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Chapter 24

Strategic Planning and Distance

Education

Santosh Panda

24.1 INTRODUCTION

As is widely reported and argued, educational institutions are inherently differentfrom business organisations. Traditionally, they have preserved their academic iden-tity through graduate teaching, disciplinary research, and collegial decision-making. Forsome time, educational institutions have been facing pressures to reform. These pressures

are mainly from, but are not confined to, two quarters:

1. As a consequence of policies to widen access and promote lifelong learning,flexible and blended modes of learning are coming to occupy a sizeable chunkof educational space. This is also transforming policy and management.

2. Technological developments coupled with globalisation and continuing profes-sional development needs (especially niche markets) necessitate adoption of neweducational technologies. These developments demand new strategies of planningand management.

Haughey (2003) submits that the recent developments affecting postsecondary insti-tutions require a redefinition of academic work life (p. 56), which includes re-

engineering, restructuring, and transforming (though she underlines the need forholistic planning, to which we shall return towards the end of this chapter). Dis-tance/open/flexible/online/blended learning are part of this redefinition and have beenat the forefront of this transformation. In the first instance, though, such new teaching-learning systems require the dynamics of strategic planning.

24.2 STRATEGIC PLANNING

The definition of planning is somewhat difficult, in terms of confining its descriptionto one framework. The interpretation of planning includes

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478 Santosh Panda

future thinking, to plan action in advance; controlling the future, to act on the plan; and decision-making, todetermine in advance actions, resources, alternatives and the

best alternative.

(Mintzberg, 1994b, pp. 78)

Mintzberg further emphasises that Planning may be so elusive because its proponentshave been more concerned with promoting vague ideals than achieving viable positions,more concerned with what planning might be than what it actually became (pp. 67).

The concept of strategy, associated with scientific planning, originated from militaryapplications, where operations involved coherent actions designed by the strategist andnot known to the enemy (Whipp, 1998). The arrival of strategic planning for businessdates back to the 1960s, when corporate houses adopted strategies to further empowertheir competitiveness (Mintzberg, 1994a). At this time, higher education institutionsglobally started experiencing dwindling public subsidy and increasing institutional costs,and therefore planning long the lines of strategic planning within the business communitybecame important, to expand the student base, contain unit cost, and enhance the insti-tutional competitive niche. Strategic planning as a structured management disciplineand practice (Dorris et al., 2002, p. 6) was considered a rational tool for systematicinstitutional advancement by institutional leaders. The academies started to be viewed asacademic enterprises. The seminal work of Keller (1983) on academic strategy had themost significant influence on higher education institutions to move towards mission andvision, environmental scanning, situational analysis, goal setting, strategy formulation,strategy implementation, feedback loop, and other features of strategic planning.

The meaning of strategy is very clear: the pattern or plan that integrates an organisa-tions major goals, policies and action sequences into a cohesive whole (Quinn, 1980,p. 7). This cohesive whole puts the organisation in a competitive advantage against itscompetitors or similar providers.

Strategic planning is a systematic, disciplined, and data-based decision-making process inwhich internal and external contexts are analysed, based on which resource commitmentis exercised to conform to pre-stipulated mission and vision, so that the organisationsstrengths and opportunities are optimised, and it surpasses its weaknesses and threats.If the mission is what one is and what one stands for, the vision refers to what onewants to achieve in the coming years, and strategic planning underlines how to achieve it(Kilfoil, 2003, p. 14). Strategic planning may be cyclic, take place only for the initiativesof transformation and innovation, be used to solve specific problems, and augment theparticular area of institutional strengths and take advantage of its opportunities. Suchplanning has many benefits, all of which may not necessarily be achievable:

promotion of strategic thinking and action; enhancement of institutional preparedness and responsiveness; improvement of decision making; enhancement of institutional performance; and facilitation of working together with clear roles to achieve organisational goals.

(Bryson, 1995, p. 7)


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Strategic Planning and Distance Education 479

Evaluation

Scanning

Evaluation Forecasting

Monitoring

Goal setting

Implementing

Figure 24.1: The Process of Strategic Planning

The process of strategic planning (Figure 24.1) proceeds with environmental scanning,through evaluation of issues, forecasting, goal setting, implementation, and to the endprocess of monitoring as a cycle (Renfro and Morrison, 1984, quoted in Morrisonet al., 1984).

Strategic planning is described as the process of determining the alignment of the insti-tution with the external environment. It is the response to environmental changes. Itis a decision-making process based on analysis of internal and external environments,with accurate resource deployment based on maximising strengths and opportunities,and minimising weaknesses and threats. These must be compatible with the institutionalvision and mission. As compared with long-range planning which strengthens internalstrengths over a period of time to optimise preparedness for the future, strategic planningstrategises the present, based on the prediction of future developments and opportunities.

Within education, strategic planning has emerged in response to market-driven pro-gramme development and delivery, and concerns of cost-efficiency. SWOT analysis (forinternal strengths and weaknesses, and external opportunities and threats) (Figure 24.2)is an important component of strategic planning, and environmental scanning and focuson the strategic niche are core to this exercise.

Internalstrengths Internalweaknesses

Externalopportunities

Externalthreats

Figure 24.2: SWOT Analysis


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480 Santosh Panda

Process(present strategies)

Output(performance)

Input(resources)

Figure 24.3: Input-ProcessOutput Linkage

An input (resources)process (present strategies)output (performance) analysis (inter-nal to the environment) (Figure 24.3) is also conducted on the external environmentforces and trends, competitors and collaborators; and key resources are determined. Themission, vision, and strategies are then interlinked.

The strategic positioning of the institution to best predict the future needs to be combinedwith looking into the institutional history to create the future therefore, such planningwould emphasise the process over the product (Lorenzo, 1993).

The process of strategic planning has matured in recent years, especially during the

1990s. Organisations are gradually introducing flexibility, dynamism, imagination, andinventiveness into their strategic planning and implementation. Strategic thinking hascome to greater focus a synthesis involving intuition and creativity (Mintzberg, 1994b).The distinction by Loewen (1999) is worth consideration (Table 24.1).

Given this distinction, it is not surprising that organisations are gradually replacingstrategic planning with strategic management that is the gelling of strategic thoughtand action with strategic planning.

Table 24.1: Strategic Planning and Strategic Thinking

Strategic Planning Strategic Thinking

Top management Structured planning Structured agenda-based sessions Correct answers (conforming top

management) Definite steps Normative measuring through control Formal

Entire personnel Continuous planning Theme-based, unstructured No immediate answer Creative Innovative measuring based on client

satisfaction Informal


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24.3 STRATEGIC PLANNING IN DISTANCE EDUCATION

In the past two and half decades, there has been tremendous worldwide growth indistance education. A variety of models of institutional delivery have emerged across theregions. These include

Single-mode open universities; Dual-mode university distance education centres; Consortia and networked learning; Corporate/private for-profit institutions; and Single-mode virtual universities.

While all these models or institutional delivery mechanisms devise their own institutional

policy and planning, their operation (including the mechanisms of accreditation) heavilydepends on their national education policy and the planning initiatives to effect sucha policy. In most national contexts, though there is a synergy between national policyintents and institutional mission and vision, this synergy is rarely visible for definitenational policies for distance and online learning within the national educational policy.This is depicted in Figure 24.4.

The above situation can be exemplified by considering the case of the Indira GandhiNational Open University (IGNOU), the second largest mega-university in the world(Panda et al., 2006). For instance,

While there is lack of a full-fledged national policy for distance and onlinelearning, the detailed national Five Year Plan documents for education attachsignificant importance to distance education, with substantial state funding.

The models of institutional delivery in the open and dual-mode universities are,therefore, guided by concerns of access and equity. Such models for consor-tia and private providers (including online learning institutions) are out of thispurview.

Nationaleducation policy

Nationaleducational planning

Distanceeducation policy

Models of distance and online learning

Institutional vision and mission

Accreditation bodies

Figure 24.4: Distance Education Policy, Models of Delivery and Accreditation


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482 Santosh Panda

The existing national mechanisms of institutional evaluation and accreditationfor conventional higher education heavily influence the accreditation process for

distance teaching institutions. The private providers of distance education havemanaged to stay out of this jurisdiction.

The national open university has the dual responsibility of being an open uni-versity as also a national nodal agency to promote, fund, evaluate, and assurequality for the distance education system in the country. Therefore, the insti-tutional vision and mission of provincial open universities and dual-mode dis-tance education universities are heavily guided by the vision of the national openuniversity:

Indira Gandhi National Open University, the National Resource Centre for Open and

Distance Learning with international recognition and presence, shall provide seamlessaccess to sustainable and learner-centric quality education, skill upgrading and trainingto all by using innovative technologies and methodologies and ensuring coverageof existing systems for massive human resource required for promoting integratednational development and global understanding.

(IGNOU, 2002, p. 7)

In todays world of competition and need for collaboration and consortia (as in the caseof India through the Distance Education Council of IGNOU), the teacher is no longerthe sole arbiter of knowledge with full control over teaching and learning (as was inthe past). Gumport and Pussers (1997) description of institutions as loose networks of

connected and interdependent work processes holds good in todays context in which ateacher depends on a host of teachinglearning support centres, without much controlover any of them. Todays teacher therefore, by compulsion and by necessity, is part ofa strategic planning process.

Institutional strategic planning exercises vary, depending upon institutional vision andpolicy. Outlined below are brief descriptions of institutional cases of dual-mode andsingle-mode distance teaching institutions, exemplifying strategic planning in a particularthematic area for each:

1. Texas Tech University, USA, for technology.

2. Open Learning Institute (now OUHK), Hong Kong, for focus.3. Athabasca University, Canada, for mission and research.4. University of South Africa, South Africa, for quality distance education.5. Indira Gandhi National Open University, India, for SWOT analysis.

For a sophisticated technological institute like the Texas Tech University, USA, thestrategic process in planning for outreach/distance education programmes had to bemeticulous and clear. The Universitys strategic plan of 2006 presents the mission,followed by the vision statements, which are broken down to goals, with each goalhaving critical success factors, and objectives which included strategies and assessments.Consider the goal on technology:


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Goal 4. Technology: Maximise the use of technology in instruction, operations, andcommunity engagement.

Critical Success Factors (measures of the degree of success over the next 5 years):

Offer 15% of all programs on-line. Effectively employ advanced technology in 50% of the Divisions operations. Perform 40% of communications with students electronically.

Objective 4.1: Integrate the use of technology in distance learning and communityengagement offerings, while ensuring electronic privacy.

Strategies:

Systematically research new technologies and software applications that supportour strategic endeavors.

Develop additional electronic courses and expand the number of non-credit elec-tronic programs.

Establish electronic student bulletin boards. Establish programming for IVC delivery based on market demand. Hire additional technical staff and provide technical training needed to integrate

technology into our operations.

Assessments:

Implementation of appropriate technologies and software applications. Number of courses and programs offered electronically.

Objective 4.2: Offer programs electronically consistent with appropriate pedagogies.

Strategies: Include instructional design specialists in design teams. Keep up to date on research on pedagogy and technology. Work with the Teaching, Learning, and Technology Centre and Information Tech-

nology Division to investigate pedagogical and technological issues.

Assessments:

Courses meet Principles of Good Practice and other indicators of quality.

(Texas Tech University, 2006, pp. 56)

Goal 4 had in total five objectives, with the last three objectives being to:

Assure appropriate maintenance of technology resources; Integrate the use of technology to disseminate information to students, employees

and the general public; and Implement e-business applications to streamline operations.

The nine goals (i.e. access and diversity, academic excellence, engagement, technology,partnerships, human resources and management, tradition and pride, fiscal stability, andaccountability) have twenty-seven objectives to comprehensively articulate the visionstatements. Such detailed articulation is obviously reflected in the detailed planningdocument of the university, which includes strategies for implementation.


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484 Santosh Panda

The Open Learning Institute (OLI) (now the Open University Hong Kong: OUHK) casestands out as significantly different, since it represents a not-for-profit business model

of Open and Distance Learning (ODL). The OLIs strategic planning was therefore veryAU1clear:

Our strategic planning therefore was not meant to be a paper exercise full of platitudes,it was an exercise that clearly and unambiguously stated the nature, types and namesof courses we intended to offer during the plan period, the number of enrolmentswe hoped to achieve, the level of fees we wished to impose, the number of hours oftuition we planned to provide and the income we had to generate in order to supportthe level of anticipated expenditure.

(Dhanarajan, 1993, p. 20)

The planning exercise involved all the stakeholders it exemplified collective leadership.Any units or departments planning activity is reflected university-wide thereby givingthe unit full confidence of its importance and the university full responsibility for itsachievement.

A case to closely observe is that of the Athabasca University (AU), which has significantlytransformed itself over the past years. Its strategic case for research deserves attention.AU received self-governing status under the Albertas Universities Act in 1978, and the1985 Mission Statement read as follows:

Athabasca University is dedicated to the removal of barriers that traditionally restrict

access to and success in university-level studies and to increasing equality of educa-tional opportunity for all adult Canadians regardless of their geographical locationand prior academic credentials.

In common with all Universities, Athabasca University is committed to excellence inteaching, research and scholarship, and to being of service to the general public.

(AU, 1996)

The Vision of the 20062011 strategic plan for the open university stated

Athabasca University will continue to be an open and distance university, a researchuniversity and, above all, a university focused on excellence. The university continuesto provide open university-level distance and e-learning education (to anyone over theage of 16). In 2015, Athabasca University will be acknowledged as one of the topthree universities of its kind in the world not the largest, but one of the very best

(AU, 2006, p. 2)

with barriers that traditionally restrict access replaced by barriers that restrictaccess; educational opportunity for adult Canadians replaced by educational oppor-tunity for all adult learners worldwide; and In common with all universities, AthabascaUniversity is committed to replaced by We are committed to. The changes wereobvious and strategic.


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The emphasis in both its Vision and Mission was reflected in its latest strategic planincluding values, requirements, goals (strategic objectives and achievements within each AU2

goal). Its values statement read as:

We value excellence. The search for excellence is the hallmark of all our endeav-ours. We value learning. Student learning and satisfaction are measures of our success.We value scholarly research. We engage in reflective practice through the scholar-ship of discovery and the scholarship of teaching. We value the free exchange ofideas. A respectful climate for open discourse promotes innovation, discovery andsocial responsibility. We value openness and flexibility. Reducing barriers to educationenhances access and social equity. We value diversity and inclusiveness. Diversity andinclusiveness enhance the quality both of learning and of the workplace. We value ouremployees. The commitment, innovation, creativity and continuous learning of every

employee contribute to our success. We value accountability. We are accountable toour students, to each other and to the public.

(AU, 2006, p. 4)

Till 2011, the university has committed itself to six strategic areas: ensuring quality inlearning; enhancing open access; focusing on quality research; building communities;recruiting and retaining excellent people; and allocating resources.

Commensurate with the mission statement, AU had developed a strategic research planto align with its mission. The mission-oriented research themes included distance

and online learning applied to particular disciplines; electronic publishing; space scienceand astronomy; globalisation and technology; changing workplace/workplace and com-munity education; indigenous education; interdisciplinary research in environment andsustainability; health research; and those identified for/by the Canada Research Chairs(CRCs) (AU, 2003). The research activities are guided broadly by the philosophy ofremoving barriers to educational opportunities in order for graduates to participate fullyin society. The research agenda was also designed to match the high teaching profile,under a new trademark Canadas Open UniversityTM. The alignment of research, teach-ing, and strategy was in keeping with views of the teaching and research profiles ofOU academics, as well as identifying niche areas to which scholars are invited throughthe CRCs.

Examples of serious strategic planning initiatives for distance education in developingcountries are rare. One of the best examples is that of the University of South Africa(UNISA), which has emerged strategically stronger after its merger with Technikon South AU3

Africa and the distance education centre of Vista University in 2004. The new UNISA,which promises education to every African (with the slogan African University in serviceof humanity), had developed a comprehensive 2015 Strategic Plan (UNISA, n.d.) withdetailed consideration of context, mission, situation analysis, strategic objectives withkey strategies and targets. The university had ten strategic objectives. An example of thesecond strategic objective on quality distance education is outlined below to highlightstrategic initiatives in this area and to illustrate the rigour that had gone into this exercise.


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486 Santosh Panda

6.2 Position Unisa as a leading provider of quality distance education programmesthrough an academic product range that expands on its comprehensive character.

Unisa is recognised world-wide as a major provider of distance education. The Univer-sitys programmes provide a flexible option for students who choose to study at theirown place and pace using appropriate technologies and having access to a range oflearning support. Our product range incorporates general academic, professional andvocationally-oriented programmes that are aligned to legislative and socio-economicimperatives and are nationally and internationally accredited. Although Unisas objec-tive is clearly to be an Open and Distance Learning institution we must strive to ensurethat access is translated into success. The Universitys open access policy providesopportunities while its materials, quality assurance and student support based onbest practice in open and distance learning ensure success for the reasonably diligentstudent.

Strategies

Establish a common understanding of the nature and role of Unisa as a comprehensiveopen and distance education university: internally, among all staff; and externally,among our students, market and stakeholders. This will be accomplished throughcommunication and assertive and targeted marketing, placing an emphasis on what itmeans to be a comprehensive university.

Strive to make distance education a method of choice for South African and Africanstudents in particular and position Unisa as a university of first choice and not lastresort, by instituting a tuition model appropriate to the purposes of the programmes,and the context and needs of students.

Develop an appropriate and relevant programme and qualifications mix (PQM)aligned with the comprehensive nature of the institution, its vision to become theAfrican University in the service of humanity, its need to maximize economies ofscale wherever possible, as well as legislative and socio-economic imperatives.

Ensure the relevance of Unisas PQM and research by regularly conducting needs anal-yses of our markets, our students and our stakeholders, both at an institutional leveland within Colleges and organisational units, while at the same time benchmarkingthese with the highest international standards.

Manage access by providing students with the necessary competencies through RPL,access and foundation programmes and a more deliberate engagement with the Further

Education and Training (FET) sector.

Maintain and improve on Unisas position as a quality provider of distance educationthrough committing to continuous quality improvement in internal systems, liaisonwith professional bodies, liaison and partnerships with business, industry and the pub-lic service, peer institutions. Actively seek out national and international benchmarks,accreditation and financial support.

Ensure that the curriculum for each module is up-to-date and well-researched, withaims and learning outcomes appropriate for the level of study; and with teach-ing, learning and assessment methods that are consonant with those aims andoutcomes.


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Increase headcount enrolments in line with national parameters to a plateau of250,000 students by 2015. Growth will be encouraged particularly in the fields of

Science, Engineering and Technology, as well as Agricultural and Natural Sciences.Appropriate enrolment caps and targets within the programme profile of Unisa willbe used as an instrument.

Targets

To maintain Unisas position among the top ten mega-universities of the world(currently number 6) using critical benchmarks of comprehensive learner sup-port, use of ICTs, research output, ODL methods, and output (UG and PG)rates.

To position Unisa as one of the Top 5 Universities in South Africa by 2015, basedupon criteria such as outputs (UG and PG), research units published, number of

NRF rated researchers, number of full professors, size, etc. To position Unisa as the top comprehensive university in the country by 2010based upon appropriate and relevant evaluation criteria.

A review of all curricula and the PQM in a phased approach to make transparentthe teaching, learning and assessment assumptions; and to demonstrate consonancewith the values, objectives and character of Unisa, as well as its Africa orientation,by July 2007.

In line with the new programme and qualification mix, and with the intendedparadigm shift, 100 priority modules revised or developed each year according toUnisas new tuition and ICLD models.

All quality assurance systems related to teaching and learning in place and opera-tional by January 2007.

General Unisa Satisfaction Index (GUSI) aspiration of 100% in 2015 (Currently76.86%) with a minimum threshold of 90%. Full-time student headcount enrolment of 235,000 by 2010 and 250,000 by 2015

(Currently 215,825 students) in the light of enrolment-capping. Growth will bepursued after vigorous advocacy of Unisas strategic positioning to cater for alarger proportion of the target pool.

As a general rule no non-strategic undergraduate courses with less than 20 studentsenrolled per year by 2008. A threshold for viability of a programme will be set at300 enrolments. The targets will be less in the Sciences and considerably more inthe high volume programmes.

Academic and academic professional staff-to-student ratio of 1:140 by 2015.

(UNISA, n.d., pp. 1516)

UNISA strives hard and invests considerable time and energy (and publicly displaysso) to implement its strategies in a manner almost commensurate with any businessenterprise. In contrast, the second largest university in the world (i.e. IGNOU) that hadcontributed a considerable amount of scholarship, dialogue and articulation to developits Vision and Mission (IGNOU, 2002) has never publicly presented, within and outsidethe institution, reference to the implementation of its 2002 document. In examiningits positioning nationally and globally, it is worth quoting its realistic SWOT analysis,which further guides its strategic mission and twelve thrust areas, with the correspondingstrategies to enable their achievement.


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488 Santosh Panda

Threats and Challenges to the System

Attracting best talent and retaining them. Sustain quality education under resource constraints and pressure of large numbers. Continued efforts required to upgrade standards in the context of global competi-

tion. Increased focus on learner-centric learning, particularly for those from remote and

rural areas. Developing mechanisms and capabilities to compete internationally to advance

frontiers of knowledge to emerge as the leader of ODL system. Continuing professional development of faculty and staff, especially for

technology-enabled education and training.

Strengths of the System

It is now well accepted that the ODL system has reached a stage where highly profes-sional inputs are required for the design, development and delivery of education. Thevery effective intervention of Information and Communication Technologies (ICT) hasmade it even more effective, technical and dynamic. Such a system can be handled onlyby experts. As a premier open and distance learning institution, IGNOU has devel-oped in-house expertise to design, develop and deliver multi-media self-instructionalmaterials. The other major strengths include

Centre of Excellence for disseminating knowledge through the distance mode. Leadership in technology-enabled education. Internationally acclaimed quality instructional materials in diverse need-based

areas. Extensive, efficient and functionally effective network for diversified student sup-

port and collaborative learning. National capability for delivery through educational TV channel Gyan Darshan

and Gyan Vani the network of FM radio stations. Increased acceptance by national and international agencies. Phenomenal growth of students due to credibility and cost-effectiveness of the

system. Internationally recognised training capabilities in diversified areas of education,

HRD and extension.

Weaknesses of the System

Reliance on conventional communication links. Weak Wide Area Network with Regional Centres and Study Centres. Scope for better database management. Access not beyond district level. Insufficient component of interactive multiple-media in courseware. Lack of tracer studies on learners and quality research studies on the system. Inadequate mechanism for continuous professional development of faculty and

staff due to phenomenal growth of the system. Lack of initiative to promote collaborative inter-university alliances/

consortium.


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Opportunities

In the emerging scenario, the ODL is probably the only sustainable system for enhanc-ing seamless access to education in the country. The University has continuouslystrived for improving the credibility and quality of the system. The opportunitiesstem from:

Ever increasing demand for higher education and upgradation of life-coping skills. Need for continuous training of a huge workforce in the developing countries with

large populations, projects and plans. Enhancing access to education to the employed (with low qualifications), drop-

outs, adults learners. Global alliances of ODL systems to provide and share rich learning experiences

through collaborative educational programmes. Convergence between the open and conventional university systems (and other

educational and training organisations) to enhance sustainable access. Scope for imparting education using emerging technologies. Focussing on disadvantaged groups and less developed regions.

(IGNOU, 2002, pp. 46)

Accurate matching of its SWOT analysis with its ambitious and all embracing vision

(noted earlier) reveals significant challenges with respect to implementation. Some schol-

ars and leaders have expressed surprise as to how such a huge university, with about

1.5 million cumulative student enrolments from 32 countries, can manage its operationto the satisfaction of all (Panda, 2005).

A detailed discussion of strategic planning in distance education, including SWOT,

inputprocessoutput analysis, strategy design and implementation, and monitoring and

evaluation with examples from three types of institutions home network, office college,

and public university could provide a useful guide for this system (Kilfoil, 2003).

Consideration of the approach to planning (such as top-down or bottom-up) is also

crucial. In case of the Australian Universities, the Hoare report had noted that Some

universities favour a top-down approach in planning, where the broad directions are

set by the vice-chancellor and advisers, while others favour bottom-up where the

corporate plan is the amalgamation of the faculty and other subsidiary plans (Anderson

et al., 1999, p. 6). Both the approaches are equally applicable to distance education.

While, for instance, the provision of learner support services across all the learning or

study centres may be the responsibility of the top management, departments and faculties

(and even individuals) must be encouraged to devise innovations, for instance, in course

development models and the nature of self-learning materials. These decisions will of

course vary across institutions.

The application of strategic planning in distance education aligns with Watsons (2000)

summation of higher education in the United Kingdom that is, there is a gap between


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490 Santosh Panda

the promise of strategic planning (as theory) and the existing management strategies ofhigher education institutions (as practice). The reasons are varied and complex:

The paradox of competition versus collaboration. Marrying volatile and unpredictable external environment with the internal

dynamics and trajectory of their own institution (p. 1) which leads to blandnessand inclusiveness where there should be differentiation. It is therefore not sur-prising that mission statements result in list of imprioritised promises (broad,universal, and all-embracing statements that are difficult to focus and follow).

Existence of cynicism, including the mission and the university itself: At thecore of such cynicism is the issue of loyalty. Traditional academics do not regardthemselves so much as working for a university as working in it

(p. 3)

In such a context a very important aspect of success in institutional management has beenthe management of morale, to take action concerning low morale in organisations.In higher education, there is the lack of power of managers (individually and inteams) to act upon their instincts without considering (some would say calculating)how to carry along with them the other individuals and groups with whom they sharedirect responsibility for the quality and success of the enterprise (Watson, 2000, p. 5).Consideration of alternatives is therefore inevitable.

Strategic planning in distance education tries not only to respond to the changing envi-ronment by repositioning the institution and by ensuring flexibility in the operationaltasks and units of the institute, but also to capture and own the environment as its

niche/specialism, and to continue to command the area for a long period of time. Inthe strategic planning process, various sub-units and tasks like curriculum design anddevelopment, media and technology choice and mix, instructional delivery, learner sup-port, assessment and evaluation, certification, and so on are inter-linked to conformto the broad mission and vision. It is, however, argued that strategic planning modelshave limited applicability in distance education in so far as wider and effective involve-ment of its people (Panda, 2004) is concerned. Leadership holds the key for effectiveinstitutional planning and management in distance education.

24.4 LEADERSHIP AND GOVERNANCE

It is therefore important to consider what leadership roles and what patterns of gover-nance exist and/or are intended to be achieved. Institutional strategies must be linked todetailed curriculum development and staff development (Cowan, 1978), and have clearimplications for instructional transaction and learner support. The role of the leaderboth at the institutional and at the departmental/project level is crucial. Contributionsin this area (Perry, 1976; Paul, 1990; Daniel, 1999; Bates, 2000; Evans and Nation,2000; Latchem and Hanna, 2001; and Panda, 2003) are useful to both experiencedand inexperienced practitioners. Of particular use and application for policy makersand planners are the strategic questions underlined by Robinson (2004, pp. 183186),including


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What forms of governance are in place? Is the policy for ODL adequate for its governance? Does the policy for ODL accommodate different forms of ODL and their

governance? Are responsibilities of stakeholders and implementing agencies well defined? Are there mechanisms for reviewing and monitoring governance, and for

accreditation? How is quality assurance mechanism used for governance? What relationshipsexist among self-regulation, external control, and globalisation? Is there transparency in governance, and is it oriented to protect the students?

Crucial to institutional development is also the existing models of governance. Forthe OLI Dhanarajan wrote, Rather than compile each units individual plan into aninstitutional one we plan for the institution as a whole when departments have or areascribed a role. It is neither a top-down nor bottom-up process (1993, p. 20).Effectiveness of any organizational productivity depends on effective leadership andgood governance. Policy studies and R&D in this area for distance learning are the mostneglected of all. In a recent study by Tsui and others (Tsui et al., 2000) on fifteen ODLinstitutions in the Asian region, it was pointed out that, except for a few institutions, theleadership style was commanding, and the administrative style was bureaucratic,managerial, and directive. Correspondingly, the institutional culture was perceivedto be bureaucratic and of corporate culture. The authors suggest that institutions in theregion need to shift to a new paradigm:

Flexible and dynamic structure within the organization and its networks.

Power shared by and empowerment of all. Valuing creative contribution of faculty and staff. Dynamic, intuitive, and expanding process of management. Inspiring and caring people to develop institutional ethics and commitment.

It has also been suggested that leadership in the four areas of budgeting, infrastructure,staffing, and policy revisions are essential in linking strategic planning to implementationof specific programmes (Berge and Schrum, 1998). This is certainly difficult to strategiseand put in place the process of strategic planning. Pauls (1990) description of theadoption of a democratic process of consensus building resulting in disaster, and thesubsequent corrective action concerning shifting decision from what to how, speaksa lot about the difficulties the top management encounter in institutional planning and

implementation. Therefore, leadership is critical to both strategic and other planningapproaches. Writes Paul (2003):

It is a serious mistake to castigate opponents of major change in our universities asdinosaurs or Luddites. Instead, the effective leader must encourage real debate onissues of change and capitalize on the positive energy that can be generated by an openand thorough consideration of alternatives. University faculty members are highlyarticulate and forceful in the presentation of their opinions and, while that doesntmake change any easier, at its best, it can ensure that every major step has been wellthought through and really does have significant support in the institution.

(p. 79)


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492 Santosh Panda

It is also argued that Successful, forward-looking and democratic institutional headshave involved researchers and critics of the system in an advisory role so as to enhance

institutional performance reflected through transparent research data, critical reflectionand public opinion (Panda, 2004, p. 95).

While a Fordist approach to quality control is neither possible nor desirable, a process-oriented quality assurance mechanism can better facilitate individual and group reflectionand reform. Given academic freedom and professional autonomy, especially with respectto the faculty/teachers, quality can be ensured through self-regulation, though externalcontrol/monitoring/audit/accreditation will reconfirm the self-regulation. Alternatively,a sense of institutional professional ethics can be imbued and will constantly evolve ifwe follow a holistic planning approach towards dialogue, discourse, and innovation andchange.

24.5 CHANGING NATURE OF PLANNING

It seems we are obsessed with planning, and also use it to achieve a number ofhidden aims other than to plan for the future. This is where strategies may fail planning is used to achieve something which is neither articulated nor intended clearlyin the planning exercise and its documentary output. This relates to what Quinn (1980,quoted by Mintzberg, 1994b) remarked about corporate planning as a rain dance the people involved in it think that it will have an effect on the weather, whereas theplanning results in improving dancing than affecting the weather.

It has been contended that strategic planning succeeds in only ten per cent of cases(Rosenberg and Schewe, 1985), and therefore it is not surprising that it is at times con-sidered a management fad (Birnbaum, 2000). Since doing is better than saying, one needsto implement to make management difference and facilitate change. Leaders thereforeprefer using the term strategic management, which combines both effectively imple-menting a well-articulated strategic plan. In reality, strategic planning has often beencritiqued on the basis of cases of its poor implementation. Mintzberg (1994b) emphat-ically notes the malady of lead boots and paperwork mills that generally guidean organisations strategic process papers and words alone do not lead to effectiveaction. Further, in any organisation or system, things must change over time, which isnot usually the case. Pacey (1992), in considering strategic planning for open learning,

notes, It is natural not to question why the turkey tail is removed before roasting whengeneration after generation has followed that procedure. But the turkey tail was removedbecause of the limits set by the size of the oven. When ovens became larger there was noneed to continue following past practice. When does an organisation begin to questionits practices or recognise that the limitations that were once there have disappeared orcould be removed? With the removal of these limitations, new opportunities becomepossible (p. 9).

Has strategic planning in higher education failed? Dorris et al. (2002) write, Afterreviewing the literature and consulting with knowledgeable colleagues, we have con-cluded that a convincing, generalizable empirical study on the efficacy of strategic


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planning in higher education has yet to be published. There is, of course, no shortage ofanecdotes from both sides of the aisle that is, from the proponents and the critics of

strategic planning in academe (p. 9).

Strategic planning often results in long-term planning and is designed as a linear processby the top management to be implemented mostly by the majority in the organisation.Bell (1998) appropriately remarks

It can be seen, therefore, that strategy is deployed in most contemporary organisations is based on power and social relationships derived from modes of activity which arerooted in conflict and competition as the prime determinants of social order. It is alsobased on inaccurate assumptions about organisational dynamics, the predictabilityof the environment and the capacity to know about that environment. The world is

required to be an orderly, predictable place where the whole is equal to, but no greaterthan, the sum of its parts. Change comes through planning, usually by those at ornear the top of the organisational hierarchy. This involves deploying strategy throughthe construction of a neat and linear alignment between ends and means for others inthe organisation to implement. Thus, the paradigm from which those organisationsare derived which was appropriate in its time, have now outgrown its usefulness, ashas the concept of strategy which is associated with Newtonian organisations.

(pp. 456457)

Wilkinson (2006), in a recent work, analyses the Virginia Techs evolution of its holisticapproach to distance education from a three-dimensional model (academic, adminis-

trative, and support sub-systems), through a five-dimensional model (education, access,communication, technology, and satisfaction sub-systems) to the current six-dimensionalmodel (learning effectiveness, student satisfaction, faculty satisfaction, access, cost effec-tiveness, and system effectiveness). Many universities, especially in the dual-mode andconsortia sectors, do vie for such holistic models to increase satisfaction in their clientsor stakeholders (a term which Wilkinson has used to represent students, faculty, instruc-tional designers, service personnel, and institutional leaders). Most appropriately, strate-gic planning could address such a holistic approach to DE quality. What requires specialattention is the way such quality parameters are defined. Wilkinson (2006) encapsu-lates the six dimensions in to two aspects of quality access, and system effectiveness.Consider the key quality indicators for access:

1. By 2012 at least 95% of academic departments are engaged in developing and/ordelivering distance and distributed eLearning courses.

2. Distance and distributed eLearning enrolments increase by 10% annually.3. Programs and courses provide for timely and appropriate interaction between

students and faculty and among students.4. Students have access to and can effectively use appropriate library resources, and

have access to laboratories, facilities and equipment appropriate to the course orprograms.

5. Students have adequate access to the range of services appropriate to supportthe programs, including admissions, financial aid, academic advising, delivery ofcourse materials, and placement and counselling.

(p. 3)


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494 Santosh Panda

A close examination of the key quality indicators would suggest a very important learnerrequirement, that is access to the content and presentation of the learning resources

and facilitation of learning, which is missing from the representation of quality inaccess. It is therefore not surprising that in many strategic planning initiatives suchcrucial essentials miss out to the mundane but strategically important elements based onenvironmental scanning and institutional niche .AU4

There has been an established trend in the higher education institutions in the strategicplanning era to place greater stress on cost saving, institutional restructuring, and adop-tion of best practices (Kezar, 2000, quoted in Haughey, 2003). However, the practice ofstrategic planning towards a culture of best practices in lieu of research or R&D isa potentially dangerous trend, more suited to commercialisation than innovation.

In the strategic planning exercise, there is considerable ICT reengineering, restructuringof work practices (e.g. outsourcing, privatization, partnership, and alliances), and trans-formation of the instructional system (e.g. knowledge management, best practices, andthe like). It is contended that the approaches of outsourcing and best practice (in place ofcontext-specific R&D and system-wide reflective work structure, including technologyapplications) are not going to help much in the long run because of their inadequacy andinefficiency to create and sustain a system-wide/systemic knowledge base and sustainedcapacity building. Further, for example,

simple convergence of units, tasks, technologies, and systems is not working anymore (nor even any incrementalism);

project-based implementation is not getting into the whole institution; and it is not able to address the traditional faculty culture.

Therefore, it is not enough to just have a strongly planned strategic niche setting objec-tives and gearing the institution to achieve them. It requires a holistic transformation ofthe institution.

Distance education, and for that matter any educational system or learning environment,is constructivist in nature and is grounded in the context of ones own institutionaland social culture. Therefore, adoption of best practices and outsourcing to partner orcollaborator institutions is not going to produce desired institutional transformation.

Planning and management of the DE system and its sub-systems in an institutionalcontext need to be holistic (i.e., system-wide and comprehensive), and to be groundedin the R&D context of the institution and/or the system itself. Technology adoptionand media deployment is a case at hand. Even if the latest full-scale digital technologyis in place, the faculty and staff may not necessarily be predisposed towards it; and,therefore, may not integrate this into their work environment, work culture, and workethics. What is therefore suggested is

adoption of blended learning (and therefore blended media) strategies for insti-tutional course design and media mix, and for addressing diversified learnerslearning styles; and


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an institution-wide holistic planning perspective and mechanism to which all thestakeholders, especially the faculty and staff, contribute through internal strength,

diversity, debate, discussion, dialogue, and personal development.

It is worth noting what Bell (1998) has argued in the case of holistic planning inthe school system, in which there should be wider distribution of power to ensuremulti-functional (rather than hierarchical) and holistic work relationships. Bell quotestwo works by Handy and Aitken (1986) on right brain and left brain functioning,and by Tarule (1998) on problem-solving by women in management. The leftrightbrain perspective tells us that while the left brain activities are sequential, rational,logical, analytical, and time-oriented (and therefore strategic), the right brain activitiesare intuitive, creative, imaginative, and timeless (and may be holistic). The dominanceof the left over the right needs to be reversed. One feminist perspective that can facilitate

this is the discourse on problem-solving by women managers, accepting Tarules (1998)distinction between separate knowing (which is objective, exclusive, critical, awayfrom personal relationships, and therefore Newtonian and strategic) and connectedknowing (which is collaborative in which meanings are constructed through narrativeswithin inclusive relationships and commonality of experiences, and therefore holistic).Such a holistic process brings in flexibility in inclusive policy formulation, and sharingin differentiated values and perspectives. Bell (1998) quotes Zohar (1997) to comparethe two perspectives to symphony and jazz in a symphony orchestra, the players playindividual scores to the script of the conductor and the whole is the sum of the individualscores; in jazz, individuals may be experts in many instruments and perform without anyconductor or set score. There is an evolving background theme that organises the parts,but the composite sound is always a surprise (Zohar, 1997, p. 126). In the context and

organisational set up of distance education, with multispecialism and teamwork, it isnot easy to hold the flexible and diversified parts to the evolving (if at all) backgroundtheme and the unpredictable composite sound.

24.6 CONCLUDING REMARKS

Contextualising the process of planning and implementation by providing flexibilityand opportunity to experiment with institutional work, including curriculum and coursedesign, and even media mix and media integration, is presumed to work better thansimply setting strategic objectives and efficiently mobilising resources to achieve them.

Technology deployment is an issue in which every leader wants to engage and whichevery faculty is required to become involved. Writes Haughey, If academics view themove to transformation of the instructional system as the imposition of technology theyare unlikely to support the venture (2003, p. 60). While such technology-enabled massexperimentations imposed from the top (unfortunately) continue to dominate institu-tional decision-making, it is extremely important for any leader to locate traditionalestablished (may be best) practices which had been contexualised over a period of time,and encourage faculty and staff to initiate best alternatives and even supplementaries toaddress, for instance, student heterogeneity, massification, and quality processes, includ-ing student learning experiences. Instead of (or even besides) undertaking an account-ability perspective (with quantitative performance indicators how many came in and


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496 Santosh Panda

how many went out with what cost), it is essential to devise a managerial perspective(Panda, 1991) to seriously examine the quality of processes and build research and

scholarship into its very foundation.

What is therefore emerging is that institutions cannot escape strategic planning andthinking (even if it is inadequate) it is a basic requirement. They need to account forstudent registration, progression, graduation, attrition, and for cost efficiency. However,they must simultaneously go beyond to contextualise their planning for greater flexibility,quality, and long-term sustainability.

This chapter does not intend to end with a passive note (especially for strategic enthusi-asts) about transformation of universities as seats of scholarship. However, it is worthnoting the recent excellent study on tracking strategies at McGill University by Mintzberg

and Rose (2003, p. 289): universities exhibit a sensible kind of stability in a worldof often senseless change. And so they may well be beacons for a more reasonablefuture for our organisations. Perhaps the proper response to all the hype about changeand turnaround and turbulence is not more dramatic intervention but more respect forinstitution.

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Chapter No: 24

Query No Contents

AU1 Please check if the change made is OK.

AU2 Please check if the change made is OK.

AU3 Please Teknikon has been changed to Technikon. Is this OK?

AU4 Please Sense not clear. Please clarify.

AU5 Please provide the page range for the author referenceBerge, Z.L.and Schrum, L. (1998).

sp in de elsevier

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