5. System performance in terms of student success
This chapter discusses the profile of the student population in Brandenburg. It examines factors such as enrolment and study fields, as well as the age and gender of students in higher education. It also looks at the growing number of international students. Measures of success in the Brandenburg system are compared to other German states, especially completion rates and the time taken to complete a qualification. This chapter also discusses the system of financial aid that supports higher education students, examining the impact of federal financial assistance and scholarships from merit foundations.
Germany’s student numbers have been increasing; enrolments in Brandenburg’s HEIs remain stable
The number of students in higher education varies greatly between the Western and Eastern states. Since 2000, the number of students in higher education in Germany’s Western states has increased by 64%. The East German states have been recovering from migration losses after reunification and, thus, the increase in student numbers was lower (46%). The number of students in Brandenburg increased from 33 000 in 2000 to 50 360 in the winter semester 2020/21. However, most of that increase occurred before 2015; over the last five years, enrolments have been stable or declining.
While Brandenburg has 3% of the German population, it accounts for only 1.7% of all students (the fourth lowest share) in German higher education. In light of the high median age of Brandenburg’s population, its relatively low contribution to the overall student population in Germany is not surprising (Statistisches Bundesamt, 2020[1]).
While student numbers have been relatively stable over the last decade, study fields have been shifting
Source: Statistisches Bundesamt (2021[2]), Hochschulstatistik, https://www.destatis.de/DE/Themen/Gesellschaft-Umwelt/Bildung-Forschung-Kultur/Hochschulen/Methoden/Erlaeuterungen/hochschulen.html (accessed on 15 March 2021).
While student numbers in Brandenburg have remained almost stable over the last ten years, there has been a significant shift in study fields (Figure 5.1). Student numbers have dropped in mathematics and natural sciences by 43%, in humanities by 16% and in arts by 8%. Over the same period, numbers have grown in engineering by 37%, in agriculture, forestry, nutrition and veterinary by 28% and in law, business and social sciences by 8%.
The largest study fields in Germany are law, business, social sciences (37% of all students); engineering (27%), humanities (11%) and mathematics and natural sciences (11%). The overall picture for Brandenburg is similar, but there is a higher share of Brandenburg students in these fields: law, business and social sciences (39%), humanities (19%); sports (2.1%) and agriculture, forestry, nutrition, veterinary (3.6%). Conversely, engineering (22%), mathematics and natural sciences (10%) and human medicine and health sciences (1.3%) are comparatively lower.
As in most German federal states and OECD countries, gender differences between fields of study are common in Brandenburg’s higher education system. Female students make up a higher share than male students in law, business, social sciences (43% vs. 35%), humanities (24% vs 13%) and agriculture, forestry, nutrition, veterinary (4.3% vs 2.8%). Enrolments in engineering (32% male vs. 12% female) and sports (2.9% male vs. 1.4% female) are more popular among men than women.
The universities of applied sciences (UAS) have a stronger focus in some fields of studies than universities. For example, 80% of all students study business, social sciences and engineering at Brandenburg’s UAS (compared to 54%, including law studies, at universities). Certain other fields are less well represented at UAS such as humanities (3.1% vs. 25% at universities), mathematics and natural sciences (0.9% vs. 13% at universities). On the other hand, agriculture, forestry and nutrition accounts for 9.5% of students at UAS and only 1.2% at universities.
Brandenburg has an above-average share of students pursuing graduate and doctoral degrees
Compared to the German average, a higher percentage of Brandenburg’s students pursue a master’s (24% vs. 19%) or a doctoral degree (5.8% vs. 4.1%). The share of master’s students at universities is significantly higher than at UAS (32%1 vs. 20%). However, both are above the German average (27% at universities and 15% at UAS). Similar to the German average, almost 9% of students are in a teaching programme; of those, two-thirds are in a bachelor’s programme and one-third in a master’s programme.
Brandenburg’s students are predominantly female and older, but there are differences by HEI type
In Brandenburg, female students are in the majority (52%; third highest share among states). This is especially the case at universities (54%) compared to 49% of all German students and 51% at German universities. They are, however, in the minority at UAS (45%). The gender profile of Brandenburg’s UAS more closely resembles that of institutions in the West (44% women) than in the East German states (49%). This probably results from the strong technical-engineering orientation of most study programmes at UAS in Brandenburg.2
Brandenburg’s higher education students are older than the average German student: more than half (51%) of all students in Brandenburg are over 25 years of age and 22% are over 30 compared to 45% and 17% in Germany, respectively. Interestingly, UAS have a higher share of younger students than universities (42% aged 20-25 at UAS vs. 39%). Students 35 years and older, who often study part-time or with a more flexible agenda, are also more highly represented in UAS than in universities (10% vs. 8%).
Brandenburg has a growing number of international students
From 2000 onwards, the number of international students in higher education has increased in Brandenburg from 2 700 to 8 700. In 2019/20, their share increased from 9.2% to 18%, which makes Brandenburg’s higher education system the second most international after Berlin. There is a particularly high share of foreign students in Brandenburg’s universities (20%). The share of international students at UAS (14%) is also above average.
Most international students in Brandenburg study science, technology, engineering or mathematics (STEM) and business fields, which are in demand by the state labour market. This largely compensates for declining student demand from Brandenburg and the rest of Germany in these fields of study at some of the local higher education institutions (HEIs). International students constitute one-third of the student body at the Brandenburg University of Technology Cottbus-Senftenberg and one-fourth at the Europa University Viadrina.
Timely completion and the risk of dropping out are a concern
Brandenburg’s students take longer to complete their studies than those in other German states and some may not graduate at all (Figure 5.2). In 2018, eight years after enrolling as a student for the first time (2010 cohort), only 72% of Brandenburg’s students had completed their studies (compared to 78% on average, in Germany). This was the third lowest rate in Germany. The trend has been similar in most cohorts. Only the 2006 cohort had performed close to the German average of 78% (completing 12 years after enrolment). Some calculations of dropout rates from Germany, based on another methodological approach3, indicate that slightly more than one-quarter of students drop out of higher education (Heublein, U. and R. Schmelzer, 2018[3]).
Students give both personal and professional reasons for non-completion. Some students, for example, may never have intended to complete. They enrolled only to benefit from their student status or else to acquire a particular skill.
Source: Statistisches Bundesamt (2020[4]), Bildung und Kultur: Erfolgsquoten, Berechnung für die Studienanfängerjahrgänge 2006 bis 2010, Statistisches Bundesamt.
The share of students who take a leave from their studies is relatively high (20% vs. 16%, in Germany) according to the 21. Sozialerhebung (21st Social Survey of German students) (Middendorff, E. et al., 2017[5]) (Middendorff, E. et al., 2017[6]). On average, one in four students in Brandenburg takes longer than two semesters, compared to one in five across Germany. However, there are differences between female (1.8 semesters) and male students (2.5 semesters). Almost twice as many university students as students at UAS take a leave from education. The patterns differ also by socio-economic background. Disadvantaged students tend to take shorter leaves than those with high socio-economic background and for different reasons.
The rationale for taking a leave from studies ranges from personal to professional reasons. Health and financial problems and finding employment are among the major reasons for interrupting their studies. In contrast to the rest of Germany, however, relatively few students from Brandenburg declare taking a leave for an internship opportunity or a stay abroad. In addition, more than one-third of Brandenburg’s leavers4 (36%) do so questioning the purpose of their studies – a much higher rate than the German average (23%) (Schirmer, H., 2017[7]). The latter result, however, represents largely the views of students in humanities and social sciences, as it refers predominantly to responses from the University of Potsdam and not the whole higher education sector in Brandenburg.
The system’s relative flexibility allows students to move easily between programmes and HEIs. Socio-economic background plays a role, too: 38% of students from a non-academic household and 27% of students from high socio-economic background switch between programmes or institutions. Again, many more university students use their right to switch a programme. Students usually switch to another programme within their field of study.
Many of Brandenburg’s students come from educated households, but financing their studies remains challenging
The share of students whose parents have a higher education is slightly higher in Brandenburg (53%) than the German average (48%). However, relatively fewer students in Brandenburg are financially supported by their parents (79% vs. 86%) and the average monthly payments are lower (EUR 483 in Brandenburg vs. EUR 541 in Germany). Moreover, around 70% of students work during their studies in both Brandenburg and the rest of Germany. However, on average, 68% of Brandenburg’s students use their earnings to finance their studies compared to only 61% in Germany (Table 5.1).
Not surprisingly, the highest study-related expenses are for housing. Potsdam ranks as the most expensive city in the Eastern German states and has the seventh highest employment rate in Germany among students to cover their living costs. The lack of affordable housing in Potsdam presents an important challenge for all students. However, it is more difficult for international students because of discrimination in the housing market (Apolinarski and Brandt, 2018[8]). By contrast, all other HEI locations in Brandenburg offer more affordable living space. Around 18% of students in Brandenburg live in on-campus student accommodation/dormitory facilities (12% in Germany) (Middendorff, E. et al., 2017[5]) (Middendorff, E. et al., 2017[6]).
Federal financial assistance is available, but not many students are eligible
Student financial support in Germany is a federal government responsibility. The major financial aid comes from Bundesausbildungsförderungsgesetz – BAföG (Federal Training and Education Assistance Act). German students (and foreign students who have long-term prospects of remaining in Germany5) who meet the scheme’s age limits6 are eligible to apply for financial assistance. The assistance duration corresponds to the regular period of the study programme. The amount of the assistance depends on the student’s own income and financial means, as well as those of his or her parents and domestic partner. Half of the support takes the form of a grant, while the other is an interest-free state loan totalling no more than EUR 10 000. This loan must be repaid in instalments after completion of regular study. Since 2016/17, students in higher education not living with their parents may receive up to EUR 735 per month. Where applicable, they may receive a child-care supplement of EUR 130 per month for each child (Kultusministerkonferenz, 2019[9]).
Brandenburg has a high proportion of older students and many students take longer to complete their studies. Only around 10 000 students (20%) received BAföG in 2019, which is the German average. Almost half of Brandenburg’s beneficiaries receive full funding. The average monthly payment to Brandenburg’s students of EUR 551 is the third-highest after Hamburg and Berlin. In light of high housing costs, Potsdam is ranked the seventh most expensive study location in Germany according to (Middendorff, E. et al., 2017[5]) (Middendorff, E. et al., 2017[6]); the BAföG alone does not appear sufficient to cover student living expenses in that city. Students from low socio-economic backgrounds are in an especially difficult position: 41% in Brandenburg (vs. only 16% in Germany) do not qualify for BAföG because they have been enrolled longer than the regular study time of their programme (Table 5.2).
Around 65% of Brandenburg’s students and 68% of German students overall do not qualify for assistance due to the relatively high income of their parents or domestic partner (Table 5.2). Yet 72% of Brandenburg’s students would prefer being financially independent from their families (Table 5.1).
The support system is supplemented through Bildungskreditprogramm (Educational Credit Programme). This programme is offered by the federal government in conjunction with Kreditanstalt für Wiederaufbau – KfW (Reconstruction Loan Corporation) and Bundesverwaltungsamt – BVA (Federal Office of Administration), which can support students in an advanced stage of their education. This loan scheme can be used to fund exceptional expenses not covered by the Federal Training Assistance Act7 (Kultusministerkonferenz, 2019[9]).
As noted in Chapter 3, the federal assistance for continuing education and training (Aufstiegsfortbildungsförderungsgesetz, AFBG) was initially conceived to finance the skills development of craftsmen and other vocationally trained workers. With its most recent 2016 amendment, AFBG can cover some types of continuing education and training courses at HEIs. Specifically, the study must not be eligible for support under BAföG or Sozialgesetzbuch – SGB (Social Security Code) and cannot be for an academic degree. Unlike the BAföG scheme, AFBG financial aid does not depend on the student’s age and is not based on parents’ income.
Scholarships from merit foundations offer another funding option
Gifted and high-achieving students can be supported by a grant from the 13 foundations for the promotion of young talent supported by the federal state. The largest of these groups is Studienstiftung des deutschen Volkes (German National Merit Foundation) and the Deutschlandstipendien. Around 1% of holders of these awards are from Brandenburg. The remaining organisations mirror the various religious, political, business or union-based organisations in Germany and support Brandenburg’s students to various degrees (Table 5.3).
On completion of a first degree, students may also receive scholarships to support further studies in line with the Postgraduate Assistance Acts. Begabtenförderungswerke (foundations for gifted students) also provide grants to enable students with a first degree to study for a doctorate. Gifted people with professional experience who want to study after several years of professional activity may apply for “upgrading” scholarships via Stiftung Begabtenförderung berufliche Bildung gGmbH – SBB (Vocational Education and Training Promotion Foundation for Gifted Young People). For 2008-21, less than 1% of all beneficiaries of that scheme has been studying at Brandenburg’s HEIs. As noted in Chapter 3, SBB also provides scholarships to support continuing education measures for young people in employment. These youth must have completed a recognised course of vocational education and training or one of the health sector professions governed by federal law. They must also be younger than 25 when they start the programme (Continued Training Scholarship).
The German Academic Exchange Service (Deutscher Akademischer Austauschdienst (DAAD)) offers grants for foreign students and up-and-coming academics and scientists. These grants support studies or further education of limited duration at a German HEI. Alongside the DAAD, some Länder also have special funds for foreign students at the local institutions of higher education.
Information on student financial aid options for higher education seems to be fragmented and not offered by all actors involved in career and study orientation in Brandenburg
Studentenwerke (two student service organisations in Brandenburg) are the major information and guidance points of contact for student financing in Brandenburg, including on BAföG applications. HEIs, their Netzwerk Studienorientierung (Student Orientation Network) and Präsenzstellen (presence centres) also advise prospective students on the cost of study and funding but not necessarily on the BAföG application process. The employment agency refers school students to relevant websites and agencies but does not provide targeted guidance. Secondary schools in Brandenburg are the major providers of career and study orientation in Brandenburg. However, they do not provide advice on funding options for higher education.
A recent project, funded by European Social Fund (ESF) and the Ministerium für Wissenschaft, Forschung und Kultur – MWFK (Ministry of Science, Research and Culture) aims to provide more structured information about student financing options, including scholarships. This project provides an online overview of options for prospective students and study and career counsellors (Technische Hochschule Wildau, 2018[11]).
The amount of time that students take to complete their degree has implications both for them and the economy. Students who complete within the regular time can contribute to the labour market earlier. This provides employers with greater access to the skills they need to support innovation. Taking longer than expected increases the risk of dropping out of higher education without a qualification. This, in turn, heightens the risk of being left behind as the economy changes. Non-completion also raises efficiency concerns as it can represent a waste of financial and human resources in the state higher education system.
Increase student preparedness for higher education
Several factors explain why Brandenburg’s students do not complete their studies in the prescribed period. Some students may not have the skills to succeed in the chosen programme or may not receive enough support from their HEI to help them succeed. In addition, transfer pathways and credit recognition make it relatively easy to switch programmes or HEIs; many students in Brandenburg do so.
HEIs have successfully implemented measures to orient and prepare students for studies
Brandenburg’s HEIs have successfully implemented a number of measures to orient and prepare students for studies. These include self-assessment, student laboratories and junior studies, projects that appeal to special groups (e.g. women for STEM), colleges or college-like programmes (Box 5.1). These initiatives are often funded by MWFK or the ESF.
Colleges
Colleges are university preparation programmes, designed to help new students bridge the gap between secondary school and higher education. Colleges were initially set up at BTU Cottbus-Senftenberg, funded by ESF funds. The HNE Eberswalde has a “math clinic” accompanying the course and a one-week “college week” to prepare students for studies in the wood technology department. It hopes in this way to expand access to candidates from disadvantaged backgrounds and those coming to higher education from the workforce, as well as to immigrants. The FH Potsdam and the TH Brandenburg also established college-like structures but closed them when ESF funding expired.
In 2017, the BTU had a successful evaluation. Overall, the college was found to have met its objectives. The findings of the evaluation are summarised below:
The college represents an appropriate and well-established answer to problems arising from demographic and social change (especially the increasing diversity of students).
Thanks to the high level of commitment of university management, it has been possible to anchor the structure sustainably within the university and thus create an essential prerequisite for success.
In 2018, the Stifterverband für die Deutsche Wissenschaft, a German organisation seeking to address challenges in higher education, science and research, marked it Hochschulperle (a “university pearl”) i.e. an innovative and exemplary project at an HEI (Stifterverband, n.d.[12]).
Junior study courses (Juniorstudium) and student labs
TH Wildau, BTU and the University of Potsdam provide junior study courses that allow students to attend lectures and collect European Credit Transfer and Accumulation System points while still at school. In addition, the three HEIs offer student labs in several technical and science fields targeting students from various age groups (Schülerlabor-Atlas, n.d.[13]). The Hasso Plattner Institute (HPI) at the University of Potsdam provides special support to students who are enthusiastic about computer science and mathematics (Hasso Plattner Institute, n.d.[14]). For an entire school year, the working groups (grades 7/8, 9/10 and upper grades) meet every two weeks on Tuesday afternoon. Under the umbrella of its Youth academy, the HPI combines further offers for students and teachers, including, for example, IT camps, workshops and project days for school classes or information events on its range of courses. Nachhaltig studieren (Studying sustainability and in a sustainable way) at the University for Sustainable Development Eberswalde is also a work camp with aims to give insights into courses, life on campus and professional perspectives; the camps are funded by the ESF (HNEE, n.d.[15]).
STEM-related measures
Most public HEIs have developed orientation measures with a special focus on science, technology, engineering and mathematics (STEM). Most HEIs offer self-assessment tests to help candidates better assess their preparedness for a STEM degree (Netzwerk Studienorientierung Brandenburg, n.d.[16]). As feedback, students receive a recommendation as to whether they need a study preparation course and, if so, which one would be the best fit. TH Wildau’s MINT-Orientierungsexpress (STEM Orientation Express) uses senior female students to tutor and support women starting their studies in STEM. It is further developing the programme “TH MINT+”, which provides an introduction and orientation to STEM courses (Technische Hochschule Wildau, n.d.[17]).
Sources: Stifterverband (n.d.[12]), Hochschulperle, Stifterverband für die Deutsche Wissenschaft, www.stifterverband.org/hochschulperle; Schülerlabor-Atlas (n.d.[13]), Schülerlabore in Brandenburg, www.schuelerlabor-atlas.de/schuelerlabore/in/Brandenburg; Hasso Plattner Institute (n.d.[14]), Youth academy, https://hpi.de/en/studies/before-your-studies/youth-academy.html; HNEE (n.d.[15]), Hochschule – Offene Hochschule – Future Camp Workcamps, Hochschule für nachhaltige Entwicklung Eberswalde, https://hnee.de/de/Hochschule/Offene-Hochschule/Future-Camp-Workcamps/Dein-Workcamp-Dein-Studium-Deine-ZukunftMit-den-HNEE-Workcamps-erfolgreich-ins-Studium-starten-K5642.html; Netzwerk Studienorientierung Brandenburg (n.d.[16]), Mediatek der Online Angebote, https://studieren-in-brandenburg.de/angebote/weitere-online-angebote-zur-studienorientierung/; Technische Hochschule Wildau (n.d.[17]), TH Mint +, www.th-wildau.de/hochschule/zentrale-einrichtungen/zentrum-fuer-qualitaetsentwicklung/th-mint/.
The state programme ESiSt has attracted many applications from international candidates, but its effectiveness is not clear yet
In 2017, the state government set up the Erfolgreicher Studieneinstieg für internationale Studierende in Brandenburg (EsiSt) (Successful Entrance to Studies for International Students) network. It seeks to help facilitate access to higher education for international students, including refugees, without a higher education entrance qualification recognised in Germany and/or who do not have the German language skills to take up studies. Its goal is to strengthen the loyalty of international students to Brandenburg’s HEIs, especially in more peripheral regions of the state. The HEIs design, implement and execute the programme in co-ordination with the ESiSt network. There are dedicated state funds for this initiative. With this programme, the state government has gone beyond the resolution of the Standing Conference from May 2016 on “Access and admission to higher education for refugees” (Box 5.2).
Refugees who wish to study in Germany can access a wide range of support. Bundesministerium für Bildung und Forschung (Federal Ministry of Education and Research) provides higher education institutions (HEIs) with up to EUR 100 million over four years through Deutscher Akademischer Austauschdienst (German Academic Exchange Service).
The package of measures consists of three elements to help applicants:
Refugees can take academic and scholastic aptitude tests through TestAS. The Office for International University Applications (uni-assist) can evaluate specialist language proficiency and verify education certificates.
Studienkollegs and subject-related courses at HEIs prepare candidates for entry into specific fields of study.
Students in teacher training offer support through buddy programmes and language training.
In December 2015, the Länder agreed on a joint procedure if applicants cannot provide complete evidence of a higher education entrance qualification obtained in their home country because of their refugee status.
In addition, in view of the influx of refugees, the Standing Conference of the Ministers of Education and Cultural Affairs agreed, in May 2016, on “Access and admission to higher education for refugees – possibilities for reducing the costs of enrolment”. This draws on Länder regulations that enable the reduction of public fees and charges for attending an HEI.
Source: Kultusministerkonferenz (2019[9]), The Education System in the Federal Republic of Germany – A description of the responsibilities, structures and developments in education, Kultusministerkonferenz.
While the success of the programme is still unclear, it has attracted relatively high interest from prospective students. In 2019, more than 1 000 candidates applied for the language and specialist course programmes carried out as part of ESiSt. Three-quarters had a valid entrance qualification certificate but lacked the German language level required for their studies. Meanwhile, one-quarter had a foreign school leaving certificate that did not correspond to the German qualification. Only 328 candidates enrolled and 134 completed the programme successfully. There are still no data on the transition rate to higher education, but initial feedback shows that most successful participants studied at one of Brandenburg’s HEIs; others moved on to higher education in another federal state. An evaluation of the ESiSt programme for international students is envisaged for 2023.
Support for students to complete their study programmes
Taking leave may suggest that students are not well prepared. It may also result from logistical difficulties (e.g. the need to balance commitments to study and employment, coupled with financial pressures and long commuting times). In addition, it may signal quality issues in learning and teaching. Completion rates in Brandenburg’s higher education system are low with a completion rate of just above 70% eight years after starting. In addition, the share of Brandenburg students who take leave from their studies is higher than the German average, particularly among university students.
Counselling for financial problems and balancing commitments to study and employment
Various counselling services and structures are available at Brandenburg’s HEIs and the Studentenwerke, and it appears that students make relatively good use of them (Figure 5.3). Difficulty with concentration and depression – the two most pressing issues identified by the Sozialerhebung (Middendorff, E. et al., 2017[5]) (Middendorff, E. et al., 2017[6]) – seem well covered by the counselling offer. However, the visibility and scope of services should be examined. There are few services for many other pressing problems: time management, combining studies and work, personal finance, couple problems, study completion, organising studies and learning problems, among others.
Note: Problem fields are in a descending order for Brandenburg’s students. For instance, “Concentration difficulties” is the most prevalent problem for which Brandenburg’s students report the need for counselling. By contrast, “Change of field of study” is the least prevalent problem field.
Sources: Middendorff et al. (2017[5]), Die wirtschaftliche und soziale Lage der Studierenden in Deutschland 2016. 21. Sozialerhebung des Deutschen Studentenwerks, durchgeführt vom Deutschen Zentrum für Hochschul- und Wissenschaftsforschung, Bundesministerium für Bildung und Forschung; Middendorff et al. (2017[6]), Die wirtschaftliche und soziale Lage der Studierenden in Deutschland 2016. 21.Sozialerhebung des Deutschen Studentenwerks – durchgeführt vom DXHW. Randauszählung zur 21. Sozialerhebung für deutsche und bildungsinländische Studierende für Brandenburg, Bundesministerium für Bildung und Forschung.
Brandenburg’s Studentenwerke have noticed an increased need for psychological counselling in view of the COVID-19 pandemic. This particularly affects international students who may struggle to get help because of language and insurance barriers. In the group of students with special circumstances (students with disabilities/chronic illnesses, single parents with children), existing problems have also worsened. Studentenwerke met increased requests for advice by setting up additional appointments and offering advice via telephone and video conference.
HEIs’ applications for funding in the last ESF round highlighted the need to make available advisory structures more visible and transparent for the various target groups. Within the 2021-27 funding period, HEIs will focus on offering better targeted support to first-generation students, students from a migrant background and international students. The experience of the Austrian University of Graz (see Box 5.3), which offers individual consultation and counselling to disadvantaged students and helps them develop social networks, could serve as a good example.
Students’ long commuting time
The relatively long distance between living and studying locations and long commute time of students at Brandenburg’s HEIs may be another factor leading to students dropping out or changing their HEI. Most of Brandenburg’s students (59% vs. 16% of Berlin’s students and 39% in Germany, on average) do not live near their study location, they commute 46 minutes in one direction on average (vs. 40 minutes in Berlin and 33 minutes in Germany), and 28% (vs. 11% in Germany) need more than an hour to get to their HEI from home, mainly via public transportation (57% vs. 41% in Germany) (Middendorff, E. et al., 2017[5]) (Middendorff, E. et al., 2017[6]). Maintaining a hybrid teaching approach (as was done during the COVID-19-related HEI closures) could reduce the need to attend class in person. This might help students with family and professional commitments at their living location to complete their studies. Others, by contrast, might get motivated to move to their study location if they are better aware of its advantages. For instance, the General Students Committee of the EUV Frankfurt/Oder is running the Zieh nach Frankfurt (“Relocate to Frankfurt”) initiative. This informs students of all the advantages related to living and studying in Frankfurt/Oder. The low cost for rental accommodation, proximity to nature and modern facilities on campus are some of the benefits students can enjoy at Brandenburg’s HEI sites.
Leaving higher education for a job
Leaving higher education can affect a non-completer’s career prospects. Leaving higher education for a job may not be a critical issue for non-completers immediately. However, as employers increasingly demand advanced skills, lack of qualifications may impede non-completers from progressing in their careers. In Austria, informal agreements between job-out students and their employers provide offers of individualised learning formats in support for study completion (see Box 5.3). This is a potential solution for some cases but might be difficult to implement institution- or system-wide.
Only one-quarter of students in full-time bachelor’s programmes complete their study within the within the typically allocated three (four) years in Austria. In response, the government has implemented several measures to improve completion rates.
Performance agreements exist between Das Bundesministerium für Bildung, Wissenschaft und Forschung (Federal Ministry of Education, Science and Research) and public universities. They include indicators related to student study progression, such as the number of “examination-active students” (i.e. those obtained at least 16 European Credit Transfer and Accumulation System credits per year), and the number of graduates, instead of a focus on student enrolment. In addition, the agreements consider Studierbarkeit (“studyability”) of programmes. For example, whether programme design allows students with different needs to graduate within a normal timeframe. Universities have been working to improve Studierbarkeit.
The National Strategy on the Social Dimension in Higher Education also includes the improvement of academic success as one of the three targets, as well as more inclusive access to higher education (see Box 4.9). It outlines several academic and non-academic support measures, such as the provision of preparatory and bridging courses before enrolment, courses on academic writing or “learn how to learn” after enrolment, tutoring, mentoring and buddy systems.
In addition, the strategy discusses further developing Studieneingangs- und Orientierungsphase (STEOP) (Introduction and Orientation Phase) of degree programmes. This phase is a legal requirement in the first year of most bachelor’s programmes. The strategy seeks to examine whether some programmes could develop the STEOP into a general module that allows students to select their majors upon completion of the general module.
Moreover, given the high share of employed students in higher education, several support measures make higher education more compatible with work. No part-time higher education programmes are available in Austria. However, the universities of applied sciences offer study programmes for employed students in the evenings and on weekends. In addition, employed students can take up to 12 months of educational leave and receive compensation. The Austrian Economic Chamber and the Chamber of Labour also offer information on the topic of studying and working.
Source: BMBWF (2017[18]), Nationale Strategie zur sozialen Dimension in der Hochschulbildung, Vienna: Bundesministerium für Bildung, Wissenschaft und Forschung.
The rigid system of federal student financial assistance
The multiple pathways for entry into the state-wide higher education system provide the job-outs with some opportunities to return to higher education later in life. However, the relatively rigid system of federal student financial assistance (BMBF, n.d.[19]), BAföG – available only to full-time students younger than 30 for bachelor’s degrees and younger than 35 for master’s degrees and dependent on parents’ income – may represent a hurdle. The analysis above suggests that financial problems present a barrier to completion for some of Brandenburg’s students. They tend to be older, and hence more likely in a job and/or caring for minor children and elderly parents than the average German student.
Some European countries require their HEIs to enter into study contracts so they can monitor students’ progress and ensure timely intervention; yet, again BAföG emerges as a hurdle. For these contracts to be effective, their purpose and reporting mechanisms should be clear to both HEIs and students and be linked to financial assistance. For instance, the Flemish Community has a study contract between HEIs and students that outlines how many European Credit Transfer and Accumulation System (ECTS) credits the student aims to complete during the semester and links student loan entitlements to achievement of this target. BAföG ties eligibility to the standard completion time of the student’s programme. As a result, students who make slow progress may lose entitlement towards the end of their studies. However, limits to eligibility and delay of consequences for poor performance until the end of the programme blunt the effectiveness of BAföG as a performance incentive.
In addition, the differences in targeting and entitlements between AFBG and BAföG raise questions about the alignment of the two schemes and whether the application procedures are user-friendly and efficient.
Box 5.4 describes Norway’s State Educational Loan Fund as a counterexample of a single provider of student financial assistance for all education levels and target groups.
Norwegian students are entitled to loans and grants from the State Educational Loan Fund. Students who have been accepted by a university, university college or other post-secondary education institution and fulfil certain basic criteria have a right to educational support.
The basic support is meant to cover living costs and study material. The amounts are universal for all students who are eligible for financial support. Students can apply for an additional loan to cover tuition fees. Students may receive loans and grants for up to eight years. They may have a one-year delay in completing the education without losing their right to support. There is an upper age limit of 65 years but no other age-specific rules.
Basic support is initially given as a loan. However, 40% of the loan may be converted to a grant for students who do not live at home with their parents. To receive the maximum grant, students have to pass all their examinations and not have income or assets exceeding certain limits.
Additional loans are available for students 30 years or older and for students with children. Additional grants are also available for students on maternity leave or with children, and for those who become ill or have a disability. The size of the grant depends on the income of the student and the income of the spouse or cohabitant.
Financial support is also given for study abroad for Norwegian citizens and certain foreign citizens.* Degree students abroad must study full-time to be eligible for financial support. Norwegian students abroad can, in addition to basic support, receive tuition support and support for travel expenses. Both tuition support and support for travel expenses are paid partly as grants and partly as loans.
Students must repay their loans when they complete their education or when they are no longer entitled to receive support. The repayment period is normally 20 years with the first payment about seven months after graduation. No interest is calculated or paid during the years of study. Interest is calculated only from the first day of the month following graduation. Interest is also calculated if the student interrupts his/her education or is no longer entitled to financial support. The government sets the interest rate for loans, but it is normally close to the private interest rate.
The State Educational Loan Fund has schemes and arrangements for loan remission and postponement of payment of interest rates. Any borrower may postpone repayments for up to 36 months during the entire repayment period. However, interest will still be calculated during the period of deferred payment. To be granted relief from paying interest, the borrower must have special circumstances, such as low income, unemployment, illness, childbirth or caring for small children. Also, the borrower's total income needs to be below certain limits. A borrower entitled to interest exemption may also be granted deferred payment for more than 36 months.
In some cases, all or part of the student's loan may be cancelled. This applies if the graduate lives and works in certain parts of Northern Norway and for some kinds of teacher education. All, or part of the loan, may also be cancelled if illness or injury prevents the graduate from working (the student would become eligible for a disability pension from the National Insurance Scheme). Debt is also cancelled on the death of the debtor. Foreign students from developing countries under the quota system are not expected to pay back their student loans if they return to their country of origin after studies in Norway.
Note: *This applies to foreign citizens of a country in the European Economic Area or European Free Trade Association who has accrued rights in Norway and foreign citizens with a permanent right of residence.
Source: OECD (2018[20]), Higher Education in Norway: Labour Market Relevance and Outcomes, OECD Publishing Paris, https://doi.org/10.1787/9789264301757-en.
Surveying students
A number of countries survey students as part of a suite of quality indicators for learning and teaching in higher education (Box 5.5). Student engagement surveys provide indicators on effective learning and teaching practices but also campus environment. The American example in Box 5.5 is designed to produce information that HEIs can use to identify areas of poor process and help them manage the quality of learning. Studierendenbefragung in Germany covers some important aspects such as campus environment, experience with work-based learning, stays abroad and leaves of absence. However, it does not include questions about academic challenge, learning with peers, teaching methods, and experiences with faculty. The framework contracts between MWFK and Brandenburg’s HEIs envisage the collection and provision of some of these data. MWFK could manage a state-wide survey on student engagement with data provided to HEIs to feed into their quality improvement work.
Student engagement surveys can provide valuable information to support institutions’ quality assessments and planning. These surveys ask students about their behaviour and approaches to learning, and about the learning and teaching practices in higher education and the support provided by institutions.
The National Survey of Student Engagement (NSSE) in the United States, for instance, seeks detailed information from both first-year and senior students in four thematic areas:
academic challenge, e.g. higher-order learning, reflective and integrative learning, learning strategies, quantitative reasoning;
learning with peers, e.g. collaborative learning and discussions with diverse others;
experiences with faculty, e.g. student-faculty interaction and effective teaching practices;
campus environment, e.g. quality of interactions and supportive environment.
Responses provide institutions and higher education agencies with detailed information about students and higher education institutions (HEIs). This information is useful to HEIs as they seek to improve learning, teaching and overall quality. Several universities have publicly documented their actions to improve quality in the wake of their NSSE results. Many of these actions are provided to NSSE for dissemination to other HEIs.
In 2018, around 500 American HEIs participated in NSSE. It has also been administered in HEIs in other OECD countries, such as Canada, Mexico and the United Kingdom. In addition, Ireland developed the Irish Survey of Student Engagement based on the NSSE to gain a better understanding of its students and higher education system.
Source: OECD (2018[20]), Higher Education in Norway: Labour Market Relevance and Outcomes, OECD Publishing Paris, https://doi.org/10.1787/9789264301757-en.
Public funding to HEIs
Brandenburg has adjusted its performance funding model to reward HEIs for the number of graduates (Chapter 3) but does not evaluate whether this measure has affected completion. Following Austria’s example, Brandenburg’s funding model could include an indicator related to student study progression. For example, it could measure the number of “examination-active students” (i.e. those who obtained at least 16 ECTS credits per year) – if data are available – along with the number of graduates (see Box 5.3). The state government also needs to assess the institutional model to ensure it increases in line with student numbers, enabling HEIs to maintain capability and quality as they grow.
Policy recommendations
Study offerings
Maintain opportunities for students – especially those who are working – to tailor their studies to their learning preferences by, for instance, offering more flexibility in teaching and learning formats (particularly building on the pandemic experience to offer more teaching in hybrid models, which combine virtual and in-person classes, and to use blended learning).
Non-financial support and information
Enhance peer support programmes at HEIs to provide individual advice to disadvantaged students during their studies and help them develop a network at the HEI.
Take steps to increase the visibility of the information and counselling offer at HEIs and consider potentially offering these services from a single office.
Provide information to students about life on campus and in the city where HEI sites are located to motivate some to relocate.
Use the framework contracts with HEIs to collect data on student engagement, such as academic challenge, learning with peers, teaching methods, and experiences with faculty. A survey on student engagement could be managed state-wide by MWFK, with the results provided to HEIs to feed into their quality improvement work.
Financial support
The Brandenburg state government (and MWFK in particular) should advocate for a comprehensive, principle-based review of student financial aid systems, in particular to assess alignment of the federal assistance for continuing education and training (Aufstiegsfortbildungsförderungsgesetz, AFBG) and the BAföG schemes in light of the newly adopted Federal Strategy for Lifelong Learning, and to ensure that rules for their use are transparent, and that application procedures are user-friendly and efficient.
Public funding to HEIs
Consider including an indicator related to student study progression rates (such as the number of “examination-active students” based on obtained European Credit Transfer and Accumulation System credits, for example) or qualification completion rates along with the number of graduates in the performance funding model.
Assess the institutional funding model to ensure it appropriately increases in line with student numbers, enabling HEIs to maintain capability and quality as they grow (e.g. through hiring new teaching staff with increasing student numbers).
References
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Notes
← 1. For comparability between universities and UAS, the figure of 32% for master’s degrees in universities excludes enrolments in teaching degrees, which are only offered as a university programme in Brandenburg.
← 2. Preliminary results for 2020/21 indicate a particularly strong increase in female students at Brandenburg’s UAS (5.5 % vs. 0.7% for universities).
← 3. The approach is based on the two elements: derivation of academic success (or failure) from the structure of the final exams passed in an examination year; and the resulting compilation of a corresponding group of new students from different years of the beginning of the course.
← 4. The numbers in this paragraph refer to the following HEIs (University of Potsdam, FH Potsdam, Film University, TH Wildau and TH Brandenburg) and not the whole of Brandenburg’s higher education sector.
← 5. Students who are not German but who hold a settlement permit or have a prospect for permanent residency under the EU Freedom of Movement Law are also eligible to apply for the federal government’s BAföG financial assistance scheme.
← 6. To be eligible for funding under the BAföG, students must have started their higher education by 30 years of age. For master’s study courses, the commencement age limit is 35 years.
← 7. Borrowing under this scheme is only open to students under the age of 36 years and before the end of the 12th semester of study. Those restrictions exclude an important share of Brandenburg’s student population. The loan accrues interest as soon as it is paid out. However, interest is automatically deferred until repayment commences.