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TRANSCRIPT
The Integration of Persons of
Ethiopian Origin into the Higher
Education System
Submitted to the Immigration, Absorption, and
Diaspora Affairs Committee
The Knesset
Research and Information
Center
Written by: Orly Almagor Lotan, Flora Koch Davidovich
APPROVED BY: HODAYA KAIN, TEAM LEADER
18 July 2011
17 Tammuz 5771
The Knesset, Research and
Information Center Kiryat
Ben-Gurion, Jerusalem 91950
Tel: 02-6408240/1
Fax: 02-6496103
www.knesset.gov.il/mmm
Summary
This paper was written at the request of the Immigration, Absorption and Diaspora
Affairs Committee in preparation for a meeting to discuss “Integrating persons of
Ethiopian origin into academia”. The first part of this document will present various data
about students of Ethiopian origin in higher education institutions, as well as data for
those of Ethiopian origin sitting psychometric examinations, and their achievements. In
addition, we will survey the various aid programs operated by the relevant government
ministries and higher education institutions for advancing the integration of persons of
Ethiopian origin in the higher education system, as well as the policies of the various
institutions for accepting students of Ethiopian origin for studies. In the second part of
the document, we will present a comparative review, with examples of how different
countries are attempting to increase the accessibility of higher education for various
population sectors which are under-represented in this field.
The following principle findings emerge from the document:
In the 2008/9 academic year around 1,921 students of Ethiopian origin were
studying in institutions of higher education, comprising approximately 0.9%
of all students then studying at such institutions, a lower rate than that of the
population sector of Ethiopian origin within the general population in Israel
(approximately 1.5%).
Despite the rise between 2001-2007 in the number of students aged 20-29 of
Ethiopian origin (excluding university preparatory programs) out of all
those of Ethiopian origin of these ages, from 7.2% to 7.9% respectively, their
percentage was significantly lower than that of students in the higher
education system out of the general population of these ages (15.8% and
18.9% respectively).
There are currently around 2,060 degree holders of Ethiopian origin, out of
whom: around 1,810 (about 88%) have a bachelor’s degree and approximately
250 (about 12%) have a master’s. The vast majority of those who receive a
degree were born in Ethiopia (93%), about 2.5% were born in Israel with both
parents born in Ethiopia, and about 4.5% are Israeli born with one parent born in
Ethiopia.
While the number of people of Ethiopian origin with a bachelor’s degree
almost doubled between the 2004/5 and 2008/9 academic years, from 155 to
298, the rate of those of Ethiopian origin earning a bachelor’s degree is still
minuscule, and stood at only 0.7% in 2008/9 – around half that of the
percentage of the Ethiopian population sector within the general Israeli
population. The rate of those of Ethiopian origin earning master’s degrees is
even lower, and only 0.3% of those obtaining master’s degrees in 2008/9
originated from Ethiopia.
Among students of Ethiopian origin, relatively common fields of study were
the social sciences, education and teacher training, and management studies
(similar to those common among students in general). There were almost no
students of Ethiopian origin in the fields of sciences, medicine, agriculture,
languages, literature and area studies.
Regarding the distribution of students of Ethiopian origin who earned a
bachelor’s degree among the institutions of higher education, we see that during
the 2008/9 academic year, approximately 42% of those of Ethiopian origin
obtaining a bachelor’s degree received their degree from universities,
approximately 51% from academic colleges, and approximately 6.7% from
colleges of education.
It was also found that between 2004/5 and 2008/9 there was a noticeable
increase in the number of students of Ethiopian origin earning degrees from
the academic colleges, from 19% to 51%. This trend matches the existing trend
among bachelor degree students in general in Israel.
The University of Haifa has the highest percentage of students of Ethiopian
origin out of all students studying for a bachelor’s or master’s degree
(approximately 1.4%), whereas the lowest rate is at the Hebrew University
of Jerusalem (approximately 0.15%). The rate of students of Ethiopian
origin at the other universities ranges from 0.16% (the Technion – Israel
Institute of Technology) to 0.6% (Bar-Ilan University).
During the 2010/11 academic year, 997 students of Ethiopian origin studied
in the 45 pre-academic preparatory programs, comprising 9% of all the
students studying that year in these programs. According to the recently set
targets in this context, recommended by the public committee for examining the
operation of the pre-academic preparatory programs, headed by Mr. Yarom
Ariav, the number of students of Ethiopian origin studying in the pre-
academic preparatory programs must rise to 1,500 students within six years
– a figure 1.5 times greater than today. Additionally, the pre-academic
preparatory programs have been instructed to be more lenient when accepting
students of Ethiopian origin even if they do not meet the prerequisites defined for
a particular track.
The psychometric examination grade greatly impacts the chances of
acceptance to institutions of higher education. In 2007, the average general
grade for examinees of Ethiopian origin was 424, as compared with the average
grade for all those tested which was 532, and the average for all those tested in
Hebrew which was 565. We can see from here that there is a gap of 108 points
between the average score for examinees of Ethiopian origin and that of all those
tested.
The average general score during 2003-2007 for Ethiopian-born examinees
was 395 – significantly lower than that of those of Ethiopian origin born in
Israel, which was 479. Also, among Israeli-born examinees of Ethiopian origin,
the average grade for those with two parents who had been born in Ethiopia – 471
– was significantly lower than that for those who had one parent born there – 562.
Students of Ethiopian origin are entitled to help in funding tuition fees from the
Israel Student Authority in the Ministry of Immigrant Absorption, as well as, as
the document findings indicate, to academic and financial help from the
institutions themselves and, in some cases, consideration regarding lower than the
required psychometric grades, so as to advance the integration of students from
this population sector within higher education institutions.
Until a few years ago, the Jewish Agency was a major partner in funding the
aid programs to students of Ethiopian origin, for up to 50% of the cost.
However, over the past three years the Jewish Agency’s aid has been reduced to
20% of the programs’ costs, and currently there is uncertainty regarding
whether it will continue to participate in helping new immigrant students,
particularly those of Ethiopian origin, during 2012.
The issue of advancing the integration rate of persons of Ethiopian origin in
academic studies is on the agenda of the universities, and they are taking
various steps to make it easier for those of Ethiopian origin to be accepted.
Nevertheless, as can be seen from the document, in this context we need to
consider not only someone’s actual acceptance for study in an institution of
higher education, but also his or her long-term ability to meet the academic
requirements.
The designated aid program for those of Ethiopian origin in the academic colleges
includes help with tuition fees, reinforcement lessons and individual support, help
with integration in places of employment, and even unique study tracks (such as
at the Ono Academic College and Ruppin Academic Center) intended for young
people of Ethiopian origin with high academic and social potential. Regarding the
conditions of acceptance to academic colleges, some place emphasis on a
personal interview with the candidate and a matriculation certificate, rather than
the grade in the psychometric examination.
The comparative review findings indicate that, in different countries, there are
different groups that are under-represented in the higher education system. In
light of the strong link between acquiring an education and integration into
the employment market, they are taking various steps to increase the
integration of these groups in higher education institutions. Some of the steps
taken are on a national level, including legislation addressing various aspects of
accessibility to higher education, whereas others are voluntary projects of the
higher education institutions themselves, like the programs at Israel’s academic
colleges, as will be detailed.
For example, in Australia there are federal scholarships intended for indigenous
students, special funding for higher education institutions which operate programs
for their advancement, and funding for private lessons for these students. In
Victoria, one of the Australian states, there are unique acceptance tracks to
integrate indigenous students in higher education institutions, such as admission
based on assessing each individual candidate, rather than his or her ranking in
relation to others.
In addition to increasing the accessibility of higher education for different groups
in general, there are programs in various countries which focus on promoting
accessibility of these groups to particular areas of study (where they are
under-represented relative to other fields). Thus, for example, in Norway, the
state has attempted to encourage linguistic minorities to study teaching, by
changing the language requirements for studying. There are a number of
programs in medical schools in Canada to increase the number of Aborigines
applying for these studies. These programs address various facets related to
studying, including admission requirements, tuition fees, and services to aid the
Aboriginal students.
Since meeting the prerequisites for educational institutions is a basic condition for
acceptance, some of the programs in the various countries to increase
accessibility to higher education focus on this. In this context, we can include
programs aimed at reducing the high school dropout rate of various population
sectors, improving their grades in the matriculation examinations, and exposing
them to the higher education possibilities available to them.
1. Background
When examining the level of integration of persons of Ethiopian origin in the higher
education system, we also need to look at their achievements in the education system,
which affect their ability to meet the prerequisites determined by the universities. From
earlier Knesset Research and Information Center documents, which reviewed the
achievements of persons of Ethiopian origin in the education system, it would seem1 that
despite the trend to close the gaps between the achievements of students of
Ethiopian origin and the other students in the education system, significant gaps
still exist in this field, expressed, among other areas, in the percentage eligible for a
matriculation certificate. In 2010 the matriculation eligibility rate among students of
Ethiopian origin was still significantly lower in comparison to this rate among all Jewish
students (approximately 42% as against approximately 65%, respectively).
It is important to mention in this context that a matriculation certificate does not in
itself assure a student the possibility of university study, and that he needs to meet
the requirements of the universities2. A special analysis by the Central Bureau of
Statistics, in response to the request of the Knesset Research and Information Center in
2010 indicated that only around a fifth (21%) of the pupils of Ethiopian origin were
eligible for a matriculation certificate awarding eligibility for university studies, as
opposed to around half (47%) among all Jewish pupils3.
Another factor, which can lessen the chances of acceptance for those of Ethiopian origin
to higher education institutions, is the psychometric examination which, as argued by
various elements, is not adapted to examinees who grew up in a non-Western culture.
When discussing this claim during a session of the Knesset Committee for Immigration,
1 The Knesset Research and Information Center, “Integration of Persons of Ethiopian origin into the
Education System – an update document”, 26 June 2011; “Absorption of Immigrant Pupils into the
Education System”, 27 February 2011, written by: Flora Koch Davidovich. 2 As reported from the Israel Council for Higher Education, the authority for determining prerequisites for
university acceptance is in the hands of the institutions as part of their academic freedom, and each
institution decides the conditions for acceptance for the various subjects as it sees fit. Ms. Hagit Brants-
Sabo, the Israel Council for Higher Education, letter, 10 July 2011. 3 The Knesset Research and Information Center, “Integration of Persons of Ethiopian origin into the
Education System”, written by: Etti Weisblai, 12 August 2011.
Absorption and Diaspora Affairs on the topic of “Blocks against university entrance by
people of Ethiopian origin” in October 2010, representatives of the National Center for
Testing and Evaluation noted that the psychometric examination was aimed solely at
testing academic abilities, and that it does not include components requiring those tested
to be familiar with a particular culture4.
In regard to the aspirations of those of Ethiopian origin to study in the higher education
system, findings from research conducted in 2009 by the Ministry of Immigrant
Absorption and the Brookdale Institute indicate that, in comparison with immigrant
youth from other countries, the percentage of persons of Ethiopian origin aspiring to
study at an institution of higher education was low (59% among those born in
Ethiopia and 43% of those of Ethiopian origin who are Israeli-born, as against 83%
among immigrant youth from the former Soviet Union, 76% of those who are Spanish
speaking, and 91% of English-speakers).According to the researchers, these findings are
in line with the analysis of scores in the matriculation examinations, and indicate the
need to improve the situation of this population sector in this field.5
We note in this context that the importance of advancing persons of Ethiopian origin in
the field of education and higher education is expressed in government resolution No.
3116 from the 10 February 2008 concerning, “A Five Year Program to Improve the
Absorption of the Ethiopian Community,” which notes that, “the Government of
Israel sees as a target for 2008-2012, the improvement in the absorption of the
Ethiopian community, while preparing to provide multi-disciplinary care in the
areas of education, social welfare, employment, housing, and absorption.” The
program includes reference to the following topics: adding career-oriented study
frameworks as well as “summer semester” programs with the aim of significantly raising
the rates of matriculation certificate eligibility; increasing the number of community
members who receive help preparing for the psychometric examinations while in high
school; encouragement, explanation, and direction to higher education; guidance and
support for students and encouraging advanced degree studies. As part of the program
4 The Committee for Immigration, Absorption and Diaspora Affairs, Protocol No. 93 from the Committee
for Immigration, Absorption and Diaspora Affairs meeting, “Blocks against university
entrance by people of Ethiopian origin”, 12 October 2010. 5 The Ministry of Immigrant Absorption, Myers-JDC-Brookdale Institute, the Engelberg Center for
Children and Youth, “Immigrant Youth in Israel – the Current Situation”, July 2010.
drafted by the government resolution, the Israel Student Authority has been organizing
intensive activity over the past three years to encourage persons of Ethiopian origin to
study in higher education, including two publicity tours (one held two years ago, and the
second in May 2011); providing advice and guidance for students of Ethiopian origin in
the pre-academic programs; funding aid programs, and supporting the students according
to a program tailored to their requirements provided through the educational institutions
and in partnership with them; attempting to increase the number of students in advanced
degree courses, and additional steps.6
2. Data on the achievements of the population sector of Ethiopian
origin in the psychometric examination
In general, the admission requirements for Israeli universities are based on weighting
matriculation examination and psychometric examination scores. The admission
requirements for colleges are usually lower, but some of them also require the
psychometric examination as an acceptance condition. We can therefore see that the
psychometric examination grade greatly impacts the chances of acceptance to institutions
of higher education.
According to the data of the National Center for Testing and Evaluation, which is
responsible for the psychometric examination, during 2003-2007, a total of 2,565
examinees of Ethiopian origin sat the psychometric examination, out of a total of
260,329 examinees who sat the examination during those years.7 The percentage of
examinees of Ethiopian origin out of the total number of examinees during 2003-
2007 is around one percent, as opposed to the percentage of the population sector of
Ethiopian origin within the Israeli population, which is approximately 1.5%.8
Meaning, the rate of persons of Ethiopian origin sitting the examination is lower than
their proportion in the population.
6 Opher Offen, Director of the Israel Student Authority, the Ministry of Immigrant Absorption, telephone
conversation, 17 July 2011. 7 The data refer to the number of examinees. When an examinee took the examination more than once, the
score given is the highest one he achieved. 8 The percentage of the population sector of Ethiopian origin among those aged 20-24 is similar to their
percentage within the population of Israel.
We will now present several findings concerning examinees of Ethiopian origin, which
emerge from the data of the National Center for Testing and Evaluation.9
Examinees’ background data:
Most of the examinees of Ethiopian origin – approximately 84% – were born in
Ethiopia, and the rest in Israel.
From 2003 to 2007, the number of examinees of Ethiopian origin rose
steadily, from 397 in 2003 to 618 in 2007, meaning a cumulative increase of
56%. We would note that there was also a trend of growth among all examinees
during those years, apart from 2007 when there was a certain decrease in the
number of examinees.10
Women constitute around 68% of the examinees of Ethiopian origin.
In 2007, the average age for examinees of Ethiopian origin was 22.1, as compared
with the average age of all those tested in Hebrew which was 21.5.11
Meaning, on
average, persons of Ethiopian origin sit the psychometric examination about half
a year later than those tested in Hebrew.
Data for scores of those tested:
In 2007, the average general grade for persons of Ethiopian origin was 424,
as compared with the average grade for all those tested which was 532, and
the average for all those tested in Hebrew which was 565. We can see from
here, that there is a gap of 108 points between the average score for examinees of
Ethiopian origin and that of all those tested. Such a gap in grades can have a
significant effect on the chances to be accepted to a higher education institution in
general and to certain tracks in particular. From 2003 to 2007, the average score
for examinees of Ethiopian origin rose by 27 points, from 397 to 424, as
noted.
9 The statistics are based on a special processing carried out by Yonatan Saar and Carmel Oren from the
National Center for Testing and Evaluation, at the request of the Knesset Research and Information
Center. 10 Test Takers of the Psychometric Exam 1991-2006: Three Different Perspectives, May 2009, on the
Central Bureau of Statistics website http://www.cbs.gov.il/www/publications/tec23.pdf; the National
Center for Testing and Evaluation, Data for psychometric entrance examinations to universities for
2007, Table 1, in: https://www.nite.org.il/files/statistics/graphs2007/07_a07.pdf, accessed: 13 July 2011. 11
The National Center for Testing and Evaluation, Data for psychometric entrance examinations to
universities for 2007, Table 8.2A .https://www.nite.org.il/files/statistics/graphs2007/07_c02.pdf
accessed: 13 July 2011.
The average general score for Ethiopian-born examinees during 2003-2007 is
395 – significantly lower than that of natives of Israel of Ethiopian origin –
479. Also, among Israeli-born examinees of Ethiopian origin, the average grade
for those with two parents who had been born in Ethiopia – 471 – was
significantly lower than the average grade for those who had one parent born in
Israel – 562. We would note in this context, that also among examinees
originating from the CIS, the scores of those born in Israel are higher than
those who emigrated from those countries.
It emerges from the table below that the scores of those of Ethiopian origin
in all sections of the test are lower than those of the examinees in general,
and those tested in Hebrew. The gaps between the scores of those of Ethiopian
origin and the examinees in general are similar in each section, and we cannot
point to any particular field where the situation is different.
Table 1: Scores for examinees of Ethiopian origin in the psychometric
examination, for all examinees, and for examinees in Hebrew, by examination
sections, 2007.
Section Ethiopian origin All examinees Hebrew-speaking
examinees
Verbal reasoning 85 104 110
Quantitative
reasoning
89 108 113
English 84 104 112
General score 424 532 565
Among those of Ethiopian origin taking the psychometric examination, the scores
of the male examinees were higher than those of the females, both for the general
score and for each test section. The gap between the average scores for male and
female examinees was 22 points. The average general score for examinees of
Ethiopian origin drops as age increases; the average general score for examinees
aged 14-18 was 441, while for examinees aged 30 and above it was 351. It should
be noted, that among the general population of examinees, the scores for the
males are higher than those of the females, with the gap among the general
population higher, reaching 43 points in 2007. However, the distribution for
average score by examinee age is different, and it is specifically those aged 22-25
who achieve the highest average scores.
The National Center for Testing and Evaluation provides examinations in a number of
foreign languages – Arabic, Russian, French, Spanish and also a combined/English test.
The last is intended for those sitting the examination who are native English speakers, as
well as for those whose native language is not English, but their mastery of English or
Hebrew is better than their mastery of the other languages. In this version, the test is in
English and Hebrew with difficult words translated into several foreign languages,
including Amharic.12
The National Center for Testing and Evaluation’s data shows that
the substantial majority of examinees of Ethiopian origin (96% of them) take the Hebrew
test, and only a minority takes the combined one. In this context we would also note that
the average general score for those who were tested using the Hebrew version was higher
than those using the combined one – 410 as opposed to 377.
3. The Integration of the Ethiopian Community in Higher Education –
Policy on Assistance
The Israel Student Authority in the Ministry of Immigrant Absorption 13
(henceforth: The
Student Authority) gives assistance to new immigrant students and students of Ethiopian
origin in particular, (those who immigrated to Israel after the 1 January 1980 and Israeli-
born students of Ethiopian origin if both parents moved to Israel after that date), that
includes the funding of tuition fees for higher education and post-high school
institutions. As part of the Ministry of Immigrant Absorption’s policy to encourage the
integration of those of Ethiopian origin in studies in higher education institutions, the
Ministry set a target to increase the rate of students studying in such institutions
among all those of Ethiopian origin (which is 7% as detailed above), so that it will at
least be equal to the rate of students in the general population, currently 15%.14
12
https://www.nite.org.il/files/abroad/psychometric_abroad_reg_procedure_hebrew.pdf, accessed: 13 July
2011. 13
The Israel Student Authority is a department of the Ministry of Immigrant Absorption which works in
partnership with the Jewish Agency and is responsible for helping and caring for new immigrant
students and those of Ethiopian origin. 14
Opher Offen, Director of the Israel Student Authority, the Ministry of Immigrant Absorption, letter, 12
June 2011.
Student Authority aid for tuition fees is given to students in pre-academic programs,
students in bachelor’s degree, certification and practical engineering studies, and is
awarded according to the length of the regular study period in all institutions recognized
by the Israel Council for Higher Education (excluding branches overseas) and for those
studying post-high school studies in technological colleges of engineering; schools for
health professions; art academies, and seminaries and colleges awarding teaching
certificates.15
Tuition funding by the Student Authority is given at a fixed rate, with a
sum no greater than university tuition fees. In cases when tuition is higher, the students
have to pay the remaining cost, sometimes aided by tuition scholarships offered by some
of the institutions.
The conditions entitling students to the aid provided by the Student Authority include:
beginning studies for a bachelor’s degree by the age of 28, and beginning master’s
degree studies or retraining studies after a degree by the age of 40; having a complete
matriculation certificate or a certificate for having finished a university preparatory
program or a technological pre-academic program for engineers; being accepted as a
regular student; beginning studying within a year from finishing pre-academic program
studies or within a year of completing military or national service.16
In addition to the help with funding tuition, the Student Authority awards a living
allowance of NIS 600 a month for 9 months each academic year. It also advances the
students scholastically through private lessons, mentoring, and scholastic reinforcement;
counseling and guidance in choosing which subject to study; personal, social, and
emotional help; social and cultural activities and more. Additionally, there are other
bodies including: The Israel Council for Higher Education; youth centers throughout
Israel; the IDF through the academic preparatory demobilization programs for soldiers of
Ethiopian origin; the national service organizations; the absorption centers in the local
authorities; the higher education institutions and other bodies, who distribute information
15
We would note that the Israel Student Authority does not participate in funding additional payments such
as insurance, security and welfare, library fees, registration fees, student union dues, and others which
vary from one institution to another and can reach around NIS 1,000 annually. 16 The Ministry of Immigrant Absorption, the Jewish Agency, “A breakthrough ramification – completing
the university preparatory programs – advancing to academia,” PowerPoint presentation, 2011.
regarding the possibility to receive help and directing young people of Ethiopian origin
to studies.17
Students who receive a scholarship from the Student Authority must participate in
Shahak (community work) in which they help various population sectors. The amount of
service depends on the size of the tuition help and is 120-240 hours annually.
The average cost of the help provided to a student of Ethiopian origin by the Student
Authority until he completes his degree is NIS 65,000 to NIS 70,000, and it has an
annual budget of around NIS 30 million. There are around 2,000 of students of
Ethiopian origin annually who receive the aid through the various programs
detailed above.
The Student Authority noted that until a few years ago, the Jewish Agency was a central
partner in funding the aid programs to students of Ethiopian origin, for up to 50% of the
cost. However, over the past three years the Jewish Agency’s aid has been reduced
to 20% of the programs’ costs, and currently there is uncertainty regarding
whether it will continue to participate in helping new immigrant students and
particularly those of Ethiopian origin, during 2012.
4. The integration of persons of Ethiopian origin in higher education
institutions – data, admission requirements, and aid programs
According to the data of Central Bureau of Statistics (henceforth: CBS), during the
2008/9 academic year, 1,921 students of Ethiopian origin were studying for a
bachelor’s or master’s degree in institutions of higher education (universities,
academic colleges, and colleges of education), and comprised 0.9% of the students in
these institutions (a lower rate than their percentage of the population which is around
1.5% as previously stated). In addition, according to Student Authority data, during the
2009/10 academic year, about 300 additional students studied in technological colleges
supervised by MAHAT (National Institute for Technological Training) and non-
academic tracks in nursing schools. All data below refer only to academic institutions.18
17
Opher Offen, Director of the Israel Student Authority, the Ministry of Immigrant Absorption, letter, 12
June 2011. 18 Ibid.
Despite the rise in the number of students of Ethiopian origin between 2001-2007
(excluding university preparatory programs) aged 20-29 studying in higher education
institutions among all persons of Ethiopian origin of these ages, from 7.2% to 7.9%
respectively, their rate was significantly lower than that of those studying in the higher
education system among the general population (15.8% and 18.9% respectively).19
Among students of Ethiopian origin, relatively common fields of study were the social
sciences, education and teacher training, and management studies (similar to those
common among students in general). There were almost no students of Ethiopian origin
in the fields of sciences, medicine, agriculture, languages, literature and area studies.
19
The Ministry of Immigrant Absorption, Myers-JDC-Brookdale Institute, “Follow-Up on Key Indicators
of the Nationwide Situation of the Ethiopian-Israeli Population,” December 2010.
Table 2: Distribution of students of Ethiopian origin and all students for
bachelor’s degree by study tracks, 2008/920
Field of study Ethiopian origin All students Rate among those of Ethiopian origin
General humanities 180 12,070 1.5%
Languages, literature, and area studies 8 3,978 0.2%
Education and teacher training 308 26,609 1.2%
Art 18 7,020 0.3%
Social sciences 701 74,354 0.9%
Business and management sciences 238 18,716 1.3%
Law 134 15,538 0.9%
Medicine 4 1,371 0.3%
Paramedical professions 81 7,777 1.0%
Exact sciences 27 11,521 0.2%
Physics 10 4,774 0.2%
Biology 23 5,363 0.4%
Agriculture 3 795 0.4%
Engineering and architecture 186 30,540 0.6%
Total 1,921 220,426 0.9%
In the 2008/9 academic year, there were 180 master’s degree students of Ethiopian
origin out of a total of 45,817 students for such a degree. The rate of students of
Ethiopian origin studying for a master’s degree was only 0.3%, significantly lower
than both their percentage among students studying for a bachelor’s degree, and their
percentage in the population. The main fields of study for students of Ethiopian origin for
a master’s degree were education (53 students), social sciences (48 students), and
humanities (32 students).
According to CBS figures, there are around 2,060 graduates of Ethiopian origin with
academic degrees21
, of which 1,810 (around 88%) have a bachelor’s degree and the rest
20
The data refers to students for bachelor’s and master’s degrees. Aviel Kranzler, Head of Higher
Education Division, the Central Bureau of Statistics, email exchange, 12 July 2011. 21 As reported by the CBS, these figures are based on information gathered from the universities, the Open
University, the academic colleges, the academic colleges of education, and a Ministry of Education file
for recognition of degrees. The information does not include complete data about those who received
degrees from branches of overseas institutions (particularly foreign branches) and therefore the number
of people holding an academic degree may be higher.
(around 12%) have a master’s.22
We would note that among the general population, the
distribution between bachelor’s and master’s degrees is different, and is around two-
thirds and one-third respectively.23
Table 3: Recipients of academic degrees, by degree, 2004/5-2008/9
Year Recipients of bachelor’s degree Recipients of master’s degree
Total Ethiopian
origin
Rate among
those of
Ethiopian
origin
Total Ethiopian
origin24
Rate among
those of
Ethiopian
origin
2004/5 36,314 155 0.4% 11,608 19 0.2%
2005/6 38,066 181 0.5% 12,398 23 0.2%
2006/7 39,261 219 0.6% 13,351 35 0.3%
2007/8 39,351 275 0.7% 13,851 19 0.2%
2008/9 40,583 298 0.7% 13,860 29 0.3%
We can see from the table that the number of persons of Ethiopian origin with a
bachelor’s degree almost doubled between the 2004/5 and 2008/9 academic years,
from 155 to 298. However, the rate of bachelor’s degree recipients among those of
Ethiopian origin is still tiny, and stood at only 0.7% in 2008/9, about half the rate of
the Ethiopian population sector within the general Israeli population. The rate of
persons of Ethiopian origin among recipients of a master’s degree is even lower, and
in 2008/9 only 0.3% of those earning a master’s degree were of Ethiopian origin.
22
We would add that there were also those who had earned a doctorate, but due to their small number we
cannot give details. The calculation of those within the population who graduated bachelor’s and
master’s degrees is derived from the CBS figures, Table 3 .1 “Recipients of degrees from institutions of
higher education, by degree and type of institution,” see link:
http://www.cbs.gov.il/publications10/m1388_haskhala_gvoha08/pdf/t3_01.pdf. 23
The Central Bureau of Statistics, Population aged 15 and over and civilian labor force, by highest
diploma received, age and sex, Table 1.19, see link:
http://www.cbs.gov.il/publications10/1417/pdf/t01_19.pdf 24
These numbers include Israelis whose parents were on government service in Ethiopia and were born
there during the period of service. Due to the definition of being of Ethiopian origin they are included in
this group. Since the entire group of recipients of a master’s degree of Ethiopian origin is small,
including Israelis who were born in Ethiopia in the count may affect the rate of persons of Ethiopian
origin among recipients of a master’s degree. We will therefore see that in actuality, the rate of those of
Ethiopian origin who are not children of Israelis among master’s degree recipients is even lower.
Table 4: Distribution of recipients of bachelor’s degrees of Ethiopian origin by
type of academic institution, 2004/5 – 2008/9
Year Universities25 Academic
colleges
Colleges of
education
2004/5 69.9% 19.4% 9.7%
2005/6 56.9% 31.5% 11.6%
2006/7 53% 32.9% 14.2%
2007/8 49.5% 37.5% 13.1%
2008/9 42% 51.3% 6.7%
We can see from the table, that during the 2008/9 academic year, 42% of the
bachelor’s degree recipients of Ethiopian origin received their degree from
universities (as compared with 57% among all students), about 51% received it
from academic colleges (as compared with approximately 30%) and about 7%
received it from colleges of education (as compared with 8.5%).26
It also emerges from the table, that from 2004/5 to 2008/9, there was an increase in the
rate of students of Ethiopian origin who received degrees from academic colleges, as
opposed to those receiving a degree from universities. So, for example, in the 2004/5
academic year, around 19% of the students of Ethiopian origin received a bachelor’s
degree from academic colleges, whereas in 2008/9 the rate increased to 51%. We would
note that this trend also exists among bachelor degree students in general in Israel.
In this context, we would note the findings of the Ministry of Immigrant Absorption and
the Brookdale Institute in the study “Follow-Up on Key Indicators of the Nationwide
Situation of the Ethiopian-Israeli Population,” mentioned above, from where it emerges
that while from 2002-2007 we see a decline in the number of students of Ethiopian origin
studying at universities, many persons of Ethiopian origin went to study at regional
colleges and university branches. The researchers of the above study claim that this
25 Including the Open University 26
Calculation of the rate of degree holders with distribution by institution of study is derived from the CBS
data published in “Israel in Numbers -2010”, see link:
http://www.cbs.gov.il/www/publications/isr_in_n10h.pdf
trend indicates the difficulties faced by those of Ethiopian origin, since the admission
requirements to colleges are usually lower than those of universities.27
The CBS figures also show that the vast majority of those who receive a degree were
born in Ethiopia (93%), about 2.5% were born in Israel with both parents born in
Ethiopia, and about 4.5% are Israeli born with one parent born in Ethiopia.28
To present a detailed picture of the rate of students of Ethiopian origin in institutions of
higher education, with distribution by institution and degree, we asked the universities
and 23 academic colleges for information. Up until the date of submitting this document,
we received replies to our request for information from all the universities, except for Tel
Aviv University which provided its reply after the discussion and is presented below, and
also replies from 8 academic colleges. We would note that the manner of the presentation
of the data and the partial information which we received from some of the elements,
made it difficult to present a complete picture regarding each of the educational
institutions, and we have therefore used additional sources of information in some cases,
such as the Israel Student Authority in the Ministry of Immigrant Absorption and the
CBS, to supplement the data. The main findings on this topic are presented below.
4.1. Integration of persons of Ethiopian origin in the universities
The information we received from the seven universities is concentrated in the table
below, with the number of students of Ethiopian origin, and their percentage out of all
the students in the institution, to the extent that we were given this data.
27
The Ministry of Immigrant Absorption, Myers-JDC-Brookdale Institute, “Follow-Up on Key Indicators
of the Nationwide Situation of the Ethiopian-Israeli Population,” December 2010. 28
Information supplied by Mr. Aviel Kranzler, Head of Higher Education Division, the Central Bureau of
Statistics, letter, 17 July 2011.
Table 5: Number of students of Ethiopian origin and their
percentage out of all students in the universities, with
segmentation by degree, 2010/11 academic year29
Degree/
University
Hebrew Tel
Aviv
Haifa Bar-
Ilan
Ben-
Gurion
Technion Weizmann
Institute
Number
(Rate)
Number
(Rate)
Number
(Rate)
Number
(Rate)
Number
(Rate)
Number
(Rate)
Bachelor’s
degree
36 73
(0.5%)
119
(1.4%)
90
(0.8%)
69 No bachelor
degree tracks
Master’s and
completing
master’s
18 40
(0.4%)
21
(0.3%)
43
(0.6%)
12 5
(0.16%)
1*
(1.6%)
Doctorate30
2 3
(0.2%)
3
(0.16%)
7 Currently no
students of
Ethiopian
origin*
2
(0.3%)
Post-
doctorate
2
Teaching
certificate
1
Special status 2
University
preparatory
program
16 20 15
(2.5%)
6
Programs for
completing
requirements
2
(1%)
Total 75 133** 160 136 96 5 3
*Refers to a master’s degree on a track for teachers (without a thesis), with only 60 students.
**In addition, during the 2010/11 academic year, there were four high school students of Ethiopian origin
at Tel Aviv University in the Science Oriented Youth program.
We can see from the table that the highest numbers of students of Ethiopian origin for
a bachelor’s degree are at Haifa and Bar-Ilan universities. It also emerges that the
29
The following data were submitted to the Knesset Research and Information Center by the following
sources: Yafit Sherer, aide to the Vice President and Director General, The Hebrew University of
Jerusalem, letter, 28 June 2011; Arye Arzi, Deputy Director General of Student Affairs, Bar-Ilan
University, letter, 12 July 2011; Prof. Paul Feigin, Senior Executive Vice President, the Technion –
Israel Institute of Technology, 6 July 2011; Dr. Ami Shalit, Director and Academic Secretary, Feinberg
Graduate School of Weizmann Institute of Science, letter, 14 July 2011; data from the University of
Haifa were submitted through the Committee of University Heads on 20 June 2011;Tal Shafir, Acting
Director of Unit for Student Welfare, Tel Aviv University, 26 July 2011. 30
In this context, see note 17 above.
rate of those of Ethiopian origin studying for advanced degrees is still extremely low
in comparison to their proportion in the general population (apart from the track for
teachers at the Weizmann Institute).
The graph below indicates the rate of students of Ethiopian origin studying for bachelor
and master’s degrees out of all the students at each of the universities (according to
Student Authority data).
Rate of students of Ethiopian origin out of all bachelor and
master’s degree university students, 2009/1031
The above graph demonstrates that the highest rate of students of Ethiopian origin
out of all students is at the University of Haifa, and is approximately 1.4% – close to
their percentage in the population, whereas the lowest rate of students of Ethiopian
origin out of all students is at the Hebrew University of Jerusalem.
Regarding students studying in the Open University, where students register for courses
rather than study tracks, in 2010/11 there were 173 students of Ethiopian origin in the
various departments, with around half in the Department of Sociology, Political Science
and Communication, and the Department of Education and Psychology.
31
This graph is produced from Israel Student Authority data regarding distribution of students of Ethiopian
origin by institutions and years of study, given to us by Mr. Opher Offen, Director of the Israel Student
Authority, the Ministry of Immigrant Absorption, letter, 12 June 2011.
0.00% 0.20% 0.40% 0.60% 0.80% 1.00% 1.20% 1.40% 1.60%
Bar-Ilan
University,
Ramat Gan
Ben-Gurion University,
Beersheba
The Hebrew University of Jerusalem
The Technion,
Haifa
Tel Aviv University
Haifa University
,
4.1.1. University policies
In general, we see from the universities who replied to our request for information that
the issue of advancing the integration rate of persons of Ethiopian origin in
academic studies is on their agenda, and that they are taking various steps, detailed
below, to make acceptance easier for those of Ethiopian origin. Nevertheless, as can be
seen from one institution’s reply, regarding setting lenient admission requirements for
candidates of Ethiopian origin, we need to consider not only someone’s actual
acceptance to an institution of higher education, but also his or her long-term
ability to meet the academic requirements.
We bring here the replies of the various universities, regarding their policies for
accepting students and providing help during their studies:
The Hebrew University of Jerusalem: according to the policy up until now,
students who were rejected by the university but who came close to the admission
requirements were automatically referred to the appeals committee to try and
accept them. From the 2011/12 academic year, 20 students of Ethiopian origin
will be accepted to the university on the basis of the “Feuerstein method” which
is intended to evaluate the study potential of the examinee, and is different from
the accepted selection method, which is based, as mentioned above, on weighting
matriculation examination scores and the psychometric examination; 32
Tel Aviv University: the university enables three acceptance tracks for
candidates of Ethiopian origin, which are: acceptance according to standard
acceptance conditions for the various tracks; acceptance through an exceptions
committee which enables acceptance of candidates whose score is lower than that
required, at the recommendation of the Unit for Student Welfare (the Adams
program), as well as admission through the Shaked program in partnership
with the Caesarea Foundation, which enables university acceptance for
students of Ethiopian origin on the basis of a weighted matriculation score
32 Yafit Sherer, aide to the Vice President and Director General, The Hebrew University of Jerusalem, 28
June 2011.
average of 95 and above33
, without taking the psychometric examination
results into account.34
The university also noted that this program does not
replace the special admissions track for students of Ethiopian origin through the
special committees, as described above.
Students in the Shaked program are eligible for a living expenses scholarship;
help in payment of rent or student dormitories, and comprehensive scholastic and
personal help while emphasizing acquisition of study skills, as well as continuous
support by the program coordinator from the Unit for Student Welfare. The
students also participate in study and employment guidance workshops, and
workshops to cultivate personal skills.35
Starting from the 2011/12 academic year, every year 20 students of Ethiopian
origin will be accepted to the Shaked program, and will be able to study in the
fields of the sciences, medicine, engineering, economics, and other areas. In this
way the program is expected to increase the number of students of Ethiopian
origin studying at Tel Aviv University next academic year to 150, and to
around 60 new students annually. 36
Bar-Ilan University: according to university policy, each department discusses
the candidacy of students of Ethiopian origin in accordance with the criteria it has
set for affirmative action, with the main emphasis when examining the
candidacy of applicants of Ethiopian origin being placed on their
matriculation results, and less on their scores in the psychometric
examination; 37
33
We would mention, that they will also examine the candidacy for the Shaked program of students with a
weighted matriculation score of only 90, but with outstanding abilities in social or other areas, and a
strong potential to succeed in academic study. Tal Shafir, Acting Director of Unit for Student Welfare,
Tel Aviv University, 26 July 2011. 34 Those young people of Ethiopian origin (according to the university conditions, these are students who
were born in Ethiopia or one of their parents was) who submit their candidacy for studies in the program
must meet the following admission requirements which set that the candidate must be aged 18-25; with
a weighted matriculation average of 95 or above, and with appropriate recommendations for academic
studies. Ibid. 35
Ibid. 36
Ibid. 37
Esther Gerbi, Students’ Administration coordinator, Bar-Ilan University, letter, 5 July; 10 July 2011.
Ben-Gurion University of the Negev: the aid program intended for students of
Ethiopian origin is given in the academic and financial fields and in personal and
cultural empowerment. The new students participate in a “week of preparation for
academia” as part of the program, where they take part in counseling sessions
with the program coordinator and build a personal work program. Students of
Ethiopian origin are also eligible for a private academic mentor; reinforcement
lessons before tests; coupons to buy food for 20 meals monthly; reimbursement
of travel expenses and the cost of textbooks etc.38
The Open University: registration to the Open University is not conditional on a
matriculation certificate, psychometric examination or any certificate. The
university replied that it has operated a project in its Jerusalem study center since
2006, funded by the university, which provides individual guidance to 12 students
of Ethiopian origin, including extra help in English and the courses studied; a
Hebrew course; improving study skills and continuing to guide the student until
completion of the degree. 39
In addition to the university policies described above, the Association for Advancement
of Education operates the “Deserving of Advancement” project which is aimed at,
among others, those of Ethiopian origin who do not meet the entrance conditions for
university studies, and allows points to be allotted for affirmative action (similar to the
enterprises existing in other countries as detailed below in the comparative review). In
this framework, a candidate of Ethiopian origin, where he or one of his parents was
born in Ethiopia, receives special points for that, which are included in his final
point weighting. The general score is determined on the basis of the candidate’s
personal background and events which took place during the entire time he was studying
in high school, taking into account that the candidate’s achievements could have been
harmed as a result of his or her complex personal or family situations. The Association
for Advancement of Education noted that the institutions which allow acceptance for
studies on this basis are the Hebrew University, Tel Aviv University, Ben-Gurion
University of the Negev, the University of Haifa, the Technion, and Bar-Ilan University,
38
The reply from the university was forwarded by Ms. Devorah Segel, secretary of the Committee of
University Heads, 18 July 2011. 39
Dr. Relly Brickner, Director of Evaluation Department, The Open University, 28 June 2011.
and that each institute is autonomous when accepting candidates and deciding on the
number of points given for affirmative action.40
We would add that the Association for
Advancement of Education does not possess information on the number of
candidates of Ethiopian origin who submitted a request to determine their points,
nor how many were accepted for studies based on this affirmative action, indicating
the lack of organized tracking of the topic.
4.2. Integration of Persons of Ethiopian Origin in Academic Colleges
According to data of the Israel Student Authority, in the 2009/10 academic year 1,159
students of Ethiopian origin attended non-university higher education institutions,
comprising 52% of the total student population of Ethiopian origin in that year. As
to the activity of these institutions for increasing the integration of persons of Ethiopian
origin into the higher education system, the data provided to us thus far indicate that
some colleges place greater emphasis on matriculation grades and take a more
lenient approach to psychometric scores, sometimes even waiving this requirement.
Moreover, it was found that the majority of the academic colleges that responded to
our inquiry have special assistance programs for students of Ethiopian origin (in
addition to the support provided by the Israel Student Authority), most notably the Ono
Academic College, the Ruppin Academic Center, the Holon Institute of Technology and
the Ariel University Center of Samaria, whose programs are described below.
The Ono Academic College: The Ethiopian Israeli Students Program for the
advancement of higher education and development of social leadership among
students of Ethiopian origin, inaugurated at the Ono Academic College some ten
years ago, facilitates studies towards a bachelor's degree in law, communication
disorders and occupational therapy and towards the bachelor's and master's
degrees in business administration. At present, approximately 140 students of
Ethiopian origin are studying in this framework. In the past five years, the
percentage of graduates of Ethiopian origin out of all the institution's
graduates has stood at approximately 2%.
40
Liat Hazan, Coordinator for the Deserving of Advancement project, Association for Advancement of
Education, 5 July 2011.
Those accepted to the program are Ethiopian Israelis between the ages of 21 and
28 with an average matriculation grade of 95 and up, who have done meaningful
service in the IDF or National Service and show a high potential and social
commitment to the community, and have also passed screening tests and a
personal interview. The participants in the program pay tuition in the amount of
NIS 2,000 per year, with the balance (NIS 17,000) funded by the college at a total
cost of NIS 2 million per year. In addition, the participants are entitled to a
university tuition scholarship from the Immigrant Absorption Ministry (NIS
9,600 per year) and to a subsistence stipend from the college.
The staff in the program provide personal guidance and support to the program's
participants from when they have been accepted to the program until they
complete their studies, even after they have officially graduated. The program
includes individual and group tutoring lessons, enrichment courses and the
teaching of skills and tools for optimizing the participants' academic knowledge.
The participants are also given the opportunity to gain practical experience in
their field of studies outside Israel during the summer break. In addition, the
program finds internship positions that serve participants as a professional
"springboard" and assists graduates in integrating in professional positions in the
private and public sectors. As part of the curriculum at the Ono Academic
College, students are obligated to contribute two weekly hours to the community
during the first year of studies.
Out of 120 Ethiopian Israelis who have completed the program, 65 graduated
from the law faculty. Of these, 40 found positions in the private and public
sectors, while the rest went on to pursue advanced degrees at universities in Israel
and abroad. Another 55 of the program's participants graduated from the business
administration faculty. In addition, 35 IDF officers of Ethiopian origin are
studying in the program.41
Ruppin Academic Center: In 2006, a special program opened at the Ruppin
Academic Center for youth of Ethiopian origin with high learning and social
potential. Today, 46 students of Ethiopian origin are studying in the
41
Adv. Kaso, Director of the Ethiopian Israeli Students Program, Ono Academic College, letter, July 6,
2011.
program. The program includes a special preparatory program combining
professional training in intercultural mediation (with certification by the Ministry
of Industry, Trade and Labor), as well as an undergraduate business
administration program with a specialization in immigration and social
integration. In addition, in the last academic year the center began operating a
special training program that prepares students for the world of employment,
including the actual placement of graduates.
The conditions for acceptance to the preparatory program are full matriculation,
service in the IDF or National Service, screening tests and a personal interview.
Students who meet the requirements of the preparatory program can be accepted
to most of the center's study tracks without having to take a psychometric
examination. Moreover, meeting the requirements of the intercultural mediation
course gives the students academic credit points towards a degree.
Participants in the program receive from the center a subsistence stipend for a full
12 months during each year of the period of studies (three years), apart from
which the center covers the first degree tuition costs. Beyond this, the center
operates a fund for helping students of Ethiopian origin with special needs or in
difficult situations. Students of Ethiopian origin who do not participate in the
program can receive assistance from funds which are available to the general
student population at the center and can also apply for special outside
scholarships through the Dean's Office.
Recruitment for the fifth cycle of the program was recently completed. This year
the program has been expanded so that graduates of the preparatory program are
able to join the different study programs conducted by the School of Economics
and Business Administration and the School of Social and Community Sciences.
In addition, the intercultural mediation training program will be expanded to
include medical mediation, in view of the proven critical need for professional
assistance of this kind among the members of the community.42
Holon Institute of Technology: Over the last five years the Holon Institute of
Technology has operated a program for the advancement of students of Ethiopian
42 Revital Poleg, Director of External Relations, Ruppin Academic Center, letter, July 12, 2011.
origin in cooperation with the Atidim Friends Society, within the framework of
the Atidim Program for Industry and the Business Sector and with the support of
the Israel Student Authority. Participants in the program receive financial
support, including full funding of tuition, accommodation and English language
studies, as well as personal support in both the social and academic spheres. In
the course of their studies the participants integrate in the employment world in
their field of studies, receiving assistance in finding a permanent position ahead
of their graduation. The students also volunteer for activity within the community
of 100-120 yearly hours.
Recognizing the existing gaps in psychometric scores between psychometric
examinees in general and those of Ethiopian origin, it was decided by the
institute's admissions committee to waive the required psychometric score (550)
for candidates of Ethiopian origin in the Engineering Faculty, the Engineering
Management Faculty and the Instructional Systems Technologies and Computer
Sciences Department, but to maintain the threshold conditions with respect to
matriculation grades and/or grades in the preparatory programs operated by the
institute.43
Ariel University Center of Samaria: The conditions for acceptance to the
center's various departments follow the guidelines of the Council for Higher
Education. Nevertheless, affirmative preference is given to students of
Ethiopian origin within the framework of the council guidelines, which
permit a deviation of up to 10% from the department quotas. Assistance to
students of Ethiopian origin at the center includes a reduction of 20%-40% in the
tuition for students whose eligibility for assistance from the Israel Student
Authority has expired. Apart from this, the Office of the Dean, in cooperation
with the Israel Student Authority, provides assistance in various areas, including:
special English language courses; workshops for imparting learning skills;
workshops for coping with text anxiety; individual guidance; employment
43 Dr. Michal Sela, Director of Student Welfare and Academic and Community Partnerships, Holon
Institute of Technology, letter, July 10, 2011.
diagnostics and matching of the field of studies; student mentoring by absorption
counselors, etc.44
Below are data on the academic colleges that responded to our inquiry regarding the rate
of persons of Ethiopian origin studying in those institutions:
Table 6: Number of Students of Ethiopian Origin and Their Percentage out of the
General Student Population at Academic Colleges, 2010-11 Academic Year45
College Type of
degree
Number of students of Ethiopian origin and
percentage out of the general student population in
the last three years
2008-2009 2009-10 2010-11
Western
Galilee
Academic
College
Bachelor's 7 3.0% 13 3.0% 13 3.0%
Master's The college only offers studies towards a bachelor's
degree
Ruppin
Academic
Center*
Bachelor's (for
all students)
2 Not
available
2 Not
available
5 Not
available
Master's** 2 12% 0 13% 0 10.1%
Peres
Academic
Center
Bachelor's in
business
administration
1 3.5% 0 1% 1 1.7%
Bachelor's in
behavioral
sciences
0 0.0% 0 0.5% 7 0.1%
Master's in
business
administration
0 0.0% 7 2.2% 7 0%
Ariel
University
Center of
Samaria
Bachelor's 215 Not
available
212 Not
available
211 Not
available
Master's 1 Not
available
0 Not
available
Not
advised
Not
available
Sami
Shamoon
College of
Engineering
Bachelor's in
engineering
02 1.0% 55 1.5% 53 1.5%
44 Prof. Shmuel Shaham, Dean of Students, Ariel University Center of Samaria, letter, July 14, 2011. 45 Based on data provided by the following: David Begleiter, Dean of Students, Sami Shamoon College of
Engineering, letter, July 7, 2011; Revital Poleg, Director of External Relations, Ruppin Academic
Center, letter, July 12, 2011; Dr. Michal Sela, Director of Student Welfare and Academic and
Community Partnerships, Holon Institute of Technology, letter, July 10, 2011; Dr. Oranit Davidson,
Dean of Students, Peres Academic Center, letter, July 6, 2011; Dr. Yehuda Ben Simon, Dean of
Students, Western Galilee Academic College, letter, July 6, 2011; Shelly Dahan, Director of Students
Administration, Sapir Academic College, letter, July 10, 2011; Prof. Shmuel Shaham, Dean of Students,
Ariel University Center of Samaria, letter, July 14, 2011.
College Type of
degree
Number of students of Ethiopian origin and
percentage out of the general student population in
the last three years
2008-2009 2009-10 2010-11
Holon
Institute of
Technology
Bachelor's 11 3.5% 27 3.1% 02 1%
Sapir
Academic
College
Not specified 52 1.0% 02 1.2% 50 1.15%
* The data refer to students for a bachelor's degree other than in the "mediators"
program.
** The data refer to those who completed a master's degree in immigration and social
integration, a program to which only members of the community were accepted.
The data in the above table show that over the past three years there has been a
certain increase, in most of the academic colleges listed in the table, both in the
number of students of Ethiopian origin and in their percentage out of all students in
those institutions. Nevertheless, it should be noted that, as with the universities, the
number of persons of Ethiopian origin studying for advanced degrees is still very
low.
As to the number of graduates in these institutions, the table below shows their
percentage at several institutions.
Table 7: Number and Percentage of Graduates of Ethiopian Origin out of All
Degree Recipients at Academic Colleges, 2010-11 Academic Year46
College Degree 2008-2009 2009-10 2010-11
Number % Number % Number %
Hadassah
Academic
College
Jerusalem
Bachelor's 1 3.5% 0 1.0% 2 3.7%
Holon Institute
of Technology
Bachelor's 2 3.0% 0 3.5% Data not
provided
Sami Shamoon
College of
Engineering
Bachelor's 0 1% 1 3.2% Data not
provided
46 Based on data provided by the following: David Begleiter, Dean of Students, Sami Shamoon College of
Engineering, letter, July 7, 2011; Revital Poleg, Director of External Relations, Ruppin Academic
Center, letter, July 12, 2011; Dr. Michal Sela, Director of Student Welfare and Academic and
Community Partnerships, Holon Institute of Technology, letter, July 10, 2011; Dr. Oranit Davidson,
Dean of Students, Peres Academic Center, letter, July 6, 2011; Prof. Shmuel Shaham, Dean of Students,
Ariel University Center of Samaria, letter, July 14, 2011; Shelly Dahan, Director of Students
Administration, Sapir Academic College, letter, July 10, 2011; Yael Kimchi, Academic Assistant,
Hadassah Academic College Jerusalem, letter, July 5, 2011..
College Degree 2008-2009 2009-10 2010-11
Number % Number % Number %
Peres
Academic
Center
Bachelor's 3 3 2 0.2% 3 3
Master's 3 3 1 3.0% 1 1.1%
Ariel
University
Center of
Samaria
Not
specified
52 0.2% 51 2.2% 55 2.5%
Sapir
Academic
College
Bachelor's In the past three years a total of 62 students of Ethiopian
origin received bachelor's degrees, comprising 2% of all
recipients of this degree.
Ruppin
Academic
Center
Bachelor's Students of Ethiopian origin account for an average of
0.15% of all recipients of bachelor's degrees
Master's Only persons of Ethiopian origin were accepted to this
track, thus no conclusion can be drawn regarding the
percentage of recipients of master's degrees out of all the
students at the center
The data presented in the table point to a variance in the percentage of persons of
Ethiopian origin among the graduates of the different academic colleges. An especially
high percentage of graduates of Ethiopian origin can be found in the past three years at
the Ariel University Center of Samaria, amounting to 2.5% in the 2010-11 academic
year.
5. Integration of Persons of Ethiopian Origin in Pre-Academic
Preparatory Programs
Data of the Immigrant Absorption Ministry, presented at the meeting of the Knesset
Committee for Immigration, Absorption and Diaspora Affairs held on October 12, 2010
on the subject of "Barriers to University Entry for Persons of Ethiopian Origin," indicate
that the majority of students of Ethiopian origin in higher education institutions
(approximately 90%) begin academic studies after completing their secondary
education in pre-academic preparatory programs.47
According to data of the
Education Ministry, there are currently 45 pre-academic programs, in which 997 persons
of Ethiopian origin studied in the 2010-2011 academic year, comprising approximately
9% of all those attending pre-academic programs in that year (11,697). Out of this
47 Pre-academic preparatory programs operating within the framework of higher education institutions
enable those interested to complete their matriculation examinations or improve their grades and prepare
themselves for academic studies.
number, 186 were before military service and would be continuing their academic studies
only after completing their service with the IDF, putting the number of persons of
Ethiopian origin studying in preparatory programs and going on to academic
studies in the 2011-12 academic year at 811. It should be noted that the dropout rate
among those of Ethiopian origin stood in the first semester of the last academic year at
about 9%.48
According to data of the Israel Student Administration, persons of Ethiopian origin are
studying in various preparatory programs at all the universities (except for the Open
University) and at some of the academic colleges and teacher colleges. According to
these data, a majority of those taking preparatory programs study at the various
colleges, and especially at three colleges (Sapir Academic College, Ashkelon
Academic College and Yezreel Valley College), and a minority attend the university
programs.
Persons of Ethiopian origin, apart from those defined as "new immigrants," are accepted
to the different study tracks in the preparatory programs based on threshold
qualifications, the same as other students. As a general rule, the preparatory programs
accept candidates with at least ten years of schooling and those holding a full
matriculation certificate. In addition, the candidates must pass the MEIMAD test (a
knowledge-based screening test to select participants in the programs), an easier version
of the psychometric examination administered under the responsibility of the National
Institute for Testing and Evaluation, with a certain predetermined grade. Based on an
awareness of their special needs, examinees of Ethiopian descent are entitled to 25%
extra time, like other students whose mother tongue is not Hebrew. The preparatory
programs have also been instructed to accept persons of Ethiopian origin even if
they do not satisfy the threshold conditions defined for a given track.49
It should be noted that all students of Ethiopian origin studying in preparatory programs
are entitled to assistance according to their needs, including funding of accommodation
in student dormitories, professional and academic counseling, transportation,
psychometric examination preparatory course, diagnosis of learning difficulties, tutoring
and textbooks. The assistance may not exceed an annual NIS 6,100 per student, and it is
48 Riva Aviad, Acting Director of the Adult Education Department, letter, July 13, 2011. 49 Ibid.
only given to students who immigrated from Ethiopia or to students of Ethiopian origin
with at least one Ethiopian-born parent.
Although the Education Ministry does not have information on the percentage of
secondary students of Ethiopian origin who were accepted to higher education
institutions after attending pre-academic preparatory programs, it nevertheless notes that,
based on conversations with the directors of the preparatory programs, the preferred
subjects for continued studies are teaching, engineering, law and business
administration.50
As reported by the Education Ministry, the public committee for examining the
operation of the pre-academic preparatory programs, headed by Mr. Yarom Ariav,
which was appointed by Education Minister Gideon Saar on April 13, 2010 and recently
submitted its conclusions to him, has recommended placing special emphasis on
increasing the number of students in preparatory programs from among the
population sector of Ethiopian origin (as well as the ultra-Orthodox and Arab
population sectors), so that within six years their number stands at 1,500, i.e. 1.5
times the number of students of Ethiopian origin currently attending preparatory
programs. The committee also recommended considering a series of measures to enable
meeting this target, including raising the amount of the subsistence stipends and setting
conditions for support that take into consideration the students' special characteristics;
creating a suitable supporting environment; changing the community's image,
informational activity and removal of barriers. The committee recommended that a
professional team to be appointed by the Chairman of the Planning and Budgeting
Committee of the Council for Higher Education chart out, within four months, the
barriers specific to each of the relevant populations and propose ways of removing
them. In addition, each preparatory program should appoint a person to be in
charge of dealing with and guiding individuals from the special population sectors,
especially the population of Ethiopian origin.
50 Ibid.
6. Programs for Increasing Accessibility to Higher Education –
Comparative Review
In this part, examples are provided of ways in which different countries have
attempted to increase the accessibility of higher education to population sectors
which are underrepresented in this area. Naturally, the relevant population sectors
differ in each of the countries, and thus also their characteristics and difficulties in
integrating into the higher education system. Understanding the unique difficulties of
each such sector is crucial for tailoring effective programs suited to its needs. Thus, for
example, among some sectors the main problem preventing access to higher education is
the low level of achievements in secondary education that reduces the chances of
acceptance to higher education institutions. Among other sectors, language can pose an
obstacle to acceptance to higher education studies, especially in those subjects that
require a good command of the national language. Moreover, members of these sectors
often come from lower socioeconomic backgrounds, which makes it financially difficult
for them to acquire a higher education because of their inability to pay tuition (in
countries where tuition is charged) and to support themselves during the period of
studies.
When examining the educational level of a certain population sector, it is necessary to
relate not only to the acquisition of higher education in general, but also to the
distribution of fields of study among members of the same sector. For example, in some
countries the percentage of those studying teaching among minority groups is low, which
impacts on the diversity of the teachers in the country and on the extent to which the
composition of its population is reflected in the teaching cadre. Such countries may put
in place programs or take measures to encourage members of the minority to enter fields
of study in which it is underrepresented (with a resulting impact on fields of
employment).
Below we bring examples of ways in which some countries encourage such sectors of
their population to acquire higher education. In the countries reviewed this refers mostly
to minority groups, such as linguistic minorities or indigenous minorities. It is important
to note that we are not offering a comprehensive review of all the measures taken in each
country but only examples from which ideas can be drawn for contending with the
problem. In this document we have focused as much as possible on state programs, but
we have also brought some examples of narrower programs of a specific region or even a
specific educational institution. As well, some countries have laws that establish a
general operating framework with respect to the integration of minorities into higher
education, which must be translated by the different institutions into concrete courses of
action.
6.1. Canada
6.1.1. Program for Advancing Aboriginal Education in Ontario51
In Ontario there are programs tailored to the province's aboriginal population, which
accounts for 3% of Canada's total population, although in certain areas it reaches 10% of
the population.
The advancement of higher education among the aboriginal population is done by
transferring budgets to post-secondary institutions that offer special programs and
services for this population.
In 1992, the government of Ontario formulated a strategy for the education and training
of the aboriginal population, in collaboration with organizations from this population that
operate in the province. This strategy, described below, was implemented in the province
until 2009.
The strategy was designed to achieve three goals:
Increasing the number of aborigines enrolling for post-secondary education;
Increasing the sensitivity of higher education institutions to the aboriginal culture,
its characteristics and subjects associated with it.
Increasing the participation of members of the aboriginal population in reaching
decisions related to post-secondary education of the community's members.
Below we describe some of the tools that were used to achieve these goals:
Development of special programs and services for the aboriginal population:
Beyond the study programs taught in post-secondary institutions and intended for
the general student population, special programs were developed specifically for
the aboriginal population. As well, all the higher education institutions offer
services to members of the aboriginal population, including at least a counselor
employed on a full-time basis in helping aboriginal students studying at the
institution. Other services provided by the institutions include counselors from
among the aboriginal population; academic support programs; general
administrative services; special events for members of the population sector. The
academic institutions operating in the province vary in the nature of the programs
run by them.
51 Ontario Ministry of Training, Colleges and Universities. Aboriginal Postsecondary Education and
Training Policy Framework, 2011.
Learning centers and distance learning: In Northern Ontario, a distance
learning network serving the residents of this region has been operating since
1986. Learning takes place at centers, some of which serve the indigenous
population. In 2007, a network of distance learning centers was set up in other
regions of the country. As well, 340 centers for learning reading and writing
and basic skills are scattered throughout the province, out of which 30 are
intended for the aboriginal population (some operated by organizations that serve
this population).
Funding: The Canadian federal government allocates resources for post-
secondary studies of different aboriginal groups. However, since the resources
allocated for this purpose are limited, not all members of the aboriginal
population are able to receive this assistance.
In 2007, the earlier strategy was reviewed and it was decided that there was need of a
new strategy that would place greater emphasis on the results of the post-secondary
studies (i.e. placing greater emphasis on integration into employment). In addition to
budgeting post-secondary institutions presenting multi-year programs for the
advancement of higher education among aborigines, the Ministry of Training, Colleges
and Universities will also promote every year special projects for furthering this goal.
In 2011, the government of Ontario announced a new operating framework for higher
education and training of the aboriginal population. Below are some of the aspects
addressed by the operating framework:
Development of action plans within the different institutions: All academic
institutions are obligated to report to the government of Ontario once a year on
the investments they have made in the education of aborigines. The universities
and colleges must develop an action plan in this regard, under the guidance
and subject to the approval of aboriginal education councils which they are
required to establish should they wish to receive earmarked budgets for the
advancement of education among aborigines.
Cooperation with the aboriginal community:
o Encouragement of academic institutions to develop ties with the
aboriginal community and its organizations while formulating and
evaluating the action plans.
o Recognition of the importance of integrating staff members from the
community in all study areas in the higher education institutions, also due
to their ability to serve as mentors and role models for students from the
community, as well as their ability to contribute to understanding the
community, its difficulties and needs.
o Ensuring that within the government ministry responsible for dealing with
the matter, the personnel engaged in the development of the plans are
familiar with the community, its characteristics and needs, so that it is
possible to provide better solutions in the framework of the different
programs.
Building educational and training systems:
o Multi-annual funding and support for universities and colleges that
operate programs and services for aboriginal students, allowing them to
make long-term plans and ensure the continuity of the services offered by
them.
o Support for post-secondary institutions catering specifically to the
aboriginal population, based on the recognition of their importance in
promoting education among this population.
o Joint activity with the Ministry of Education for the purpose of increasing
the percentage of both academic and non-academic aboriginal staff
members in post-secondary institutions.
Addressing the issue of accessibility of higher education to aborigines, taking
into account the factors impacting it: Financial sources, academic
preparedness, social and cultural values, advantages and drawbacks related to the
physical location of the institutions and the availability of information and
instruction.
o Use of distance learning tools, whether for e-learning or for learning at
community centers scattered about the country, in order to increase the
accessibility to higher education of populations residing in small towns
that are relatively far removed from the post-secondary institutions (as had
already been done in the framework of the earlier operating strategy).
o Support for students or interns from the community by means of special
scholarships that ease the economic burden of studying. For this purpose,
a special scholarship fund is maintained for this population.
o Support for initiatives to increase preparedness for post-secondary studies
among secondary students and adults in the aboriginal population,
including joint activity with the Ministry of Education among public
schoolchildren.
o Financial support for post-secondary institutions to create physical areas
reflecting the identity of members of the aboriginal population and their
needs.
o Encouragement of post-secondary institutions to offer focused academic
support and counseling to aboriginal students, in addition to the general
services offered to them.
As noted, this program was published only this year, and therefore it is still too early to
evaluate its implementation.
6.1.2. "Lateral" Programs Relating to Specific Fields of Study
Some of the programs for the encouragement of higher education among minorities,
migrants or other groups relate to specific fields of study in which the members of these
groups are underrepresented.
Canada has support programs that are tailored for indigenous medical students. 52
The
special arrangements relate to the acceptance of candidates to the study programs, special
scholarships and various supportive programs. For example, the medical faculty at the
University of Alberta has a special admissions policy for indigenous candidates and
initiated recruitment of candidates from among these groups, among other things by
means of employment fairs, summer camps, etc. In addition, in medical study programs
five places are reserved for members of the community. Under another arrangement,
in acceptance interviews for indigenous candidates, at least one of the interviewers must
be an indigenous native. As to funding, the university offers two special scholarships for
aboriginals. It also provides special services for indigenous medical students, including
counseling by a special counselor who is assigned to these students (and with whom
every student from the aboriginal population must meet at least twice a year), and a
certain amount of funding for tutoring lessons for these students.
Another "lateral" program existing in Canada is a program for indigenous candidates
for law studies (which is, in fact, a type of special preparatory program for law students
52 Indigenous Physicians Association Canada. Summary of Admissions and Support Programs for
Indigenous Students at Canadian Faculties of Medicine. March 2008.
from among the indigenous population), which has been operating since 1973.53
The
program operates in the University of Saskatchewan, but is intended for students from all
over country. The program for law studies for aborigines includes the imparting of skills
and an academic background in preparation for studies in this field. Apart from providing
a preparatory framework for studies, the program also serves as an alternative channel for
integrating aboriginal students into law studies, thus also serving as a tool for increasing
their representation in the legal community. The program is also intended to teach the
participants legal subjects which are specific to the aboriginal population. The study
program extends over eight weeks, at the end of which the participants receive a grade
from the lecturers based both on their test grades and on assignments given to them
during the course as well as on the students' capabilities in legal analysis, writing and
work habits. The final grades are sent to the participants and to the academic institutions
at which they have applied.
The program is intended for aborigines who were accepted to law studies, under certain
conditions or unconditionally. It should be noted that the candidates for law studies can
be accepted in the regular track, based on their grads, or in another track that also takes
into account their life circumstances. Studies in the preparatory program are for a fee
which as o 2011 stood at 2,500 Canadian dollars, however it is possible to receive
financial help.
6.2. Australia
This part brings examples of various measures taken in Australia to encourage the
indigenous population to integrate into higher education. First, we present two Federal
tools, followed by an example taken from the State of Victoria. In this context, it is noted
that as of 2006, the percentage of the indigenous population in Australia is 2.5%, and its
rate in the State of Victoria is 0.6%.54
6.2.1. Federal Tools: Scholarships and Tutoring Lessons
In light of the relatively poor socioeconomic situation of the native population in
Australia, a key tool for encouraging its integration into higher education is financial
assistance. Since 1969, there are special Federal scholarships for native students,
which are intended to finance the cost of their studies and subsistence. The special
scholarship, which is termed "ABSTUDY," is intended for native students in different
stages of studies, including post-primary studies, post-secondary studies, vocational
53 www.usask.ca/nativelaw/programs/plsnp.php retrieved: June 21
st, 2011.
54 http://www.abs.gov.au/ausstats/[email protected]/mf/4705.0, retrived: July 12th
, 2011.
training and academic studies.55
A study conducted in 2006 found that approximately
26% of native students in the country received these special scholarships (additional
students received scholarships not specially designated for natives). It should be noted
that in addition to the Federal scholarships, there are scholarships of various academic
institutions and other organizations which are intended to support higher education
among the indigenous population.56
In addition, by virtue of the Higher Education Support Act from 2003,57
the Australian
government budgets support programs for indigenous students which operate at
higher education institutions. This budgeting is provided to academic institutions that
meet the following conditions: implementation of strategies to improve accessibility,
participation, perseverance and success of indigenous students; improvement of
participation of natives in the organization's decision-making processes; existence of
program for the employment of natives.
Another Federal program operating in Australia provides support for indigenous
students by subsidizing tutoring lessons and is intended to improve the academic
achievements of indigenous students in higher education institutions (as well as in certain
vocational training institutions). The funding is intended for tutoring in curricular courses
towards the degree for which the student is studying, and not generally for courses that
impart basic skills. It is meant to cover the costs of tutoring lessons on a scope of several
weekly hours, some of which are individual and some group lessons.58
It should be noted
that the Australian government finances tutoring and reinforcement lessons for
indigenous students also in earlier study stages (starting from elementary school), in
order to strengthen their command of basic skills.
6.3. State of Victoria: Special Arrangements for Acceptances of
Indigenous Students in Higher Education Institutions59
The rate of eligibility for a Victorian certificate of education among the indigenous
population in the State of Victoria is lower than among the non-indigenous population,
which affects their chances of acceptance to higher education institutions through the
55 http://www.centrelink.gov.au/internet/internet.nsf/payments/abstudy.htm retrieved: July 4th, 2011. 56 Parliament of Victoria, Education and Training Committee Final Report. Inquiry into Geographical
Differences on the Rate in which Vicotrian Students Participate in Higher Education, July 2009. 57 Higher Education Support Act 2003. 58 Australian Government, Department of Education, Employment and Workforce Relations. Indigenous
Education (Targeted Assistance) Act 2000 Program Guidelines 2009-2012, Current as at 25.05.10. 59 Australian Government, Department of Education, Employment and Workforce Relations. Indigenous
Education (Targeted Assistance) Act 2000 Program Guidelines 2009-2012, Current as at 25.05.10.
regular acceptance tracks. However, there are several alternative ways of being accepted
into the state's higher education system that are open to those who did not complete high
school education. Many universities offer special acceptance tracks for indigenous
students (as well as other groups which the state wants to advance), with acceptance
requirements that differ from those in the regular acceptance track. One possibility
(which is not unique to natives) is the recommendation-based acceptance track, in
which the candidates' grades are weighted together with recommendations from teachers
or principals of the schools at which they studied. In this way, the candidate's grades are
evaluated alongside other parameters which can improve his chances of acceptance.
Another possibility is to apply through a special acceptance track intended for
candidates who are able to prove that their background has placed them in a
position of long-term inferiority as regards education, or that their life
circumstances preventing them from completing 12 years of schooling. These
parameters can change the ranking of candidates and affect the chances of acceptance of
candidates from weaker groups (including natives). Indigenous students can submit an
application in this track either by virtue of being natives, or by virtue of other entitling
parameters such as socioeconomic situation or residence in a rural area.
In addition to tracks designed for various groups which the state is interested in
advancing (more general programs), some universities in the State of Victoria have
special acceptance tracks for indigenous students. Thus, for example, at one university
(Monash University), indigenous students who demonstrate adequate writing skill and a
strong willingness to acquire higher education can be accepted to a special track for
natives, in which they take various courses over two semesters. These courses do not
entitle them to any academic credits, but if they complete them successfully they can be
accepted to undergraduate studies. At other universities, both in Victoria and in other
areas of Australia, indigenous candidates are accepted based on an individual
evaluation of each candidate, rather than on the basis of ranking relative to other
candidates. In these cases the selection is made based on the candidates' ability and their
chances of success in studies, which are evaluated in various ways, including personal
interviews and prior experience in relevant work. Counseling units for indigenous
students operate within the different universities, which assist them in the process of
acceptance to the institutions.
Another track of acceptance to higher education institutions in the State of Victoria is by
transferring from non-academic vocational training studies. In the vocational training
and technical study tracks in the state there is a significant proportion of students from
weak socioeconomic groups, including natives. Through academic recognition of some
of the courses taken in these study frameworks, they can be encouraged to go on to
academic studies. Nevertheless, the percentage of those with vocational training that have
done so is still low, and the government of Victoria is addressing the need to improve
this channel. Another avenue of entry to the higher education system is transferring
from the employment market to academic studies. One university in Victoria operates
an institution for educating the members of the Koori ethnic group (the native people of
Victoria) that has developed academic tracks designed to help natives employed in the
social welfare and healthcare systems to study for academic degrees in social work or
public health. These programs include scholarships to help students with their
subsistence expenses during the period of studies. As in Canada, also in Victoria an
attempt has been made to develop more flexible study formats for the native population
that are suited to their profile and do not entail separation from the community, whose
members for the most part set up families at a relatively young age.
In addition to alternative acceptance tracks, there are various preparatory programs
operating in Victoria in which indigenous students can complete their basic education.
6.4. United Kingdom
6.4.1. State Regulation
The rights of various groups in the United Kingdom, including minorities, are regulated
in a series of Equality Acts, the most recent being the Equality Act of 2010.60
The
Equality Act relates to those defined as "persons with protected characteristics," one of
these characteristics being race. One of the aspects regulated by the Equality Act is
education, and specifically higher education. In general, the Equality Acts of the United
Kingdom establish general duties which apply to all the country's public bodies, as well
as specific duties which apply to certain bodies, including higher education institutions. It
is worth noting that in the United Kingdom the percentage of ethnic minorities among
students in higher education institutions – 17.8% in the 2008-9 school year – is higher
than the percentage of ethnic minorities in the population – 11.6%. In other words, ethnic
minorities not only do not suffer from underrepresentation in the higher education
system, but the contrary is true. This situation is not new, having existed in the United
Kingdom already in the 1990s, although recent years have seen a further rise in the
60 The previous legislation in the United Kingdom related separately to each of the following groups:
gender, race and the disabled. The Equality Act of 2010 consolidated all these groups in a single
framework and expanded it to include additional groups.
percentage of ethnic minorities among the student population. However, just as in other
countries, in the United Kingdom as well the distribution of fields of study among
students belonging to ethnic groups differs from that of the general student population,
and specifically – a lower percentage enrolls for pedagogic studies.61
A regulation from 2001 enacted pursuant to the Race Equality Act of 1976 imposes on
higher education institutions specific obligations relating to equality of minorities. The
regulation provides that higher education institutions must prepare a written
declaration on their policy for advancement of equality between people belonging to
different racial groups, and to see to the necessary means for complying with the
equality obligations imposed on them by the act. The equality policy of institutions is
meant to prevent racial discrimination and to promote equal opportunity and good
relations between different races, in all areas. The equality policy must relate to various
aspects of the activity of the higher education institution, including accessibility to and
admission of students, as well as assistance to students. The obligation to equality
requires higher education institutions to evaluate the effect of their policy on students and
staff members from different racial groups. Furthermore, higher education institutions
must follow up differences between different racial groups as regards acceptance of
students to studies and the progress made by them, as well as the recruitment of staff
members and the advancement of their career.62
The Equality Act of 2010 expanded the scope of the previous act with respect to
affirmative action by higher education institutions towards people with protected
characteristics (including race) who are underrepresented in certain fields, including
meeting their special needs. The act provides that affirmative action must be taken
proportionately to the need to achieve the goal and can include measures for increasing
the representation of students from an underrepresented ethnic group.63
It should be
noted that the regulations which are supposed to be promulgated pursuant to the Equality
Act have still not been enacted, and they may contain additional provisions relating to the
duty of academic institutions to act proactively to promote racial equality.
The Equality Acts, including equality on the basis of race, have given higher education
institutions a general framework for achieving the goal of equality, as well as general
guidelines on how they should act in order to do so. However, each academic institution
61 Equality Challenge Unit. Equality in Higher Education, Statistical Report 2010. 62
UK Commission for Racial Equality. Statutory Code of Practice on the duty to promote race equality,
May 2002. 63 Equality Challenge Unit Briefing. Equality Act 2010; Implications for higher education institutions.
must determine its own modus operandi within the framework of the program published
by it. An examination of the websites of some universities in the United Kingdom shows
that they publish equality programs as well as data on their student body according to
ethnic groups. The scope of the programs and degree of detailing varies between the
different universities.
6.4.2. Aimhigher Program
In addition to the equality programs which the universities are required to publish, in
recent years a national program has been operating in the United Kingdom for the
integration into higher education of population sectors which currently are
underrepresented. The program, called "Aimhigher," was operated by the Higher
Education Funding Council in parts of England in the past several years, and was
expanded in 2009 to all of the United Kingdom. The purpose of this state-fund
program is to support schoolchildren in the 9 to 13 age bracket, by means of
meetings with mentors who are first-degree students. The mentors offer the
schoolchildren support and encouragement in coping with different stages in studies and
life, which could affect their integration in the future into higher education. As described
above, the program is based on mentoring meetings, with the mentoring students
themselves belonging to one of the relevant ethnic groups, giving them an understanding
of the difficulties experienced by the schoolchildren, while the schoolchildren, for their
part, are able to identify with their mentors. The mentors meet with the schoolchildren
around twenty times a year (once in two weeks), and they receive payment for the
meetings (50 pounds sterling per meeting). Several schoolchildren participate in each
meeting, which lasts several hours, with parts conducted jointly and other parts devoted
to private talks of the mentor with the schoolchildren.
As noted earlier, the program is meant to help schoolchildren from groups which are
underrepresented in higher education, including those belonging to low socioeconomic
levels (according to definitions of the U.K. Office for National Statistics), those
belonging to weak groups that reside in areas with a low participation rate in higher
education, schoolchildren living in care frameworks and disabled schoolchildren.64
As noted, in the first years the project operated in several local/regional authorities in
England. One such region was the city of Leeds, in which the program focused mainly on
64
Higher Education Funding Council for England, Aimhigher Associates Scheme, Guidance and planning
for the national phase, 2009-2011.
the city's minority population.65
The average percentage of minorities in this city is 10%,
but in certain areas of the city they reach 70% of the total population. The project is
intended to reduce the dropout rate among schoolchildren in the city and to increase their
integration into higher education. It targets youth with potential to integrate into higher
education, who are at risk of dropping out from the education system due to low
motivation or a lack of academic support. The program is operated in Leeds by the
municipal education department, in collaboration with various organizations including,
among others, the local coordinators of the Aimhigher program, the local universities
from which the mentors were recruited and a local philanthropic organization which
supports education. A majority of the schoolchildren participating in the program have
shown an improvement in their scholastic achievements and grades.66
6.5. Norway67
In Norway, the approach is to linguistic minorities. These mostly comprise migrants or
people from an immigration background and account for 11.5% of the country's
population.68
There are two noteworthy aspects as regards the accessibility of higher
education to the members of this group:
First, among the members of linguistic minorities who completed high school education,
the number of those continuing to higher education is not lower and is even higher than
among the general population. Nevertheless, the percentage of linguistic minorities who
complete high school education is lower than among the general population, and
therefore the chances that a member of this group will enroll for higher education are
lower. However, this is true mainly of first-generation immigrants, whereas among native
Norwegians whose parents immigrated to Norway the enrollment percentages are
actually high. The Norwegian government has taken various steps to address this
problem, including changing the method of teaching the Norwegian language to
linguistic minorities, but they will not be reviewed in this document. We would merely
note in this context that the Norwegian Education Ministry has acted to disseminate
65 In this city the program was called "Aim Higher: The Leeds Black and Ethnic Minority Mentoring
Programme." 66 Aim Higher: The Leeds Black and Ethnic Minority Mentoring Programme.
In: http://www.idea.gov.uk/idk/core/page.do?pageId=8038754&aspect=full retrieved: June 14th
, 2011. 67 Norway Ministry of Education and Research. Equal education in practice! Strategy for better learning
and greater participation by language minorities in day-care centers, schools and education, 2004-2009;
Equal education in practice! Strategy for better teaching and greater participation of linguistic minorities
in kindergartens, schools and education 2007-2009, revised edition February 2007. 68 The Knesset Research and Information Center. Encouragement of Employment of Workers from Groups
Characterized by Underrepresentation. Written by: Orly Almagor-Lotan and Adv. Dina Zadok, May 5,
2011.
among youth belonging to linguistic minorities, and their parents, leaflets which describe
the possibilities available to them with respect to high school studies and vocational
training.
Second, the distribution of the fields of study among linguistic minorities who enroll for
higher education differs from the general population, with the linguistic minorities in
Norway tending more to study the scientific and technical subjects and showing less
interest in the social sciences and teaching.
Some universities in Norway have taken steps to increase the percentage of those
enrolling for higher education among the minorities, but the country's main focus has
been on encouraging minorities to enroll for pedagogic studies, so as to diversify the
teaching personnel in the educational system in a manner that faithfully reflects the
composition of the Norwegian population. In December 2003 the Norwegian government
published a strategic program for equality in education, which also related to the issue
of the accessibility of higher education, and specifically pedagogic studies, to minorities.
Studies have shown that in Norway, one of the difficulties in recruiting teachers from
among the minorities whose mother tongue is not Norwegian is related to language, and
particularly the Norwegian language requirements connected with pedagogic studies. To
overcome this difficulty, the Norwegian government decided to ease the (Norwegian)
language requirements in connection with pedagogic studies, so as to enable more
minority groups to take up studies in this field. We did not find any information on the
extent of the influence this change has had on the percentage of linguistic minorities who
enroll for pedagogic studies, since the latest data published relate to 2005 (in which the
percentage of linguistic minorities who enrolled for studies in this field was still
relatively low).
As noted, also in the field of social sciences the linguistic minorities have relatively low
representation. In this respect, the state is acting by supporting programs which are
operated by the universities, but we will not elaborate on this in the present document.