Open Data in the Governance of South African Higher Education

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A research poster presented as part of the Exploring the Emerging Impacts of Open Data in Developing Countries project at the Research Sharing Event in Berlin, 15th July 2014. For more see http://www.opendataresearch.org/emergingimpacts/

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Open Data in the Governance of South African Higher Education

  1. 1. Citizens: System-level governance through transparency and accountability S HES researchers New knowledge and policy advice S OTHER IDSC Research Africa DATAPROVIDERSDATARESOURCES HEMIS OPEN DATA TABLES CHET Higher Education Performance Indicators PRIMARY DATASOURCES SECONDARY DATASOURCES CLOSED DATA OPEN DATA StatsSA HSRC NRF Government SAQA DHET P2 CHE Government councils and agencies CRESTDataFirst/UCT 23 public universities P1 Public universities CHET Non-Governmental Organisations CHEC African Knowledge Base HIV Prevalence Survey Higher Education Data Analyser International state-funded donor agencies DFID, USAID, Danida, IDRC, Sida, etc.   CHEC Web- site RCBF Graduate Pathways Survey Elsevier Scopus Web of Science Thomson Reuters Google Google Scholar Bibliographic Indexes HSRC Data Site QS Quacquarelli Symonds TSL Education ShanghaiRanking Consultancy Cybermetrics Lab (CSIC, Spain) Supranational agencies UN, World Bank, Unesco, OECD Philanthropic organisations Gates Foundation, Ford, Carnegie, Melon, etc. THE Rankings Shanghai Rankings QS Rankings Webometrics Nobel Prize Winners CHET Knowledge Production Dataset CHET Dataset on Differentiation Labour Market Intel- ligence Partnership Database LMIP Data Repository C3 C2 C1 University research units Feedback loops Data flow (supply) Data flow (demand) Users HEMIS Database HE planners University-level governance through evidence-based decision-making P PrimaryP SecondaryS PRIVATE SECTOR PUBLIC SECTORPUBLIC SECTOR Institutional boundaries R Regulatory conditions ICT Information and communication technologies Enabling/ inhibiting conditions ICT R LEGISLATION NationalQualificationsFrameworkAct67of2008 PublicServiceRegulationsActof2001 PromotionofAccesstoInformationAct2of2000 PublicFinanceManagementAct1of1999 StateofInformationTechnologyAgencyAct1998 SkillsDevelopmentAct97of1998 EmploymentEquityAct55of1998 LEGISLATION HigherEducationAct101of1997 BasicConditionsofEmploymentAct1997 NationalEducationPolicyAct27of1996 SouthAfricanQualificationsAuthorityAct58of1995 PublicServiceActof1994 CopyrightAct98of1978 STANDARDS/AGREEMENTS MinisterialInteroperabilityStandardsforInformationSystemsinGov- ernmentv4.12007 Post-schoolEducationandTrainingGreenPaper2012 HigherEducationWhitePaper2013 StatisticsSouthAfricaStatisticalQualityAssessmentFramework OpenGovernmentPartnershipRequirements Open Data in the Governance of South African Higher Education Primary research question What is the level of use and possible impact of open data in the governance of South African higher education? Secondary research question What is the role of intermediaries in the supply and use of open data in the governance of South African higher education? Background The Centre for Higher Education Transformation (CHET) is a non-governmental organisation that conducts research on African universtities at both institutional and systemic levels. CHET’s research focuses on issues of university governance, performance indicators, differentiation, knowledge production and the links between higher education and development. The Department for Higher Education and Training (DHET) is the South Africa government department responsible for funding and steering the South African post-school system, including the country’s public universities. Universities are governed by their councils. Councils are advised on university performance by the university executive and the university’s institutional planning unit. Method Case study CHET Open Data Platform www.chet.org.za/sahe-open-data/ Data collection Semi-structured interviews with data users [university planners (7) + HES researchers (6)] and primary data provider [DHET] capacity-constrained government departments. This could strengthen the impact of open data on the governance of South African public universities. Recommendation: Initiate discussions between DHET and other stakeholders on how to share HEMIS data or to improve how the open data tables are made available online. 3 There are concerns at both government and university levels about how data will be used and (mis)interpreted, and this may constrain future data supply. Recommendation: Improve data literacy, particularly among journalists. 4 Open data intermediaries increase the accessibility and utility of data. While there is a rich publicly-funded dataset on South African higher education, the data remains largely inaccessible or unusable to universities and researchers in HES. Despinte these constraints, the ODDC research shows that intermediaries in the ecosystem are playing a valuable role in making the data available and useable. 5 Open data intermediaries provide both supply-side as well as demand-side value. CHET’s work on HE performance indicators was intended not only to contribute to government’s steering mechanisms, but also to contribute to the governance capacity of South African universities. The ODDC research supports CHET’s ambition to build institutional-level capacity. Further research is required to confirm the use of CHET data in state-steering of the South African higher education system, although there is some evidence of CHET’s data being referenced in national policy documents. 6 Intermediaries may assume the role of a keystone species in an open data ecosystem The ODDC research shows that inter- mediaries such as CHET play an enabling role of mediation and innovation within the ecosystem. CHET enables new connections and solutions within the ecosystem. CHET is also located outside of the two primary institutions – the state and the university – thus enabling it to play a mediating role. 7 Intermediaries democratise the effects and use of open data. Intermediaries play an important role in curtailing the ‘de- ameliorating’ effects of disciplinary surveillance on open data. Intermediaries, as actors who may well operate outside of the boundaries of the state apparatus and of the institution of the university, have the propensity to challenge how data is collected, interpreted and shared. Their role as de-institutionalised actors could contribute to restoring the democratic value of open data. The ODDC research shows that CHET is already playing a unique role to ensure open data justice as it challenges existing, imposed norms in the collection and use of open data in the governance of South Africa’s public university system. o The HE governance open data ecosystem has evolved despite poor data provision by government because of the presence of intermediaries in the ecosystem. o By providing a richer information context and/or by making the data interoperable, government could improve the uptake of data by new users and intermediaries, as well as by the existing intermediaries. o Increasing the fluidity of government open data could remove uncertainties around both the degree of access provided by intermediaries and the financial sustainability of the open platforms provided by intermediaries. Data users University planners (institutional-level policy) Governance mechanism: university councils Higher education studies (HES) researchers (national policy) Governance mechanism: research—policy nexus Primary data provider Government (Department for Higher Education and Training) Primary data source Higher Education Management Information System (HEMIS) Findings 1 CHET’s open data is being used by both university planners and HES researchers, albeit infrequently. Researchers expressed the need for richer data enabling more complex analysis. Recommendation: CHET should take note of these findings when planning any modifications to its open data platform; it may need to carve a more differentiated role for itself given the presence of other intermediaries in the open data ecosystem. 2 HEMIS is an isolated data source. Granting access to HEMIS by third- parties (under controlled conditions to protect personal data) could further stimulate the evolution of the open data ecosystem and relieve pressure on Conclusions  ThefundingforthisworkhasbeenprovidedthroughtheWorldWideWebFoundation'ExploringtheEmergingImpactsofOpenDatainDevelopingCountries'researchproject, supportedbygrant107075fromCanada’sInternationalDevelopmentResearchCentre(web.idrc.ca).Findoutmoreatwww.opendataresearch.org/emergingimpacts OPEN DATA in the Governance of South African Higher Education TheSouthAfricanhighereducationgovernanceopendataecosystem 40% tint K = 80% R G B 51 51 102 153 51 51 153 204 51 51 102 153

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