A Neo-Institutionalist Approach to Understanding Drivers of Quality Assurance in ODL: The Case of the Open University of Mauritius

In recent years, quality assurance (QA) in higher education has received increasing attention by academics, learners, institutions, and governments alike. Many open universities (OUs) have taken steps to re-define or re-orient their systems and practices to integrate quality. While there is a growing body of literature on QA best practices, there has been little investigation into the factors that influence institutions to improve or adopt QA and how these factors impact on the specific manifestations of institutional QA. This paper examines the challenges of QA implementation in OUs and, using a neo-institutionalist lens, it advances a framework for understanding drivers of institutional QA implementation. The framework is applied to the case of the Open University of Mauritius (OUM). Existing literature, institutional records, interviews and reports are analysed to assess how exogenous and endogenous factors have influenced QA implementation at OUM, with a focus on addressing the specificities of open and distance learning (ODL). A better understanding of the drivers of change for QA can help OUs plan the implementation of QA mechanisms in a more comprehensive way and to systematically develop a culture of quality that responds to the ideological and practical context of ODL.


Introduction
In recent years, quality assurance (QA) in higher education has received increasing attention by academics, learners, institutions, and governments alike. Many open universities (OUs) have taken steps to re-define and re-orient their systems and practices to integrate quality. While there is a growing body of literature on QA best practices, there has been little investigation into the factors that influence institutions to improve or adopt QA and how these factors impact the specific manifestations of institutional QA. This paper examines the challenges of QA implementation in OUs and, using a neo-institutionalist lens, it advances a framework for understanding drivers of institutional QA implementation. The framework is applied to the case of the Open University of Mauritius (OUM). Existing literature, institutional records, interviews, and reports are analysed to assess how exogenous and endogenous factors have influenced QA implementation at OUM, with a focus on how the specificities of ODL have been addressed. A better understanding of the drivers of change for QA can help OUs plan the comprehensive implementation of QA mechanisms, and to systematically develop a culture of quality that responds to the ideological and practical context of open and distance learning (ODL).

Methodology
The present paper uses an explanatory case study method. The case study method is an empirical inquiry that investigates a phenomenon within its real-life context (Yin, 2014). The method has been selected based on the assumption that it can illuminate the decision-making process including why a decision was taken, how it was implemented, and with what results (Yin, 2014). While case studies are useful in providing an in-depth understanding of change processes, there are issues of external validity, and findings may not be generalizable to other cases or contexts, which are limitations of the present study (Yin, 2014). Similarly, construct validity may be problematic in this method. To address this concern, multiple evidence sources were used, and the report was reviewed by institutional representatives. Institutional approval to undertake and publish this study was sought and granted.
Qualitative document analysis was conducted. Bowen (2009) recommends an approach which excludes "the quantification typical of conventional mass media content analysis" instead consisting of "a first-pass document review, in which meaningful and relevant passages of text or other data are identified" and separated "from that which is not pertinent" (p. 32). Although qualitative document analysis has limitations, such as insufficient detail or biased selectivity, "given its efficiency and cost-effectiveness in particular, document analysis offers advantages that clearly outweigh the limitations" (p. 32).
Purposive and snowball sampling was used to select documents. The first document consulted was Patten and Chadee (2018), as it provided an overview of QA at OUM. A list of additional documents was generated based on the Patten and Chadee (2018) document and the literature review. Key documents selected for analysis were: • OUM's Institutional QA Policy (2018a) • OUM's Self Evaluation Report (2017b) • Tertiary quality assurance (TEC) QA audit reports of OUM (2015 and 2018a) To provide clarification on specific points in these documents, an email interview was conducted with a key informant, Professor Vinesh Sannassee, Director of Academic Affairs, who was selected purposively based on his central role in QA at the institution. After the respondent provided his informed consent, he was sent a list of questions and submitted his responses by email.
Using the "extraction approach" (Bowen, 2009) relevant information from the texts was extracted using a pre-established category system. The six categories were established a priori, based on the framework in identified to guide the authors in the extraction, although authors also used their discretion to fit information into the categories. Extraction was conducted independently by two authors and categorised information was compared and collated. University, and all staff was trained on ISO9001 and internal quality audit practices (Patten & Chadee, 2018). Yearly external audits were conducted to assess compliance to objectives and measure improvements. All processes at OUM were documented and led to the organisation of units/divisions. As a result, OUM became the first ISO-certified HEI in Mauritius in July, 2015.

Background: Overview of QA Milestones at OUM
The TEC carried out the OUM's first QA audit in 2015, resulting in several recommendations.
Following the audit, OUM sought to address these recommendations (Patten & Chadee, 2018  HEIs. According to Patten and Chadee (2018) external schemes of service constrain human resource management. They note that external requirements make recruitment complex and time consuming. The also plans to open six regional centres across Africa (OUM, 2017a). These initiatives will help to ensure the sustainability of OUM in a resource scarce environment, while expanding its reach.
Due to resource scarcity, OUM must appease not only the TEC (by meeting its regulative requirements), but also attract and retain students. While ISO9001 helped OUM address the requirements of the TEC, it is also a powerful marketing tool, which projects an image of quality. According to Patten and Chadee (2018), the ISO9001 certification is a "marketing advantage…since [OUM] is the only public university which is ISO-certified" (p. 10). The certification is advertised to prospective learners throughout OUM's website and marketing materials (OUM, 2018b). In a competitive market, the adoption of QA measures can demonstrate comparative advantage.
While resource scarcity may drive QA implementation, it can also impede it. Patten and Chadee (2018) note that OUM, "requires continuous investment in modern ICT infrastructure, website, learner platform and software to ensure quality service to learners since the University offers courses in ODL mode" (p. 12). While ODL offers cost advantages in economies of scale, initial technology and infrastructure investments can be high (Daniel, 2009). Yet, this investment is necessary to achieve the advantages of economy of scale. OUM is faced with managing the significant investments required to scale-up, in an environment of declining public investment, and increased competition.
Exogenous cultural/cognitive drivers. National culture is another factor driving QA implementation at OUM. In 2006, the Government of Mauritius made significant strides to solidify its reputation as a continental leader in education, announcing plans to position itself as a knowledge hub. A feature of this plan was tertiary education: If Mauritius wants to position itself as a knowledge hub and as a key player in the Region, considerable emphasis should be laid on the postsecondary education sector, making it of a world development of the University's mission, aims, and objectives, and have participated in QA workshops, which has helped foster a culture of quality.
From its outset, the QMS at OUM included all divisions/units (Patten & Chadee, 2018); in 2014, staff was trained on ISO9001 standards and internal quality audit practices (OUM, 2017b). The 2015 TEC audit confirmed this, stating that "ISO procedures have been well accepted among the staff," a conclusion echoed in the 2018 report (TEC, 2015, p. 21). QA has thus been mainstreamed amongst staff, creating a pervasive culture, rather than isolated pockets, of quality. The inclusive approach strengthens the culture of quality, emphasising personal responsibility for QA.
Despite the acceptance of QA and the ISO framework in principle, at OUM "it is often a challenge to get involvement [in QA] at all levels … [QA] is often perceived as additional work and there is, in some cases, resistance to change," (Patten & Chadee, 2018, p. 13). According to Daft (2006) how staff interprets QA documents is a challenge, particularly when there is ambiguity. While ISO9001 offers a broad framework, "the processes themselves are defined by OUM" (V. Sannasee, personal communication, December 11, 2018). According to the 2018 TEC report, despite the acceptance of ISO9001 principles "there was no formal quality assurance framework in place" at OUM (p. 29). Thus, the ISO9001 standards must be translated into a practical framework that is well understood and easily implemented by staff. Figure 2 illustrates the relationships between various drivers of QA at OUM.

Lessons Learnt
Based on the analysis presented and the review of literature the authors raise the following observations and recommendations.
• Exogenous. Regulative drivers. A challenge in implementing QA at OUM is that external bodies, such as the PRB and TEC, have requirements or guidelines that do not fully align with the OU context. To support QA of ODL institutions, the authors recommend that national QA frameworks span the range of delivery methods, including flexible guidelines that can accommodate individual institutional solutions. According to Woodhouse (2006), criteria for judging inputs and processes and their correlation with quality outcomes are similar in both face-to-face and ODL programmes; however, because people and resources are dispersed or online, different questions and enquiry methods to assess quality may be necessary in an OU. A separate set of instruments to accredit ODL programs should be developed and form part of the requirements of national qualification agencies.
As per Liu's recommendation (2016), ensuring that national frameworks are compatible with institutional praxis helps align endogenous and exogenous forces, increasing the likelihood of adoption.
• Exogenous. Normative drivers. As government investment in tertiary education declines, outcomes-based QA measures will be essential for OUs to attract learners. Resource dependency means that OUs must be more accountable to society and responsive to the labour market. OUs should align curriculum with labour market needs and competencies to increase graduate employability. Moreover, it will be increasingly important for institutions to involve learners in quality processes. For example, learner feedback can be facilitated by technology, such as social media review systems. In a competitive market with decreasing funding, OUs must have plans for alternate funding and seek innovative ways to ensure that they meet stakeholders' expectations.

Conclusion
Both internal and external forces influence the adoption of QA measures at OUs and determine whether adoption is for the sake of compliance, for improvement, or for both. Since its inception, OUM has undertaken multiple interventions in QA, driven by both endogenous and exogenous factors. These include extrinsic factors such as: requirements/directives of government bodies and institutional regulations; normative forces like resource dependency and institutional mission and mandate; and cultural/cognitive factors such as a national culture of quality, and institutional leadership and legacies. While these drivers have facilitated QA implementation at OUM, the analysis reveals gaps and tensions, particularly in terms of the applicability of regulations and processes to the OU context, as well as a lack of resources, capacity, and buy-in, which may act as barriers to effective implementation. The forthcoming Higher Education Act, which provides for a Quality Assurance Authority to ensure QA aligns with international standards, enhance QA mechanisms, and promote good practices, will undoubtedly impact QA in Mauritius. This exogenous, regulative force will likely drive QA interventions at OUM, which will need to comply with these enhanced standards. While institutions have little control over their exogenous environment, they can determine their reaction to external forces and pressures. Moreover, institutions can drive QA adoption and improvement through endogenous regulative, normative, and cultural/cognitive mechanisms. Internally, the development of QA policies and plans, together with the ISO9001, has helped to inculcate a culture of quality at OUM. To move beyond a compliance approach, the continued involvement of all staff will be crucial. To meet the dynamic needs of a sector increasingly shaped by technological innovation, innovation in QA for higher education is essential. This will require the involvement of diverse stakeholders, and a rethinking of traditional roles and responses. A culture of quality relates to a culture of care, and such a culture must look beyond compliance and aim for improvement.