speciality of Public Administration -capacious subjects are often delivered too intensively in one semester - the period of teaching the second foreign language could be longer - elective subjects could be offered in earlier semesters 2. Which options do you see for the improvement of the structure and implementation of the study process of the Public Administration Program? -the speciality of Public Administration could have its own study consultant -the addition of speciality related subjects into the curriculum -more specific subjects related to the public sector -rather few economic subjects which are quite general 6

7 -the curriculum does not consider the fact that the third year student wants to work (lectures finish too late) -the lecturers of law subjects are very competent, would like the same from the lecturers of other subjects as well -better allocation of subjects in the curriculum -the day-time lectures could finish earlier which would enable the students to work in the afternoon -more practical work and seminars -the advancement of students in their studies should be more carefully observed -the second foreign language could start in the second academic year in order to spread the study-load more evenly -the study process could include more practical samples, seminars and visits to different institutions -students should be involved in the process of working out curricula -a stronger connection between the Public Administration students and the school -do not see any need for improvement 3. Which obstacles and problems would you like to highlight in relation to the implementation of the Public Administration Program and carrying out the study process? -a portion of the lecturers are theorists -the study consultant could have more time for the students -the subjects which have been aimed at creating the overall global picture (culture study, global problems, philosophy), have been too theoretical and the process of mastering the contents of these subjects has been rather hard -there is a problem in the implementation of the gained knowledge -information on the school homepage could be improved -some more complicated subjects could come in later -internship could be longer -students do not have a clear perception of what will become of them after graduation -the contact between study departments and lecturers could be stronger -do not see direct disadvantages 4. Why did you prefer EBS to other similar public administration programs offered in Estonian universities? -the recognition of EBS -an interesting curriculum, oriented at the labour market and the current situation -interesting subjects in the curriculum - the wide variety of Public Administration subjects -a good balance between the subjects dealing with law, economics and management -a greater emphasis on law as compared to TTU and TPU -a greater emphasis on language learning - good lecturers at EBS 7

8 -small study groups and better contact with lecturers -a contemporary teaching methodology at EBS -the best out of those offered as a result of the school s openness to innovations -a greater student orientation -positive feedback from acquaintances about EBS -education that must be paid for gives a chance to demand something from the school -EBS is located in Tallinn 2.1. General assessment and development of PA programs in EBS PA program has confronted several difficulties and obstacles in recent years both from inside EBS as well as from external factors (educational policy, competition, demographic situation and some other factors), we would be happy to discuss and tackle together with our colleagues from CEE and other partner institutions. Some major strengths and weaknesses of our PA program will be enlisted below. Strengths and weaknesses of the program Strengths: School has a good reputation both among students and the public in general School and PA program seem to be attentive to needs of change voiced by various stakeholders Academic staff is experienced and well connected with respect to the political-administrative system where most students might be employed Program curriculum is up-to-date and relevant to the needs of society Weaknesses: Proportion of staff without PhD is too large Proportion of part-time staff is too large Existing building-space is already exhausted and further expansion of PA program is not advisable in present situation Volume of research publications of PA program could be bigger 2.2. Development perspectives EBS sees the main cornerstones for our development the continuous improvement of program quality and faculty development, integrating teaching, research and consultation activities. Our longterm goal is to develop the study field of Public Administration into a fully-fledged pillar of the EBS 8

9 product portfolio and to ensure the high quality of the program(s) content and delivery. To achieve this goal the following activities are envisaged: increasing involvement of all stakeholders in curriculum development and study quality assurance; development and implementation of masters and doctoral programs; development of co-operation with other universities; professional development of academic personnel; institutional development; integration of research and development into the teaching and learning process; efficient marketing. To enhance the involvement of all stakeholders in curriculum development and study quality assurance we promote close co-operation between academic personnel of EBS and practitioners/employers from public and private sector. To guarantee the holistic development of the field of public administration, master's and doctoral curricula need to be elaborated further and their conformity with international standards ensured. To achieve this aim strategic partnerships with universities both in Estonia and abroad needs to be further developed. We consider joint curriculum development, exchanging subject modules as well as joint research and development projects as priority areas of co-operation. To ensure the sustainability of the PA curriculum, research should be oriented towards the practical needs and requirements of public administration in Estonia. In order to guarantee a sustainable supply of well-motivated new students to study public administration at EBS the target groups of potential students should be more clearly defined and a detailed plan of activities for reaching them must be compiled and put into action. In connection with transition to 3+2 programmes, a curricula reform in EBS has been started. The main and focal change in bachelor level programmes concerns specialization modules, i.e. the speciality of curriculum offers opportunities for in-depth study in the field of management and marketing, finance and accounting or public administration. Depending on the target group of specialization module it is possible to elaborate and compile a tailor-made programme that takes into account the needs and interests of a specific target-group, e.g. management of local government, management of educational institutions etc. A business administration-rooted speciality of public administration is also been supported by the respective research orientations in EBS, namely: - indicators of local democracy - the legal standing and connections between state and local government - decentralization of central government and the position of a person in public law in public administration organization. 9

10 3. CONCLUSION The continuous growth and development of EBS during the first seventeen years of its existence has been successful only as a result of a clear sense of purpose in the institution as a whole. EBS has used the opportunity to learn from the best practices of other institutions and our stakeholders. At the same time, our involvement in international research and development projects remains insufficient, and the number of publications is not significant, although there are indications of rapid growth. The priority for EBS as an institution in the coming years is the further development of our institutional strategy. This will be done in the context of Estonia s membership in the European Union and the recent changes to the Estonian higher education model (transition to model in the framework of the Bologna process). EBS also sees a synergetic co-operation within the EBS Group and with our strategic partners. The BPA program at EBS was started seven years ago. Up till now the program has gone through an initial phase of development and has received positive feedback both from our BPA students as well as our faculty and potential employers. Yet, seven years is a relatively short period and therefore it is premature to draw very far-reaching conclusions. An important area of improvement lies in the curriculum design with emphasis on widening the choice of electives and increasing the flexibility of studies. At the same time, we are convinced that a major strength of our BPA program is its compliance with the local labour market requirements, in particular, with Requirements for Higher Officials set by the Government. EBS has from the very beginning been a student-friendly institution. This means, first and foremost, a flexible organization of studies and individual counselling by faculty members and study consultants. Regular feedback from our students has been important input for improving the organization of study processes. One of the problems to be solved in the nearest future is levelling the study load throughout the program. EBS is proud to say that all our students are equipped with textbooks, study guides and other related materials for all the subjects. Learning takes place in modern well-equipped facilities. According to our faculty assessment, the BPA students are well motivated with a keen interest in public sector issues. Our BPA students are active participants in student social life and EBS Student Government. The one concern related to students is their uneven academic level on entry to EBS. This can partially be explained by shortcomings in our secondary education. EBS faculty composition meets all the requirements of the higher educational standard established in Estonia. In the BPA program, full-time faculty covers 77% of the curriculum capacity, and 58% of the curriculum is covered by faculty holding PhD qualifications. At the same time, the impact of part-time lecturers from public administration practice is substantial. Considering the relative youth of the BPA program at EBS and comparing it with the general situation in Estonian higher educational institutions, we consider this a significant result. In the near future, EBS aims to increase 10

11 the number of highly qualified full-time faculty by diminishing the teaching load of current professors and providing them more time for research and consultation activities. EBS is becoming more international with a stronger international dimension reflected in student mobility, faculty exchange, joint curricula and international research projects. In addition to the BPA student mobility program, EBS also sees potential in developing the international dimension of the BPA program through faculty mobility and joint research projects. In the next years, EBS wants to continue serving Estonia s society by providing knowledgeable and skilful as well ethical citizens ready to work both in the public and private sector. EBS wants to strengthen and broaden its role and responsibility in the community. We want to continue our tradition of organising public seminars and conferences, act as experts on different legislative committees, and provide continuing education and executive training courses. In the light of the above developments we need to seriously assess our possibilities for longterm growth and development. The first steps to be taken should be the development of further international connections with well-established institutions and research milieus in the field of PA as well as stimulating more research activities and publications among our academic staff. We hope to get assistance from the NISPACee forum in discussing and analysing our problems and future perspectives. Literature (materials used): 1. EBS homepage at March 31, Joint Final Report: Estonian Business School, Estonian Higher Education Accreditation Center, Self- Assessment Report: Bachelor of Public Administration Program, Autumn EBS. 4. Galligan, Denis J. et al. (ed-s) (1998). Administrative Justice in the New European Democracies: Case studies of Administrative Law Process in Bulgaria., Estonia, Hungary, Poland and Ukraine. OSI/Constitutional and Legislative Policy Institute and the Centre for Socio-Legal Studies, University of Oxford. 5. Olle, Vallo. Exercise of Local Government in the Form of Direct Democracy: Local Public Initiative and Referendum, defended in 2002 in Tartu University. 6. Wright, Glen and Nemec, Juraj (2002). Public Management in CEE Transition: Concepts and Cases. NISPACee. 7. EBS Development Plan and Strategy (2004). EBS. 8. EBS Student Survey and Feedback (2004). EBS 9. EBS Senate Protocols ( ). EBS. 10. Commented edition of the Constitution of the Republic of Estonia (Eesti Vabariigi Põhiseadus, Kommenteeritud väljaanne. Juura, Õigusteabe AS, Tallinn 2002). 11

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