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In a move little noticed outside the province, Nova Scotia Premier Darrell Dexter appointed a former bank executive, Tim O'Neill, to conduct a wide-ranging review of the province's university system and the pressures facing it.  It's certainly the right time for such a review - but will it ask the difficult questions that the province needs to ask itself about higher education?

Provincial reviews of post-secondary education are nothing new, of course; in the last few years, Ontario, British Columbia, Saskatchewan, Quebec and New Brunswick have all gone through similar exercises.  What makes the Nova Scotia review interesting is that it is the first to be called since the recession began.  Plans that emerged from reviews in other provinces are being knocked for a serious loop by the worsening fiscal crisis.  In this case, Nova Scotia is broke, and - better still - knows it.  This review will thus presumably be much better anchored in the fiscal realities of the coming decade than were earlier reviews.

Much of the substance of these reviews can be forecast well in advance.  Institutional funding will no doubt be front and centre, with universities asking for more money despite the rather obvious fact that there isn't really any money to spare at the moment.  Students will ask for more reductions in tuition or - more justifiably - an upgrade in the provincial system of student aid, which, despite recent improvements, still has to be counted as one of the weakest in North America.  And finally, of course, there will be the issue of institutional amalgamations.   

Amalgamation is a perennial issue in Nova Scotia, which is famous for its plethora of institutions.  Basically, the argument for amalgamation runs along the lines of "there are too many small Liberal Arts institutions; they can't all be viable, so let's close a few."  This argument is seductive, but largely wrong.  One of the great things about small teaching institutions is that they are cheap.  Once a university dispenses with the pretence that it is attempting to be a serious player in the research business, overhead drops dramatically.   Dalhousie apart, this is basically the situation at all of Nova Scotia's universities. 

Sure, reducing the number of these small institutions would get rid of a million or two in salaries as administrations were merged - but unit costs for students won't change significantly, and there's the added cost of transport to be considered if the institution being amalgamated is one of those outside Metro Halifax.  For all the aggravation involved in closing a small-town institution like Cape Breton University, there's precious little financial benefit.

Nova Scotia's problem isn't really that it's got too many small teaching-focused institutions.  If anything, these are a strength for the province as they stand out in the bland Canadian marketplace and offer something quite different than the mega-campuses of central and western Canada.  No, the real dilemma facing Nova Scotia is whether or not it is going to remain an active player in research.  And this entails figuring out what on earth to do with Dalhousie University.

Because of its long history, its medical school and the diversity of its graduate programs, Dalhousie has often punched above its weight in terms of its research profile. But research is an increasingly expensive business and becoming harder to hide the fact that Dalhousie no longer can count itself among the top ten or even fifteen research institutions in the country.  A decade ago, it was still within touching distance of universities like Guelph and Queen's in terms of research intensity; now it can only watch with some envy as schools like the University of Saskatchewan zoom past it.

It's not that Dalhousie is doing anything specifically wrong, of course.  The problem is that it simply doesn't have the scale to compete as far as research is concerned because it has too few students.

This may, I know, sound somewhat odd.  Don't really great undergraduate universities like Harvard and Yale have small enrolments?  Well, yes, but they are private institutions with massive endowments and the ability to charge what they like for tuition.  Look around the world and you'll find few examples of great, small public research universities.  The reason for this is simple: governments never fund research overhead properly.  In order to do it well, public universities have to turn their undergraduates into a profit centre, and "skim" a little bit of the money destined for undergraduates toward research purposes.  As research becomes more expensive, the only way public universities can compete is to increase their undergraduate enrolment and so increase the skim - which is why all of Canada's most prominent research universities are so large. 

Dalhousie's inability to increase its enrolment is therefore a major impediment to its attempt to maintain even a foothold in Canada's top-tier universities.  In turn, this threatens any hope Nova Scotia has of using its higher education system as an actual spur to create a more innovative economy. 

O'Neill will soon realize - if he hasn't already - that a continuation of the muddling-through approach of the last decade will likely doom Dalhousie (and with it any semblance of a provincial innovation strategy) to irrelevance by 2020.  Injecting Dalhousie with a very large dose of money specifically for the purpose of improving research capacity could forestall the problem.  However, finding provincial politicians prepared to explicitly favour one institution over another - even for perfectly good policy reasons - won't be an easy task. 

So what's left?  If scale is the issue then maybe a more radical solution is required.  The most obvious way to build scale and critical mass is to amalgamate all of the Metro area's main universities.  Together, Mount Saint Vincent, Saint Mary's, Dalhousie and the University of King's College would be a much more formidable institution than they are apart.  The result would be a new "University of Halifax" big enough to compete nationally and perhaps even internationally.

Objections are inevitable.  The Catholic bigwigs from Saint Mary's and Mount Saint Vincent might be out-of-joint about the prospect of having to work with the Protestants from Dalhousie and King's (a sentiment that might be returned) - and alumni associations can be counted upon to make noise as well.  And some students might not appreciate the sudden loss of the "small undergraduate college experience."  But it would be an especially pitiful government that allowed parochial considerations such as these to take precedence over a serious effort to secure Nova Scotia's place in the economy of the 21st century.

Are there pitfalls to such an approach?  Sure.  Institutional mergers can fail, after all, and the cultural challenges in merging those four institutions would be significant.  But Nova Scotia is a small, poor province, whose tax base was on the absolute margin of being able to support a serious research institution even before the recession hit.  The status quo isn't really an option.  A University of Halifax deserves serious consideration as an alternative.

 

Tagged with provincial, scotia, amalgamation, review, nova, halifax |

Comments

Alex
Interesting insights.
If I were to put on my entrepreneurial cap for a second – I might suggest a second path. Decide what areas of research to play in. Dalhousie will never be the U of T in terms of size but it can be more successful if it decides where it wants to concentrate its research.
This would have to be a zero-sum game and would require more than lip service to the affected non-focus faculties.
This is a classic response for a mid-sized firm getting hammered in the marketplace by a larger rival. Decide what you want to be when you grow up.
Of course I realize that in the real world on academic politics – there is simply no way that this will occur!

Comment by Steve - January 31, 2010 at 3:29 PM

A more serious and direct problem is about 30-40 years of slack administration at Dalhousie. Dollar for dollar many of the so-called 'teaching' universities in the maritimes delivery better research value than does Dalhousie. Many of the core faculty at Dalhousie (with honourable exceptions) are simply complacent under-achievers. The per faculty funding, publication and impact in strong departments at several of the 'teaching' universities is higher than at the comparable Dalhousie departments.

I also challenge the blanket statement that size is necessary for research strength. I have worked at both large and small universities, and the fraction of complacent deadwood is generally higher at larger institutions, where there are more crevices to hide.

Comment by Douglas Campbell - February 1, 2010 at 10:47 AM

As a student of St. Francis Xavier University in Antigonish, I'm disappointed at the lack of coverage of my school. While we only have 4,000 students (which must be nothing compared to what the author finds acceptable in Toronto), we are still one of the better undergrads in the country (according to MacLean's).

I'm unwilling to accept your ground-breaking assessment of "universities in Nova Scotia" because if you had wanted to present an accurate portrayal of the state of universities in NS, you would have mentioned that St. FX is currently two weeks away from legal strike activity by our professors.

Furthermore, I would ask you to not trivialize the religious divide between schools. The reason that the Catholics have their own universities is because the Protestants had denied us entry. The heavily Catholic nature of St. Francis Xavier is one of its selling points to Catholic students (and one of the sticking points for students insulted at that this school was originally a seminary).

So, please, before you publish more articles anthropologizing over Nova Scotia, you would do well to at least mention the names of its rural universities. The province isn't a plaything for consultants from big cities. "Surprising insights" indeed.

Comment by Sophia - February 1, 2010 at 11:09 AM

If they have not already move to the Waterloo model where Faculty own their research in terms of commercialization and eventually with success brings back bigger donations and a cluster of companies to help build the university Blackberry/rim was a spinoff of university research and it has worked for all involved

Comment by Neil - February 1, 2010 at 11:26 AM

This article would be much more credible if Alex would provide actual details about metrics of success on a per capita basis. Amount of research dollars/publication is but one of many examples that could be cited. Of course that would have to be normalized for research discipline etc, but would still be better than his blanket statements. For example, Alex states that the University of Saskatchewan is 'zooming past' Dalhousie. What does that really mean? What are the causal factors involved? Can we learn something from this differential success other than standing by and feigning surprise? Are we witnessing some ephemeral phenomenon or are there intrinsic reasons for this pattern? Some actual research and analysis here would be far more effective than banal statements that barely disguise the author's obvious bias toward amalgamation. See for example an enlightening piece on the value of research dollars in Canadian Universities.
http://www.universityaffairs.ca/the-wrong-way-to-fund-university-research.aspx

Comment by Cory Bishop - February 1, 2010 at 5:21 PM

In terms of amalgamation, Dalhousie already has ‘absorbed’ the former “Technical University of NS” (TUNS…formerly the NS Technical College or NSTC).

What this country really needs are more career focused ‘polytechnic’ style institutions that can grant vocational degrees in fields such as technology/engineering, nursing, and business. I know that this was proposed by New Brunswick and the university faculty went bananas; never-the-less it is still the right path to pursue.

Perhaps instead of simply amalgamating these small liberal arts colleges the province should also consider a formal amalgamation with the NS Community College system. In jurisdictions such as California and Quebec there is a direct linkage between the ‘colleges’ and the university systems as transfer credits and pathways are pre-determined. Why can’t we figure this out in Canada?

Comment by Technologist - February 1, 2010 at 7:50 PM

@Cory - fair points, all. For data on sponsored research funding and changes over time, I tend to use Research Infosource's "Top 50 Research Universities". They don't normalize for field of study, but when comparing changes over time at universities that's not such a big deal because the mix of fields of studies at universities doesn't change much on a year-by-year basis.

Can others learn from Saskatchewan? I would hope so, because they are by far the most successful medium-sized university at gaining new funding in the last decade. I think what they've managed to accomplish deserves a lot more attention than it has to date.

I respect the points Dr. Currie made in that University Affairs article, but I am not sure how germane they are to this discussion. To me, the issue is whether or not there is a minimum operating budget below which an institution starts to encounter serious difficulties in acting like a research university. I think there is; Dr. Currie is silent on the subject.

If per-student funding in Nova Scotia were at the kinds of levels you see in, say, Norway or somewhere like that, then this wouldn't be an issue. But that's not going to happen, so that leaves a pretty serious problem in the medium-term. Amalgamation seems to me to be the most obvious potential solution to this problem, but I accept that there could be others.

What would your alternatives be?

Comment by Alex Usher - February 1, 2010 at 9:11 PM

Increasing the number of undergrads so as to skim their funding for reasearch is probably short sighted given the importance of alumni funding in creating research Universities such as Harvard or Yale. There is no thought given here of the intellectual property rights policy of Dalhousie University compared to (as a best example) Waterloo university as noted by Neil. I am a SMU grad and would never donate to an amalgamated institution.

Comment by Albertan - February 1, 2010 at 10:07 PM

It's necessary to point out that King's is already only nominally independent from Dal - it grants its own degrees, but it's closer to the (newer!) Trinity College at UofT. I'm not sure much is to be gained by a merger with SMU or the Mount, the latter of which tends to be very specialized and, in any case, is a long way from the other campuses. If the problem is money, then that problem shall remain until there is more of it. I also don't quite get the comparison to UofS; Dal has many more grad students and they represent a higher proportion of the student population.

Anyway, just the thoughts of an Acadia grad and current Dal med student.

Comment by Josh - February 1, 2010 at 10:52 PM

I am not sure if the author's argument makes sense. Amalgamation of small teaching institutions in Nova Scotia would save only a little bit of money, but amalgamation of Mt. St. Vincent, St. Mary's, King's and Dalhousie would save a lot? Not if the faculty to student ration remained the same.

As well, exactly why does the author think that the best way to help Nova Scotia's economy is to make Dalhousie more research intensive? He makes a vague reference to 'innovation'. I would have thought that a well-educated workforce, which is produced by the sort emphasis on teaching which is the forte of Nova Scotian institutions would have a greater overall effect.

And should the destiny of a university be decided simply with an eye to provincial economics in the first place?

Nova Scotia has a very distinctive and strong set of institutions, which fulfil their mandate of teaching undergraduates very well, and also do a good job of research. Amalgamation of any of them, outside Halifax or within, would only harm this system.

It has been discussed for over a hundred years, and never done. Why? Because it's a bad idea.

Comment by Gregory MacIsaac - February 2, 2010 at 1:10 AM

@Gregory. To be clear, my argument isn't that merging Halifax universities saves money - I doubt very much that it would. What it would do would create an institution with sufficient critical mass to maintain areas of serious research strength in a wide number of disciplines.

The relationship between universities and local growth rates is a much debated subject. Some, like yourself, suggest it's all about having a broad mass of human capital. Others - see the release today from the Conference Board, for instance - suggest that it's much more to do with economic spin-offs from advanced research and the presence of many "Highly Qualified Personnel", which usually means PhDs. I won't pretend the debate is settled, but most of the big research organizations in this areas (e.g. the OECD) seem to lean towards the latter interpretation.

Of course, that doesn't mean that Nova Scotia *has* to follow an innovation agenda. It could opt out of that rat race and maybe that's best. But that would have implications for what kinds of jobs the local labour market could produce over the next couple of decades. It would make it much harder to produce a strategy of diversification away from natural resources and commodities, for one thing.

Comment by Alex Usher - February 2, 2010 at 10:14 AM

Great article.
As a former lecturer at Harvard Law School, I can tell you that Harvard is not entirely focused on teaching. It is focused on education as a product for students to consume. At HLS, measures such as free coffee service in the mornings and free feminine products in the toilets made students happy, while I watched the library purchasing budget get cut and more books pushed into the depository to make space for offices. The recent loss of one third of the endowment has justified salary and faculty hire freezes, cuts of lower-level staff; though the endowment remains at $25.7 million. There has been recent controversy at the Medical School concerning corporate influence of faculty. The private institution model is not ideal for a number of reasons, to be sure, and Canadians need to be creative and embrace the necessary pragmatism to ensure that our public model of higher education is preserved.

PS - As a graduate of Dalhousie Law School, I would prefer to keep the name of the 'mega' uni under "Dalhousie"...

Comment by Sharanjeet Parmar - February 2, 2010 at 12:34 PM

The argument is clear: "Bigger is better, more competitive..." However, this argument - if valid - can be pushed even further in Canadian context more generally. Let's recall a recent big-five controversy. Canada is not competitive enough on the international academic scene, big universities do not have enough money for research, etc. Probably even our big 5 are not big enough to be able to compete internationally? If bigger-is-better kind of argument is valid, we could probably amalgamate UofT, York and Reyrson creating a University of Toronto. On a provincial scale (Nova Scotia's population is seven times smaller than Ontario's one), it would be an equivalent of a University of Halifax (still seven times smaller than an amalgamated University of Toronto). I doubt that anybody in Toronto would consider this proposal seriously. And the reason is simple: bigger is not necessarily better. Canadian higher education in general needs a review, not only Nova Scotia's one. We are not competitive enough internationally, period.

Comment by Egor Tsedryk - February 4, 2010 at 10:52 AM

I think that the recession and amalgamation are only parts of the overall argument as to why Nova Scotia universities are under financial pressure. There is no government oversight as to how universities spend tax dollars and student tuition dollars. The mis-management of funds and signatures to collective agreements that ensure the unsustainability of the organizations needs to be addressed.

Nova Scotia has had the highest tuition rates in the country for years....why? My money is on (literally) the exorbitantly high salaries of faculty members compared to central and western Canada. StFX is on the verge of a faculty strike where the argument is parity with the other univerisities in the province or UPEI... But what if the other local universities have agreed to overpay faculty and are being bled dry and on the brink of bankruptcy because of it? What of the argument of parity with western or newfoundland universities? Oh wait...they pay faculty LESS....and tuition is LOWER. Just my opinion, of course.

Comment by Astudent Atx - February 4, 2010 at 11:34 AM

As a Dalhousie grad from the 1990s and professor at a major research university in Canada now, it has been interesting to see Dalhousie literally plummet as a research university. This school has really lived off it's reputation for years (and its beautiful campus which makes it appear Ivy league when it is not). I know many professors there that like to believe Dalhousie stands with Queens, Western, McGill, etc, when in fact it is more in line with Saskatchewan, Guelph, Victoria and Manitoba. I am interested to see if this review can provide the cure to what ails the school. I am skeptical.

Comment by Donald - February 6, 2010 at 8:48 AM

I think NS should absolutely embrace the "innovation agenda", but I don't think institutional mergers would be particularly helpful. SMU and the Mount don't really do the same things as Dal, nor do they have remotely similar research profiles (no medicine, no engineering, no significant computer science).

Astudent Atx,
NS faculty salaries are absolutely not high (much less exorbitantly high) compared to salaries in central and western Canada. This is demonstrably false. NS does have some of the lowest public funding for universities in the country, however, and that is reflected in tuition costs.

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