IfLehcr Education 9 (1980) 605 617 t'lscvicr Scientific Pul~lishmg Company, Amsterdam Printed in the Netherlands

D E V E L O P M E N T OF HIGHER E D U C A T I O N A N D E M P L O Y M E N T IN THE F E D E R A L REPUBLIC OF G E R M A N Y

605

JURGEN SCttRAMM t.ree Unirersity Bt'rlin. l"ederal Republic o f (;ermanv

ABSTRACT

In the Federal Republic of Germany - as in many other industrialized countries higher education has, under the influence of social, economic and political forccs,

developed from a relatively small, selective and elite-oriented to a large systein of mass education. The increasing number of students and university teachers, and the expansion of scientific and technological methods and knowledge has brought about claims for genuine organizational transformations and for massive financial resources. This dcvclopmcnl has created a numbci of severe prol~lcms in the relationship of the respective socio-economic and political sub-systems: in particular, the relationship between higher education and the labour inarket has to be considered as a vital but unresolved problem.

This article gives a short account of the quantitative development of the German universities and the labour market in the last two decades. It also describes the organizational transformations which followed the federal framework law on higher education (Hochschulrahmengesetz) of January 1976, and deals with some aspects of research in relation to such problems.

1. T h e D e v e l o p m e n t of H ighe r E d u c a t i o n

TIfE HUMBOLDTIAN INHERITANCE

The G e r m a n u n i v e r s i t y is still d e e p l y i n f l u e n c e d by ideas d e v e l o p e d by

F i c h t e , Sche l l ing , H u l n b o l d t and o t h e r s ut the end o f the I Sth c e n t u r y

<Schclsky , 19711. T h e grea tes t i n f l u e n c e c a m e f rom Wi lhe lm yon H u l n b o l d t

who f o u n d e d a new u n i v e r s i t y at Berl in in 1H10. l l is u n i v e r s i t y idea

c o n c e n t r a t e d on e n c o u r a g e m e n t and i m p r o v c m e l l t o f pure k n o w l e d g e

(Wissensc/m./?) . A n y k ind o f v o c a t i o n a l t r a i n i n g was re jec ted . The p u r s u i t o f

pu re k n o w l e d g e was s u p p o s e d to form the p e r s o n a l i t y o f s t u d e n t s , s ince

0018 1560/80t0000 0000/$02.25 <:J 1980 Flscvier Scientific Publishing ('onlpany

606

l luml~oldt i l~ought that on ly pl_irc knowledge was able to develop responsible modes of l h i l i k ing and thai on ly cn l igh lc l lcd people wore abh.' to con l r i bu l c posi t ively to stale and society. "Wissc##,sc/mJT" was rcgarclcd cis cl process of sccirching for I ru lh . and impl ied the clai i l l for a ui ' i i ly of rose'<itch alic] icciching. In t | umbo ld t ' s op in ion such a univers i ty could truly fu i lc l io r i i f the govcrnl l lOnl '<ivoiclcd all i l l lCrVCll l ions in acaclcmic afl"<iirs, i.e. i f the

�9 I ) ( . J . ~ , pp. ;.ItltOll(,)illy o f the univers i ty was ~tlCll;.tl'itccd ( ro l l l t t imbo ld t t 25() 2(~0). A l though Hcill/boldtLs idea of a Ciil ivcrsity frcc c)l external in lc r fcrcncc did nol malcr ial ize dur ing the lC)ih century , i1 wrvcd as all ideological i l ls l rul l lml l t 1o jus t i f y the slr()117 e l i te-or ienta t ion o f the (;crnlal ' i un ivcrs i ly syslcm up 1o tt~c very rcccl'=t past, since in lhc pasl, on ly the upper middle classes could afford 1o aspire to pure knowledge for its own sake.

QUANTITATIVE DEVELOI>MENT I)URIN(; Tile LAST TWO DECADES

To unders tand the main political p rob lems as well as the changcy in the bll-ttclure o1 universit ies alad the actual dcvch)pment s in research. 5c)illc ba~,ic in fo rma t ion on the quan t i t a t ive dcvcl{~pment o f higher cducatio~a in recent years, lhc share o f ptiblic expend i l u r c for higher cdt lcat ion and research, and

the labour market may bc useful. Table I shows that the n u m b e r o f s tuden ts in the ter t iary sys tem has

grown fronl approx imate l$ 304000 in lC)(~0 Io c)45000 in 1c)78. The p ropor t ion of f icsh i l lc l l il l :l given agc group was 4'7 il-i lC)50 ai!d had grown to 7.W; in IC)(~0 and io 17.5'7 in lC)TS (of. Tablc 11). And there wi l l bc some

TABLE I

Enrohnent of Students (German and E'oreigners) at Tertiary Level

Winter-Semester Total No.

1960/1961 304150 1965/1966 381422 197011971 525211 1971/1972 587065 1972/1973 661102 1973/1974 723179 1974/1975 71~(~711 1975/1976 836002 1976/1977 871909 1977/1978 905645 1978/1979 945897

Source: I?issenschaftsrat (1979, p. 59).

TABLE II

(;erman Freshmen at Tertiary Level

607

Year Total No. '; Sttidents in a given Age Group

1960 80753 7.9 IC~5 84288 12.1 1970 115735 14.1 I971 131807 15.9 1972 142374 17.2 1973 146293 17.3 1974 152819 18.1 1975 152263 17.9 1976 155092 17.9 1977 152349 17.0 1978 101388 17.5

Source: lt~issenschatTsrat (1979, pp. 21, 23).

fur ther increase unt i l about 1~)~5 when it ',,,'ill stabil ize hetwccn . . . . -'" and ~"".~,,, [~t l [ t i l t . ' problenl is hcconl ing even more sc\'crc for the univcrsi l ics, sinc_'c 111o average ~tudy period o f all univcr~,itv Mtidci l l~ has incrccisod l'ronl 5.7 yCal-,~ m 1970 to (~.5 in 1075, '<i dc\chH~ment which is sti l l going on.

The total an~ounl o1 u i l ivcrs i ty expendi ture has doubled in the last 7 years (of. Table 111). The monm.v was not on ly spent on inveslmcnt in the tcr l ia ry ,syslcm, for example for lhc foundu i ion of,new un i \c rs i l i cs [ I ] , bul also for the e• of academic and ilon-;icadmmic per,~onnel. In 1050 I lk're were ]50000 s ludcl l l~ and 0500 po.~ilion,~ for acciclcnlic staff, i.e. a ral io of _~: ~ ~ 1. In lO70 the number o fs tuc lcnts had increased to $25000 and the posi t ions for academic stalT io 54000 (e l Table IV). This const i tutes a r'diio o f 10:1 which sl i l l applies today (Kro) 'o l lbor 7. 1979).

The basis for the expansion in West ( ]cr l l la l l higher cducat io l l \yore changes in the structure of the secondary and tert iary systems. For instance, some vocal ional academies e.g. for occmomics and cngil~cering were tlpgradcd bv law !o lhc st'<itus of/-~lc'hhcJchschzUen [2] in I~)71, alld thereby formal ly I runsformed in lo i ns i i l u i i ons of the ter t iary syslcm. r h c access to higher educat ion was made easier by I lk ' establ is l lmont of nearly 200 comprehensive schools, by lhc crcal ion o1 various "second io t i tes" to the ..tbitur [ 3 ] , ap, d also by cslal~lishing vocai, ionul secondary schools whose school- leaving cert i f icate (FachhcJc'h.cchuh'c'{l~') qual i f ies for I'~ac'hhoc'hschulc#z. Thus ill 1975, on ly 62~/< of all frcshi l lon in the ter t iary system were qual i f ied by Abitur. Final ly , it is wor th i n e n t i o n m g t h a i in 1975 one-third of the lotal s t u d e n t p o p u l a t i o n c o n s i s t e d o f l l la ture s t t i dcn t s ( T e i c h l e r , l C)7b; ).

61)8

11 is r e m a r k a b l e that in spi te o f all q u a n t i t a t i v e changes the p r inc ip l e s o f

H u m b o l d t ' s un ivers i ty sy s t em arc still kep t up, a l t h o u g h the i r t r ans fo r ln -

a t ion in to l each ing and reseurch p rac t i ce becume more and more d i f f i cu l t .

The federal and s ta te (Lander ) g o v e r n m e n t s f inanced the q u a n t i t a t i v e

e x p a n s i o n o f the t e r t i a ry sy s t em, but did not druw the necessary c o n s e q u e n -

ces for e d u c a t i o n a l r e fo rms which wou ld have resu l ted in new m e t h o d s for

TABLE III

Expenditure of the Universities

Year Total Personnel (million DM) (million DM)

(1) Universities 1970 6916 3208 1971 8523 4176 1972 9429 4930 1973 10891 5990 1~74 12894 7149 1975 13782 7958 1976 13973 8363 1977 14404 8778 1978 15253 9171

(2) Universities Without Clinics 1970 5059 2266 1971 6175 2904 1972 6765 3452 1973 7668 4104 1974 8999 4851 1975 9487 5393 1976 9540 5662 1977 9463 5870 1978 9702 6203

(3) University Clinics 1970 1857 942 1971 2348 1272 1972 2665 1478 1973 3223 1886 1974 3895 2298 1975 4295 2565 1976 4433 2701 1977 4941 2908 1978 5551 2968

Source : Wissenschaftsrat ( 1979, p. 88).

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teaching and research. The vast numbers of students were still prepared for their jobs by the same kind of academic training which prevailed during the

last 200 years. Vocational training in the universities rcmained neglected which caused problems on the labour market.

2. Development of the Labour Market

In 1050 only 2'5 of tile total labour force of the Federal Republic of Germany held a degree in higher educalion. Today this figure has risen to between (~ and 75~ and it is assumed that it will bc approximately 11'5 in 1900 {Teichler, 1078). But this expansion has not led to any substantial changes in the occupational expectat ions of graduates, and still more than 50':~ of them are employed in the public service, as shown in "Fable V. This

h,:ls led to an uneven age-structure of personnel and therefore there is now less demand for manpower with academic qualifications in most sectors of

the labour market. In 19(~0, for example, the average age of professors and lecturers o1 universities was between 45 and 50 and in 1077 it was about 5

years h~wer. Becausc of the economic development during the last few years the expansion of the tertiary system has slowed down, aild since I ~7,, the average stock of personnel has only increased annually I~y ~'* . _,r and the replacement demand was only 1.5'2; of stock. In 1070 the figure was between 10 and 15'~, per year {Kreyenberg, 19791. A similar development takes place in other fields of academic occupat ion, as for example in the secondary school system {of. (;ellcrl, 1978}. Gencrally it can be said that

the traditional job opportuni t ies for graduates arc decreasing, and that graduates nlorc frequently take jobs previously considered to be preserved for non-graduatesIvon Weiz<icker, 1975, pp. 306 3241.

Since 1075 the overall rate of unemployment has exceeded 4'/,. But statistics show that the rate of unemployment decreases parallel to an increase of formal qualifications. And the fact thai graduate unemployment , in absolute terms, has risen in recent years (of. Table VI} is partly explained by a voluntary prolonged search for employment after graduation. Longlasting unelnployment of graduates in any case is quite rare {Teichler, 1978).

However, this situation might degenerate soon, because until 1985 there will be an increasing nun'lber of students and up to 1995 al'l increasing number of graduates I cf. Table Vll). Onty 15'; o f the graduates in the years to come will have the chance to be elnployed in the public service and also the demand of private industry is decreasing.

Here the educational problem becomes obvious. In the past the German university educated students as if they were all going to be scholars, but most of them had in fact to find jobs in industry and administration. As long

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TABLE VI

Qualification and Unemployment

Qualification Total m '7 of Total lmlqoyec~> with Same Qualification

1978 1978 1977 1976 1975 1974 1973

1 No Formal Qualification 470054 6.4 6.6 6.3 7.5 4.3 1.6

2 On-the-job Training 309441 2.7 2.9 3.0 3.1 1.7 0.7 3 Vocational School 49829 1.9 1.9 1.9 1.6 0.7 0.4 4 "'l:achhochschule'" 12499 1.9 2.4 2.8 2.6 2.0 0.9 5 University 22420 2.2 2.3 2.1 1.7 1.0 0.6

Sources: Tessaring ( 1977, p. 128): ll'issenschaftsrat ( 1979, p. 124).

as tile lltlmbcr o f gradtlales was relatively small 14',~ o f a given age group) ,

there were no prob lems on the labour market . Demand and supply were

nearly in equilibrium. Increases of supply on the basis of nearly COilstant denland will, however, bring aboul a disequilibrium because of the abovc- il~eilliont.'d decrease of state delrial-id for pelsoililel.

A possible solut ion in lhis s i tuat ion would be to relate higher educa t ion

more to the nccds o f the labour markcl , i.e. to unders tand academic training

more :is a prcpara t ion for obs. This could include measures to integrate

vocat ional courses into tltc uriivcrsity which in the past havc takcri place

outs ide Ic.g. nursing courses). Such reforms could also help to solve a

p roblem which will become more serious in the near future. Since many

school leavers who have the t'ormal qual i f icat ion to enter university these

days begin a vocat ional training, because o f the threat o f academic unemployment, they occupy places for vocational training in industry which wore t radi t ional ly reserved for o ther school lcavcrs. The above-suggested

reforms would therefore not ontv solve some problems o f the academic

labour market but also o f the vocat ional training system.

TABLE VII

Estimation of Students and Freshmen at Tertiary Level

Year f~reshmen Students (;raduates

1980 178300 980000 130000 1985 239300 1057000 175000 1990 204700 1036000 195000 1995 166000

Source: Senator ftir Wissenschaft und Forschung (1978, p. 63).

615

3. Research on Higher Education and the Labour Market

Research in the field of econonlics of education in West ( ;ermany concentrates on the relationship between the tcrtiary system and the labour market, although there are studies in other fields like the cost benefit approach. The slate has a veslcd interest in this area of research because of the overall state orientat ion of the West German edttcational system. The main

characteristics of the tertiary system in the l:ederal Republic o t ( i c r m a n y

are 7

nearly the whole tertiary system is state financetl: students do not have to pay college fees: the state has a strong say it+ the recrt.litmcnt of university personnel" matty graduates arc en+lployctl in the public service.

This nleans that the federal and state go\ 'ernnlent have great responsibility in platlning quantitat ive developments like:

setting priorities with regard to public funding; providing the labour market with highly qualified manpower:

providing training for public employees: bearing responsibility for the development of science anti research.

The close link between higher education ;.lilt[ the labour market has'led to a large t~umber of manpower requirenlenl forecasts, to provide the govern- merit with basic information for educational planning. ,.\lthough the Federal Consti tut ional Court determined in 1072 that university expansion must be oriented primarily towards social demand, educational planning by the stale relied even more ell t l l a n p o w e r reqtlirement forecasts, since the Consitt> tional Court had provided for a nUlllbcr of exemptions from the above rule, us long as measure>, directed by manpower considerations, could clearly be circumscribed within certain limits and if the additional expcnditures for higher educat ion would threaten other social services or cause intolerable

friction on the labour market. It is questionable \~hether manpower requirement forecasts and

connected research pro cots, a l t e l n p t i l l g to) o v e r c o m e the s h o r t c o m i n g s o f

previous prognoses, have been of any great help for government planniilg on higher education. The more complex the models became, the less they were

able to produce results which could legitimize specific political l)rogI'LUllS. Therefore , there has been a shift in research on the connect ion between labour market and higher education in recent years. Researchers began to

concentra te on the problem of how to change the curriculunl in such a way that students could acquire qualifications sought after by tile labour market.

The main point of discussion in this context is whether education should prinlarily help the student to develop an overall level of competence , applicable to various fields, or whether education should provide specific

qualifications which are utilized in particular occupations.

616

Thus, lCSearch on higher educa t ion in the Federal Republ ic o f ( ; c r m a n y

places ~leat emphasis on the re la t ionship be tween univers i ty studie,,, and prolcss ional life. There are only a l'cw studies dealing with the relcvancc o f higher educa t ion for o the r life spheres. This >trong occupa t iona l o r i en ta t ion by no means co r r e sponds to the universi t ies ' sclf-ilnage which is roo t ed in the

t-lumboldti~m t radi t ion o f the pursuit of pure kno\vlcdgc. Nevertheless , it is true that there is a high degree o f ca lec r -o r i en ted specia l izat ion in <;erlnan higher educa t ion . F u r t h e r m o r e , tile federal f r a m c w o r k law on higher cdulca- t ion (lI~;ch.sclmh'almwn,~,,e.s'el2) has cle~lrly d e t e rm in ed that universit,~ educa-

tion must above all prepare [or an occupa t ion .

t lowcver , the occupa t iona l o r i en ta t ion o f higher educa t ion is not on ly seen under the aspcct o f improvcn len t o f chances on l h c labour l I l a l ' k c l , but also :is an ins t rument for shor ten ing the average s tudy period. Tile

lu l ldanlcntal hypo thes i s is that if higher educa t ion co n cen t r a t e s on prepara t ion for an occupa t i on , there will be a shor ten ing o f the length o f

courses in con3parison to the t radi t ional t heo ry -o r i en t ed educa t ion . But

there are hardly any research icsults on lhc required amot tn t o f quali l ' ication which could scrve as a l'ramc o f o r i en t a t ion lor such changes. Research on qual i f icat ions and the demands o[ the l abour marke t has not yet come to a point where it would he possible to use its results For the rcorgani,, .ation o f

universi ty curr icula and for all extensive rc lorm of higher educa t ion .

4. Consequences for the Further Development of the Tertiary System

In consequence o[ whal ha.s been said above, many study courses for various disciplines have to be investigated in order to rcdcl'inc [heir rclcvancc For occupational practice. ~r~ l the same time, rhc .,,tudy courses have to remain based on scientific 111Clhods allLJ theories. Addi t ional ly , .,,bloc proercss it1 sCielllitic innovali011 alld rcscalch nlusl be assured, universit ies have to

olTcr Further academic training and degrees which allow For a ,,,ulTicicnt supply o1 highly qualil'iud young scicntisls.

A n o t h c r impor t an t lLlllCliOll ot + (;crl l lan higher educa t ion in the lu turc will hc the d e v e l o p m e n t o f l 'urthcr educa t ion , not only for univers i ty-degree holders bttt for a n y o n e in teres ted in supplcn3cnting his vocat ional exper ience b v academic training. This ,,,hould result in Ol~anizational provisions, hardly

exist ing ill West ( ; c r m a n \ , such as COl-respontlCllCC courses, utilizing m o d c r n lcchm~logical possibilities, r and par t - t ime course~,, crash Cotlrses ;.II1LJ

>o oil. to be o l l c rcd h\. the universities.

In conclus ion , in o rder to rcali/.e these ncw tasks the t l u m b o l d t i a n inher i tance has to be l 'undamental ly revised, so that univers i ty research and teaching compl ies with tile needs and problems of" m o d e rn socie ty . T h e r e f o r e the ( ; e rman universi ty will be c o n l r o n t e d with even more radical s t ructura l changes than exper ienced during tile period o I rapid quan t i t a t ive expans ion .

617

Notes

1 In Germany 14 universities and seven comprehensive universities ( ( ;esamthoehschulen) have been founded since I9(~0. l h e universities a r e : g t ) t2h t l l l / , Konstanz, Regensburg, Bielefeld, Dortmund, Bremen, l)fisseldorf (medical academy since 1919), Kaiscrs- lautern, Trier, Oldenburg, Bayreuth, Ulm (" l tochschule" for medicine and science), Passau (opened 1978). The cumprehensive universities t ( ; e samthochschulen)a re : Bamberg, Duisburg, Essen, Kassel, Paderborn, Siegen, Wuppertal.

2 "t"achhochschulen "arc comparable to the British Polytechnics. 3 Nevertheless, the vertical structure of the secondary system remained basically

untouched, and still the holders of the academic secondary school-leaving certificate (Abi tur) are the only ones to be unrestrictedly qualLlied for university.

Ret~rences

Gellert, C. (1978). "Employment changes and occupational areas for West German university graduates with teaching qualifications," pp. 117 215 in I). Billing (ed.) Course Desit,,H aml S[udcp~l l, eami~L<,. (;uiidtord: Sociel~ for Research into Iligher I{ducation.

I lumboldt, W. yon 11903). "'[lbcr die inncre uild ~/usserc ()rganization tier hi3heren wissenschaftlichen Anstalten m Berlin," pp. 250 2(~0 in It. C;ebhardt led.} It'ilTem ton l lumheddl k I'r Ih'Hkschri/tcph Vol. 1, Berlin: B. Bchr's Verlag.

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