Any reflection on equity in the context of higher education in Spain must bear in mind two closely linked, complementary and transversal elements. The first is the process of convergence and globalisation in which the country's universities are immersed, all the while striving to maintain their unique features and the contexts of their local and national environments. Second is their efforts to apply and define the concept “equity” in higher education policies and practices. Spain's universities are attempting to put into practice the meaning behind the concept of “equity”, in function of the way it is used.
The university of the twenty first century is undergoing profound and rapid transformations. As central institutions in the vertebration of today's societies, universities are permeable to the changes, contradictions and effects derived from global inequality or, put another way, to the inequalities that radiate towards their world (Piketty, 2014). Inequality is not something external to them but, rather, something that has penetrated their realm (Burawoy, 2015). As part of an asymmetric world, today's universities are not impervious to the social dialectic around them. Neither can they ignore the newly configured rules of the social game. Today's universities not only explain social reality, but as part of it, they contribute to building it as well. This they do from both the theoretical scaffolds they erect and through the creativity of their actions (Joas, 2013). Today's universities find themselves at a crossroads where they must at once become and convey instrumental tools, while at the same time respond to the ever-growing clamour for emancipation.
Today's university is a player that not only explains social change, but also promotes and is committed to it and, for this reason, is responsible for social change. One of the ideas this chapter will develop is the notion that the university of the twenty first century must endeavour to redefine itself by reinterpreting two of its principal functions: it must generate equity while building citizenship (Beltrán, 2015a ).
The concept of equity in the educational environment was first broached in the OECD conference in Sweden in 1961 (Halsey, 1993). At that time, the debate centred on election at secondary schools, yet with the expansion of higher education, interest grew in the principle of equal opportunities.
Later, the OECD examined “Approaches to Equity in Policy for Lifelong Learning” with a study by Ben Levin in 2003. Levin distinguishes two dimensions in his definition of equity in education. The first of these is fairness, which implies making sure an individual's personal and social circumstances – for example, gender, socioeconomic status and ethnic origin – do not prevent her from reaching her educational potential. The second embraces inclusion and implies that a minimum basic educational standard must be guaranteed for all (Levin, 2003).
The meeting of OECD Ministers of Education in Athens in 2006 focused on higher education to discuss Higher Education – Quality, Equity and Efficiency. The ministers agreed that “Higher Education plays a vital role in driving economic growth and social cohesion” (Santiago et al., 2008). A year later, in 2007, The OECD published a study called called No more failures. Ten Steps to Equity in Education. This study also developed the two dimensions associated with equity that Levin had already identified, fairness and inclusion (Field, Kuzcera and Pont, 2007).
Equity and equality (on the latter, see Williams, 1983) are principles that are closely linked, yet distinct. Equity introduces a principle of ethics or fairness to equality. Promoting equity involves the task of setting out the objectives to be achieved in order to advance towards a fairer society. A society that treats its members with absolute equality will be an unfair society, as it will not take into account differences that exist between individuals and groups. Yet, at the same time, a society where people do not recognize each other as equals cannot be fair. Manuel Mendes concurs with Oscar Espinoza that there can be no equity or social cohesion without policies for inclusion and solidarity. Among these strategies, the university is considered one of the tools at hand to promote the common good and democratic citizenship (Mendes, 2014: 23-39).
Today, the increase in inequalities in the access that countries and individuals have to the use of resources has led to positing that the objectives of equity are vital to development. Without entering here into conceptual disquisitions, the introduction of the notion of “equity” in an analysis of education is not trivial. Putting equity in the equation has not only shifted our perspective, but has changed our sensitivity and perception as well. This has been translated principally into the acceptance of the importance of social variables in the field of education. Today education is conceptualised from the perspective of its social dimension, and particularly, as an element of the common good (UNESCO, 2015).
This change may bring, in turn, a shift in two of education's dimensions: one the one hand, we may see a move away from the dominant analytical thought of the last few decades, characterized by the prevalence of a clearly economic orientation, against the background of the thesis of human capital as its discourse for legitimacy, and with the emergence of a powerful industry of indicators associated with a kind of arithmetic imperialism. On the other hand, the international organisations' avidity to coin the term “equity” and to incorporate it into the new educational rhetoric may be a symptom that suggests that the principle of equality (of opportunities, access, results) is being eroded at the hands of a double standard that is gaining ground in the area of education.
It is not the objective of this chapter to enter into a epistemological discussion of the notion of equity (for this academic debate, see among others, Beltrán, 2010; Beltrán and Teodoro, coord., 2013; Teodoro and Guilherme, eds., 2014) but, rather, to describe and map the equity policies as they are applied in the higher education institutions in Spain. It's synthesis of the most relevant features of this process will provide an overview of the situation today. The initial hypothesis of this chapter maintains that equity policies in Spain, which to a certain extent are the reflexion of international educational policies, are closely linked to a process of relative democratisation of the country's universities. However, this is not democratisation in the strict sense, but a democratisation process that needs nuancing, as will be discussed below. Our universities undergo periodic crises that bring to the fore issues of inclusion and social justice. Here, we coincide with Saeed Paivandi's observations concerning higher education in France: As this author, we observe a certain decrease in inequality in access, yet the appearance of new forms of inequality. We see a contrast between the university's “quantitative democratisation” and subtle, yet appreciable forms of inequality that are being generated along the lines of Spain's social stratification (Paivandi, 2014: 264-268).
The chapter that follows is structured in three sections: The first provides an overview of higher education in Spain, with special emphasis on recent processes of democratisation and modernisation. The second focuses on higher education in Spain today in terms of its reflection in the country's social structure. The third describes Spain's policies to promote equity in higher education, centring on questions of gender, access, permanence and scholarships as vectors that reflect the tensions between social equality and inequality. The chapter ends with recommendations concerning the articulation of measures to anticipate problems and improve inclusion in higher education. We discuss how to strengthen and improve educational opportunities with a view to preventing and overcoming social inequality. The ultimate goal of these measures is to help society move beyond the relative democratisation that higher education foments and help it grow towards substantive democratisation.