The Future of Mexican Higher Education

Foreword
Acknowledgements
Abbreviations and acronyms
Executive Summary
	Governance of the higher education system
	Higher education strategy in Mexico
	Funding higher education in Mexico
	Quality in higher education
	Equity in higher education
	A specific focus on technical higher education and Teacher Education Colleges
Chapter 1.  Assessment and recommendations
	1.1. Focus of this chapter
	1.2. Governance of the higher education system
		1.2.1. Main findings
			A complex and evolving system of federalism, lacking a clear legal division of responsibilities for higher education
			Despite clear political will in some cases, states lack the resources and capacity to play a strong role in higher education policy-making and funding
			An uneven pattern of intervention by public authorities between subsystems: from laissez-faire to micro-management
			A proliferation of higher education subsystems and administrative units hinders development of system-wide policy-making and processes
			A lack of effective coordination bodies, despite strong sector organisations
		1.2.2. Key recommendations
			In the medium term, reform the federal legislation governing the higher education system to define a clearer division of responsibilities
			Strengthen the capacity of states to play a strong role in coordinating and steering regional higher education systems that respond to regional needs
			Work towards a system of responsibly autonomous institutions
			Complete work to create essential system-wide frameworks and procedures, while simplifying federal administrative structures steering higher education policy
			Clarify the mandates and strengthen the capacity of coordination bodies for higher education at federal level and in each federal entity.
	1.3. Higher education strategy in Mexico
		1.3.1. Main findings
			A tradition of national planning and consultative strategy-setting, but a lack of clarity about implementation activities and limited transparency in monitoring
			Despite recent improvements, incomplete data about the characteristics and performance of the higher education system still hinder policy-making
			Considerable variation in planning capacity between states and a lack of clarity about implementation and follow-up
		1.3.2. Key recommendations
			In the next iteration of the Sectoral Education Programme, include a dedicated section for higher education with fewer objectives, each linked to more precise action lines and indicative resource allocation
			Develop a comprehensive and integrated information system for higher education
			Ensure state higher education programmes are complementary to the sectoral education programme, and focus on issues where states can make a real impact
	1.4. Funding higher education in Mexico
		1.4.1. Main findings
			Public spending on higher education has grown, but more slowly than enrolments, resulting in falling spending per student
			A complex system of core funding to higher education institutions, lacking transparent allocation mechanisms
			Unjustified differences in funding per student exist between and within subsystems, with some subsystems systematically underfunded
			A well-established system of competitive and targeted funding, but programmes are fragmented, with partially overlapping objectives
			Unpredictability in funding levels and programmes has hindered medium to long-term planning within institutions
		1.4.2. Key recommendations
			Ensure the federal budget allocated to higher education is proportionate to political goals
			Establish a rational system for allocating public funding to federal and state higher education institutions, taking into account institutional missions and real costs
			Use the new funding model as a basis for correcting unjustified differences in institutional funding across the system
			Reform extraordinary funding programmes to focus exclusively on quality and equity-related projects that complement the core activities of higher education institutions
			Move to long-term budget planning
	1.5. Quality in higher education
		1.5.1. Main findings
			The SEP has undertaken reforms aimed at simplifying and updating the programme registration process for private providers, but shortcomings remain
			Sound processes for external programme accreditation and evaluation exist, but they remain voluntary and are not appropriate for all sectors of higher education
			Quality assurance policies have focused on programmes and not supported the development of institutional capabilities and responsibilities with respect to quality.
		1.5.2. Key recommendations
			Promote further quality improvements in strong institutions by increasing institutional responsibility for programme quality
			Expand external quality assurance in other higher education institutions, including through processes better tailored to professional programmes
			Raising the bar – ensure better protection for students by enforcing minimum quality standards in the private sector more rigorously
			Refocus external quality assurance for postgraduate education
			Adapt institutional arrangements for external quality assurance to implement the preceding recommendations
	1.6. Equity in higher education
		1.6.1. Main findings
			There is a challenging economic and social context for achieving educational equity
			Weaknesses in the quality and inclusiveness of upper secondary education constrain the further development of equity in higher education
			Higher education study opportunities for disadvantaged students are more numerous and diversified, but their quality and relevance raise equity concerns
			The responsibilities of institutions to offer academic and social support are insufficiently defined, and the support they provide is weakly targeted and variable
		1.6.2. Key recommendations
			Focus on improving upper secondary education to provide equitable access to higher education
			Ensure adequate supply, diversity, and sufficient minimum quality in higher education programmes
			Improve financial support for students
	1.7. Educational sectors: Specific challenges and opportunities
		1.7.1. Technical higher education in Mexico
			Many technical higher education institutions are small and poorly networked with other HEIs, while Institutes of Technology lack the flexibility to adapt their work to local circumstances
			Technical higher education is comparatively poorly funded, with large discrepancies in funding levels between institutions within the same subsystem
			Some institutions have very low proportions of full-time staff, while full-time staff in Institutes of Technology perform poorly in federal staff incentive programmes
			Technical subsystems serve many students from disadvantaged backgrounds, but some of the qualifications offered lack recognition in the labour market
			Current external quality assurance systems are not well adapted to the needs of all types of technical programmes, while there are specific challenges in developing work-based learning opportunities
			Key recommendations
			Increase cooperation among technical higher education institutions and between technical subsystems and universities
			Devolve greater responsibility to Institutes of Technology
			Implement a concerted package of measures to increase the capacity of technical institutions to provide high quality, relevant programmes
			Take specific steps to improve the profile of short-cycle programmes
		1.7.2. Teacher Education Colleges in Mexico – the normal schools
			Normal schools are subject to strong top-down control
			There is evidence of structural underfunding in the subsystem
			Many teaching staff lack high-level qualification and exposure to the wider academic community working on educational issues
			Enrolment in normal schools has fallen sharply and students come disproportionately from low-income backgrounds
			Significant concerns exist about the quality of programmes in normal schools – problems compounded by the small size of many institutions
			Key recommendations
			Take short-term measures to improve the financial conditions of public normal schools, while planning for the longer-term sustainability of the subsystem
			Promote networking between normal schools in each state, communication between the SEP and normal schools and better links to State Public Universities and the National Pedagogical University
			Enhance requirements for teaching staff in normal schools
			Improve monitoring and support for students from disadvantaged backgrounds
	References
Chapter 2.  Key features of higher education in Mexico
	2.1. The context for higher education in Mexico
		2.1.1. Mexico’s social and economic conditions: a challenging foundation for higher education
			Mexico has an economy marked by comparatively low productivity, the growth of which has been particularly sluggish, and disparities in growth across regions
			Employment in Mexico is concentrated in small firms that spend little on R&D, and many of the nation’s jobs - 4 in 10 - are in the agricultural and industrial sectors.
			Labour force participation is low, and many who are employed hold informal jobs
			Automation and new technologies will shape growth in employment
			Demographic change – lower fertility and increased life expectancy – will lead to an older population, and declining school-age cohorts
			Migration outflows exceed inflows
		2.1.2. Government and politics
			Republican foundations are strong, and strong multi-party competition has emerged
			Transparency, the rule of law, and violence are key challenges in public affairs
		2.1.3. School education
			Enrolment and attainment in schooling have increased, but the skills of secondary students are limited, many young people do not complete upper secondary education.
	2.2. Higher education in Mexico
		2.2.1. Expanding participation in Mexican higher education
			Higher education enrolment and attainment have greatly expanded
		2.2.2. The Landscape of higher education institutions
			Public authorities have created higher education institutions organised into many subsystems, the missions and profiles of which overlap
			Private higher education institutions are diverse, some offering selective and prestigious programmes, and others low cost, low status programmes
			Mexico’s higher education system focuses principally on bachelor-level education, and educates few students at either the doctoral and sub-bachelor degree levels.
		2.2.3. Financing Higher Education: How are Higher Education Institutions Resourced?
			Mexico invests a share of GDP in higher education near to the OECD average, and public spending has risen, though more slowly than enrolment growth
			The allocation of public funds to public higher education institutions is opaque, and does not follow a publicly stated methodology
		2.2.4. Human Resource in Higher Education
			Many higher education institutions have wide responsibility for setting human resource policies.
			The educational attainment of academic staff has modestly risen in recent years, but few work on a full-time basis.
		2.2.5. Degrees and Study Programmes
			Enrolments in Mexico led by business administration, social science and law, with engineering, manufacturing, and construction a second area focus, with comparatively few enrolments in arts and humanities
		2.2.6. Enrolment and Attainment
			There is rising participation in higher education, with a student population that is young, and a level of tertiary attainment among young adults typical of the region
			International mobility among students is low, but increasing
		2.2.7. Post-education outcomes
			Labour market outcomes for young higher education graduates (ages 25-34) are below the OECD average, and graduates often work in occupations categorised by national authorities as not requiring a higher education degree
	References
Chapter 3.  Governance, planning and resources
	3.1. Focus of this chapter
	3.2. Governance frameworks for higher education in Mexico
		3.2.1. Frameworks and governance bodies in higher education systems
		3.2.2. Strengths and challenges
			A complex and evolving system of federalism, lacking a clear legal division of responsibilities for higher education
			Despite clear political will in some cases, states lack the resources and capacity to play a strong role in higher education policy-making and funding
			An uneven pattern of intervention by public authorities between subsystems: from laissez-faire to micro-management
			A proliferation of higher education subsystems and administrative units hinders system-wide policy-making and processes
			A lack of effective coordination bodies, despite strong sector organisations
		3.2.3. Key recommendations
			In the medium term, reform the federal legislation governing the higher education system to define a clearer division of responsibilities
			Strengthen the capacity of states to play a strong role in coordinating and steering regional higher education systems that respond to regional needs
			Work towards a system of responsibly autonomous institutions
			Complete work to create essential system-wide frameworks and procedures, while simplifying federal administrative structures steering higher education policy
			Clarify the mandates and strengthen the capacity of coordination bodies for higher education at federal level and in each state.
	3.3. Higher education strategy in Mexico
		3.3.1. The role of strategy in higher education
		3.3.2. Strengths and challenges
			A tradition of national planning and consultative strategy-setting, but a lack of clarity about implementation activities and limited transparency in monitoring
			Despite recent improvements, incomplete data about the characteristics and performance of the higher education system still hinder policy-making
			Ongoing efforts to engage with the higher education sector across the country, but with uncertain results
			Considerable variation in the planning capacity between states and a lack of clarity about implementation and follow-up
		3.3.3. Key recommendations
			In the next iteration of the Sectoral Education Programme, include a dedicated section for higher education with fewer objectives, each linked to more precise action lines and indicative resource allocation.
			Develop a comprehensive and integrated information system for higher education
			Ensure state higher education programmes are complementary to the sectoral education programme and focus on issues where states can make a real impact
	3.4. Funding higher education in Mexico
		3.4.1. Key issues for funding higher education
		3.4.2. Strengths and challenges
			Public spending on higher education has grown, but more slowly than enrolments, resulting in falling spending per student
			A complex system of core funding to higher education institutions, lacking transparent allocation mechanisms
			Unjustified differences in funding per student exist between and within subsystems, with some subsystems systematically underfunded
			A well-established system of competitive and targeted funding, but programmes are fragmented, with overlapping objectives and complex application procedures
			Unpredictability in funding levels and programmes have hindered medium to long-term planning within institutions
		3.4.3. Key recommendations
			Ensure the federal budget allocated to higher education is proportionate to political goals and policy targets
			Establish a rational system for allocating public funding to federal and state higher education institutions, taking into account institutional missions and real costs
			Use the new funding model as a basis for correcting unjustified differences in institutional funding across the system
			Reform extraordinary funding programmes to focus exclusively on quality and equity-related projects that complement the core activities of HEIs
			Move to long-term budget planning
	References
Chapter 4.  Quality in higher education
	4.1. Focus of this chapter
	4.2. Mexico’s existing mechanisms for quality assurance
		4.2.1. Licensing Private Higher Education Programmes
		4.2.2. External programme evaluation and accreditation
		4.2.3. Institutional evaluation
		4.2.4. Quality assurance of postgraduate education
	4.3. Strengths and challenges of the current systems for external quality assurance
		4.3.1. SEP has undertaken reforms aimed at simplifying and updating the RVOE process for private providers, but shortcomings remain
			Participation in the RVOE process is likely to remain incomplete
			Permissive input requirements create a risk of poor educational quality
			Monitoring and enforcement are not robust
		4.3.2. Sound processes for external programme accreditation and evaluation exist, but they remain voluntary and are not appropriate for all sectors of higher education
			Established external accreditation and evaluation processes and an institutional commitment to quality in some universities.
			But the coverage of external evaluation and accreditation is incomplete, particularly in the private and professionally oriented public sectors
			Poor adaptation to the needs of certain institutional types and modes of provision, coupled with limited institutional capabilities
		4.3.3. Quality assurance policies have focused on programmes and not supported the development of institutional capabilities and responsibilities with respect to quality.
	4.4. Key recommendations
		4.4.1. Promote further quality improvements in strong institutions by increasing institutional responsibility for programme quality
		4.4.2. Expand external quality assurance in other higher education institutions, including through processes better tailored to professional programmes
		4.4.3. Raising the bar – ensure better protection for students by enforcing minimum quality standards in the private sector more rigorously
		4.4.4. Widen coverage of external quality assurance for postgraduate education
		4.4.5. Adapt institutional arrangements for external quality assurance to implement the preceding recommendations
	References
Chapter 5.  Equity
	5.1. Focus of this chapter
	5.2. Equitable access, participation and support: strengths and weaknesses of the Mexican higher education system
		5.2.1. A challenging economic and social context for achieving educational equity
			High income and wealth inequality in the population at large
			Significant and often marginalised indigenous populations
			Economic and educational inequalities related to skin colour
			Persistent gender disparities
			Substantial inequality in income across the regions of Mexico
		5.2.2. Challenges of quality and inclusion in secondary education constrain the further development of equity in higher education
			Quality challenges and inequality between schools throughout the school system
			Social and cultural factors and the quality of upper secondary provision affect completion of upper secondary education
			Government financial support programmes have had limited impact on increasing entry rates into tertiary education
		5.2.3. Opportunities for tertiary study are more numerous and diversified, but the quality and relevance of study opportunities for disadvantaged students raises equity concerns
			A significant expansion of supply has been achieved, but enrolment gains are smallest among the lowest income groups
			Diversification in educational programmes available, but concerns about the resourcing, quality and relevance of new provision
			New Types of Institutions
			Distance Education – Promise or Peril?
			Social stratification within the Mexican higher education system limits its capacity to promote equity
		5.2.4. Some support for learners exists, but responsibilities of institutions are insufficiently defined and support is provided inconsistently across the higher education system and lacks precise targeting
			Federal steering mechanisms to promote inclusion at institutional level
			Institutional pricing
			Student Financial Support
	5.3. Key recommendations
		5.3.1. Focus efforts on increasing quality in school education to promote equitable access to higher education
			Improve the quality of upper secondary education available to disadvantaged students, not just its duration
			Use performance-based funding to reward upper secondary institutions for achievement among disadvantaged students
		5.3.2. Ensure sufficiency of provision – adequate supply, diversity, and sufficient minimum quality
			Continue and expand efforts to improve the matching of student demand with enrolment opportunities
			Improve the quality of provision and quality assurance
			Collect better equity-relevant data and make these data easily accessible to the public
		5.3.3. Strengthen student support
			Give priority to the improvement of high-quality student support programmes in higher education institutions
			Specify in law or regulation student supports that HEIs must provide -- and will be held accountable for -- particularly for vulnerable populations such as students with disabilities
			Require, at a minimum, that all student support and extraordinary funding programmes offer a clear model of their logic – and that selected programmes demonstrate their impact
			Improve the targeting of maintenance scholarships (and related transportation benefit) by making it a fully federalised benefit
			Consider restoring lost purchasing power of Maintenance Scholarships – in combination with a fully federalised benefit - linking them to a consumer price index to maintain stable purchasing power
			Extend public scholarships to private institutions and link eligibility for such student financial assistance to participation in quality assurance
	References
Chapter 6.  Educational sectors: Specific challenges and opportunities
	6.1. Focus of this chapter
	6.2. Technical higher education in Mexico
		6.2.1. Introduction
		6.2.2. Strengths and challenges
			1. Governance
			2. Funding
			3. Staffing
			4. Coverage and equity
			5. Quality, relevance and innovation
		6.2.3. Key recommendations
			Promote cooperation between technical higher education institutions in each state and ensure Institutes of Technology have adequate flexibility to adapt to regional needs
			Ensure public funding provided per student is equitable and adequate across technical higher education and invest in infrastructure and equipment, where needed
			Devolve additional responsibility for staffing to institutions, maintaining strict transparency rules; review the need for additional full-time staff and implement internal performance review and incentive systems
			Take steps to increase the prestige and attractiveness of short-cycle programmes and ensure graduate tracking provides useful feedback to the technical subsystems
			Adapt accreditation procedures to fit all types of technical higher education and increase cooperation with technical higher education in other countries
	6.3. Teacher Education Colleges in Mexico
		6.3.1. Introduction
		6.3.2. Strengths and challenges
			1. Governance
			2. Funding
			3. Staffing
			4. Coverage and equity
			5. Quality, relevance and innovation
		6.3.3. Key recommendations
			Take short-term measures to improve the financial conditions of public normal schools, while planning for the longer-term sustainability of the subsystem
			Promote networking between normal schools in each state, communication between the SEP and normal schools and better links to State Public Universities and the National Pedagogical University
			Enhance requirements for teaching staff in normal schools
			Improve monitoring and support for students from disadvantaged backgrounds
	References
Annex A. Review team
Annex B. Schedule for review visit to Mexico