ࡱ> G bjbjَ ʂB=]  ZZZ8 tBX( !######$*RG-Z @ G B R(Z!nV !  :,8"Z!T% y  This document was elaborated within the framework of the programme Regional University Network on Governance and Management of Higher Education in Albania, Bosnia and Herzegovina, Croatia, FYROM and FRY funded mostly by the European Commision and impemented by UNESCO-CEPES ANALYSIS OF CURRENT STATE OF FINANCIAL MANAGEMENT OF UNIVERSITY OF SPLIT, CROATIA Ante Rozga, Ph.D. Nikaa Nikoli, Ph.D. University of Split, Croatia 1. THE CURRENT STATE OF FINANCIAL MANAGEMENT OF HIGHER EDUCATION IN CROATIA 1.1 The legal basis of public financing of higher education. Higher education in the Republic of Croatia is organised on the principles of academic self-government and the autonomy of the university, in accordance with the Constitution and The Bill on Institutions of Higher Education (further on: The Bill). Academic self-government includes: a) determining educational, scientific, artistic and vocational curricula, b) determining the regulations of study and student enrolment criteria, c) appointing of teaching staff and heads, d) determining the internal organisation of higher education and managing human resources and assets, e) self-management and freedom of association. The legal basis for financing higher education in Croatia for the present situation is The Bill on Institutions of Higher Education in force since 1996. The new legislation is underway but it is not clear when it is to be introduced. We do expect it to be proclaimed during 2003. Due to these reasons we will explaing existing model and later on will be explaining proposed new models together with our view. 1.2. Actual procedures for the distribution of funds in the higher education institutions. The existing model of financing higher education is about public institutions of higher education (state owned), but not the private ones. The income of institutions of higher education comes from two sources: a) budgetary funding, b) own sources, coming from enterpreneurial activities including tuition fees. STATE BUDGET FUNDING 1.2.1. THE WAY OF USING BUDGETARY RESOURCES The budgetary resources are aimed for: a) wages and salaries, b) costs of material used in the proces of higher education, c) the investment. Resources aimed under a) are distributed according to negotiated number of employees financed by the state. It is negotiated taking into account the volume of educational and research activities as well as applied science activities. Timetable and teaching and research positions of the academic staff is also taken into account. However, the institution of higher education could employ more staff then negotiated with The Ministry, but it is to be financed by its own activities. It should be stressed that The Ministry of Science and Technology does negotitate with all academic institutions separately, not with the universities as entities. It makes financing of higher education more complicated and requires much more administrative work. Resources aimed under b) are to be used to cover the running costs of the institutions according to estimated costs for the negotiated programme financed by the Ministry. In the situation when institution charges some tuition fees and has other sources of income, the sum under b) is lowered by 20% of these sources. The money 'saved' in this way is used for financing those institutions which do not have so much income coming from their own sources, due to various reasons. Resources aimed under c) should be used for investments (building new premises and maintaining the existing ones). It is distributed according to annual or long-term plan of investments in higher education. The plan is made by The Ministry. Part of the investment sum comes from enterpreneurial activities by the institutions. Budgetary funds for maintainance of the existing facilities are not specified ('lump sum') and are only the estimates of the real needs. 1.2.2. THE MAKING OF BUDGET Main subjects when deciding about budget are: The Ministry of Higher Education and Technology and The Financial Council. Financial Council consists of 11 members appointed from various institutions taking into account regional differences and scale of higher education in those regions. The Financial Council determines the criteria for the allocation of government budget funds to institutions of higher education. The Financial Council elaborates a budget proposal for institutions of higher education and passes resolutions on the allocation of budget funds to the institutions of higher education which perform public service on the basis of periodical evaluation carried out by the National Council and the ranking of the quality and efficacy of the institutions of higher education, as well as on the basis of the national special requirements for the education and training in certain professions and the requirements of the institutions of higher education. Within the existing legislation university budget is a sum of budgets of institutions of higher education which make up the university, plus budget for the rectorate. 1.2.3. SOURCES COMING FROM ENTREPRENEURIAL ACTIVITIES Types of own sources are: - tuition fees for undergraduate and postgraduate students, - tuition fees for life-learning students, - contracts from scientific and applied science research, - renting the facilities for various activities if they are in accordance with the function of the institution of higher education, - foundations, funds and donations. The Ministry, suggested by The Financial Council, determines tuition fees. The students who are not financed through budget pay these fees. Also, foreign students pay full amount of tuition fees. It means that the institution of higher education can enroll more students that negotiated with The Ministry depending on the capacity. The level of fees takes into account the costs of educational process and so is diversified according to the field of higher education. The highest level is for medicine and related studies, then technical and technological studies. The lowest level is for arts and humanities. It is also different whether student is full time or part-time, and also if he/she is repeating academic year. If the student who is paying tuition fee is performing very well, his/her tuition fee could be waived for the next academic year. Those students could get other grants provided by local authorities or enterprises. All together, if we analyse in depth these own sources of income we can conclude that these sources do come entirely from entrepreneurial activities but they are also state controlled, so we can not call them 'market forces'. We do not know if students are willing to pay more or less for particular institution of higher education depending on quality and reputation. This situation exists in other countries too, where students pay same tuition fees for the same type of educational institution. In USA it is entirely up to market and students pay different tuition fees on various institution of higher education. Also, student could get the grant to cover tuition fees from The Ministry of Science and Technology, from local government authorities, companies or other sources. For other activities, except for tuition fees, the institution could charge as much as it can, depending on supply and demand and also competition in those activities. 1.2.4. Distribution of own sources of income One part of the total income should be used for the development of facilities and premises, including literature, computer and other technical equipment and also for maintenance and investments. It is 40% of the income coming from tuition fees that should be used for above mentioned purposes and 60% from other entrepreneurial activities. The other part of the income is used to cover all other expenses coming from other activities. It includes fee contracts for the people outside the institution of higher education who participate in the process of higher education and other activities. 1.3. Characteristics of the public funds available for the higher education institutions. In the year 1998 the percentage of GDP used for higher educational purposes was 0.71, but in the year 2000. it was lowered to 0.61%. If we include funds for research activities, Croatian Academy of Arts and Science, National and University Library and Croatian Academic Research Network it sums up to 1.05% of GDP. This is not too much compared with OECD countries or transition countries. 1.4. An evaluation of the matching between public funds and the needs of higher education institutions 1.4.1. An existing situation Budgetary financing of higher education in Croatia is centralised at the Ministry of Science and Technology level. This kind of financing is not sufficient, nor stabile nor transparent. When allocating the resources, the state doesn't recognise quality and reputation of the institutions. The use of local funds and available funds coming from companies for higher education is minimal. When it comes to financing scientific and other research projects there is no cooperation between the ministries within the government even in the case when evident need for that exists. The criteria to get research grants from the government are very much influenced by the state authorities. Too many small-scale projects are financed through budget funds that it makes them less efficient, particularly regarding the use of facilities and scientific infrastructure. Sometimes, the state is only provider for funds necessary for scientific research, which is not enough, and so these projects are under financed. The existing scheme is particularly not adequate when regarding Bologna process of harmonisation in the process of higher education and the scheme 3+2+3. 1.4.2. What is expected from the proposed new higher education legislation The Draft of The Bill on Institutions of Higher Education pretends to improve various aspects of higher education system. It comprises activities both universities and research institutes which were separately treated in previous legislation. The emphasis has been switched from institutions of higher educations to universities who become central places where the science and education come together, mutually dependent. The consequences on financing come from the main goal of new legislation that is: functionally integrated university. Term functionally integrated university means unified approach in academic, research and financial issues. In other words, it means that institutions within the university who are (still !) legally independent must obey rules set up by the university. This is the process of paving the way for complete financial autonomy of the university. The Draft is proposing several sources of income: a) the state budget funds allotted to higher education and scientific research, b) local government budget, c) tuition fees and scholarships, d) foundations, funds and donations, e) funds gained through scientific and professional activities, f) other sources if they are in accordance with the function of the institution of higher education. The financing of universities, applied science universities and high schools, as it is stressed in the Draft, could be done only from those sources who would not endanger their independence and dignity as academic institutions and would not harm achievement of their main goals. It is particularly important when discussing income coming from entrepreneurial activities. 2. FINANCIAL MANAGEMENT OF THE UNIVERSITY OF SPLIT 2.1. Legal basis for the financial management of higher education in Croatia. The legal basis for the financial management of higher education is based on The Bill on Institutions of Higher Education as described in section 1.1. of this report, so it applies also to University of Split. University of Split consists of twelve institutions of higher education (faculties, academies of art, independent high schools) plus university library, catering and student union, completely independent from university and directly under the control of central government in Zagreb. It means that University of Split does exist only as a rectorate and only for some particular functions of university as it is meant in western coutries. These functions are usually for international relations, contacts with the state authorities etc. 2.2. The level of institutional autonomy in the area of financial management. There is a rather high autonomy in the area of financial management with certain limitations. These limitations concern the use of own sources (mostly tuition fees, research and other contracts). Tution fees should not be used for the salaries of teaching and administrative staff which are generally covered by the Ministry of Higher Education. Fees should be used for technical equipment, books and periodicals as well as for the maintaining the buildings. As it is previously described there are limited proportions of income that should be used for particular purposes. 2.3. Existing institutional structures and their links with other institutional and managerial bodies. The supreme body of the university is Senate, but without any real power regarding financial issues. Responsible persons for the financial management of institutions of higher education within the university are deans with vice-deans for financial and organisational management. Chief accountant is important only as a technical person, without any power regarding the allocation of financial funds. Its task is to check for the legal basis of financial management and it is usualy an expert in accounting and finance. It doesn't have any linkage with the Rector. The body which helps Dean in his decision is the Coucil, comprising all academic staff from reader to full professor and some representatives coming from lecturers and senior lecturers. Students are also represented in th Concil. The Chief accountant of the university is in relation with the rector but, as mentioned before, it is only the rectorate which is financed separately as all other institutions of higher education within the university. 2.4. The allocation of funds within the university: procedures and incentives All institutions of higher education negotiate directly with The Ministry of Science and Technology about the financial issues. When it comes to a number of students to be enrolled to the particular institution, their is some cooperation between members of the university, but usually it is on benevolent basis, it is not compulsory. The allocation of budgetary funds to particular institution of higher education is 'per head', which means that the existing number of academic staff is financed through budgetary funds. There is also a formula to calculate number of non-academic staff. The running costs are only estimated, it is allways lower than the actual costs, the rest coming from other activities. The more institution get from its own activities, the lower participation in costs comes from budget. That is not very incentive situation, it is passing burden of expenses from budget to institutions of higher education. 2.5. Institutional accountability : ways of achieving it. As the University of Split with all its members institutions is state established and state owned institution all financial issues are to be made public. Once a year the Dean of the institution of higher education does inform The Faculty Council about financial statements, income and expenditure, and also planned financial activities for the incoming year. The Ministry of Science and Technology does reserve the right to send their inspectors to check if the available funds have been used according to the current legislation. 2.6. Human resurces in the finance department: relationship with other departments of the university As the University of Split is fragmented into institution members, so are financial departments. There is no any link between financial department of the university and financial departments of institution members (faculties, academies of arts). Once a year financial statements of member institutions are united in one statements, thus making financial statement of the University of Split. 2.7. Funds for teaching and funds for research: procedures and distribution. Funds for teaching are separated from funds for research. Funds for research come almost completely from Ministry of Science and Technology which is not good because it doesn't create links with university research and companies. Sometimes this kind of reserach serve anly its own purpose, not to public utility. There is some research under way that is financed by big companies, e.g. pharmaceutical, but it should be on much larger scale. 2. 8. Extra-budgetary resources: their management, availability and uses. As mentioned in previous chapters of this report, extra-budgetary resources are used according to current legislation. It means that their use is stricly determined by The Ministry. The situation vary very much from institution to institution. Some faculties e.g. economics make 70% of their income from extra-budgetary resources, the others are completely dependent on budgetary funding. It is clearly seen from the table 5. in the annex the structure of the income of the university by resources. We can conclude that budgetary funding is still predominant, particularly during last two year because of huge state investment in the infrastructure at the University of Split. Extra-budgetary resorces have been used sometimes to increase salaries because it is a bigger effort to work with many more students than usual. So, it is some kind of incentive for the employees. The rest has been used for the purposes mentioned in previous chapters of this report. 3. Recommendations for improving the financial management in the higher education institutions Regarding budgetary financing there should be some news concerning private institutions of higher education. If these institutions satisfy university standards set up by The Ministry and National Council for Higher Education they could be included in budgetary funding. This is good news because there will be competition between the institutions for higher quality of education and research. Distribution of budgetary funds should also be changed. The budget proposal and its division between teaching and reserach activities of the university should be done by National Council for Higher Education taking into account suggestions made by The Council for Financing Scientific Research and Higher Education. Those bodies are nominated by The Croatian Government but using suggestions coming from academic institutions. There should be 'lump sum' or 'block budget' for financing particular university. When receiving 'lump sum' the university can autonomously decide about distribution of these resources according to adopted policy. Practicaly, it means financial autonomy of the university. With such an autonomy, university as a whole and each member of academic community become completely responsible for their own work. But to make it really efficient, before the application of new legislation, the relations between institutions of higher education who make up university must be thoroughly investigated. The complete new structure of the university should be established as the new way of financing higher education is a radical change to the existing situation. The Board of Governors of the university should decide on: - annual financial report, - investment and purchasing of equipment of higher value at the university, - giving consent for entering contracts for the amounts above those determined by the statute, - complaints and requests for the protection of rights, - other important administrative, financial and operational issues which are determined by the statute of the university. This is also some sort of compromise because The Ministry of Science and Technology did't decide to completely (and formally) abolish the autonomy of institutions within the university. They will be still existing as legal subjects and acting in their own name. They will be able to use own sources of income totally independent, leaving at least 5% of the income coming from tuition fees and entrepreneurial activities to the other members of the university. The usage of this resources is strictly limited for scientific purposes only, namely to cover costs of international seminars and conferences as well as books, periodicals, technical equipment, membership in professional associations and publishing. This is meant as some sort of solidarity among the university members. The rest of own resources income would be used to cover the other costs, except for educational purposes. These costs are again: publishing, scientific conferences, curricula development etc., but within the institution, not at the university level. It is clearly seen from the table 5. and figure 2. that the share of budget funding at University of Split has fallen from 74.2% in the year 1998 to 67.05% in the year 2001, the tendency to be continued in the nearest future. As a conclusion for this part of report, the budgetary funding would be united at university level, thus making functionally integrated university. The income coming from tuition fees and other entrepreneurial activities would be at disposal of the institution member, except from small portion of something like 5%. This is only a partial achievement of the reform of higher education, but The Ministry decided to go step by step, not to make lot of noise. We think it is mainly due to political reasons, because some institutions of higher education who earn lot of money from entrepreneurial activities threatened to go alone, without the university. Universities in Croatia, as it is situation now, are not capable to act within new legislation without radical changes regarding their staff and resources. The examination of the quality and efficacy of education, scientific research and professional work of an institution of higher education and its organisational units is carried out by the National Council on the basis of the following criteria, such as: - the ratio of the number of teaching staff and students, - the students scholastic ability and the time required to complete a course of studies, - the quality of premises and technical equipment, - the list of published papers, - the students assessment of the teachers work and level of satisfaction with the studies, - its reputation in public. The Financial Council determines the criteria for the allocation of government budget funds to institutions of higher education. The Financial Council elaborates a budget proposal for institutions of higher education and passes resolutions on the allocation of budget funds to the institutions of higher education which perform public service on the basis of periodical evaluation carried out by the National Council and the ranking of the quality and efficacy of the institutions of higher education, as well as on the basis of the national special requirements for the education and training in certain professions and the requirements of the institutions of higher education. The Ministry may entrust expert legal entities to carry out independent evaluations of the quality and efficacy of institutions of higher education, which perform public service. As the budgetary situation in Croatia worsens there should be much more emphasis on extra-budgetary resources. Namely, tuition fees should be reasonably higher than it is situation nowadays. The raising of tuition fees is a very sensitive issue in Croatia as it is in the rest of world, and thus not very popular political gesture. Tuition fees have not been changed since several years ago despite rise in expenses in order not to provoke political dissent among students and their relatives. It was done at the expense of institutions of higher education and it was substituted by the increase of the number of students enrolled in higher education. As the consequence, the quality of teaching becomes endangered. Some institutions are 'chasing' students to be enrolled to their particular courses and some are in panic they would not get enough students to survive in the future. In our opinion this situation is going to worsen because there will be less and less young people coming of university age. This is a consequence of severe demographic problems in Croatia. As for example, in the year 1979 there were 69,299 children born alive, but in the year 2001 there were only 40,993 born alive, drop of 40.85%, very significant indeed. As it appeared in the newspapers, The Ministry of Science and Education would like to increase the number of students enrolled from present 120,000 (estimate in 2002/2003 academic year) to 200,000 in the year 2010. We think it would be impossible to achieve, due to demographic situation. Now we have the situation that 91.36% secondary school leavers enter the university or applied science university (2001/2002 academic year), which is a very high percentage, even when regarding western standards. The percentage of the population aged 18 years who enter the higher education is about 68%, which is also very high. So we think there is no much room to increase the percentage of young people entering the higher education system, but there is much to be done to increase number of graduates. From table 2. it is clearly seen how low is the number of graduates. In the year 2001 only 13,810 people graduated at universities and applied science universities together. Last year at University of Split we had two students enrolled at the first year mathematics course and two at physics course at The Faculty of Science. When it comes to the way of financing particular institution the main key for the distribution should be the cost of studying according to the scientific field (medicine, science, engineering, technology, humanities and arts) instead of number of academic staff currently employed. With this change universities become more responsible for the efficient use of budgetary resources and thus the process of education more efficient and shortened. The length of study is very painful issue for Croatian universities, since it is much longer than in western universities. The consequence of existing situation is wasting the time and money, both by students and academic staff. There is very high dropout during studies, particularly after the first academic year. This is due to liberalised entrance to the university. Universities are stimulated to get more students enrolled because they can use the bulk of tuition fees for their own purposes. Thus, this change in financing the university would make the percentage of graduates much higher than it is now. The new way of financing requires big change in existing finance departments, both at university and institutions' levels. Finance department of the university should have many more employees, and at the same time financial departments of the institutions would have to lower their number of staff since the bulk of financial activities switches from institutions to university level. Maybe, functionally integrated university would need less non-academic staff thus making some people redundant. The university should be the employer for all members of staff, not the institution within the university. As for beginning of the reform process there should be established The Agency for Science and Higher Education with the initial fund of about 650,000 US$. The reform of higher education in Croatia as it is supposed by Bologna process would need more academic staff and more facilities available in the process of higher education. It has been estimated that there would be 20% more financial resources needed in the fifth year of implementation of Bologna process. As it is supposed to appoint supervisors for all students, it would be necessary to make students/teacher ratio much lower than it is now. Is is impossible to calculate this additional cost, since it would depend on university decision about number of students to be enrolled at particular course. There will be also great need for reeducation of many academics in order to achieve European standards in higher education. Partially, it will be financed through TEMPUS/CARDS programme, namely 'University Management' and 'Curriculum Development'. The other projects are 'Institution Building' aimed to strengthen the links between academia and non-academic sectors of civil society and 'Mobility' for the inclusion of Croatian institutions of higher education in the European network of institutions of higher education. ANNEX Statistical tables and figures illustrating the situation in higher education in Croatia and University of Split. Table 1. Students enrolled by level of education, at the beginning of school year: YearBasic education ISCED 1 & 2Secondary education ISCED 3Higher education ISCED 5PupilsTeachers PupilsTeachersStudentsTeaching staffStudent/teacher ratio1977/1978.509 98626 126178 138 9 90075 4205 08114,851978/1979.507 08426 025192 65012 39873 8825 08712,151979/1980.507 47426 235192 85212 82169 8585 04813,831980/1981.506 50326 622194 39513 38764 9665 43611,951981/1982.507 71627 085196 89813 47265 0895 52411,781982/1983.508 63827 431196 14813 45161 8075 71010,821983/1984.511 61827 181194 20713 01257 7225 49410,511984/1985.513 64226 821195 24412 60557 0405 749 9,921985/1986.520 57627 165189 94612 40355 8865 08111,001986/1987.522 41327 493192 92312 58760 0015 26011,401987/1988.520 68427 811194 96712 92362 9815 53411,381988/1989.514 43727 698200 17512 99065 2766 36010,261989/1990.503 12927 282205 86012 88569 0216 13211,261990/1991.431 58623 262187 21111 95870 7816 63310,671991/1992.415 75022 187173 72711 70568 7206 42510701992/1993.446 62123 873190 26913 45175 5146 37111,851993/1994.441 83724 067206 73014 88280 4106 14613,081994/1995.431 79524 194196 74015 26980 1855 89313,611995/1996.421 74224 003199 28315 34784 2086 07313,871996/1997.416 99025 192203 77216 64085 7526 03014,221997/1998.423 16526 199199 86316 94290 0216 25314,401998/1999.418 97126 116200 41617 83691 8746 74813,621999/2000.413 46826 820196 02318 43696 7987 56312,802000/2001.405 68227 147195 12019 325100 2977 70113,022001/2002.400 10027 502195 00019 718107 9117 62214,16 Figure 1. Students enrolled in higher education in Croatia from 1977. until 2001.  Figure 2. Student/teaching staff ratio in Croatia from 1977. until 2001.  Table 2. Students graduated from higher institutions of higher education (ISCED 5A) Professional study ISCED 5BUniversity study ISCED 5AYearTotalTechnical sciencesMedical sciencesBiotechnological sciencesSocial science, humanities and artsTotalNatural sciencesTechnical SciencesMedical sciencesBiotechnological scienceSocial science and humanitiesArts1982.6 0692 596422742 9777 6582811 6917983784 422881983.5 3822 309374732 6266 9722791 2276122524 506961984.6 5192 8944101093 1067 0142801 6364335234 0351071985.5 8772 2536741112 8396 3021921 4136553423 5811191986.4 8301 9044271522 3476 2432051 2867033513 599991987.4 5221 9243851632 0506 3842081 3067874873 4861101988.4 2431 8045551871 6976 2572231 4107325743 2141041989.3 7511 5754741531 5496 6372411 6477705883 2371541990.3 2841 3604081181 3986 4222231 5407436393 1451321991.3 0091 1333071181 4515 6711921 5965344822 7491181992.2 7831 0593541141 2565 0731781 3447474202 2741101993.2 9671 0713311171 4485 3082091 4506024392 4891191994.2 8521 0333241131 3825 5422531 4596274102 6921011995.3 2191 2813251251 4886 0793001 7986584392 7501341996.3 7821 6354831841 4807 6793711 8248295084 0121351997.3 6571 6523291591 5177 8034872 0397454753 9211361998.4 4191 9163911062 0068 8675052 0388574694 8281701999.4 4681 9744021171 9758 8475002 1428064884 7301812000.4 6261 904268832 3718 8844222 0657874644 9611852001.5 4322 000321883 0238 3783821 9436884524 689224 Table 3. Masters of science and masters specialists (ISCED 5) graduated: YearTotal numberWomen1997. 1998. 1999. 2000. 2001.571 568 686 679 676260 248 323 314 296 Table 4. Doctors of science (ISCED 6), promoted: YearTotal numberWomen1997. 1998. 1999. 2000. 2001.307 339 338 280 255115 134 158 131 125 Table 5. Income of the University of Split, by resource: YearTotal income, croatian kunasMinistry of Education (budgetary)Own sources (tuition fees, research grants)Other (donations etc.)1997. 1998. 1999. 2000. 2001.143 462 390 172 771 166 183 336 695 231 298 941 282 862 448... 128 216 691 137 132 444 170 307 528 189 664 299... 40 194 263 38 535 501 45 653 453 70 920 764... 4 360 212 7 668 750 15 337 960 22 277 385 Figure 2. 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