Bangladesh Open University: An Evaluation

Bangladesh Open University: An Evaluation

Md. Parves Sultan, Bangladesh Open University

Abstract
Distance education in Bangladesh started since 1956 with a distribution of 200 radio receivers. Open and distance learning (ODL) get institutional status through establishing the Bangladesh Open University (BOU) and it receives the autonomous status by the parliamentary act, 1992. About 80% of the total fund was a loan from ADB, for this project. After ten years of the project, the ADB conducts an ex-post evaluation, in 2002. We find some inconsistency in this evaluation report, especially in defining the components of the logic model and in the evaluation criteria. The main purpose of this study is to develop the logic model and evaluate the ex-post evaluation. We study research publications and other secondary materials for this study. Further, online literatures and our experience and observation with BOU have been strong input for this study. The key findings of this study suggest developing vision for BOU, utilizing the media center, and development of WebCT for an integrated software based web ODL system. This study can help the policy makers and other stake holders in greater comportment.

Key Words: Web-based Course Tools (WebCT), Virtual Class Room, SMART, RIGHT, REEIS, BME, NAS.

AN EVALUATION OF BANGLADESH OPEN UNIVERSITY: PROBLEMS AND PROSPECTS

INTRODUCTION

An open university is an institution for distance education. It is designed for those who intend to improve the level of their education or professional skills by studying at home or at places of their work. It meets the need for education of all classes of people particularly those who are deprived of education from conventional institutions. An open university offers a wide variety of formal and non-formal programs through printed materials, web-based system and/or electronic media like radio, television, audio and video cassettes, CDs, telecommunication and tutorial services. The concept of distance teaching became popular as early as in the sixties and by now many countries in the world have established open universities. However, distance education in Bangladesh started since 1956 with a distribution of 200 radio receivers. Open and distance learning (ODL) get institutional status through establishing the Bangladesh Open University (BOU) and it receives the autonomous status by the parliamentary act, 1992.

With a population of nearly 140 million, Bangladesh faces the challenges of creating manpower within the shortest possible time. Available educational facilities in the country are inadequate to meet this challenge. Access to education is always limited by physical facilities in the conventional system. Therefore, the objectives have been clarified in the BOU act [BOU Act-1992, No-38, 3(5)] as to create educated and trained work-force by providing access to a wide range of educational and vocational training programs for all levels of people particularly for disadvantaged and rural masses including women who are generally deprived of formal education and training. The Government of Bangladesh and the Asian Development Bank (ADB) have provided funds for setting up the University. The main structure of the University has been built as the central campus at Gazipur, about 40 kilometers north of Dhaka-the capital city of Bangladesh.

The Open University is a breakthrough to grab the chance and to pursue the objectives to enrich knowledge of people, especially in developing countries. Most of the people in developing countries and Least Developed Countries do not have access to sufficient education. The condition also become worst when improvement and recovery of the economy are the main priorities of government's policy instead of education. In this situation, Open University is relevant. More and less, developing countries have similar problems in education. Many alternatives of solution have been developed to overcome the problem.

Large number of out of school children, disadvantage groups, skilled and unskilled working class, rural people, job seekers and women who couldn't afford to have regular education; the open and distance learning (ODL) system has given them an open door access. Therefore, the concept of Open University is popular in all nations. The following figure illustrates BOU's operation:

This paper evaluates the Open and Distance learning activities of BOU and finds out the problems and recommendations for effective dissemination of programs.

LITERATURE REVIEW

The available literature found for this study fall into two main groups. First group focuses on specific programs, target segments and methods of delivery of open and distance learning systems. Second group focuses the ex-post evaluation of the BOU project conducted by the ADB.

Kamal et. al. (2005) point out frequency of teacher-student interaction, inadequate email and post mail communication, inadequate Radio and TV programs, lack of proper time for broadcasting these programs are some of the drawbacks of BOU's programs. They put importance of having a smart information transfer system for BOU that can be accessed from any where of the world, need of separate broadcasting channels, and online delivery of study materials.

Karim and Afrin (2004) find in their survey research that students are dissatisfied with the counseling and media programs of BOU. They point out the necessity of library and computer facilities at the regional and local centers.

Karim and Ahmmod (2003) state the importance of increasing the frequency of broadcasting the BOU programs, narrating the learning goals, objectives, procedures, and philosophy to various stakeholders. They also point out the problems of delivering the materials to students, promotional activities, assessment procedure, publishing results in due time, and maintaining the academic calendar.

Kamal and Sultana (2002) state that most of the programs of BOU are suffering from very low rate of students' enrolment since after a few years of BOU's inception. To further strengthen the programs, they underline the importance of using media center both in digital and online communication, identifying the needs of the programs from the view point of the students, and timely production and delivery of study materials. They also find out some problems regarding coordination among divisions, existence of different associations between academics and officers, infrequent meeting, internal and external lobbying for up-gradation of staffs' posts. The researchers also put emphasis on the development of ICT. They also state that most of the key positions at BOU are occupied by the persons come from conventional institutions. Therefore, a tendency toward conventionalization of the ODL system is being noticed sometimes.

However, Sultana and Kamal (2002) put emphasis on online delivery of study materials and organizational structure of BOU. They state that the management structure of BOU is not synchronous as they are horizontally integrated with the vice-chancellor's secretariat and for this, various management problems occur between schools and administrative divisions. The researchers show the following organizational structure that has been practicing in the BOU.

Source: Sultana and Kamal (2002)

The researchers also state that Academic Schools and at least three divisions such as Student Support Services Division, Printing and Publishing Division and Examination Division should have strong coordination among them.

Umeda and Unetani (2002), Nagamatsu (2002), Berwick (2002), and Hara (2002) have emphasized on the WebCT (web-based course tool), and online delivery of course materials.

Gamlin (2002) states that WebCT is ideally suited for on-line teaching and learning as well as research. Through WebCT, instructors are able to create an on-line learning environment that maximizes students' interactions with the content materials, the peer group and the course instructor. In addition to using E-mail, chat-rooms, bulletin board the WebCT also delivers the course materials, instructions, and facilitates the submission of assignments by the students. The WebCT can also deliver audios and videos, conduct voice-chat and conferencing. A WebCT can conduct on-line examinations, as well. In fact, it is a virtual class-room. Moreover, a well designed WebCT helps the researchers to have the secondary source of information through a strong data base and helps researchers to get primary data, as well.

OBJECTIVE AND METHODOLOGY

This paper has the following objectives

The paper aims to develop a logic model. Basically, a logic model is a systematic and visual way to present and share understanding of the relationships among the resources to be operated in the program, planned activities, and the changes or results that are expected to achieve.
The second objective of this study is to explore the problems associated with proper functioning of the ODL system of BOU and provides recommendations, thereby.

I consider the secondary sources of information and data. The ex-post evaluation report of ADB (Oct. 2002), research articles of referred journals, articles found in the internet, and e-books have been studied for this study. Observation technique has been an important phenomenon of source of information for this study.

ANALYSIS

The Logic Model

BARRIERS FOR ODL SYSTEM OF BOU

We focus the constraints or weaknesses of BOU into two broad categories viz. internal and external. Internal constraints basically related to BOU's capacity, human resources, technology, and operating system; meanwhile the external constraints include the shortcomings of BOU with the stakeholders.

Internal Constraints

The `SMART': There have been lacks of SMART (specific, measurable, action oriented, realistic, and timed) in the stated end outcome, intermediate outcome, and activities in the ADB's evaluation. This is because the same lacks have been found in all activities of BOU.
Institutional Capacity Building: The project put much emphasis on the development of physical facilities (outputs) rather than institutional capacity and system building. The architectural design of this project consumed too much space and land and no focus has been made for future expansion. Project's institutional capacity is poor because it focuses largely on technical areas (e.g. pedagogy, curriculum and instructional material design, multi-media production and student support services) rather than institutional capacity and system building (e.g. overall management of distance education system, delivery, financial and budget management, human resource management, and training on software based web delivery of ODL system).
The Media Center: Media center of BOU is under utilizing its capacity. It is incapable to cope with the web-based distance education system. BOU is still unable to manage its required time for broadcasting with the BR & BTV; moreover, negotiation with the stake holders to launch separate channels is a failure.
The Output: The project focused on the `development of instructional materials' as an output. There had been a requiring for the development of schools and programs as well as defining the target groups with intended changes from this project and then the development of instructional materials should have been focused. Unfortunately, focusing the instructional materials illustrates that the output has been considered improperly.
Staff Development: Only 5% of the total budget has been incurred for staff development during the project implementation period thus, the institutional capacity and system building has been lacking.
Discontinuation of NAS and BME studies: BOU has been discontinuing the Needs Assessment Survey (NAS) and Benefit Monitoring and Evaluation (BME).
Enrollment vs. market demand: Sufficient enrollment has been considered as an achievement of the intermediate outcome, in the ADB's evaluation, rather than considering it as demand (market size). As the private universities have been launching different programs in the distance mode and as the BOU has been facing lack of internal efficacy and efficiency, so it is loosing the enrollment of students, at present.
Low graduation rate: The low graduation rate of 36% and under utilization of BOU's resources address that BOU is less efficient.
Lack of utilizing the resources: Underutilization of RRC's and LC's spaces and its very poor library and TV room management have been sources of low internal effectiveness and efficiency. Lack of efficient utilization of operational staffs, ineffective delivery of distance education, delivery of study materials, late publication of results and poor coordination in almost every department have been common phenomena in BOU.
Target groups and programs: Selection of target groups and programs have not been revised. The requirements of the job market and needs of the target groups have been changing due to course of time.
Long Term Vision: A long term vision has not been found in BOU. In the long term, the project should focus on reducing the rural-urban gap in education opportunities, increasing the rural poor's general knowledge to improve their living conditions, strengthening the human resources through general and professional degrees, improving the quality and relevance of distance education programs, increasing market focused-job oriented distance learning opportunities and building human capital and contributing to the eradication of poverty.
Lack of proper indicators and measurement: The indicators are used to measure whether the desired results have been achieved or not. Some of the programs of the BOU are conducted for the rural disadvantaged groups for improving their living conditions. In BOU's programs there is no programs that can measure and set indicators for determining the success or failure of any program.
Lack of measuring impact on macro environment: It has been found from the available secondary sources that the project has an impact on the development issues in the related sectors of Bangladesh e.g. education, employment, economy, social welfare, poverty reduction and others. Unfortunately, BOU has not been able to evaluate its impact on these related sectors.
Software-based Web ODL System: This is particularly important because the system of any open university must be harmonic with the changes in technology. The concept of Open University has two main mechanisms: Technology and Human Resource. In both the cases BOU is staying far behind. Equipments specially the computers are outdated. Almost all faculties rarely get access in the internet and computers; the similar phenomenon is seen for staffs as well. BOU needs to develop software based ODL system and collaboration with other open universities of the world through Information Technology for proper functioning of the entire activities. This will enable to magnetize the foreign students as well as the Open University concept do not limits its boundary to provide services.
Lack of coordination and understanding the organizational chart: Need of coordination and effective management have been found between the people of Administration and Schools, perhaps, the `organizational structure' and its understandings are main reasons.
Lack of utilizing trained human resources: Underutilization of human capital who is trained in module development, presentation, and in technical fields, perhaps due to incentives, motivation, and policy.
Lack of innovation: Most of the schools are targeting to make human clerks rather than human resources. Schools are running with the programs that were developed when the BOU was incepted. A very few attempts have been made to develop a market focused-job oriented programs. It can also put emphasis in technology and engineering degree (e.g. diploma, BSc. and MSc. in different branches of technology and engineering division.

External Constraints

Lack of taking proper initiative in the regulation and legal environment: For the shake of BOU's sustainability some regulations and legal systems must be developed. For example, BOU should continue negotiations with BTV and BR in order to have adequate airing time. BOU should also start negotiations with the government and Ministry of Education (MOE) to start its own channels and to have recognition that will facilitate the BOU's graduates to have the same status compared to that of the regular educational institutions. Moreover, regulation and legal system relating to provide ODL education by other private universities must also be developed. This will ensure and enable quality education. These regulatory and legal aspects, if can be develop, will make the BOU sustainable.
Lack of autonomous administration system: Although, BOU get the autonomous status in a parliamentary act, 1992; but major decisions are influenced by the ruling party, because of the administration system. The entire administration system is not like other autonomous universities of Bangladesh. Therefore, decisions and activities become more centralized and objective-task less.
Lack of recognition from MOE: The project's policy impact is also weak because of not recognition of BOU's certificates, diplomas, and degrees as equivalent to those of the formal education system except for the SSC.

RECOMMENDATIONS

The preceding analyses of internal and external constraints explain us for some recommendations. Therefore, our suggestions focus on some specific issues.

Setting the “SMART” (Specific, Measurable, Action-oriented, Realistic, and Timed) logic model with indicators and means of verification.
Building the “RIGHT” (Rectified, Integrated, Goal-oriented, Human-capital based and Technology-based) institutional capacity.
Full utilization and activating the media center.
Selecting the target groups for each of the programs, and accordingly set objectives, strategies for delivering the lectures and materials and measuring criteria for achieving objectives.
Emphasizing on Innovation.
Conducting NAS and BME studies, periodically.
Launching software based web ODL system and considering WebCT. (an illustration is shown in appendix 1)
Establishing coordination and resetting and clarifying the organizational structure. (an illustration is shown in appendix 2)
Utilizing trained human resources and providing training to new members.
Making required rules and regulations for proper functioning of the BOU programs.
Managing airing time with BTV and BR and establishing BOU's own channels.
Getting recognition from MOE. And,
Giving opportunity to BOU so that it can play as an autonomous body.

CONCLUSION

In this study, various research papers and the ex-post evaluation of BOU project conducted by ADB in 2002 have been studied. We use logic model to analyze this evaluation and subsequently, develop a logic model for BOU and establish the inter-linkages between variables of logic model. While developing logic model, we try to establish the end outcome, intermediate outcome, output, activity and input considering “SMART” and “RIGHT”.

However, our findings suggest that coordination, institutional capacity, technological improvement, training, utilization of resources, ministerial helps are the main forces that can drive the BOU to contribute in the education, employment, and poverty alleviation.

REFERENCES

Berwick, R. (2002), “Linking distance education technologies and global issues syllabus: Transitions to second language learning for the 21^st century”. Ritsumeikan Journal of Asia Pacific Studies, Vol. 9, pp. 151-155.

Gamlin, G. (2002), “Media English at Ritsumeikan Asia Pacific University: A case report on teaching and research through WebCT”. Ritsumeikan Journal of Asia Pacific Studies, Vol. 9, pp. 157-161.

Hara, T. (2002), “Building a learning community on the web: Two cases of distance education projects based on WWW technology”. Ritsumeikan Journal of Asia Pacific Studies, Vol. 9, pp. 163-171.

Karim, S., & Afrin, S. (2004), “Status of female students in tertiary level programs of the school of business at Bangladesh Open University: Problems and prospects”. Journal of Business Studies (BOU), Vol. 2, No. I, pp. 39-52.

Karim, S. & Ahmmod, S. M. M. (2003), “Improving acceptance and attraction of the MBA program in distance education system of Bangladesh Open University”. Journal of Business Studies (BOU), Vol. I, No. I, pp. 19-37.

Kamal, M. A., Islam, M. M. & Sultana, S. A. (2005), “Business education through distance mode: Importance, problems and remedies”. Journal of Business Studies (SEU), Vol. I, No. I, pp 23-33.

Kamal, M. A. & Sultana, S. A. (2002), “Barriers to Development in Open Learning and Distance Education: Bangladesh”. 2^nd Pan-Commonwealth Conference Proceedings. (Downloaded from: www.col.org/pcf2/papers/sultana.pdf)

Nagamatsu, T. (2002), “Conceptualizing E-Learning”. Ritsumeikan Journal of Asia Pacific Studies. Vol. 9, pp. 139-143.

Sultana, S. A. & Kamal, M. A. (2002), “Distance Education and Open Learning in a Developing Country like Bangladesh: Philosophy and Reality”. 2^nd Pan-Commonwealth Conference Proceedings (Downloaded from: www.col.org/pcf2/papers/kamal.pdf)

Umeda, C. & Unetani, T. (2002), “Distance education in Japanese”. Ritsumeikan Journal of Asia Pacific Studies, Vol. 9, pp. 145-150.

…………. (2002). Project Performance Audit Report on the Bangladesh Open University Project. Asian Development Bank, October. (Downloaded from: http://www.adb.org/Documents/PPARs/BAN/ppar_ban_23056.pdf)

http://www.citechco.net/bou/

Figures

Figure 1: Operation of BOU

Figure 2: The Organizational Chart

Figure: 3 The Logic Model and Achievement of Specific Results

Appendix: 1 Flowchart and Relations among Divisions in a Software based Web ODL and WebCT system.

Appendix: 2 Organizational Chart

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