External Stakeholder Intervention in MCS in
Dutch Higher Education, a case of Cybernetic Paradox?
The impact of externally defined cybernetic management controls on a loosely coupled higher education Institution.
by
N.J.G.M. Beenker mmc cmc
Final Version, 18.352 words
Rijksuniversiteit Groningen
Faculty of Economics and Business Studies MSc Business Administration
July, 3rd 2013
cContent
1. Introduction ... 5
2. A case of cybernetic paradox? ... 7
2.1 The management control system framework ... 7
2.2 The Marnix Academie Organization in brief ... 8
2.3 The MCS in brief ... 9
2.4 New governmental measures, new management controls ...10
2.5 A case of cybernetic paradox? ...11
3. Paper layout ...14
4. Case Marnix Academie ...15
4.1 Introduction and contents ...15
4.2 Governance Structure of Marnix Academie ...16
4.3 External stakeholders ...18
4.3.1 Horizontal Dialogue. ...18
4.3.2 Validation, Accreditation & Certification. ...19
4.3.3 Government ...20
4.3.4 External accountant (KPMG) ...20
4.3.5 Professional Field ...20
4.4 Governmental intervention ...21
4.4.1 The political context ...21
4.5 The ‘new’ MCS at Marnix ...25
4.6 The Malmi & Brown Framework applied to the MCS of Marnix Academie ...27
4.6.1 Research process ...27
4.6.2 Consensus discussion for classifying management controls ...27
4.6.3 Overview of the Malmi & Brown classification ...29
4.7 Perceived influence of the new Management Controls ...33
4.7.1 Research process & case results reporting ...33
4.7.2 General perceptions ...33
4.7.4 Effect on Education, Strategy & Policies ...35
4.7.5 Effect on the clan ...36
4.7.6 Conclusions based on the interviews ...37
4.8 Perception survey...38
4.8.1 Research process ...38
4.8.2 Survey results ...38
4.8.3 Survey conclusions ...40
4.9 Discussion about the appropriateness of the new management controls ...42
5. Conclusions & discussion. ...45
5.1. A recap of the findings on coupling ...45
5.2. The main question answered ...46
5.1 Recommendations to the school and their external stakeholders ...48
5.3 Discussion and future research recommendations ...49
6. Literature ...50
7. Exhibit 1: Full list of Management Controls at Marnix Academie ...52
8. Exhibit 2: Interview questions ...65
1. Introduction
Financial mismanagement at Amarantis and Zadkine, fraud with grades at INholland, management with clear conflicts of interest at Godarts, in recent years Holland has had its fair share of scandals at publically funded institutions of Higher Education. These incidents have put negative pressure on the trust and legitimacy of the public system of management and control in the Dutch education sector, resulting in governmental interventions aimed to tighten control over the sector.
In this paper we examine the Management Control System1 of ‘Marnix Academie, against this background of increasing influence of the Dutch government. Marnix Academie is a College for Teacher Training (a ‘Pabo’). The college has some 160 employees; this ranks them to the smaller higher education institutions in the Netherlands. The school has about 1350 students, ranking it actually to the largest colleges for teacher training (for primary schools) in Holland.
Marnix Academie is an established college of a certain standing and quality and a good reputation. In delivering education to students (and the supporting processes) there is much evidence of ‘loose coupling’ (Weick 1976). The school’s quality has been confirmed over many years in accreditations and by various subjective and objective standards by independent institutions like NVAO, CPION, et cetera. However, being a loosely coupled organization, this quality does not come about in a strict logical pattern. This loose coupling can also be recognized in the MCS of the school. The MCS incorporates different controls on different subjects. The governmental interventions have had a profound influence on the MCS of the school. From 2006 onwards, at a steady rate, new compulsory control measures have been introduced into the management control framework of the Marnix Academie. These measures include minimal standards of academic achievement of students; standards for profiling of education and research and standards for valorisation, as well as complete base curricula for the 18 minors together with compulsory standardised national testing.
In 2013, in total, 148 individual management controls are in place. Many of them externally defined, and compulsory. Marnix is now - in theory that is - ‘run’ by the external stakeholders. Setting standards and controlling the school’s output. This process is ongoing as we
investigate the case. From a management control perspective, it can be questioned whether this strong external influence is beneficiary to education quality and organizational
performance. Malmi & Brown (2008) suggest that management controls should be looked upon (and studied) as a package, rather than a collection of individual measures. The package of management controls at Marnix Academie is the result of a combination of choices of different stakeholders with potentially different strategic visions on education. The package itself is not on all subjects intrinsically aligned. If the new MCS of Marnix Academie will lead to ‘goal congruence’ - an important function of a MCS - is therefore very
questionable. Another important reason for this is that loose coupling and strict externally defined goals do not go together very well. Loosely coupled organizations are by definition responsive, but the nature of their response may vary. So were will this lead the school? What impact will these new externally defined management controls have? On the school’s output? On the loosely coupled organization? On the MCS? On the leadership? On the clan of education professionals? In this paper we will look at these subjects. The applied research method in this case study is a combination of desk research (into the MCS), literature review, interviews with employees and stakeholders, field research (such as a questionnaire among teachers), own observations at the school and analysis of strategic (planning) documents of the school.
The main question to be discussed in this paper is: how does a loosely coupled organization (that is both distinctive and responsive) assimilate a sudden influx of externally defined cybernetic management controls?
2. A case of cybernetic paradox?
In this chapter we will introduce the theoretical framework that is applied to our case study at Marnix Academie. The Marnix Academie organization is briefly introduced, and it’s the degree of organizational coupling, as well as the MCS that is in place at the school. In the last paragraphs the new compulsory management controls are discussed which will bring us on the track of the potential paradox, and back to the central question in our case study.
2.1 The management control system framework
From the contingency theory perspective, for an organization to be in control it is necessary that contingent factors are identified and /or measured and through hypothesized effects on the organization, appropriate management measures can subsequently be taken, and their effects can again be identified and /or measured. In education this is a delicate process that involves stakeholders from ‘the wider social market’. “Educational organizations are holding companies containing shares of stock in uninspected activities and subunits which are largely given their meaning, reality, and value in the wider social market." (Weick 1979). Management Control Systems are defined broadly to include everything managers do to help ensure that their organization’s strategies and plans are carried out or, if conditions warrant, that they are modified (Merchant & Van der Stede, 2012). This is a broad conception of a MCS. It includes systems that are used to influence people’s behaviour in ways that lead to the achievement of organizational goals. Scholars such as, (Woodward 1958), (Burns& Stalker 1961), (Lawrence & Lorsch 1967), (Perrow 1967), (Thompson 1967), (Galbraith 1973), (Mintzberg 1979), (Kaplan & Norton 1992, 1996), (Chenhal 2003), (Morgan 2006) have argued that organizations can systematically achieve a good fit with their environment if they can adapt to changing environmental circumstances. The design and specifications MCS determines the effectiveness of a MCS. It should ideally best suit the nature of the environment of the school, its technology, its size, its structure, its strategy and its culture (Chenhall, 2003). The MCS will contain varying elements. It may consist of activity and personal behaviour controls and processes measuring controls such as statistical quality control and just-in-time management. Furthermore MCS can consist of management
accounting attributes such as budgeting or product costing and of direction setting attributes such as a balanced scorecard. Malmi & Brown (2008) provide a framework for MCS
employee behaviour. Their definition of a MCS is “systems, rules, practices, values and other activities management put in place in order to direct employee behaviour”.
Figure 2-1, (Malmi & Brown 2008).
Malmi & Brown (2008) point out that individual controls do effect each other: “If the links between various MCS are not recognized, then the way in which the considered MCS components relate to studied contingent variables will lead to erroneous conclusions” and “the challenge is to understand how all the systems in an MCS package operate as an interrelated whole.” and “.. so the controls in their entirety should not be defined holistically as a single system, but instead as a package of systems.” In the Marnix Academie case study we aim to analyse this package and make observations on the changes to the MCS that will lead to changes to the ‘interrelated whole’ of cultural controls, planning controls, cybernetic controls and administrative controls. Cybernetic controls play a central role in this paper, the definition of cybernetic controls is taken from Malmi & Brown: “There are five characteristics of cybernetic control (Green and Welsh, 1988). First, there are measures that enable quantification of an underlying phenomenon, activity or system. Second, there are standards of performance or targets to be met. Third, there is a feedback process that
enables comparison of the outcome of the activities with the standard. This variance analysis arising from the feedback is the fourth aspect of cybernetic control systems. Fifth is the ability to modify the system’s behaviour or underlying activities.” (Malmi & Brown 2008).
2.2 The Marnix Academie Organization in brief
Marnix Academie is an organization with profound distinctiveness in their approach to
teaching and education. Having strong roots in the protestant Christian community in Holland is a firm cultural basis. At Marnix Academie ‘strategic quality’ and ‘organizational
education) must be met. The Marnix Academie uses the seven competencies that are based on the competences as published by the “Stichting Beroepskwaliteit Leraren (SBL)”. In addition, the Marnix Academie has added a distinctive ‘own’ eighth competence: “Inspiration and normative acting”. Quality and organizational performance is therefore very closely related to the actual personal development of individual students at the school. The
traditional role of management at the Marnix Academie is to take care of these standards in terms of, content, level and student results. This is anchored in the strategic vision of the Marnix Academie. The wording of the organizational mission of Marnix Academie in fact addresses the question of what constitutes good teaching. The Marnix Academy has set out its vision on this in three words: “skilled, committed and enthusiastic”. These words are also the core values of the academy, and from this ‘The Marnix Clan’ shapes their education activities.
Traditionally the Marnix Academie has been a loosely coupled organization. Some parts of the Marnix Academie “are heavily rationalized but many other parts prove intractable to analysis through rational assumptions” (Weick 1976). In loose coupled organizations a mix exists of tight and loose couplings. Who does the work and on whom is an important question at Marnix Academie. Tight coupling exists round accreditations and certifying issues, and the appointment of talented and qualified teachers. These subjects are looked upon as crucial and are tightly controlled. In other areas a much looser atmosphere exists. There is for example a loose control on the work itself (e.g. teaching in the classroom), traditionally this work is uninspected and unevaluated, the teacher at Marnix Academie enjoys a great professional freedom, based on the fact that he/she is qualified. Clan controls play an important role in this, though shared professional attitudes, shared values. As well as critical peer reviews, etc.
2.3 The MCS in brief
In loosely coupled organizations there are different management controls on different subjects. (Weick 1976). Consequently in the MCS of the Marnix Academie an important role is in place for management controls that support/allow ‘loose coupling’. These are cultural controls and administrative controls (coaching, peer reviews, etc.) towards that end. Loose coupling means that the organization is responsive to internal and external stimuli, but the response to each stimulus may vary. Departments and business processes are somehow attached, but each retains identity and separateness. This is most important because the purpose of a MCS is – per definition- to reach a status of ‘being in control’ and thus
‘Being in control’ for Marnix Academie means that the school is delivering ‘strategic quality’ and ‘organizational performance’ that are periodically agreed upon with stakeholders. Note that this corresponds well with Weick’s quote: “..containing shares of stock in uninspected activities and subunits are largely given their meaning, reality, and value in the wider social market." (Weick 1979). If managers at Marnix Academie assess (discuss) the actual situation of ‘control’ not only formal, financially quantifiable information for managerial decision making (cybernetics) are considered, but a much broader scope of information is reflected. This includes external information (“Omgevingsverkenning”) predictive information related to education markets, customers (relationships with primary school employers), non-financial information related to education processes, and a broad array of decision support
mechanisms, and informal personal and social controls.” Gerard Veerbeek (Head of the executive committee at Marnix Academie): “Being in control at Marnix Academie is seeing, or knowing, or feeling that all is well with the school. That is about our organization, but also about what this organization is about. The bottom line is that we educate good primary school teachers.”
2.4 New governmental measures, new management controls
From 2006 onwards very different management controls have been introduced, by influential stakeholders like the government, into the formal management control framework of the Marnix Academie. These controls are compulsory. A ‘Branch code Governance’ was
introduced in 2006, prescribing 56 individual management controls to the management (of all 41 higher education institutions in Holland). A few years later another governmental
intervention was made, forcing these institutions to come to performance standards
(Prestatie Afspraken), hereby intervening again in the MCS of all the individual institutions. At the same time interventions were made by the HBO-Raad (Netherlands Association of Universities of Applied Sciences) aimed at standardizing the educational content of the Colleges for Teacher Training (Commissie Meijerink) in Holland, adding yet another 19 compulsory management controls to the management control framework of the Marnix Academie. This process is still on-going as we investigate this case.
In all, anno 2013 the Marnix Academie must now meet 148 externally defined management controls, which partially overlap and reinforce another, but also may be contradictory to each other. For example, the standardization of knowledge through “Kennisbases Pabo” and the “profiling of the institution” recommendations of Commissie Veerman seem to be
different stakeholders (government / HBO-Raad) with potentially different strategic visions on education. If this will achieve some form of goal congruence - an important function of a MCS - is at the Marnix Academie is very questionable, because of the different origins of the management controls in the framework. As the case study revealed, and as expected of a group of highly educated professionals, the ‘professional education clan’ at Marnix is deeply divided about the performance standards and the intervention in its curriculum. One of the reasons for this is that there is no solid scientific evidence that the new measures will actually lead to better education. This is in itself open to scientific debate in the field of education.
2.5 A case of cybernetic paradox?
Although “Commissie Veerman” had made broad recommendations- to which we will come back later in this article- in practice mostly cybernetic controls were added via the Review Commission (Commissie Zijlstra) to the MCS of the higher education institutes in Holland. For the school, these interventions result in a spectacular increase of cybernetic
management controls to the point that the package of management controls is unilateral cybernetic and administrative. This design is clearly not suited for a loosely coupled organization. And that is precisely what the government intends. The new MCS is clearly intended to tighten control: failing to make required numbers will lead to budgets cuts. So the message is very clear. Comply with the standard, or suffer the consequences! If this
other controls. (Malmi & Brown 2008). A sudden influx of cybernetic controls does not leave time for the cultural controls to change. The ‘interrelated whole’ and the effect of the
management control package are therefore potentially lost. It can therefore be questioned whether this growing external influence is beneficiary to education quality and organizational performance. In designing a MCS this degree of coupling, is an important consideration. Generally, tightly coupled organizations are more suitable for stable environments and relatively simple tasks, whereas loosely coupled organizations are typically better at
interpreting their surroundings and learn (innovate) from this. As we will see in the case study the Marnix Academie operates in a very complex environment. Tightening coupling control might lead to unexpected complications. “Loosely coupled systems may be elegant solutions to the problem that adaptation can preclude adaptability. When a specific system fits into an ecological niche and does so with great success, this adaptation can be costly. It can be costly because resources which are useless in a current environment might deteriorate or disappear even though they could be crucial in a modified environment.” (Weick 1976). Weick, in effect, also warns that it can be costly to tighten coupling. Tightly coupled systems are responsive, but less distinctive. (Orton & Weick, 1990). “When a specific [loosely
coupled] system fits into an ecological niche and does so with great success, adaptation can be costly. It can be costly because resources which are useless in a current environment might deteriorate or disappear even though they could be crucial in a modified environment.” (Weick 1976).
The key question is therefore: How does a loosely coupled organization (that is both distinctive and responsive) assimilate a sudden influx of externally defined cybernetic management controls?
Why is this a relevant question? Basically, because of the price organizations have to pay if the MCS is not acceptable internally and thus perceived as “wrong”. Getting a MCS wrong may result in a situation ‘that all will be somewhat worse off’. (Ouchy 1979). Will tightening up of coupling lead to a loss of distinctiveness of Marnix Academie? Will the tightening effect (from outside) in time have an influence on the values and culture of the school, and perhaps effect the clan? In other words, could MCS interventions that have a standardizing effect on the activities and curriculum in the school, such as standard Math test and standard Science minors, dive out differentiation in the school’s clan and culture? And if so, what net-effect will this have on the School outcomes and performance? To investigate this matter we seek to answer the following six questions:
2. How do they use it, and with what degree of coupling? 3. And why (what is the source of the MCS)?
4. What is the perceived influence of the new externally imposed management controls? 5. Is adding these specific management controls an appropriate measure to improve the
efficiency and the expediency of the Marnix Academie?
3. Paper layout
In paragraphs 4.1 to 4.5, the governance structure of Marnix is presented, followed by a comprehensive picture of all relevant external stakeholders. This information is crucial since from this a picture emerges of the complexity of the environment. The external interventions in the MCS and the political context are also discussed. This information is needed to provide context information about the existence and the shaping of the MCS. In paragraph 4.6 the research process of the application of the Malmi & Brown (2008) framework to the MCS is reported. This concludes the investigation into the “what MCS” of Marnix Academie.
For the second, third and fourth sub questions further interviews were held (paragraph 4.7), but also a written perception survey (Paragraph 4.8). This answers the question both in a qualitative (interviews) and in a quantitative (survey) manner, of what the perceived influence is of the new externally imposed management controls. In paragraph 4.9 we discuss the last two sub questions with specialist from the field, ‘Is adding these specific management controls an appropriate measure to improve the efficiency and the expediency of the Marnix Academie?’ And, ‘what can be learned about the design of MCS from this case?’
Sub questions Paragraphs
1. What Management Control System is in use at the Marnix Academie? 4.1- 4.6 2. How do they use it, and with what degree of coupling?
4.7 & 4.8 3. And why (what is the source of the MCS)?
4. What is the perceived influence of the new externally imposed management controls?
5. Is adding these specific management controls an appropriate measure to improve the efficiency and the expediency of the Marnix Academie?
4.9
6. What can be learned about the design of MCS from this case? 4.9 Table 3.1: overview of sub questions and paragraphs
4. Case Marnix Academie
4.1 Introduction and contents
4.2 Governance Structure of Marnix Academie
In this paragraph we specify the management control structure of Marnix Academie. This structure (see figure 4.2) is nowadays typical for higher education institutes in Holland, since it is based on a code of governance of the Dutch higher education sector (Branchecode Governance of 2006).
Marnix Acedemie
Raad van Toezicht (Board of Trustees)
College van Bestuur (Executive Board) Onderwijs-management (Education management) Medezeggenschaps-raad (School Council) Staf en decaan)
(Staff and Dean)
Lectors Bedrijfsbureau (Operations management) Onderwijsteams (Teacher/Trainer teams) Medewerkers (Employees)
Figure 4-2 Governance structure
Raad van Toezicht (Board of Trustees). The Board oversees the Executive Board and the general course of affairs of the college. It advices and controls the Executive Board on the subjects of identity, strategy and quality.
College van Bestuur (Executive Board). The Executive Board is responsible for managing the college. A written management code (bestuursregelement) specifies the duties and powers that the Board of Trustees has delegated to the Executive Board.
Medezeggenschapsraad (School Council). In the School Council students and school employees are represented. Relevant policies that the Executive Board prepares are only implemented after consultation with the School Council.
Bedrijfsbureau (Operations Management). The college has an operations manager, managing all non-education and non-staff employees (all other school employees) caring for the building, IT services, reception services, student administration, etc.
Onderwijsmanagement (Education Management). The college has four Education training managers: two for the initial training (major and minor phase), one for the master and one for the Marnix Education Center (MOC).
4.3 External stakeholders
In figure 4-3 a schematic representation is presented of all stakeholders that have some concern with the school’s performance.
Marnix Academie Horizontal dialogue
Government
Professional field Validation, Accreditation & Certification
Board of Trustees (RvT) Executive Board (CvB) Education management School Council (MR) Staff and Dean
Lectors Operations management Teacher/Trainer teams Employees External accountant Ministry of Education, Culture and Science Review Commission (Commissie Zijlstra) PO-Raad VO-raad Inspectorate of Education (Onderwijs inspectie) HBO-raad Student Council (Studentenraad) Partner Primary Schools (Stuurgroep Partners en Ontwikkeling) Interactum Field Advisory Council (Veldadviesraad) Regional Partners (Regionaal platform Partners in Onderwijs)
Figure 4-3 External stakeholders.
Accreditation Organisation of the
Netherlands and Flanders (NVAO) Centrum voor Post
Initieel Onderwijs Nederland (CPION) Chr. Advisory board. (De Besturenraad.) Hobéon, sustainable development in education (AISHE 2012) Validation Committee for Research quality assurance (VKO) De Commissie Kennisbasis Pabo (Commissie Meijerink) 4.3.1 Horizontal Dialogue.
The Executive Board maintains structural contact with two customer groups that are involved with the college, the students and the professional field. There is consultation with:
The Student Council, which organizes activities for students and upholds the interests of students;
Partner Primary Schools, Marnix has a Steering Committee Partners in Training and Development, in which directors of the participating Partner Schools are represented;
Regional Partners, the ‘Regional Platform Partners in Education Utrecht and surroundings’, is a body in which the three Utrecht Teacher Colleges (Pabo) and the regional employers are represented;
4.3.2 Validation, Accreditation & Certification.
NVAO, the Accreditation Organization of the Netherlands and Flanders, is the
independent accreditation organization set up in 2003, following the Bologna Process to ensure more comparable, compatible and coherent systems of higher education in Europe. It is an joint initiative by the Dutch and Flemish governments, whose primary goal it is to provide an expert and objective judgement of the quality of higher
education in Flanders and the Netherlands;
CPION, Centrum voor Post Initieel Onderwijs Nederland, is and independent
certification organization, that aims to differentiate (with formal certification) the wide range of courses at higher education level in the Netherlands;
Advisory board (De Besturenraad) undertakes various activities on behalf of all Christian schools to ensure the quality of the DCBO is maintained at a good level and that training institutes continue to create sound content. This content is, of course, tailor-made and leads happily to much diversity in practice. In Holland there are 540 school boards that have joined this board, representing 2200 schools, and 800,000 students;
VKO, the validation committee for research quality assurance undertakes the six-yearly validation of the quality assurance systems in place at universities of applied sciences, at the aggregation level of the institution;
4.3.3 Government
The Ministry of Education, Culture and Science “works to create a smart, skilled and creative environment in the Netherlands. Its mission is to ensure that everyone gets a good education and is prepared for responsibility and independence. The Ministry also wants people to enjoy the arts, and aims to create the right conditions for teachers, artists and researchers to do their work”.
The Dutch Inspectorate of Education, “is responsible for the inspection and review of school’s and educational institutions: assessing and reporting the quality of
education offered in schools.”
The Review Commission, (commissie advises Secretary of Education on all Performance Agreements for the Dutch colleges and universities.
4.3.4 External accountant (KPMG)
The board of trusties appoints the external accountant and appoints (among its own members) the audit commission.
4.3.5 Professional Field
PO-raad is the sector organization for primary education (PO). The association promotes the common interests of the boards in primary schools, special schools and (secondary) special education. The PO-Raad focuses on three main areas: education funding, employer-employee subjects and the general policy outlines of primary education.
VO-raad is an association of 334 school boards and more than 600 schools in secondary education (VO). The purpose of the VO-raad is to promote the education and support in the development of education for one million students. The VO-raad is also the employers association that enters into negotiations with employee
representatives, representing more than 120,000 employees.
the Netherlands (list). 39 Universities of Applied Sciences are affiliated to the
Association. Together they have over 38,000 employees and over 400,000 students.
Commissie Meijerink, The Commission was formed on June, 29Th 2011 by the HBO-Raad. The central task of the commission was to define and deliver a minimal knowledge base for every starting teacher.
Interactum is a partnership of five mono-sectoral teacher training colleges.
4.4 Governmental intervention
In this paragraph we investigate the effects of the governmental intervention in the higher education by looking at the effects it has on the MCS of Marnix Academie. In the first
subparagraph the scenery is set. A spectacular growth of students numbers, a financial crisis and subsequent necessary budget cuts in governmental spending. Complaints about student quality in higher education, that eventually boil down to criticism on the colleges for teacher training (Pabo). Upheaval about failing governance because of incidents of administrative fraud and ‘grades scandals’ in the sector. It all creates an atmosphere for tougher
administration and tighter control, especially tighter result control. 4.4.1 The political context
Some five years ago, just before the financial crisis hit governmental budgets hard, a debate about the status and direction of the higher education system flared up in Holland. Higher Education was flourishing in Holland, more and more students found their way to Dutch colleges and universities. In twenty years the number of students had almost doubled. This development raised the question whether the Dutch higher education system could handle this growth. Therefore the minister of Education, Culture and Science asked a committee advice about this. This committee (Commissie Toekomstbestendig Hoger Onderwijs Stelsel) became known as “Commissie Veerman”. In April 2010 the commission published its
findings in a report called “Differentiating in threefold”. This report was based on a
1) Selection. The committee proposes to “Select At The Gate”. This means that basically any institution should have the privilege to select students as they see appropriate. The government must in laws and regulations allow this, and also give preconditions for it.
2) Profiling. The committee proposes institutes to choose a sharper profile and
suggested that the government encourages the institutions thereto. The proportion of student-based funding should decrease gradually in favour of a growing share
mission-based funding. Thereby rewarding the choice of a particular profile and its subsequent results.
3) Reduce student based funding at universities. The committee signals a relation between student based funding and the academic profile of universities. Universities should as soon as possible be less dependent of student numbers based funding. 4) Investing in research. The Committee advocates a targeted boost investment in
research in universities and applied research at colleges.
5) Associate Degree. The Committee proposes the implementation of the Associate Degree (an undergraduate degree).
6) A new arrangement for master. The committee proposes to broaden the range of masters with professional masters tailored for students of 30 years and older for ‘lifelong learning’.
7) The introduction of uniform titles. The Committee recommends that the Bachelor and Masters titles remain legally defined and better protected.
Towards the higher education institutions the committee had three specific recommendations:
8) Select a profile. The committee recommends institutions to select a profile based on proven strengths and in line with the European classification.
9) Provide more attention to education as a core task. Pay attention to special needs and student situations, provide more flexibility, and invest in the operations.
10) Investing in staff qualifications. The quality of education depends on the quality of the teacher and the appreciation that is before them. The committee requests institutions to provide room for teachers that want to pursue research and teaching
simultaneously.
universities have reached based on their own Performance Proposals, cover four subjects. Firstly quality of education, secondly academic achievement of students, thirdly profiling of education and research, and fourthly valorization. Most of the performance proposals, that where reviewed by The Review Commission, were “very good", two were even "excellent". With this procedure the Dutch government has developed a tool for actively influencing MCS, policy and curricula of the individual institutions. Also a new set of control measures as laid down in the new Performance Agreements, were introduced on top of already existing rules en regulations for governance and reporting of the institutions. With this operation 7% of the existing Dutch budget for higher education will be redistributed over the institutions, hereby linking new cybernetic controls to the budgeting of schools.
In July 2010, a fraud with student grades was revealed at INholland. The investigation of the NVAO of the final theses at some of the school’s training lines proved that grades granted were too often incorrect (to high). The analysis of the NVAO into the alternative paths to graduation at INHolland also made clear that diplomas were wrongly granted. On 1 January 2011 a new accreditation system came into force. Included therein are elements that will lead to significantly more and explicit focus on the achieved level of training.
In 2011 and 2012 with regularity other news and smaller incidents fueled the nationwide discussion about education quality. For the Dutch colleges of teacher training (Pabo) this resulted in stricter norms and a set curriculum (Kennisbasesstructuur) and a National test on this.
The beginning of 2012 revealed that Amarantis Onderwijsgroep (a large conglomerate of 60 schools) suffered from acute financial problems, because of a debt of 92 million Euros’. Continuity of education was in jeopardy. The MCS at Amarantis did not work, the
- a further strengthening of governance and financial management; - an increased sensitivity to human scale and size;
- an integration of financial supervision and monitoring of educational quality; - more powers of intervention by the Minister.
4.5 The ‘new’ MCS at Marnix
The strategic planning process at The Marnix Academie is a medium term planning cycle. It deals mainly with strategic quality and positioning and with organizational performance. Plans are renewed every three to four years.
Start Strategic Planning Tactical and Operational planning Approval MR Strategic Plan
Team plans Management Contracts Business planning non funded Education Execution of plans Yearly analysis Goals met? Rewards or Sanctions? yes Improvement planning no Approval RvT yes Evaluation and strategic inputs
Figure 4-5 The proces of Strategic Planning Budgetting
no
The strategic planning process (see figure 4-5) starts with an evaluation of the current strategic situation and with several strategic inputs of several external stakeholders.
Strategic planning
planning reminds a little of playing a game of Mikado: complying with the needs or “rules” of one stakeholder will easily upset the relationship with others.
Budgetting
After the plan is drafted it must fit within a set budget. Dutch Higher education institutes are financed on a T-minus 2 basis; this means that the financial budget for the year ahead is actually based on student numbers of 2 years earlier. So growth is a little difficult.
Approvals
If the budget-test is positive the plan is presented by the Executive Board to stakeholders. But first approval is needed from the MR (the School Council) and the RvT (the Board of Trustees).
Tactical & Operational Planning
In order to actually deliver Strategic Quality and Organizational Performance the operational plans are then drawn up. The operational planning consists mainly of business planning and educational team plans. Management contracts are also created at this moment in time. These are a form of management control to ensure that the plans are carried out as agreed.
Execution and evaluation of plans
Plans (strategic, tactical and operational) are executed. During this there is a yearly evaluation. If the yearly goals are not met management is asked to produce improvement plans. If the situation still does not improve satisfactorily sanctions can be made, but no formal management control is in place.
4.6 The Malmi & Brown Framework applied to the MCS of Marnix Academie
4.6.1 Research process
The aim of these analyses is to decompose the MCS of The Marnix and analyse its use and the impact to it from the recent governmental interventions. From desk research and
interviews within the MCS, 148 individual management controls have been identified, see exhibit 1.
The process of applying and reviewing the Malmi & Brown (2008) framework has been as follows. Firstly, the researcher has prepared the list and applied the framework
independently. Secondly, a consensus discussion aimed at applying the framework to this list of controls was organised with Mrs. Drs. José Kersbergen, Staff member Quality of The Marnix and the researcher.
4.6.2 Consensus discussion for classifying management controls
In preparing the discussion Mrs. Kersbergen (the quality assurance officer at Marnix) read the Malmi & Brown (2008) article and classified the list of controls in view of that. During the discussion the two lists of classification, one by the researcher and one by Mrs Kersbergen, were compared. In doing so the Malmi & Brown article was consulted regularly to clarify Malmi & Brown definitions of the different types of control. In total 8 of the 148 controls lead to some form of discussion, so applying the framework to a real life case proved to provide some practical considerations. Mrs Kersbergen: “Some I find very easy, but the distinction between cybernetic controls and administrative controls is sometimes difficult. Occasionally it's about compliance and then there is not only the cybernetics at stake, but also the process by which the cybernetics are reported, and that has administrative aspects. These I find difficult.” Most discussion gave administrative controls with cybernetic characteristics and administrative controls inspired by cultural values. These will be discussed next.
Administrative controls with cybernetic characteristics.
These are sometimes a little difficult to classify. The NVAO accreditation for example (which is probably the most important control category, because failing the accreditation will lead to a loss of school funding), is by nature an administrative control. This is because the
accreditation is based on a qualitative review of an accreditation commission. The
management controls) has however cybernetic characteristics. This is because the final judgement is one of four categories (cybernetic values): “Insufficient, satisfactory, good, and excellent”. The result of the discussion was that one of the 17 controls of the NVAO was classified a ‘planning control’, 14 were classified ‘cybernetic’ and four were classified as ‘administrative controls’.
Administrative controls inspired by cultural values.
Administrative controls based on cultural values provide a similar problem with classification. The Marnix Academie has a Protestant religious background. Religious values are therefore present in the MCS. Most notable by the management controls of the Besturenraad
(Christian Advisory Board). The Marnix is a voluntary member of the Besturenraad. The process of assessment and accreditation that is facilitated by the Besturenraad ensures “mutual reflection and inspiration”. This means that the assessment framework and the definition of the knowledge and core objectives provide guidance, and are in no way
compulsory. It is by nature Administrative. The outcome of the classification discussion in this case study for the five individual management controls of the Besturenraad is that one
(DcBO_01) is classified as “cultural” and the other four administrative controls are classified as such.
Similarly the The Aishe (Auditing Instrument for Sustainability in Higher Education) 2012 controls provide some difficulty in classification using the Malmi & Brown Framework. The AISHE audit method is intended to determine how far a Higher Education institute complies with the sustainability standard. In passing the audit, the school may obtain a certification (label) “Keurmerk Duurzaam Hoger Onderwijs”. This is not compulsory, or strictly
4.6.3 Overview of the Malmi & Brown classification C ul tural C on tr ol s P lan ni ng C on tr ol s C ybe rne ti c C on tr ol s R ew ard & C o m p en satio n C on tr ol s A dmin ist rative C on tr ol s To tal pe r institu ti on ( sou rce) P ercent a ge of To tal External Accountant 0 0 0 0 7 7 5% Branchecode Governance 1 4 24 0 27 56 38%
NVAO, Accreditation Organization of the Netherlands and Flanders
0 1 12 0 4 17 11%
CPION, Centrum voor Post Initieel Onderwijs Nederland
0 0 1 0 10 11 7%
Besturenraad (Christian schools) 1 0 0 0 4 5 3%
Kwaliteitszorg onderzoek (BKO) 0 0 0 0 4 4 3%
Keurmerk Duurzaam Hoger Onderwijs AISHE 2012
1 2 0 0 10 13 9%
Review Commission (Commissie Zijlstra) 0 0 13 0 3 16 11% Kennisbases Pabo (Commissie Meijerink) 0 0 19 0 0 19 13%
Total 3 7 69 0 69 148 100 % Percentage of total 2% 5% 47 % 0% 47 % 100 %
Table 4.6: overview of the MCS
In table 4-6 the result of this classification discussion is presented. It appears that:
The role of the External Accountant is fully administrative;
NVAO, Accreditation Organization of the Netherlands and Flanders, represents a set of formal management controls that is dominantly cybernetic with some administrative and planning controls;
CPION, Centrum voor Post Initieel Onderwijs Nederland, represents a set of formal management controls that is mostly administrative;
Besturenraad (Christian schools) represents a set of formal management controls that is dominantly administrative;
Kwaliteitszorg onderzoek (BKO) represents a set of formal management controls that is fully administrative;
Keurmerk Duurzaam Hoger Onderwijs AISHE 2012 represents a set of formal management controls that is dominantly administrative;
Review Commission (Commissie Zijlstra) represents a set of formal management controls that is dominantly cybernetic;
Kennisbases Pabo (Commissie Meijerink) represents a set of formal management controls that is fully cybernetic.
Graph 4-6-1 The 148 individual management controls that make up the MCS 0 10 20 30 40 50 60
Management controls at Marnix (Malmi & Brown 2008)
Administrative Controls
Reward & Compensation Controls Cybernetic Controls
Graph 4-6-2: The 148 management controls per type.
From this we may conclude that:
A. The MCS as a whole is not designed, but is largely externally determined by different bodies of ‘rules and regulations’;
B. The Marnix definition of ‘being in control’ is no longer aligned with the MCS (and vice versa), ‘strategic quality’ and ‘organizational performance’ were traditionally
determined in 8 competences to be developed in students, training to be a teacher at Marnix Academie. The new management controls from “Kennisbases Pabo” shifts the balance away from competences and toward ‘knowledge’, because the knowledge-base of graduated teachers is now prescribed in detail and measured true
compulsory national testing;
C. The origins of the individual management controls in de MCS are not per se related to each other;
D. Individual controls do not lead toward the same strategic direction. For example, the standardization of knowledge through “Kennisbases Pabo” and the “profiling of the institution” recommendations of Commissie Veerman seem to be very contradictory, because “Kennisbases Pabo” (a prescribed knowledge base that is standard issue to all Pabo institutions) has a standardising effect that is contrary to profiling per
institution; Cultural controls; 3 Planning Controls; 7 Cybernetic Controls; 69 Reward & Compensation Controls; 0 Administrative Controls; 69
E. The MCS is not very well balanced, the MCS is anno 2013 dominantly Administrative and Cybernetic with little room for Cultural Controls and Planning Controls and no room for Reward & Compensation Controls;
F. The recently added controls as a result of the Prestatieafspraken (Commissie Zijlstra) and the Kennisbases Pabo (Commissie Meijerink) are dominantly cybernetic;
4.7 Perceived influence of the new Management Controls
The governmental interventions with Prestatieafspraken (Commissie Zijlstra) and the
Kennisbases Pabo (Commissie Meijerink) has led to some lively discussions in the sector. In this paragraph we illustrate the perception of these measures within the school.
4.7.1 Research process & case results reporting
Interviews were held with the educational leadership and teachers of the school, as with staff members. Furthermore the new strategic policy plan “Nieuwe Leer-kracht, Beleidsplan 2013- 2017” was analysed and is cited. In the next paragraphs individual general perceptions of the new management controls are quoted, as well as the perceived effect on coupling, the perceived effect on education, strategy and policies. A syntheses of conclusions is presented in Chapter 5. In this chapter the perception survey (paragraph 4.8) and the findings of the discussion about the appropriateness of the new management controls (paragraph 4.9) are integrated.
4.7.2 General perceptions
Gerard Veerbeek: We operate in all kinds of dilemmas. In recent years, you can see a development to ‘instrumentation of things’. That is simply a social sentiment, at least that’s how I see it. We live in a social system that absolutely cannot deal with risks. Somewhere something goes wrong at INholland or at Amarantis and we say ‘that must never happen again’. The result is a wheelbarrow full of instrumentation to make sure it does not happen again. At the same time that is not the whole truth. Fortunately, there is also another reality. It is certainly true that the education sector is aware of the inherent value of education. In the end all involved will understand that education is a process involving students and teachers. Knowing what students need takes skilled teachers. That is not the same as knowledgeable teachers. You can’t use a machine for this. This understanding will always be around in the sector. It is a natural opposing force.”
Jan Karel Verhey (education manager): “What we think is that this whole operation will not lead to better teachers. To “upload” knowledge into a person that is forgotten and outdated within six months is not useful. Even so, we are in future going to have do without a
4.7.3 Effect on Coupling
Gerard Veerbeek about the Kennisbases Pabo and the Prestatie Afspraken: “Integrating the Kennisbases Pabo in our curriculum will require a lot of headaches. It is very distracting as well. We must arrange things that we normally don’t. Like special testing and special
testclassrooms. It worsens the focus of students unfortunately as well, namely ‘how do I pass my test?’ instead of, ‘how do I become a good teacher?’. But I do not want to put it to
harshly. It is what it is and we'll make the best of it. It also makes no sense to continue to protest. I think the sentiments around it are very ‘political correct’. That bothers me a little. The performance agreements (Prestatie Afspraken) are something I can relate to somewhat more. I understand that the government wants to control the efficient use of resources. Now the government wants to translate this into a number of indicators. So after long thinking you can think of a handful. If these truly reflect the quality of education is open for debate. I'm not saying that it is all nonsense. It is good to raise the question ‘what is good and what can be improved?’ But I would find it an impoverishment if that is the only way the government looks at us. If there is the suggestion that we have indicators that truly reflect the quality institution, I do not agree. At this moment in time, the Marnix Academie is known as a good school, but it is not reflected in our indicators. I'm not saying it is nonsense, and if we agree to it we must do it. It's just a shame of all the energy that is put in it, but I have no objection.”
Erik Los, Controller at Marnix Academie, explains the new MCS, from this it appears that the effect on coupling is considerable. “We report twice a year. Between those two moments there is much more need for information, not only financial information, but information on all kinds of terrain. Hence the Marnix has since 2012 a system of monthly reports that report on specific areas. They are on the basis of indicators that report on the reality and the
anomalies that arise. For example regarding the anomalies in the budget or in respect of the performance agreements or projected student development or quality issues: customer satisfaction, student satisfaction, etc.” As to the possible financial sanctions on the
of school) college, these students cannot choose a different field of study at Marnix Academie, it means that you have immediately lost those students entirely. That is a potential financial burden as well.”
4.7.4 Effect on Education, Strategy & Policies
The following quotes are cited from the strategic policy plan “Nieuwe Leer-kracht,
Beleidsplan 2013- 2017” that was published by the Marnix Academie in May 2013. In this policy plan the policy makers (CvB, MR, education managers, etc.) signal a contrast between their own contingency analysis (their environment analysis) and the tendency from the Dutch government to tighten control. “The context in which the Marnix Academy will operate in the coming years can be the best typified with the term 'transition'. Society is increasingly complex and because of the speed with which developments are picked up and developed, many things become less 'predictable'. In many substantive (also scientific) areas, there is a 'paradigm shift'. At the same time there is a counter-movement ': increasing control by the government invites to consolidate. The Marnix Academy is part of the context of 'shift and control’. However, on those areas in which a transition occurs that touches the heart of the Marnix Academy should develop the academy (strategic) policy. This policy is not only
4.7.5 Effect on the clan
Gerard Veerbeek about the value of the clan: “I believe that all staff at the Marnix Academie should operate in a way that attributes to our organizational goals based on inherent skills. These are varied, because the jobs in our organization are diverse. The largest category is the teacher. First and foremost, these teachers must fit into the manner of which the Marnix Academie wants to position itself. If this is not so, our role becomes diffuse. For me it is very important that our teachers, who make up two thirds of the employee population, have ideas about education that are in line with those of our institution. That is extremely important. And indeed not only as individuals, but they must be able to interact among themselves about education in discussions and in cooperation. Ultimately, the team of teachers will have to do it.”
Loes van Loo, HR manager at Marnix Academie reflect the mood in the clan: “The new management controls live incredibly in education. It is also a kind of thread. On the one hand, we have the performance agreements and on the other hand, the Action Plan Teacher (an elaboration of the proposals of the Commissie Veerman). These clash. From the
4.7.6 Conclusions based on the interviews
From the interviews at Marnix Academie a mixed picture emerges.
All interviewed have mixed feelings about the newly introduced management controls;
At one hand there are those that do not oppose a new “slightly more strict regime” at the other hand there are those that clearly resist it, but also admit that improvements are possible;
There is some resentment about the process by which the interventions are made, especially the Kennisbases Pabo;
On the whole those interviewed do not see their culture / distinctiveness threatened in essence, the interviewed look at in in a pragmatic way: fitting the new rules into the daily operation is what occupies them;
The effect of all measures (especially the harsh degree of coupling) is not fully felt yet (because the implementation process is still ongoing);
Tightening of coupling seems to have worked at least to some degree, the Marnix Academie has changed the reporting structure around the MCS in line with the newly introduced cybernetics for Prestatie Afspraken;
The actual management value of the new metrics for Prestatie Afspraken is rated very, very low. The cybernetic metrics are in the ideas of the management of the school not representing true quality. This means that there is no real perceived management value in the MCS;
The strategic policy plan “Nieuwe Leer-kracht, Beleidsplan 2013- 2017” does not elaborate on the problematic / principle side, here also a pragmatic view is held.
4.8 Perception survey
4.8.1 Research process
In May 2013, 84 electronic questionnaires were sent out to all the teachers, team leaders, education managers and direct education sporting staff of Marnix Academie. After a week and two reminders, 38 (45%) individuals had responded, of which 26 (68%) completed the survey and 12 (32%) completed the survey partially (skipped one or more questions). The majority of respondents 82, 8 % were teachers. The aim of the questionable was to
determine if and to what extent the new MCS (“Kennisbases” and “Prestatie Afpraken”) are known and understood by educations staff of the Marnix and what the perceived influence of these controls are at an individual level. The full questionnaire is included in Chapter 12. 4.8.2 Survey results
General:
- The new management controls are well known. 94,7% of respondents had heard about the “Prestatie Afspraken” and 100% of respondents had heard of the “Kennisbases Pabo”;
- The new management controls are reasonably well understood. 88.2% could provide the right answer to what the “Prestatie Afspraken” are, and 76,9% could select the correct definition of “Kennisbases Pabo”;
- Since the “Kennisbases Pabo” is directly aimed at Pabo’s it is not very surprisingly that the impact of de “Kennisbases Pabo” is perceived to be much greater, that the “Prestatie Afspraken”;
- Both “Prestatie Afspraken” and “Kennisbases Pabo” received with a mixture of feelings, and are expected to have a negative impact on the culture of the Marnix.
“Prestatie Afspraken” specific:
research. However, it is only a small percentage of the teachers here at the Marnix Academy that has no master.”
- As to the question ‘Do you agree with the principle of coming to "Prestatie
Afspraken”?’, a much divided image emerged: 46.1% of respondents agreed and 42.3% disagreed, the rest is undecided. A teacher replied: “To me it seems to be a last resort to make 'prestatie afspraken' if quality of education is to be stimulated. There are other means. Another replied: “I think it’s a way of looking at students. It changes every day, do it the old way, you’ve always done it, isn't allowed anymore, so "Prestatie Afspraken" can help us to make good education.” A third teacher wrote: “To create, to develop good education it is important to have room in your heart and brains to be creative and open to new ideas, to study, to discuss etc.”;
- The vast majority of respondents (87,5%) do not believe that the “Prestatie Afspraken” will have a positive effect on the culture of Marnix;
- Most respondents (63%) do not (yet) know if the “Prestatie Afspraken” will bring about new activities or new tasks in exercising their teaching profession, most respondents (57,7%) think that 1-25% of the content of their lessons will be impacted. One teacher replied: “I have to study for a master, but nothing will change in my tasks and
activities.”
Kennisbases Pabo specific:
- As with the “Prestatie Afspraken”, the principle of having a "Kennisbases Pabo" is dividing the professionals of the Marnix, so being it to a little less extend: 26.9% is against it, and 38,4% agrees, leaving 34,6% undecided;
- 50% of respondents thinks that "Kennisbases Pabo" will mean new activities or new tasks for them, the expected impact is great: 46,1% of respondents think that the content of their lessons will change between 26% and 75%;
4.8.3 Survey conclusions
To put the survey conclusions in context of our research, a model of the external stakeholder intervention into the MCS is presented (figure4-8-3). The perception survey among the ‘education clan’ shows that:
Clan
Stategic planning Objecttive setting
Action Planning Long Range Planning Budget Activities Values Culture Strategies and Measures School Outcomes Meeting Objectives Organsiation Outcomes Short Term Financial Performance
Figure 4-8-3: External Stakeholder Intervention in MCS (Free after Malmi 2007) Stakeholder
intervention in MCS Prestatie Afspraken
7% Budgetory Consequences of Prestatie Afspraken
School Stakeholders Protestant Religious
Symbols
Kennisbases Pabo
- From this perception survey a more intense image emerges. It seems that the clan as a whole – in an anonymous electronic survey – is more concerned about the newly introduced management controls than those individuals that were interviewed.
The clan’s perception is:
- The newest management controls associated with the “Prestatie Afpraken” and the “Kennisbases Pabo” have a direct and substantial effect on objective setting; - “Kennisbases Pabo” has – though prescribed curricula and though compulsory
testing - a direct effect on the activities at the school, changing the content of lessons considerably;
- The standardization of activities will leave less room for two of four “Prestatie Afspraken” subjects, namely: “Profiling of education and research” & “Valorization”; - The clan is deeply divided about the future direction of the other two “Prestatie
Afspraken” subjects, namely: “Quality of education” & “Academic achievement of students”;
4.9 Discussion about the appropriateness of the new management controls
In this paragraph a summary is presented from the interviews where the interviewee was asked: What contingencies do you see in the years ahead? The interviewer usually replied by explaining not only the contingency, but also the appropriate reaction to this contingency. This vision often holds an idea about Tightening or loosening of coupling in Higher
Education. From this a picture emerges of how people believe in loosely coupled systems, and if a more loose approach to the MCS is actually feasible in their opinion. This outlines the possibilities and direction to any alternative way to come to a ‘packaged’ Management Control System that is somewhat more acceptable to all stakeholders. Conclusions from this are obviously somewhat speculative but they open up new perspectives on further
research...
Dr. Luc Stevens, General Manager NIVOS, an independent Dutch research and
development institution in the service of ‘good education’. Takes a clear standpoint, that opposed the newly introduces management control measures. “This new orthodoxy has disastrous consequences for education, because the policymakers and managers think only in ‘products’, but nobody in the field recognizes these. Except the policymakers and
Drs. Pieternel Boer, Consultant at Hobéon, who herself has contributed to the development of an instrument for auditing sustainability and quality in Higher Education, takes a very interesting standpoint. She claims that more regard to the value of the auditing process itself is the right way forward. She looks at auditing as a development process with five clearly defined stages of sustainability and quality maturity. The game is to have organizations to go through those stages. “People get their inspiration and encouragement from the qualitative, development-oriented approach. When it comes to education, definition of education, research, fellowships, teaching, I am more in favour of the qualitative process approach. What you need is an integrated perspective in handling didactic and pedagogical issues that balances between the triple bottom line of people, planet and prosperity. That is something that is not easily implemented. In order to grow awareness in organizations people need to know what the consequences are of their actions. They need to look at it from the different areas of sustainability, so social, environmental ánd economic. Clearly we are having success with this approach. Many organizations that are in stage 2 apply for the predicate ‘sustainable development’ that they can use for their NVAO accreditation. We are now discussing whether we should raise the bar to stage 3, because so many education
organizations are already in stage 2. Stage 2 has become more or less the new standard.”
Mr. drs. Presley Bergen, member of the board, association BON (Beter Onderwijs
Nederland), is also very critical towards the newly introduced management control measures, but for different reasons. “The task of schools is to bring individuals from ‘ignorance to
knowing’ and from ‘can’t to can’. The extent to which they achieve this says something about the quality of the education. The problem is that our government has not defined Quality anywhere, except in secondary education. Throughout the whole world, the government sets a minimum target level of quality, except in the Netherlands. Our solution: stop the lump sum funding and determine the minimum end terms.” From this one might expect that Mr. Bergen is a supporter of the newly introduced management control measures, but this is not the case. “You cannot lead schools and hospitals as a type of ‘biscuit factory’. Schools are now run as a ‘machine bureaucracy’ in the true meaning of the word. That’s wrong. Schools are run by highly educated people, who know what they are doing. What the government should do is facilitate. And set minimum end terms.”
phenomenon. But it needed to be fixed on the spot, without introducing all sorts of draconian measures for the entire sector. It is a fascinating but complicated process and it is very slow and insidious, but the great thing is (I have studied 50 years of development in Education for my newest book) you can see the different lines of development. I have detected twenty or so. They all have a wave-type motion. Sometimes they lay low for a period and then they appear again. When you look at the big picture there are certain trends. Education on larger scales is still a trend that is still going on, participation of private sector is a trend as well, and the call for excellence is also a trend that continues today. These are all developments that you see today.
5. Conclusions & discussion.
5.1. A recap of the findings on coupling
Examples of tight coupling at Marnix Academie:
The HR process is tightly coupled to the clan controls (the right ‘clan-fit’ is paramount);
The accreditation process is tightly coupled to the tactical and operational planning (but mainly for NVAO en CPION, not so much for the other controls);
The controls for Kennisbases Pabo are tightly coupled to the education and testing activities in the school (because of the set curriculum and National testing);
Examples of loose coupling:
The strategy process is loosely coupled to the MCS;
The Prestatie Afpraken are tightly coupled to the MCS, but largely decoupled (Very Loose) to the strategy process (the management does not see the management value of the agreed metrics because they do not reflect the quality of the school);
Private observations of loose coupling by the author:
The MOC (Marnix Onderwijs Centrum) has their own student administration center, that works more or less independently from the school’s central student
administration (with extra coordination and consultation as a result);
The Marnix had over 75 IT systems, some of them not coupled, nor properly interfaced, redundancy of information is a fact;
The financial process (payment and collection of school fees) is loosely coupled to the student administration process;
5.2. The main question answered
The main question raised in this paper is: How does a loosely coupled organization (that is both distinctive and responsive) assimilate a sudden influx of externally defined cybernetic management controls? In answering this the following considerations are taken into account:
The recent interventions of external stakeholders (Prestatie Afspraken en Kennisbases Pabo) result in an spectacular increase of cybernetic management controls to the point that the package of management controls is unilateral cybernetic / administrative;
This tightening up of the MCS makes sense if the environment is either stabilizing or the task is getting easier. (Weick 1976). From the reported contingencies in the case study neither (‘stabilizing’ nor ‘getting easier’) can be concluded, so the strategy to tighten control has no clear theoretical legitimacy;
The package of MCS contains 148 individual management controls, making the MCS not very effective and (strategic) planning very complex;
The individual management controls do not lead toward the same strategic direction / goal congruence (For example, the standardization of knowledge through
“Kennisbases Pabo” and the “profiling of the institution” recommendations of Commissie Veerman seem to be somewhat contrary);
Ironically the enormous package of 148 management controls actually allows loose coupling, because as mentioned, the controls do not lead toward the same strategic direction. And the package as a whole is not very well known to management. And the package is partly not taken serious because there is no trust in the true
management value of many of the new management controls;
Both management and field specialist have pragmatic visions about the newly introduced controls: they will blow over (like so my other initiatives in the past); The standardization of Kennisbases Pabo has the potential to drive out differentiation
and distinctiveness of the Marnix Academie;
The education clan at Marnix Academie feels their culture and distinctness is threatened;
