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32
UNIVERSITY IMPLEMENTING ITS COMMUNITY SERVICE ROLE
THROUGH CURRICULUM DEVELOPMENT IN A REGIONAL COLLEGE
Anne Keerberg
1
, Aet Kiisla
2
, Sulev Mäeltsemees
3
Tallinn University of Technology
Abstract
The three roles of a higher education institution are teaching, research and
community service. The objective of the article is to analyse how a university
regional college can implement the task of community service via its curriculum
development. The theoretical base lies on the positions of internationally recognised
scientists of education policy as well as OECD definitions and clarifications that are
compared to the cases of the regional colleges (in Narva and Kuressaare) of two
universities (respectively University of Tartu and Tallinn University of Technology).
The set task enables to study as a whole such components as the content and design
of curricula, teaching and assessment methods, extracurricular activities, topics and
supervision of students’ research works, cooperation with partners. A
comprehensive approach is a precondition of a well-functioning curriculum, with
community service being the unifying aspect.
The results of current study are applicable in case of the analysed curricula and
colleges, they partly applicable in case of any other similar curricula and units.
Prerequisites of the colleges' network evolvement, holistic impact and compliance
with the region-specific needs is a significant topic the additional study of which has
already begun.
4
Keywords: regional policy, higher education, universities’ community service,
research and development, human capital, curriculum development
JEL Classification: I23, I25, O15, O31, R58
Introduction
Historically, the primary role of universities has been teaching. As a result of
Alexander von Humboldt’s academic revolution in the mid-19
th
century, scientific
research became the second main function of a university, yet closely connected to
1
Anne Keerberg MA; Director, Kuressaa re College of Tallinn University of Technology;
Rootsi 7, Kuressaare; anne.keerberg@ttu.ee
2
Aet Kiisla MSc; Director for Academic Affairs, Lecturer, Narva College of University of
Tar t u; R ae ko ja pl at s 2, N a rv a; a et .k ii sl a@ u t. ee
3
Sulev Mäeltsemees PhD; Dean, Faculty of Social Sciences, Tallinn University of Technology;
Ehitajate tee 5, Tallinn; sulev.maeltsemees@ttu.ee
4
Research and Innovation policy Monitoring Programme 4.5
http://www.tips.ut.ee/index.php?module=32&op=1&id=3464
33
teaching. Community service, the third role of universities became a discussion
issue in the late decades of the 20
th
century only. That was caused by changes in the
society – globalisation, networking, a closer connection to the community,
development of service industry and knowledge-based production. (Chatterton and
Goddard 2000; OECD 2007: 21; Bass and Silverstein 1996; Arbo and Benneworth
2007). Research is, as a rule, considered the most important task of a university
(among universities research universities are often separately pointed out), on which
teaching is naturally based. Community service is mostly called the third task, but is
closely connected to the first and second tasks. During recent years, community
service has become highly valued, in the countries of young democracies in
particular. (Chatterton & Goddard 2000:447)
Rapid changes assume a university to build a closer connection to its environment, a
quicker reaction to and higher flexibility in meeting the community expectations.
Community service enhances both study and R&D activities, providing services to
businesses and public sector institutions as well as contributing to the administrative
capacity building of a region. Community service has taken its place next to study
and research activities but is closely integrated in them. It is a pro-active activity,
enhancing transferring and adapting internationally created knowledge according to
the community needs in all its regions. (Chatterton & Goddard 2000; Virtanen 2001)
The Universities Act, adopted in Estonia in 1995, identifies the mission of a
university in providing services based on educational and research activities: “The
mission of a university is to advance science, academic practice, create and develop
possibilities based on integrated instruction and research for obtaining up-to-date
higher education corresponding to the Standard of Higher Education, to organise
continuing education and provide services to the society which are based on
educational and research activities.” (Ülikooliseadus 1995: §4) The 2003
amendment to the Act provides details on the academic levels of higher education
but the mission of a university remains unchanged (Ülikooliseadus 2003: §4). The
2008 amendment to the Act §4 provides a subsection pointing out the need for
cooperation in the activity of a university: “Upon accomplishing its mission,
universities cooperate with each other as well as with the entire society by
supporting the development of the society and the preservation of national culture by
effective research, development or other creative activities and by creating and
developing possibilities based on integrated instruction and research activities for
international cooperation, acquisition of higher education based on scientific
approach as well as for continuing education.” (Ülikooliseaduse… 2008: §7).
The Universities Act or any other legal acts don’t specify the term “college”. The
regional colleges of public universities have been established, commencing from the
amendments of 1996 in the Universities Act §19 (31), according to which a structure
of a university may include institutions of the university that are in their activity
guided by the statutes adopted by the council of the university (Ülikooliseaduse…
1996: §1 p.23). In 2011, a provision was inserted in the Act §19 (1), stating that in
case of possibility, the structure of the university is developed considering regional
needs (Erakooliseaduse… 2011: §3 p.1).
34
The establishment of university's new units including the colleges is by law an
autonomous decision of the university. In 1990s, University of Tartu and Tallinn
University of Technology used this opportunity. The creation of Narva College was
initiated by the Ministry of Education in order to improve the quality of teacher
training for schools with Russian as a language of instruction. The creation of
Kuressaare College was initiated by the university and its partners from county and
local governments. The reasoning came in both cases from different state and county
strategies. For the opening of the new curricula the colleges made an application to
their universities where the connection with the region was explained. Expert
opinions from regional partners were added. Curriculum development is always
done in accordance with regional partners' opinions, since both universities have the
requirement of having these partners in every program council.
Since regional colleges in Estonia haven't been established as a result of a wider
systematic research, additional research is needed. A broad-based research project is
already currently in progress and the results will be reported in 2014. The authors of
current paper also participate (including data collection) in the project as it includes
all regional colleges in Estonia, and focuses on whether Regional Higher
Educational Institutions are the result of intrauniversity competition, local initiative
or national innovation policy
5
. While the data for the wider analysis is being
collected we concentrate on two colleges and their two curricula and thereby
contribute to the better understanding of the possibilities of the regional colleges in
the regional development. The uniqueness of this contribution lays in the way how
regional engagement is looked at - the combination of the three roles of universities
and curriculum development.
The objective of current article is to analyse at the example of Narva College of
University of Tartu and Kuressaare College of Tallinn University of Technology
whether and how the development of curricula in region-specific fields, research and
development as well as contributing to socio-cultural activity support cooperation in
the region and the mission of community service.
The research questions for achieving this goal are: What can curriculum
development provide in order to foster service to the region? Does a regional college
and its curricula have to implement all three tasks of the university in the same
proportion as the university in general?
The objective set enables a comprehensive study in a curriculum design: content of
the study activity, teaching and assessment methods, extracurricular activities, topics
and supervision of students’ research works, cooperation with partners. A
comprehensive approach is a precondition of a well-functioning curriculum, with
community service being the unifying aspect of current article.
5
Research and Innovation policy Monitoring Programme 4.5
http://www.tips.ut.ee/index.php?module=32&op=1&id=3464
35
The article analyses the possibilities to support community service via curriculum
development, based on the dimensions formulated by OECD: knowledge creation in
the region, human capital formation and knowledge transfer, cultural and
community development. Upon preparing the article, the following has been studied:
analysis of documents based on the documents on curricula design, analyses,
reports, minutes of meetings and other summaries of the kind. In addition, colleges
and their development plans as well as other strategic documents and regional
activity related materials have been studied. Many of these documents are not for
public use. Information is presented through authors’ experience as they have been
active participants and observers of all processes described.
The results of current study are applicable in regional units (counties) in case of all
curricula meeting similar conditions, some results are more specific and thus
applicable only in the curricula under current study.
The activity of the two regional colleges of the two biggest Estonian universities
under study is governed by the same national legal acts, making the cases well
comparable. At the same time, the activity of these colleges is independent of each
other and therefore the maximum reliability and applicability in a broader sense (to
other similar colleges) are secured. The cases under study are independent of each
other as the colleges operate under different universities and are geographically
located far away from each other. Also the regions under study have quite different
socio-economic profiles. Same refers to the curricula, one of them belongs to a
social and the other to a technological sphere which in turn secures the validity in
case of different curricula and universities.
Description of research objects
There are 29 educational establishments in Estonia where higher education can be
acquired (as of 31.01.2013 www.hm.ee). Higher education is provided by both
public and private educational establishments. There are six public universities.
Estonian public universities have seven regional colleges, located away from their
main campuses in Tallinn or Tartu
6
. The colleges are located all over Estonia,
offering curricula and advancing R&D activity specific to their region and
university. The rectors of public universities have signed an agreement (24.11.2008)
setting the strategic goal of a joint development of a regional competence centres
network covering Estonia and required for promoting lifelong learning and
entrepreneurship in the region. In addition to teaching, regional colleges contribute
to building regional innovation systems and support community development
activities.
6
Narva College, Pärnu College and Viljandi Culture Academy of University of Tartu;
Kuressaare College and Virumaa College of Tallinn University of Technology; Haapsalu
College and Rakvere College of Tallinn University.
36
University of Tartu has approved in 2008 the guidelines of the regional programme
that underpin the development of education and research and development activities
in the regions (Tartu… 2008). According to the Development Plan of University of
Tartu “the university shall in cooperation with partners, develop and strengthen the
university’s colleges as training and competency centres, in order to promote
balanced development in Estonia through the transfer of knowledge and skills.”
(University… 2009)
The Council of Tallinn University of Technology has approved in 2009 the bases of
regional activities, which stresses the need to contribute to the balanced
development of the country through training, counselling, and communication,
provision of services and applied research in all counties of Estonia. Regional
activities are based on its regional colleges; the university has set a strategic goal to
develop the Competence Centres in Saaremaa and Ida-Viru counties. (Tallinna…
2009)
The mission of Narva College is to to act as the leading force driving the
development of knowledge-based society and to be the guarantor of its continuity in
Ida-Viru County, to serve the society through study and research work, to offer its
students the best opportunities for self-development and decent education, to help
them apply their knowledge in the society; and to promote development of
connections between various cultures in Estonia. (Narva… 2008)
Development Plan of Kuressaare College formulates the mission: “Kuressaare
College of TUT provides the availability of higher education in West-Estonia and
contributes to fostering regional sustainability and capacity in cooperation with
community and county organisations, public sector institutions and business sector.”
(Development… 2011)
Narva is situated on the border between the European Union and Russia. There are
four HEIs operating in Narva but only one of them is public – Narva College of the
University of Tartu. The College was established in 1999 as an answer to the needs
of the region, mainly to educate the teachers of the schools providing education in
the Russian language. Later on, other lines of education have been launched, among
them the curriculum of Local Government’s Administration (LGA) at the level of
higher professional education.
Ida-Viru County Development Plan emphasizes that integration processes play an
important role in the development of communities. Integration should be carried out
not only in language-training, but also through other substantive activities, including
education and research (Ida-Viru… 2012). Access to higher education for non-native
speakers of English has become more complicated, as highlighted in the recent study
by Praxis (Praxis… 2013). Thus it is the College's moral obligation to support the
integration process. Developing the curriculum of LGA by Narva College supports
the development goals of Narva city: to become the best municipality with highest
local administrative capacity in Ida-Viru County. To achieve this goal it is necessary
to increase the competence of the officials (Narva… 2007).
37
Kuressaare College was established in 1999 as an institution of Tallinn University of
Technology and a legal successor of the Institute of Islands Development. The
College started with education in the field of tourism, characteristic of Saaremaa.
Later on, education in electronics, business and small craft building was started, the
latter of which has in the process of developing the Estonian regional innovation
strategy been brought forward as a production sector with a region-specific and high
development potential (Tiits 2007). In 2011, Small Craft Competence Centre, a
research and development centre was established as a structural unit of the College.
Saare county development strategy emphasizes the importance of developing a
cluster-based entrepreneurship, stating the tourism and the maritime economy as the
most important fields of the county. The goal is to make available know-how in
these areas, including the development of curricula (Saare… 2008). Kuressaare
city's strategic goal is to develop comprehensive educational and career
opportunities for the island; in collaboration with Kuressaare College and Estonian
Maritime Academy Kuressaare aims to create conditions for the establishment of a
maritime education center in Kuressaare (Kuressaare… 2013).
There are less than 100 students of Local Government’s Administration speciality in
Narva College. Estonians make up about 30% of the students; others are native
Russian speakers, mostly of the Russian nationality. As of 1.10.2012, 50 students
attended the Small Craft Building curriculum in Kuressaare College. The students of
both specialities involve both gymnasium leavers and people employed in the
respective sector.
Theoretical Framework – Regional Contribution of Higher Education
Institutions
Upon studying the topic of community service, the authors have applied a diversity
of approaches: the role of universities in innovation (Charles 2006; Westnes et al
2009; Allison and Eversole 2008), the role of the managing staff of universities
(Gunasekara 2004), the perspectives of the academic staff (Bond and Paterson
2005), knowledge transfer via communication networks of the academic staff
(Vaessen and Velde 2003), involvement in development activities as a regional
policy instrument (Hudson 2006). The aspects closer and more relevant to the focus
of current article are observed in a more detail.
While exploring how Nijmegen University (Netherlands) impacts on the study
environment of the organisations of the region, Vaessen and Velde (2003) draw a
conclusion that just the very existence of a university in a region increases the
region’s prestige and the academic staff have next to their professional activity an
impact on the neighbourhood through their personal contacts as well as various
formal and informal networking. The work points out the significance of transferring
their knowledge and expertise in the course of social communication outside their
work assignments. (Vaessen and Velde 2003: 107).
38
The quality of the teaching depends, among other issues, on the involvement of the
academic staff in community service. Bond and Paterson (2005) questioned over
800 and interviewed over 80 members of academic staff in England and Scotland.
The authors point out that the members of the academic staff demonstrate an active
involvement in and connection to their community both in principal and practice; the
involvement is identified at different geographical levels and often under
unfavourable conditions. The authors study involvement from two aspects: social
and economic (these aspects are often called ‘soft’ and ‘hard’ respectively). The vast
majority of respondents believe that the participation of universities in debates
outside their institutions is important. 88% also believe that it is important to provide
advice to policymakers (Bond and Paterson 2005: 338). The reasons for such
activities are mainly related to the sense of duty or responsibility, not practical gain
or prestige.
Regional networking can be thought of as an institutional survival or strengthening
strategy for universities (Chatterton and Goddard 2000: 481). Higher education
institutions provide education, conduct research and play an active role in the
development of their economic, social and cultural environment. “Within the
individual institution, the challenge is to link the teaching, research and community
service roles by internal mechanisms (funding, staff development, incentives and
rewards, communications, etc.) that make these activities more responsive to
regional needs” (Chatterton and Goddard 2000: 482). Regional contribution to civil
society is conducted through extra-mural activities of individual staff as we also read
in Bond and Paterson (2005) or through providing liberal adult education, through
public lectures, etc (Chatterton and Goddard 2000: 489). From a regional
perspective, higher education institutions can be the key local agencies that are able
to bring together within the territory different national interests (OECD 2007: 30).
Hudson (2006) has described the development of legislative and financial
framework of the third mission of higher education institutions in Sweden during
half a century. Despite the fact that the legislation in the field was quite vague, the
majority of HEIs proved to be central actors in the regional growth partnerships
(Hudson 2006: 398). The author illustrates the process on the example of Umeå
University which is similar to Narva and Kuressaare Colleges as it is also peripheral.
Their regional engagement was not only answering the needs of the region by
conducting research, teaching and offering cooperation but also by widening
recruitment to higher education and supplying the labour market with qualified
personnel (Hudson 2006: 402). One of the biggest obstacles was that decision-
making processes in a big university were often cumbersome and slow moving
(Hudson 2006: 404).
Similar to Sweden, the regional activity of higher education institutions was
extended in Finland. In line with a regional extension, emphasis on performing the
community service mission increased, universities became instruments of regional
policy implementation. Just extending is not sufficient, alongside with teaching the
university has to contribute to the creation of knowledge-based jobs in cooperation
with business and public sectors so that specialists with higher education could find
39
a job in the region according to their qualification. (Virtanen 2010) The branches of
higher education institutions act as focal points of research and innovation networks,
mediators of competences and additional resource fostering an international
dimension. The activity, impact and quality of the units acting outside university
cities have little been studied and thus a more detailed analysis is required to draw
in-depth conclusions. (Vihula, Kosonen and Sotarauta 2006)
One of the most extensive researches in the field of the community service of
universities has been the OECD initiated under the IMHE (Institutional Management
in Higher Education) programme thematic review project “Supporting the
contribution of HEIs to regional development” in the course of which HEIs and
regions evaluated their cooperation. The first period of 2005-2007 embraced 14
regions across 12 countries (Arbo and Benneworth 2007; OECD 2007). In the
second round in 2008-2011 another 14 regions attended and in the last round in
2010-2012 6 regions participated (OECD 2012).
Charles and Benneworth (2002) have developed a tool that benchmarks regional
contributions of HEIs, which includes seven themes and can be used in measuring
and comparing the regional contribution of HEIs. Very importantly, Charles and
Benneworth (2002) draw attention to promoting sustainability. This tool has in some
rewording become the basis of the OECD guidelines for self-analysis, according to
which it is recommended to evaluate the regional engagement and contribution of
HEIs under the following dimensions (Guidelines… 2008):
• The contribution of HEIs to the creation and development of regional
innovation systems. Knowledge creation in the region through research and
its application, e.g. spin out companies, intellectual property rights and
consultancy. Usually, by knowledge creation ‘hard’ contributions and
innovation are meant. In the ‘soft’ fields different new forms of knowledge and
its creation are addressed – data, skills, networking and experience (Chatterton
and Goddard 2000: 480).
• The contribution of the study activity to developing knowledge and skills
meeting the needs of a labour market. Human capital formation and
knowledge transfer – re-localisation of a learning process using learning in a
real work-environment or practical training, graduate employment in the region,
continuing education, professional development and lifelong learning activities.
The main question of knowledge transfer is how to get the right knowledge to
the right people. The knowledge itself could be either explicit or tacit. (Calo
2008)
• The support of HEIs to social, cultural and non-waste technological
development. Cultural and community development contributing to the milieu,
social cohesion and sustainable development on which innovation in the region
depends. Universities have historically had a great role in nation-building,
promoting sustainable development, people’s awareness (Arbo and Benneworth
2007: 52; Zilahy and Huisingh 2009). The role of HEIs in increasing regional
administrative and cooperation capacity. Development of the administrative
capacity for regional cooperation, community development and management
40
capacity. The academic staff carries a remarkable role by participating as
experts in decision making bodies of regional level (Arbo and Benneworth
2007: 71).
Relying on the reports analysing the cooperation of HEIs and regions, the OECD
analyst Puukka points out that even if the regions that have participated in the self-
evaluation process are very different and their differences are diverse, all share the
problem of vast development inequalities inside their regions that requires solutions
(Puukka 2009). The same problem is pointed out in the analysis of the terms of
reference for developing the strategy of regional development of Estonia 2020:
inside the country, the development inequalities of regions are too high, in order to
attain the objectives of regional development, a more efficient involvement of
policies of different sectors is required to implement the strategy. It is pointed out in
the analysis that to foster the competitiveness of labour range outside Tallinn and
Tartu, the potential of regional colleges of universities can be considered. (Eesti...
2012). Despite the small size of the country, the regional development of Estonia is
highly uneven and the results of the 2012 census confirmed the departure of the
population from a number of counties. With the support of colleges, it is possible to
offer broader possibilities for learning and working that in turn increases the
development potential of a region and reduces the level of departure of the
population.
In the framework of a regional policy, the innovation capacity may be increased as
well as the connection of businesses to universities and research institutions.
Economic specialisation, based on the competence advantages of regions, is vital for
balancing regional development. The role of regional policy has also been stressed
out in the 2020 European strategy for smart economic growth. (Regionaalpoliitika...
2010)
Knowledge Creation and Research in the Region
Knowledge creation and research in the region and their application shows the ways
through which higher education institutions are involved with regional innovation
systems. Its primary focus is on the ‘hard’ contributions, such as the inputs to firm-
based innovation, including consultancy (OECD 2007: 117-142). ‘Soft’
contributions mean broader research which helps to create a common understanding
of priorities for regional development amongst regional stakeholders and prepare the
ground for cooperation between the academic and non-academic community. Public
Administration as a discipline generally carries more ‘soft’ aspects whereas Small
Craft Building represents ‘hard’ ones.
In the context of lifelong learning, knowledge creation takes on different
characteristics. In particular, it is important to differentiate between codifiable
knowledge (data), tacit knowledge (skills), knowledge required for networking or
acquaintances and experience. These forms of ‘hybrid knowledge’ become the most
valuable type of knowledge depending upon interpersonal relationships, trust and
cooperation and are most readily developed within the region. (Chatterton and
41
Goddard 2000: 480) These thoughts will be closely studied in the context of both
curricula. Next to research, it is also important to discuss the content of a curriculum
or the essence of knowledge from the point of view of regional needs.
Knowledge creation and research in Narva College are mainly oriented to issues of
multiculturalism. The results are not directly transferable into regional innovation
systems. They are acting as the base for all actions in this multicultural region. This
research is appreciated by the state which is continuously ordering cross-cultural
communication training-courses for different target groups. This way research is
connected to lifelong learning. Research in the Local Government’s Administration
curriculum is practically absent because of the lack of academic personnel in the
field. This might be the biggest shortcoming of the curriculum. The solution seems
to lie in a closer cooperation with other universities but their research interests are
not clearly connected to multiculturalism (in Public Administration). The students’
research papers are mainly in the form of graduation theses which are preferably on
the topics with a practical outcome. In case of in-service students it is logical that
they write a thesis which has a practical value to their organisation and this is
actually very valuable in terms of regional engagement. The cooperation of students
and lecturers has little been employed as the lecturers’ interests are somewhat
broader and more theoretical. Therefore, maybe we just have to accept that there is
no jointly created knowledge in such a small regional college.
Since the classical knowledge creation is rather weak in the field of Public
Administration, the knowledge creation in the context of lifelong learning and the
composition of the curriculum or the essence of the knowledge offered should rather
be focused at.
The Standard of Higher Education sets homogeneous general requirements to the
curricula of the same level education programmes. Upon designing some curricula,
it is possible to commence from professional standards (e.g. Small Craft Building)
but in Public Administration no concrete standards exist. “The main regulative
mechanism has been competition. This has led to rather similar developments in the
programmes’ composition as well as using the already existing strengths in the
institutions” (Kalev et al 2008: 146).
The objective of the LGA curriculum is to train local government officials,
especially for the region. Narva College tries to provide the students with the tools
to work in civil service, the general understanding about the public sector and
society overall; and more focused knowledge about local government. Practical
training makes up a big part of the curriculum. The content of the curriculum is
being constantly developed and revised on the suggestions of the Programme
Council which consists of future employers, lecturers, students and graduates.
Denhardt (2001) has formulated the big questions of Public Administration
education:
• Do we seek to educate our students with respect to theory or to practice?
42
• Do we prepare students for their first jobs or for those to which they might
aspire later?
• What are the appropriate delivery mechanisms for MPA courses and curricula?
• What personal commitments do we make as Public Administration educators?
In respect to the first question about theory and practice, one thing to consider is
what graduates are doing in the future. If they wish to go to work in public service
immediately as professional higher education graduates usually do, they should get
as much practical guidance as possible. If they choose to continue studying at the
Master’s level, they should have more theoretical subjects. Since both ways are
accepted, it makes finding the balance between theory and practice hard but a
necessary task. In other words, we are discovering the balance between codifiable
and tacit knowledge (see Chatterton and Goddard 2000).
How can the students with different needs and future plans be helped within the
same curriculum? This issue is similar to Denhardt’s second question. Denhardt
(2001: 531) has tried to answer this question but even he said: “Educators in Public
Administration have frequently assumed there is one best way to construct
programmes and policies and that we should take a one-size-fits-all approach to our
students. /…/ Some people are simply more interested in theory than others – and
that goes for faculty as well as students”.
Denhardt suggests that the differentiation between pre-service and in-service
students is needed: “students require different kinds of knowledge and skills at
different points in their careers” (Denhardt 2001: 527). Nonetheless he sees the
possibility of learning from each other if these audiences are taught together. One
part of the class has life-experience and broader world-view; they can link new
knowledge to the existing one (‘know-how’, ‘know-who’ and ‘know-why’). The
others are good learners (‘know-what’) but they do not have the context where to put
the new knowledge in. These groups can support each other in acquiring the ‘hybrid
knowledge’ (see Chatterton and Goddard 2000). The challenge for Public
Administration educators (see Denhardt’s fourth question) is to choose learning
methods that take advantage of this composition. Denhardt (2001: 532)
recommends, if designing different curricula is impossible due to the size of the
programme, a set of common core courses might be followed by different electives.
The student interested in continuing studies at next level, should receive more theory
and the student interested in entering a labour market should receive more practical
knowledge and skills.
The contribution of Kuressaare College to the creation of regional innovation
systems and to research activity is more systematic and clearer, compared to the case
of Narva College. Small Craft Building is a ‘hard’ contribution (Chatterton and
Goddard 2000), supporting the business sector of the region. Small regions can be
successful in knowledge creation in specific sectors (smart specialisation), in which
they have competitive advantages compared to other regions and in which the
expected benefit is biggest (Foray, David and Hall 2009).
43
In Estonia, boatbuilding shows major concentration on the mainland coastal areas
and the island of Saaremaa. Boatbuilding is a specific field of activity on islands,
where there is a respective historical tradition and experience.
Two years ago, Small Craft Competence Centre, a research and development centre
was established as a structural unit of the College with the aim of accumulating and
developing respective knowhow and transferring it to businesses (scc.ee). The very
idea of the Small Craft Competence Centre was initiated in the course of developing
Estonian regional innovation system in 2005-2008, where small craft building was
identified as the strategic field of activity to be primarily developed in Saaremaa.
(Eesti…. 2008)
Small craft cluster development strategy has identified the lack of knowhow as the
main development barrier of the sector: technical design, product development,
development of production technology, certifying and testing small craft
(Väikelaevaehituse… 2010). The idea of a Small Craft Competence Centre is based
on overcoming this deficit. Next to developing knowhow, services and
infrastructure, it is essential to develop education in small craft building at the same
time on the level of both vocational training and higher education. Cohesion
between the roles of teaching, research and community service is a precondition for
the respective activities to meet the needs of a region (Chatterton and Goddard
2000). Since the boatbuilding sector has mainly been concentrated in Saaremaa, the
benefit from the cooperation between respective businesses and research is highest
to this region (Foray, David and Hall 2009).
The Competence Centre has good preconditions to develop into a substantial service
provider and partner to businesses in applied research, relying on the activity of the
University of Technology in this field. It is more complicated to meet the needs of
businesses in small craft design as Estonia lacks respective competence and the
international search for contacts has not given the expected results yet.
As a conclusion, it may be stated that university colleges provide access to new
knowledge and develop the competence of public and private sectors across Estonia;
they support the creation of regional innovation systems and the development of
region-specific fields of economy. Certain services, like training, information
requests, mediation of contacts, consultancy, project management, technology and
product development and applied research become the instruments of cooperation.
The case of Kuressaare College characterises one of the possible cooperation forms,
where an education and research institution together with private and public sectors
contribute to the development of the small craft competence centre, vocational
training and higher education in Saaremaa. The region-specific sphere has been
identified in common discussions, in which the college had the role of a leader,
connector of target groups and mediator of contacts. The strengths of the college in
this process have been good contacts with necessary institutes in the university,
international connections and project management competence. The weakness
identified is the different speed of activity of education and research institutions and
44
businesses, the development processes in universities and the time required to apply
for funds in several agencies are time-consuming and differ greatly from the pace,
businesses are used to. Businesses require quicker results and their needs for
services change quickly in time.
The case of Narva College is directed at a softer knowledge creation, the
development of cooperation between academic and non-academic communities and
to the knowledge creation through lifelong learning and graduation thesis of a
practical nature. Like in Kuressaare, the competence of project management is
essential in Narva College. Project based solutions are applied to mitigate regional
problems: unemployment, professional training and integration.
Current chapter reveals region-specific activities that may on the one hand be a
weakness and on the other hand – a strength. Authors have realised that regional
colleges focus on applied research mainly. The proportion of research compared to
the study activity and project management in different networks is less than in the
faculties of universities.
Human Capital Formation and Knowledge Transfer
The core idea of human capital formation is how to transfer the right knowledge to
the right people and what the role of higher education institutions in a regional
labour market is.
Knowledge transfer is the focal topic in studying the cooperation of universities and
businesses. Respective studies have been conducted also in Estonia, e.g. “Indicators
measuring university-industry cooperation” (Seppo and Lilles 2012), “The policy
suggestions concerning motivations and barriers of university-industry cooperation”
(Seppo and Roolaht 2012), “Benchmarking of governmental support measures for
university-industry cooperation” (Rõigas, Seppo, Varblane 2012).
One of the most effective mechanisms for knowledge transfer is the knowledge
which is embedded in students and graduates. This is a critical element of the
regional role played by higher education institutions. Thus, human capital formation
considers the broader significance of labour market processes for the technological
and organisational dynamism of regions. (OECD 2007: 143-164) Chatterton and
Goddard (2000: 489) elaborate that the most effective knowledge transfer
mechanism between HEIs and the external environment is through the institutional
teaching function, that is to say through staff and students.
Universities’ role in the human capital system is performing two functions. Firstly, it
is supplying highest level skills for the national economies: graduates. Secondly,
universities also play a role on the demand side of human capital – if universities
become better at opening pathways downwards to access non-traditional higher
education students, they can increase the upwards drive within the general
population for a process of upskilling that will help to produce economic growth. In
this way, universities are seen as a critical connection in the human capital pyramid
45
that, in turn, helps to determine competitiveness and economic growth in particular
places. (Arbo and Benneworth 2007: 39)
OECD (2007: 143) states three points that explain how HEIs are involved in human
capital formation: first, higher education institutions can widen access to higher
education, particularly from remote areas and/or communities with low traditions of
participation in higher education e.g. through lifelong and e-learning activities.
Second, they can improve the balance between labour market supply and demand
through creating improved labour market intelligence, enhancing links with the
employers and supporting new enterprising. Third, higher education institutions can
attract talent to the region and help to retain it. For example, the people taken up a
job in Narva College, are mostly non-local, but while working and living in Narva
they participate in the city development activities outside the college. Kuressaare
College has involved new people in the region through the activity of the
Competence Centre mainly.
Taking that as the basis, current chapter analyses the questions of widening the
student body and its connection with the local labour market.
To ensure the inflow of highly motivated students, Narva College carries out
projects that help to increase trust towards the College and improve its image. With
activities aimed at the general public, the College prepares and develops the target
group for themselves and the other HEIs.
Kuressaare College, in cooperation with the City Government, operates a robotics
group for basic school students all the year round to increase the interest in a
technical field among the youth. In the framework of the Kuressaare Maritime Days,
the College has since 2008 carried out vision conferences on maritime topics. High
level conferences and a hobby group for the youth improve the image of the College
in the region and increase the interest and trust among the potential students.
For finding the best Public Administration students there are some additional and
more specific measures. The speciality is introduced in the events of public servants,
in-service training courses are arranged as well as public lectures and debates that
facilitate introducing the programme. To increase trust towards the curriculum, the
best graduation theses are sent to well-known and respected professionals for
revision.
Finding motivated students from all over the country is important in many ways;
mostly it is useful for the region, also for the students themselves. Finding good
students is just the first step, it is quite a challenge to keep them in a peripheral
college. A number of students hold speciality related jobs prior to entering the
College, others take up jobs during their studies. It is very important to offer the
students flexible ways to study, at the same time without compromising on the
quality. One way of doing that is e-support and e-courses. An additional advantage
of e-courses for PA students is that in this way students get better acquainted with
different e-services which are well developed and highly appreciated in Estonia both
46
in public administration and businesses. E-learning is an advantage also therefore
that not all lecturers are local. The combination of distance learning and contact
education is comparable to the Provincial University of Lapland which is situated in
the sparsely populated northern part of Finland (OECD 2007: 150).
Human capital formation in the region can be achieved by HEIs, if they observe the
needs and changes of a labour market and react to them. The unemployment rate in
Ida-Viru County has always been beyond the national average, 10.5% and 6%
respectively (September 2013). “Statistical research concluded that Russian-
speaking minorities in Estonia and Latvia have a significantly higher probability of
being unemployed compared to the titular population of these countries” (Elsuwege
2004: 23). For Narva College it means that the education it offers should not be too
abstract or too theoretical. Also the specialization must not be too narrow.
The LGA curriculum is taught in Estonian that is too difficult to many people. Since
civil service prerequisites speaking Estonian at the highest level, the College cannot
change the language of instruction. Instead, different CLIL (content and language
integrated learning) methods are used. By the graduation time students are good
specialists and speak fluent Estonian. Even if they do not seek for finding a job in
the public sector, they still have an advantage on the labour market.
The university assists to build a good living and working environment. If our
graduates succeed in their career, the university can attract better students and, as a
result, there will be more educated people in the region. If the society is more mature
and innovative, more people have a good education, HEI can operate with wiser
partners.
The curricula in Kuressaare College are based on local specifics and needs, but in
preparing specialists, the needs of Estonia on the whole are considered and
recruitment campaigns are targeted across Estonia, not only at the local county.
The curriculum in Small Craft Building is one of a kind in Estonia, on both
vocational training and higher educational level instruction in this field is provided
in Kuressaare only. According to entrepreneurs, one of the biggest barriers of the
boatbuilding sector development is the shortage of qualified labour force
(Hartikainen 2008, 2010). In the Tallinn University of Technology, shipbuilding
related education was provided until 1975. Currently, it is possible to specialise in
shipbuilding during Bachelor’s studies under the curriculum of Product
Development and Production Engineering in the TUT Faculty of Mechanical
Engineering and to continue Master’s studies in the Helsinki University of
Technology (Aalto University) according to a cooperation contract. The Kuressaare
Regional Training Centre was the first vocational training institution in Estonia to
provide vocational training in boatbuilding ten years ago.
The Small Craft Building curriculum in Kuressaare College is a joint curriculum,
launched in cooperation of Tallinn University of Technology and the Estonian
Maritime Academy by integrating the existing curriculum modules and developing
47
new modules and subjects missing in Estonia so far. The success of a curriculum
depends on academic staff (Bond and Paterson 2005). The Small Craft Building
curriculum involves teaching staff from Tallinn University of Technology and the
Estonian Maritime Academy, specialists from boatyards and experts from partner
universities (Croatia, Finland, Sweden, Germany).
The strength of small craft building lies in the boatyards’ concentration in Saaremaa
that enables connecting theoretical studies to practical training in boatyards.
Cooperation with the Kuressaare Regional Training Centre allows the cohesion
between educational levels and provides a possibility for those finishing vocational
training to continue with higher education. The College participates together with
the Association of Estonian Boatyards in developing and carrying out professional
examinations.
Prior to launching the curriculum, a survey in training needs was conducted by
Kuressaare College. There are about 600 people employed in the sector, out of
engineering jobs 60% and of managerial jobs 55% were occupied (Hartikainen
2008). The years of recession had had no major impact on the sector (Hartikainen
2010). Beside the businesses involved in boatbuilding, repair and maintenance, the
curriculum is of benefit to the businesses manufacturing products of light materials.
The competence of material studies in the curriculum is secured by cooperation with
the TUT Faculty of Mechanical Engineering. The language of some of the subjects
is English and they are instructed by the partners of the College from Finland,
Sweden, Croatia etc. The objective is to develop a business training module in
English that could also be offered to Erasmus-partners.
The subject syllabi of the Small Craft Building curriculum are also fit for in-service
training for businesses of other marine-related sectors like tourism, fishery, port
services etc. In connection with the existing curricula in Kuressaare College, further
development in specialisation (maritime tourism, recreation, experience industry,
electronic systems for small craft) is possible.
By 2013, there are yet no graduates from the Small Craft Building curriculum, thus,
it is not possible to analyse feedback from graduates or the contribution to the
industry. Still, in-service training courses have transferred the knowledge of the
speciality to small craft building businesses both in Saaremaa and across Estonia. To
develop the curriculum, also representatives of respective businesses are included in
the Programme Council in order to secure the study programmes and students to
meet the needs of a labour market in the best possible way.
The chapter of human resource formation confirms and complements the fact that
regional colleges focus their activity either on increasing their strengths or
decreasing weaknesses. A college can focus on the knowledge existing in a certain
location and this location is best for a further development and application of the
knowledge. In such a case, students are expected to enter the college not on the basis
of their place of residence but of interest. On the other hand, it is possible to focus
on the shortcomings that are the biggest barriers of a comprehensive development of
48
the region. In such a case, the main focus is on educating local students. In both
cases, it is important from the sustainability point of view to maintain a connection
with other specialities provided by the education institution that gives the students
certain possibilities for choice and/or specialisation. It is also important to keep an
optimum work load of the lecturers whose competences are most valuable if they
live locally and participate in the life of the community instead of just participating
in the study activity.
Both Narva and Kuressaare colleges extend an access to education in their regions,
providing learning possibilities to the young people of the region who for different
reasons can or will not go to schools further away. When acquiring education in the
region, the probability of them later working in the region is also higher. A number
of students from other regions in the college often enter a labour market in the
region where they have studied, a college offers in the form of lifelong learning a
possibility to bring together studying with work and family lives. It is impossible to
objectively evaluate if regional colleges have to make bigger efforts to recruit
student candidates than the faculties of universities in bigger centres. It still may be
assumed that to compete with the possibilities of the capital and university cities,
more advertising and explanatory work is required. Cooperation with the public
sector institutions and organisations secures up-to-date and relevant content of
teaching, the graduation thesis of students support the development of the
institutions and businesses of the region.
On the one hand, the strength of a regional college lies in the connection to its
university as the unified requirements assume the quality being attained in all units
of the university, incl. colleges. On the other hand, their location and closeness to
the institutions and businesses of the region is another strength as direct
communication and common discussions give a possibility for a flexible reaction to
the needs of a labour market. A regional college cannot due to its limited capacity
offer a wide range of specialities, but in cooperation with the university and other
HEIs it is possible to bring education programmes and in-service courses to the
location in accordance to the existing demand. The specialities of a college must
have a certain common part but not to be very similar, otherwise the possibilities of
choice and specialisation are reduced. In case of a too narrow focus, some region-
specific fields may stay uncovered and sustainability of a college may be
jeopardised. When its original mission gets accomplished the need for a college
ceases to exist. Hence regional colleges should broaden the variety of specialities.
Contribution to Social, Cultural and Environmental Development
The attitudes and practices of higher education institutions are studied in relation to
the social, cultural and environmental development of the region, not only as means
to economic progress but also as ends in themselves. (OECD 2007: 165-180)
Higher education institutions shape the local civic society through community
service. There are several ways to act as a community developer, for example,
providing leadership, analysis, credibility while participating in regional networks.
49
They also can provide a framework through which ideas can be shared and
transmitted. A second aspect of the service role of HEIs concerns community and
voluntary action in the region. Thirdly, HEIs own a number of facilities such as
libraries, sports centres, and arts and cultural venues that are often significant
regional facilities offering public access. (Chatterton and Goddard 2000: 490, 493)
The keywords of regional development are social cohesion and sustainability. Next,
it is explored how Narva College and Kuressaare College, incl. the Local
Government Administration curriculum and the Small Craft Building curriculum
support them. It is analysed if there are any threats or shortcomings in this matter.
One can observe obvious differences in the cultures of Estonians and Russians in
Narva. In this case it is not just cultures we are talking about, but different
civilisations. “The countries around Baltic Sea are in possession of two civilisations
of global relevance: the Western Christian and the Orthodox.” (Maciejewski
2002: 33-34; see also different writings of Samuel Huntington) Narva is standing on
the border of those civilisations. In recent decades integration in Estonia has had
both success stories and failures. Integration should not be a task of one ministry; it
should be a common interest of several stakeholders. As a large portion of the
Russian speaking population lives in Narva and in Ida-Viru County, it is the
College’s moral obligation to support the integration process.
Social cohesion or unity in the community can be supported only if HEI’s presence
is felt by the community. In addition to academic affairs, it is sometimes good to
retreat from the core competence just to remind the community of HEI’s existence
and offer something else. In case of Narva College, there are different cultural and
sports events organised. Since integration and cross-cultural communication is such
an important issue, it is necessary to support it outside and inside the College.
Kalev et al (2008: 127) in their overview of public administration curricula of
Estonia judge rightly that Narva College is an institution of integration. A public
servant has to know, how things are organised in other regions and be able to learn
from the best ones. To ease the problem the College organises field trips for every
speciality. The aim of the field trips is broadening, deepening and illustrating the
knowledge the students gain during lectures and other forms of classroom work as
well as to establish networks (Chatterton and Goddard 2000) with future employers.
The other reason is less connected to the curriculum and studying: the more people
travel, the more they feel a connection with other regions and the less they feel
excluded. “The language barrier has created a situation that the non-Estonians feel
being trapped into their own world” (Küün 2006: 129).
Recruiting some students outside Ida-Viru County would promote integration and
language studies as well. Joint activities give common memories and unite people.
Lecturers have to acknowledge the fact that they are teaching in a multicultural
environment and overcome the difficulties that sometimes occur. Students from
outside Ida-Virumaa create a bigger need to use Estonian as the language of group
work and other conversations. Estonians have an ideal possibility to study Russian
50
in Narva – language classes are supported by the Russian speaking environment
outside the study activity. It is useful for officials to know the language that is
spoken by a quarter of Estonia’s population. Moreover, the Constitution of the
Republic of Estonia §51 states: “In localities where at least one-half of the
permanent residents belong to a national minority, everyone has the right to also
receive responses from state agencies, local governments, and their officials in the
language of the national minority.”
Obviously, integration and social cohesion play a very important role in Narva
College’s community service but the other important keyword is sustainability.
Sustainable development of the region can be achieved only in cooperation of many
interest groups (local government, entrepreneurs, non-governmental organisations
and volunteers).
Narva College could be more steadily and profoundly present in local networks. The
College has an extensive experience in writing strategic documents, reports, project
applications. City and county governments could have a bigger gain from it. Since it
is easier to change one’s own behaviour, the members of the academic staff and
administration should be better aware of the ongoing developments in their field in
the region. If the trust of being competent and interested has been built, proposals of
cooperation may follow.
The Public Administration curriculum has exceptional possibilities of supporting
cooperation between sectors, e.g. practical training is carried out in a local
government, state agency and the third or private sector organisation. Such
experience definitely helps to a better understanding the partners. There are also
some subjects that promote public-private partnership and teach students to see the
society as a whole not just from the point of view of their job position.
For Narva College, the function of community service is neither complicated nor
requiring extra effort. This is a natural part of the College’s existence. Sometimes
the ‘third role’ may become overwhelming and seem like the most important one.
Probably Narva College should be careful not to lose the focus as all three roles
have to be in balance. Another issue is if the balance should be the same as in the
university on the whole. The College’s challenge is to connect the role of
community service tightly to the tasks of the study and research activities. Every
separate action should support the College’s mission and not to be sporadic.
HEIs have a major impact on the organisations of their location region both through
formal and informal communication (Vaessen and Velde 2003). Universities hold an
important role in the community awareness raising and capacity building of the
region (Arbo and Benneworth 2007).
Boatbuilding has been a traditional field of activity in Estonian coastal areas, thus
the Small Craft Building curriculum and R&D activity in Kuressaare College are
closely connected to the culture characteristic of islands.
51
The academic staff carries a significant role of experts in the work of regional
decision making bodies and management networks (Arbo and Benneworth 2007).
For a better understanding between entrepreneurs and the university, it is crucial to
have direct contacts, to be present and located in the same region for creating the so-
called local buzz and communication forum (Bathelt, Malmberg and Maskell 2004).
Such a forum is a pre-condition for networking, discussions, developing and
implementing common strategies.
As a regional educational and R&D institution, Kuressaare College has a significant
role in being an active partner to the businesses of the region, vocational training
establishments, local governments, county government and other social partners.
The employees of the College participate in the work groups for developing and
monitoring the implementation of regional strategies, the City Council and its
committees, management and directing bodies of the Association of Saaremaa
Entrepreneurs, the Association of Estonian Boatyards and other development
organisations. Two thirds of the College employees are involved in professional or
other bodies and organisations. The employees of Kuressaare College participated in
the development process of the national maritime strategy for 2012-2020 (adopted
by the Decree of the Government of the Republic on 2.08.2012)
Kuressaare College initiated the establishment of the Saaremaa competence network
bringing together 15 partners from public, NGO and private sectors. The network is
an association of partners, performing the role of a central information and
development platform of the region that analyses the competence fields of the region
and elaborates the common activity plan for developing the region-specific
competences. As a result of discussions, the network compiled the development
ideas of Saare County into the conception of a so-called Maritime House, having
four pillars: small craft building, small harbours, fishery, aquaculture and maritime
tourism. The activity of the network has become less active during a couple of recent
years as apart from the College, no other partner has been ready to take leadership.
Contribution to social, cultural and environmental development gives regional
colleges a number of and diverse possibilities to be useful for their regions and to
gain from it in a long run. Each college identifies the ways that are most needed in
the region and that the college is strong in. As described earlier, activities can
efficiently be linked with concrete specialities and, thus, give more variety to
activities. A contribution to social, cultural and environmental development through
specialities is more concrete and focused and supplements the general respective
activities of a college. It is important to secure regular monitoring of the activity, in
order to identify the fields of improvement or withdrawal at some extent. It is
essential to realise when an excessive contribution starts holding back development
as the partners have started to take the share of a college for granted and to reduce
their own share.
Also in this chapter it may be stated that a region-specific contribution may be based
on both weaknesses and strengths. Kuressaare College relies on its strength in
developing strategies in cooperation with partners. The network relying on one
52
leader organisation too much may be considered a weakness here. The strength of
Kuressaare College may turn into a weakness in case of a little initiative from
partners. In case of a strong leader, other partners do not necessarily feel enough
responsibility and the activity of the network slows down if the leadership of the
college reduces. Narva College relies on the weaknesses of the region in social
sphere. Due to these weaknesses, Narva College cannot afford relying on its
strengths only. These strengths will have to be developed in respect to the
weaknesses of the region.
Current chapter reflects the most typical part of community service. As a matter of
fact, it has a bigger scale in the activity of regional colleges than that in the faculties
of universities. Hence the confirmation of the statement that the three roles of the
university do not have to and cannot be similar across a university. All three have to
be present but it has to be pointed out and supported that regional colleges have been
established with the aim of serving the community and therefore meeting the region-
specific needs is somewhat more acute than a traditional research activity. The
authors of the article find that it is not possible to stress on specific research work
and a broad-based community service simultaneously.
Conclusions
The article analyses at the example of the Narva College of the University of Tartu
and the Kuressaare College of Tallinn University of Technology how the curriculum
development in region-specific sectors, R&D and participation in socio-cultural
activity support cooperation in a region and the implementation of the task of
community service. Cooperation and regional engagement are evaluated in three
aspects: knowledge creation in the region; human capital formation and transfer of
knowledge; social, cultural and environmental development.
Rapid changes assume universities to have a closer connection to their external
environment, faster reaction and higher flexibility to meet the expectations of the
society. Regional colleges are the mediators of knowledge between their universities
and local needs. On the one hand, colleges carry the competence and quality
standards of the university and on the other hand, they are flexible and facilitate the
adaption of the university competence to be applied in a region. Therefore, the
curricula of professional higher education are of utmost importance in colleges. In
addition to sectorial knowledge, regional colleges mediate the knowledge in project
management, cooperation forms, fund raising possibilities, research, strategic
planning etc.
The R&D activity of colleges is directed to the development of their study fields,
promotion of entrepreneurship and innovation and increasing the development
potential of a region in general. The case of Small Craft Building represents the
creation of knowledge in a ‘hard’ sector and a contribution to support
entrepreneurship and Local Government's Administration represents the creation of
‘soft’ knowledge (Chatterton and Goddard 2000), while the examples prove the
importance of both kinds of knowledge to contribute to the development of a region.
53
In regions, mainly applied research is carried out and the volume of research work is
somewhat smaller than in university faculties where different community service
activities show a smaller proportion. It has to be born in mind that establishing
regional colleges including the decisions about opening the curricula is a part of the
community service of universities, thus a bigger share of respective activities,
compared to research work, has been embedded in them.
Upon studying the topic at the example of two regional colleges, the authors have
reached the conclusion that the role of representing the university and of a mediator
is successful primarily in the framework of the specialities taught in the college and
the related target groups. At a closer look at the specialities taught in the colleges, it
may be concluded that the region-specifics may at the same time be a strength and a
weakness of the region. Some specialities are created to support the strengths and
some to mitigate the weaknesses of a region. The specialities taught have to have at
least some inter-connection, otherwise the sustainability of specialities will suffer.
Still, focusing cannot be an objective in itself as it may leave essential region-
specific topics uncovered. When its original mission gets accomplished the need for
a college ceases to exist. Hence regional colleges should broaden the variety of
specialities.
More important than just detailed examples and suggestions of regional engagement
through curriculum development (which can be found in different parts of this
article) are the following generalizations. After the comprehensive study in a
curriculum design (content of the study activity, teaching and assessment methods,
extracurricular activities, topics and supervision of students’ research works,
cooperation with partners) the authors conclude that community service is not a
separate extra activity for a university, it is integrated in all aspects of its activity.
Thus, the title “third role” is only conditional in the sense that community service
has appeared next to the two traditional roles of teaching and research but it is
closely integrated in both (Chatterton and Goddard 2000). The tasks of the third role
have to be connected to the specialities of a regional college, providing support to
the curriculum development, quality of the study activity and marketing a
curriculum and being useful to the region in a number of ways at the same time. All
community service tasks can and have to be implemented in connection with
concrete specialities – research, cooperation with partners, project management,
carrying out events etc. It may be claimed that the community service activities not
connected to the specialities fragmentize the college activities and disperse its
objectives and are therefore not sustainable.
A regional college is a development engine in its region. Every speciality/curriculum
is the engine in its own field. The academic staff has a remarkable role in
participating as experts in decision-making bodies and management networks at a
regional level (Arbo and Benneworth 2007). Colleges contribute to cooperation
initiatives and preparation of regional development strategies together with partners
but a cooperation network must not rely on one leader organisation too much. In
case, the biggest share of responsibility lies with colleges for a long period, partners
may become lazy and assume someone else to take the responsibility and implement
54
assignments. If in such a case, the strength of a college weakens or priorities are
rearranged, the cooperation ceases due to the lack of leadership.
Colleges facilitate an access to education in their regions for young people and by
offering possibilities for lifelong learning. Cooperation with local partners secures
up-to-date and relevant content of studies and supports the process of the specialists
with higher education finding a job relevant to their qualification in the region. In
addition to the teaching role, a university has to contribute to the creation of jobs
(Virtanen 2010). Studying in a place creates a probability of a number of people
from other regions to stay on the labour market in the place of their studies.
Surveys on the regional development of Estonia often admit that the in-country
development differences are way too big for such a small country and to address
them, it is not enough to apply regional policy measures only, it is important to
achieve a more efficient coordination of the policies of other sectors. These other
sectors are supported by and tightly connected to the curricula taught in the regions.
To increase the competitiveness of a labour range outside Tallinn and Tartu, the
potential of regional colleges of universities and their curricula can be considered, as
stressed out in the analysis of the terms of reference for developing the Estonian
regional development strategy 2020 (Eesti… 2012). The network of colleges serves
an instrument in Estonia that can be used to facilitate a balanced development in a
more efficient way.
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ÜLIKOOLI ÜHISKONNATEENIMISE ROLLI TÄITMINE REGIONAALSE
KOLLEDŽI ÕPPEKAVAARENDUSE KAUDU
Anne Keerberg, Aet Kiisla, Sulev Mäeltsemees
1
Tallinna Tehnikaülikool
Sissejuhatus
Ülikoolide ajalooliselt esmane roll oli õpetamine, 19. sajandi keskpaiku sai
Alexander von Humboldti akadeemilise revolutsiooni tulemusena teaduslikust
uurimistööst õppetegevuse kõrval teine, kuid esimesega tihedalt seotud ülikooli
põhifunktsioon. Ühiskonnateenimise ülesandest, ülikoolide nn kolmandast rollist
hakati rääkima alles 20. sajandi lõpukümnenditel. Põhjuseks said muutused
ühiskonnas – globaliseerumine, võrgustumine, tihedam seos ühiskonnaga ning
teenusmajanduse ja teadmusmahuka tootmise areng. (Chatterton and Goddard 2000;
OECD 2007: 21; Bass and Silverstein 1996; Arbo and Benneworth 2007). Teadust
peetakse üldjuhul ülikooli olulisimaks ülesandeks (ülikoolide hulgas rõhutatakse
sageli eraldi teadusülikoole) ja õpetamist arusaadavalt sellel baseeruvaks.
Ühiskonnateenimist nimetatakse enamasti alles kolmanda ülesandena, kuid viimane
on tihedalt seotud kahe esimesega. Ühiskonna teenimist on viimastel aastatel
hakatud kõrgelt hindama, eriti noortes demokraatlikes riikides. (Chatterton and
Goddard 2000: 477)
Artikli eesmärk on analüüsida, kuidas on ülikooli regionaalsel kolledžil võimalik
täita ühiskonnateenimise ülesannet läbi õppekavaarenduse. Kas ja kuidas toetab
kolledžite regioonispetsiifiliste valdkondade õppekavaarendus, teadus- ja
arendustegevus ning sotsiaal-kultuurilises tegevuses osalemine koostööd regioonis
ning ühiskonna teenimise ülesannet? Püstitatud ülesanne võimaldab terviklikult
uurida selliseid komponente, nagu õppekavade sisu ja ülesehitus, õppe- ja
hindamismeetodid, õppekavavälised tegevused, üliõpilaste uurimustööde teemad ja
juhendamine, koostöö partneritega. Terviklik lähenemine on eelduseks
hästitoimivale õppekavale, kusjuures antud artiklis on ühendavaks teguriks
ühiskonnateenimine.
Uuringu tulemused on rakendatavad konkreetsete analüüsitud õppekavade ja
kolledžite puhul, kuid tänu valitud juhtumite olemusele laiendatavad ka teistele
regionaalsetele üksustele. Kolledživõrgustiku tekkimise eeldused, terviklik mõju
ning vastavus regioonispetsiifilistele vajadustele on oluline teema, mis vajab
1
Sulev Mäeltsemees PhD, Sotsiaalteaduskonna dekaan, Tallinna Tehnikaülikool, Ehitajate tee
5, Tallinn, sulev.maeltsemees@ttu.ee;
Aet Kiisla MSc, õppedirektor, avaliku halduse lektor, Tartu Ülikooli Narva Kolledž, Raekoja
plats 2, Narva, aet.kiisla@ut.ee;
Anne Keerberg MA, direktor, Tallinna Tehnikaülikooli Kuressaare Kolledž, Rootsi 7,
Kuressaare, anne.keerberg@ttu.ee
167
täiendavat uurimist.
2
Artiklis käsitletud kahe suurema Eesti ülikooli (Tartu Ülikooli ja Tallinna
Tehnikaülikooli) kahe regionaalse kolledži (Narva ja Kuressaare) tegevus riigi eri
piirkondades on reguleeritud samade üleriigiliste õigusaktidega, mis teeb juhtumid
hästi võrreldavaks. Samas on nende kolledžite tegevus teineteisest täiesti sõltumatu,
mistõttu on tagatud tulemuste maksimaalne usaldusväärsus ja rakendatavus ka
laiemalt (teistele taolistele kolledžitele). Vaadeldavad juhtumid on üksteisest
sõltumatud, kuna kolledžid tegutsevad erinevate ülikoolide koosseisus ja
geograafiliselt asuvad maksimaalselt eraldatult. Vaadeldavad regioonid on ka
sotsiaal-majanduslikult küllaltki erinevad. Ka vaadeldavad õppekavad (kohaliku
omavalitsuse korraldus ja väikelaevaehitus) on üksteisest täiesti erinevad, üks
kuulub niinimetatud pehmesse, teine kõvasse valdkonda, mis veelgi kindlustab
tulemuste paikapidavust erinevate õppekavade ja ülikoolide puhul.
Teoreetiliseks aluseks on võetud rahvusvaheliselt tunnustatud hariduspoliitika
teadlaste seisukohad ning OECD definitsioonid ja selgitused, mida võrreldakse kahe
ülikooli regionaalsete kolledžite näidetega. Artiklis analüüsitakse ühiskonna-
teenimise toetamise võimalusi läbi õppekavaarenduse OECD sõnastatud
dimensioonide põhjal: teadmiste loomine regioonis, inimkapitali arendus ja
teadmiste ülekandmine ning kultuuriline ja kogukonna arendus. Artikli koostamisel
on kasutatud dokumendianalüüsi, aluseks on võetud õppekavade koostamise
dokumendid, analüüsid, aruanded, koosolekute protokollid jms kokkuvõtted. Lisaks
on uuritud ülikoolide ning nende kolledžite arengukavasid ja teisi strateegilisi
dokumente ning regionaaltegevusega seotud materjale. Autorid kirjeldavad
juhtumeid ka läbi oma töökogemuse uurimisobjektiks olevates kolledžites.
Ülikoolide regionaalne panus
Ülikoolide ühiskonnateenimise teema uurimisel on autorid kasutanud mitmeid
erinevaid lähenemisviise: ülikoolide roll innovatsioonis (Charles 2006; Westnes et al
2009; Allison ja Eversole 2008), ülikoolide juhtivtöötajate roll (Gunasekara 2004),
akadeemiliste töötajate võimalused (Bond ja Paterson 2005), teadmiste
edasikandumine akadeemilise personali suhtlusvõrgustike kaudu (Vaessen ja Velde
2003), kaasatus arendustegevustesse kui regionaalpoliitiline instrument (Hudson
2006).
Vaessen ja Velde (2003) jõudsid Nijmegeni ülikooli (Holland) uuringu põhjal
järeldusele, et ainuüksi ülikooli olemasolu regioonis lisab piirkonnale prestiiži ning
akadeemiline personal mõjutab ümbruskonda lisaks ametialasele seotusele ka
isiklike kontaktide ja kõikvõimalike formaalsete ning mitteformaalsete võrgustike
kaudu. Uuring osutas, et märkimisväärne on just see teadmiste edasikandmise maht,
mis toimub läbi sotsiaalse suhtlemise väljaspool tööaega (Vaessen ja Velde 2003:
107).
2
Vastav uuring on käimas teadus- ja innovatsioonipoliitika seire programmi TIPS raames,
mille raport valmib 2014. a http://tips.ut.ee/index.php?module=32&op=1&id=3464
168
Kohalikku võrgustumist võib käsitleda kui ülikoolide ellujäämis- ja tugevnemis-
strateegiat (Chatterton ja Goddard 2000: 481). Kõrgkoolid pakuvad haridust,
teostavad uuringuid ning on aktiivsed oma majandusliku, sotsiaalse ja kultuurilise
keskkonna arendamises. "Üksiku institutsiooni siseselt on väljakutseks õpetamise,
teadustöö ja ühiskonnateenimise rollide sidumine sisemiste mehhanismide abil
(rahastamine, personali areng, boonused ja autasud, kommunikatsioon jne), et need
tegevused oleksid rohkem vastavuses regiooni vajadustega“ (Chatterton ja Goddard
2000: 482). Panustamine kodanikuühiskonda regioonis toimub töötajate töövälise
tegevuse näol, nagu seda kirjeldavad Bond ja Paterson (2005), või täiskasvanute
täienduskoolituse pakkumise, avalike loengute jms pakkumise kujul (Chatterton ja
Goddard 2000: 489). Lähtudes regionaalsest perspektiivist võib kõrgkool olla
võtmefiguur, mis esindab erinevaid rahvuslikke huvisid konkreetsel territooriumil
(OECD 2007: 30).
Eesti regionaalarengu strateegia 2020 koostamise lähteolukorra analüüsis
rõhutatakse: riigi siseselt on piirkondade arenguerinevused liiga suured, regionaalse
arengu eesmärkide saavutamiseks on vajalik eri valdkonnapoliitikate tõhusam
kaasatus. Analüüs osutab, et tööjõuareaalide konkurentsivõime tugevdamisel
väljaspool Tallinna ja Tartut saab arvestada ülikoolide regionaalsete kolledžite
potentsiaaliga. (Eesti… 2012) Riigi väiksusest hoolimata on Eesti regionaalne areng
väga ebaühtlane ja 2012. aasta rahvaloenduse andmed kinnitasid paljudest
maakondadest elanike lahkumist. Kolledžite toel on võimalik ka kohapeal laiemaid
õppimise ja töötamise võimalusi pakkuda, mis tõstab piirkonna arengupotentsiaali
ning pidurdab lahkumist.
Regionaalpoliitika raames saab edendada innovatsioonivõimet ning tugevdada
ettevõtete sidemeid ülikoolide ja teadusasutustega. Piirkondade konkurentsieelistele
tugineva majandusliku spetsialiseerumise soodustamine on regionaalse arengu
tasakaalustamiseks hädavajalik. Regionaalpoliitika panust rõhutatakse ka Euroopa
2020 strateegias aruka majanduskasvusaavutamiseks (Regionaalpoliitika… 2010).
Regionaalne kõrgharidus Eestis
Eesti avalik-õiguslikel ülikoolidel on seitse väljaspool Tallinna ja Tartut asuvat
regionaalset kolledžit. Kolledžid paiknevad hajusalt üle Eesti ning pakuvad
õppekavasid ja edendavad teadus-arendustegevust lähtuvalt regiooni ning oma
emaülikooli spetsiifikast. Avalik-õiguslike ülikoolide rektorid on allkirjastanud
ühisleppe (24.11.2008), millega seavad strateegiliseks eesmärgiks arendada koos
välja kogu Eestit kattev regionaalsete pädevuskeskuste võrgustik, mida on vaja
elukestva õppe ja piirkonna ettevõtluse hoogustamiseks. Lisaks õppetegevusele
panustatakse regionaalsete innovatsioonisüsteemide loomisse ning toetatakse
kogukonna arendustegevusi.
Narva asub Euroopa Liidu ja Venemaa piiril. Narvas tegutseb neli kõrgkooli, kuid
avalik-õiguslikest ainult Tartu Ülikooli Narva Kolledž. Kolledž asutati vastavalt
regiooni vajadustele peamiselt venekeelsete koolide õpetajate koolitamiseks. Hiljem
on lisandunud teisigi erialasid, nende seas kohaliku omavalitsuse korralduse
169
rakenduskõrghariduse õppekava. Nimetatud erialal õpib Narvas alla 100 üliõpilase.
Eestlasi on nende seas ca 30%, ülejäänud on vene emakeelega üliõpilased, peamiselt
venelased.
Kuressaare kolledž asutati Tallinna Tehnikaülikooli asutusena ja Saarte Instituudi
õigusjärglasena 1999. aastal. Alustati Saaremaale omase turismivaldkonna õppega,
millele hiljem lisandusid elektroonika, ettevõtluse ning väikelaevaehituse õpe,
viimane neist on regioonispetsiifilise ning kõrge arengupotentsiaaliga tootmis-
valdkonnana esile tõstetud Eesti regionaalse innovatsioonistrateegia koostamise
protsessis (Tiits 2007). Kolledži koosseisu kuulub 2011. aastal moodustatud teadus-
ja arenduskeskus – väikelaevaehituse kompetentsikeskus. Kuressaare kolledži
väikelaevaehituse õppekaval õppis 1.10.2012 seisuga 50 üliõpilast.
Mõlemal erialal nimetatud kolledžites on õppurite seas nii värskeid gümnaasiumi-
lõpetajaid kui juba vastavas valdkonnas töötavaid inimesi.
Regioonispetsiifiliste õppekavade arendus ja regiooni teenimine
Kiired muutused eeldavad ülikoolidelt tihedamat sidet ümbritseva keskkonnaga,
kiiremat reageerimist ning suuremat paindlikkust ühiskonna ootustele vastamises.
Regionaalsed kolledžid on oma olemuselt teadmiste vahendajaks emaülikooli ja
kohalike vajaduste vahel. Kolledžid kannavad ühest küljest ülikooli kompetentsi ja
kvaliteedistandardeid, teisest küljest on paindlikud ning aitavad kohandada ülikooli
kompetentsi regioonile rakendatavaks. Seetõttu on regionaalsetes kolledžites suur
osatähtsus rakenduskõrghariduse õppekavadel. Lisaks valdkonnateadmistele
vahendavad regionaalsed kolledžid teadmisi ka projekti¬juhtimisest, koostöö-
vormidest, rahastamisvõimalustest, uurimistööst, strateegilisest planeerimisest jms.
Kolledžite teadus- ja arendustegevus on suunatud oma õppevaldkondade
arendamisele, ettevõtluse ja innovatsiooni hoogustamisele ning piirkonna
arengupotentsiaali tõstmisele tervikuna. Kuressaare kolledži näide esindab teadmiste
loomise osas nn "kõva" valdkonda, panust ettevõtluse toetamiseks, ning Narva
kolledž "pehmet" teadmusloomet (Chatterton ja Goddard 2000), näited kinnitavad
mõlema valdkonna olulisust regiooni arengusse panustamisel. Regioonides tehakse
enam rakendusuuringuid ja teadustöö maht on mõnevõrra väiksem kui
teaduskondades, kus ühiskonnateenimise erinevad tegevused on selle võrra
vähemkaalukad. Tuleb meeles pidada, et regionaalsete kolledžite loomine on üks osa
ülikoolide ühiskonnateenimisest, seega nende tegevusse on sisse kodeeritud
vastavate tegevuste suurem osakaal kui see on teadustööl.
Uurides teemat kahe regionaalse kolledži näitel tulid artikli autorid järeldusele, et
ülikooli esindaja ja teadmiste vahendaja roll on efektiivne eelkõige kolledžis
õpetatavate valdkondade raames ja nendega seonduvates sihtrühmades. Vaadates
lähemalt neid valdkondi, mida kolledžites õpetatakse, võib täheldada, et
regioonispetsiifiline võib olla nii selle regiooni tugevus kui ka nõrkus. Mõni eriala
luuakse regiooni tugevuste rakendamiseks, mõni regiooni nõrkuste leevendamiseks.
Õpetatavad valdkonnad peaksid praktilisest küljest olema omavahel mingilgi määral
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seotud, vastasel korral kannatab erialade jätkusuutlikkus. Samas ei saa olla
eesmärgiks fokuseerimine, sest niiviisi võivad katmata jääda olulised regiooni-
spetsiifilised valdkonnad ja võib kannatada kolledžite jätkusuutlikkus.
Kolledžid laiendavad oma piirkonnas ligipääsu haridusele, seda nii noorte õppima
asujate jaoks kui elukestva õppe võimaluste pakkumisel. Koostöö kohalike
partneritega tagab aja- ja asjakohase õppesisu ning toetab protsessi, et kõrgharitud
spetsialistid leiaksid piirkonnas ka kvalifikatsioonile vastavat tööd. Lisaks õpetamise
rollile regioonis peab ülikool panustama ka töökohtade loomisse (Virtanen 2010).
Kohapeal õppides on suurem tõenäosus sinna tööle jääda, samuti jäävad mitmed
teistest regioonidest õppima asunud tudengid kohalikule tööturule.
Autorid leiavad, et ühiskonnateenimine ei ole ülikooli eraldiseisev lisategevus, vaid
on integreeritud tema tegevuse kõikidesse valdkondadesse. Nimetus "kolmas roll"
on ses mõttes tinglik, ühiskonnateenimine on ülikoolide kahe traditsioonilise rolli
õppe- ja teadustegevuse kõrvale kerkinud, kuid nendega tihedalt integreeritud osa
(Chatterton ja Goddard 2000). Kolmanda rolliga seotud ülesanded peavad olema
seotud regionaalse kolledži erialadega. See toetab erialade õppekavaarendust,
õppetöö kvaliteeti ja õppekava turundust, samas ollakse regioonile mitmekülgselt
kasulik. Kõiki ühiskonnateenimise ülesandeid saab ja peabki täitma seoses
konkreetsete erialadega – teadustöö, koostöö partneritega, projektitegevus, üritused
jne. Võib väita, et erialadega mitteseonduv ühiskonnateenimine pigem killustab
kolledži tegevusi, hajustab selle eesmärke ning pole seetõttu jätkusuutlik.
Regionaalne kolledž on oma regioonis arengumootoriks. Akadeemilisel personalil
on märkimisväärne roll osaledes ekspertidena regionaalsel tasandil otsustuskogudes
ja juhtimisvõrgustikes (Arbo ja Benneworth 2007). Kolledžid panustavad koostöö
initsieerimisel ja piirkondlike arengustrateegiate koostamisel koos partneritega, kuid
koostöövõrgustik ei tohiks tugineda liialt ühel eestvedajal. Kui suurem osa vastutust
on pidevalt just kolledžite peal, siis võivad partnerid mugavaks muutuda ning loota,
et keegi teine teeb nende eest töö ära. Kui siis kolledžil peaks jõud raugema või
prioriteedid muutuma, lakkab kogu koostöö, sest pole eestvedajat.
Ülevaated Eesti regionaalarengust tõdevad korduvalt, et Eesti sisemised
regionaalsed arenguerisused on väikese riigi kohta liiga suured ning nende
ohjamiseks ei piisa puhtalt regionaalpoliitilistest meetmetest, oluline oleks saavutada
ka muude valdkonnapoliitikate tõhusam koordineeritus. Tööjõuareaalide
konkurentsivõime tugevdamisel väljaspool Tallinna ja Tartut saab arvestada
ülikoolide regionaalsete kolledžite potentsiaaliga, nagu rõhutatakse ka Eesti
regionaalarengu strateegia 2020 koostamise lähteolukorra analüüsis (Eesti… 2012).
Kolledžitevõrgustiku näol on Eestis olemas instrument, mida saaks riigi
tasakaalustatud arengu tagamises efektiivsemalt kasutada.
Kokkuvõtteks tuleb öelda, et olulisem kui detailsete juhiste või näidete
väljatoomine, on järeldus, et ülikooli ühiskonnateenimine kolledžite toel on kõige
mõistlikum erialadepõhiselt. Alates erialade valikust, lõpetades erialaga seotud
üritustega, mille vahele jäävad teadus, õppemeetodid, lõputööde teemad,
arendusprojektid, täienduskoolitus, koostöö partneritega jpm.
