When we analyze higher education (HE) decentralization, we often assume that it invariably increases the power of subnational governments (regions) and, due to varying policy preferences, it acts as a potential driver for policy divergence. However, a closer examination of the process, instruments adopted and consequences of decentralization of HE across the 17 Spanish regions, reveals that the magnitude of change in governance, compared to the initial situation before jurisdiction transfer, is moderate and it can range from visible to insignificant in different regions.
In this paper, we apply an exploratory “sequential” analytical framework of decentralization with the following characteristics: (1) it considers decentralization as a process within a multilevel system, acknowledging that the national government continues to play a relevant role in the higher education system and policies, (2) it accounts for the fact that the processes and outcomes are influenced by the timing of the assumption of HE policy responsibilities, jurisdiction and resources by each regional Governments, (3) it assumes that policies and instruments to manage the relations between regional governments and universities are shaped by preferences, emerging from explicit objectives and policy instruments adopted, but also by structural factors and actors’ adaptation strategies to context and, (4), as a prospective analysis, it incorporates policy feedback effects of previous waves of decentralization.
We address the evolution of HE policy in the 17 Spanish regions and apply the suggested framework to identify regional similarities and differences emerging in the process. In line with previous findings, we argue that the “sequencing” and different types of policy instruments adopted by regional governments are relevant factors in understanding HE governance mode. However, we also found that other regional structural factors, such as the presence of one or more public university or the growth of private universities, along with environmental ones like market opportunities, significantly influence the governance outcomes. Our findings show that, contrary to commonly held opinions, decentralization and adoption of specific new policy instruments are not the only factors determining the governance outcomes and regional differences.
Regarding the empirical characterization of the Spanish HE system, we found that, despite the rhetoric of its fragmentation into various heterogeneous regional systems, we believe that the concept of “integrated differentiation” is more appropriate to describe the process and the situation.
Keywords: decentralization, higher education, policy instruments, trajectories, process sequencing
