Sweden's Government Loosens the Reins on Tightly Controlled University System

From The Chronicles of Higher Education, October 7, 1992

Conservatives increase budgets and enrollment and offer a blueprint for regulation

Sweden’s conservative-led government is making good on its pledge to revitalize the country's higher-education system. Since taking office one year ago, the right-of-center coalition government has increased the annual budget for higher education by 10 percent, or about $100 million, and has added a total of 6,000 new places for undergraduate students. More important, it has drafted a comprehensive blueprint for deregulating and decentralizing the country's tightly controlled network of six universities and 29 colleges. The plan, which the government will submit to the Riksdag or parliament, this week, is the talk of the campuses here. Among other things, the proposed legislation returns to individual universities and colleges decision-making authority in admissions, curriculum, hiring, promotion, and the use of resources. "Anything that is not expressly regulated can be decided at a local level by the individual university or college, the legislation states. It also gives students more flexibility in what fields they study, and contains Sweden's first officially codified guarantee of academic freedom since the 1800’s. "In a word, we are opening up the universities,” says Leif Lindfors, the Assistant Under Secretary for Higher Education and one of the chief architects of the restructuring. "'Our new motto is accessibility.” 

Widespread Political Support 

The plan, which incorporates ideas proposed by the national students' and faculty unions, has widespread political support and is expected to quickly pass into law, probably by the end of next month. Implementing the reforms will become the responsibility of a Swedish-American academic who has been hired to head the revamped system. Stig Hagstrom, who had been a Stanford University professor of materials science since 1986, began a six-year term as chancellor of Sweden’s university system last week. A graduate of the University of Uppsala, he says the planned changes will bring healthy competition to higher education here. I believe in competition, Mr. Hagstrom says. "Competition brings better students. It also breeds diversity. The legislation represents the biggest change in Swedish higher education since the mid-1970's when the ruling Social Democrats instituted a highly centralized system known as högskola. Under that plan, the education of undergraduates was reorganized along rigid curricular lines designed to lead to clearly defined careers, and responsibility for decisions on matters academic as well as financial was transferred from the campuses to Stockholm. Those changes were intended to make the country's campuses more open to children of working-class parents, but statistics have shown that the reforms had just the opposite effect. The proportion of university students with parents who are “ordinary workers" has declined since högskola was instituted in 1977. Observers here generally agree that the quality of the entire university system declined under högskola (The Chronicle, December 4, 1991). The Social Democrat administration that was ousted in last year's elections actually had been taking steps to fix the high-er-education system when it was turned out of office. The new government of Prime Minister Carl Bildt, the head of the Moderate Party and the first conservative to lead the country in more than six decades, came to office pledging to reconstruct "the academic estate" and make Swedish education the best in Europe. Even given such bold promises, the Bildt government "is clearly running much faster, and much further, than anyone had anticipated,” says Annika Ekstrom, the education editor of Svenska Dagbladet, a Stockholm daily. 

Diluting the Bureaucracy 

The government moved quickly to scale down the bureaucracy in Stockholm, which was seen by many here as contributing to the university system's problems. A number of agencies have been abolished, including the Center for Planning and Co- ordination, the Planning and Equipment Board for Universities and Colleges, and six regional-assistance councils. Those involved in education matters have been impressed by the stirring language the new legislation uses to explain its rationale for decentralizing and deregulating the higher-education system. "There are two essential motives for dissociating higher education from the state,” the bill says. "The first is that a progressive advancement of knowledge requires freedom, independence, and competition. The second motive is one of principle: A society which supports diversity and which is aware of an all-embracing state authority must safeguard the crucial counterbalances, among which are free universities and university colleges.” The six universities that anchor the system are at Göteborg, Linköping, Lund, Stockholm, Umeà, and Uppsala. The 29 “university colleges” are roughly equivalent to U.S. junior colleges. The 4,000 undergraduate places added this fall combined with 2.000 added last spring bring total enrollment in the system to 169,000. Providing more places in higher education has been a pressing need in Sweden as well as a chief demand of the national students' union. Admission continues to be highly competitive, with more than three applicants for every place. This year the number of applicants hit a record 92,000. The graduation rate, however, has been declining. Between 12,000 and 13,000 undergraduate degrees have been awarded in each of several recent years, down significantly from between 16,000 and 17,000 a year in the early 1970's. 

Report Questions Quality 

Such statistics led to a nationwide consensus that change was needed, and allowed the new government to act decisively to try to halt the system's decline. The government also was spurred into action by the release last spring of a report by a blue-ribbon committee of academic leaders that found the quality of teaching and research in several subject areas to be "unacceptably low.” The ambitious university reform is another way the Bildt government is delivering on its promise to make education a central feature of its plan for economic growth. "Increasing the number of university graduates and raising standards in education and research will be crucial for Sweden in the future,” wrote Per Unckel, a highly regarded conservative politician who is now Minister of Education, in his introduction to the higher-education legislation. "Only through advanced education and research can Sweden hold its own against tough international competition. The legislation -actually more like a manifesto, with many of the particulars to be worked out later- calls for the complete revamping of the lines of authority between Stockholm and the campus-es. Individual institutions will be responsible for monitoring their own educational quality, and a yet-to-be-named national education secretariat will monitor quality throughout the system. Telling administrators who are used to deferring to Stockholm to think for themselves is one thing, but getting them to do it is quite another. The question facing higher education today is whether the system's quality can be maintained and upgraded under the chaotic conditions certain to attend deregulation. Mr. Hagstrom, the new chief, says it can. "In the past, there has been too much stress on equality,” he says. "Now there will be greater stress on quality. Before, there was too much talk about how to do things, as opposed to what things we were doing.”

He says he hopes that the revamped system will help remedy Sweden’s “'negative intellectual

balance of trade" by making it more attractive for top scholars to remain in the country, and by attracting more students and scholars from abroad. He also intends to address the issue of declining teaching quality and standards by making it more difficult for research-minded professors to "buy their way out of teaching”. "I hope to bring the joy of teaching back to the Swedish system,” says Mr. Hagstrom. "This is another thing we have tended to take for granted.” Mr. Hagstrom says he is not sure how the legislation's most controversial clause, which calls for some institutions to fall under a new form of non-state control, will turn out. "I don't think we can have private colleges as you do in the U.S.),” he says. "The money isn't there. Private higher education is virtually nonexistent in Sweden; the one independent college is heavily subsidized by the state.

Privatization Opposed

The powerful faculty and students’ unions, which otherwise support the new legislation, are opposed to any effort to privatize higher education, in part because it might diminish their influence. "We think there should be less policy,” says David Samuelson, vice-president of the national students' union, "but there should still be some policy. Nevertheless, we think the new plan is essentially a good one.” So does the faculty union. "'It's an excellent blueprint,” says Bengt Gustafson, the union's negotiator. However, he says faculty members would like to see the government put even more money into the system. The government proposes to spend a total of $3.6-billion on higher education over the next three years. Mr. Hagstrom is optimistic: “We will be competitive again.”

Memory Wars in Latvia

From The New York Review of Books, July 2022

Riga, with its well-preserved medieval center and art nouveau district, has long been known as the Pearl of the Baltics. Thirty years after the restoration of the Republic of Latvia, its capital is also dotted with architectural and sculptural relics of the "Soviet time” - the occupation from 1944 to 1991. They range from the monotonous rows of five-story gray apartment blocks with which Moscow carpeted the Baltic states to the Latvian Academy of Sciences. Built between 1951 and 1961, this towering edifice. known locally as “Stalin's birthday cake”, was originally intended as a birthday gift for the dictator, who died in 1953. Latvians once regarded the building which retains its original decorative hammers and sickles as an eyesore, as well as an unpleasant reminder of Stalin who crushed the short-lived Latvian Republic in 1940 and reimposed Soviet rule over the country in 1944 after more than three years of Nazi occupation. But they don't seem to mind it anymore. The seventeenth-floor balcony offers a panoramic view of the city that is popular with tourists, on whom Riga is dependent.

The Russian invasion of Ukraine on February 24, however, thrust other architectural legacies of the Soviet occupation into a dramatically different light. Today the most controversial is the Monument to the Liberators of Soviet Latvia and Riga from the German Fascist Invaders, built in 1985, during the twilight of the Soviet empire, to celebrate the fortieth anniversary of the Red Army's victory over Germany. Also known as the Victory Park Memorial, the monument consists of a towering obelisk and two groups of sculptures, one of which is an idealized depiction of three Soviet soldiers. At 260 feet high, it is one of the largest war memorials built by the Soviets outside of Russia and is nearly twice as tall as Riga's soaring Freedom Monument, known as Milda, built in 1935 to honor the Latvians who died during the country's war of independence between 1918 and 1920, after more than a century of Russian rule.

The Victory Park Memorial is located in an expansive park on the opposite side of the Daugava River from Milda. For many years ethnic Latvians loathed it as a symbol of Soviet rule. In 1997 the ultranationalist group Perkonkrusts tried to blow up the monument with improvised explosives, but they went off prematurely, causing only superficial damage. Two of the perpetrators died in the blast. The others were arrested, tried, and imprisoned by the Latvian government, in accordance with the agreement it had made with Russia in 1994 to protect, maintain, and care for each other's memorials and war graves, after which the Kremlin belatedly and reluctantly withdrew its remaining forces in the Baltics. Among other things, the agreement also called for the Latvian government to continue paying the pensions of the 22,000 (now 11,000) retired Russian military personnel who chose to remain in Latvia. Until recently the disputes over the Victory Park Memorial seemed to be dying down as tensions eased between the ethnic Latvian majority and the Russian-speaking minority- approximately a quarter of the country's 1.9 million people. Over the years the memorial also became the site of the Russian minority's raucous annual May 9 "Victory Celebration," as they called it. The government wasn't happy about these celebrations, but it maintained a hands-off attitude toward them. That was before February 24. Since the Russian invasion, the memorial has become a flash point for a rekindled debate about Latvia's historical memory, and the Latvian government is intent on demolishing it. On May 26, after a heated debate, the Saeima, the Latvian parliament voted overwhelmingly in favor of a sweeping new law, entitled "On the Prohibition of the Display of Objects Glorifying the Soviet and Nazi Regimes and Their Dismantling in the Territory of the Republic of Latvia,” and it was formally approved on June 16. Only seventeen members of Harmony, the party that represents the Russian minority and commands a substantive if declining amount of support and two nonaffiliated members were opposed.

The legislation was the culmination of a chaotic chain of events that began with this year's May 9 commemoration, which was canceled by the government, or rather with the botched handling by the police of the protest that took place on May 10, when the hundreds of flowers that Russians were allowed to leave at the obelisk's base were hauled away, leading to a demonstration by three hundred surly pro-Russian protesters, who also confronted a group of yellow-and-blue-draped Ukrainian supporters. There was widespread criticism of the way the Riga police handled the incident, particularly from the conservative National Alliance party, one of the four parties in the govern- ing center-right coalition, and the minister of interior, Marija Golubeva, was forced to resign.

By then the drive to demolish the memorial, which had begun to gather steam after February 24, had expanded to include all three-hundred-odd Soviet-era memorials and monuments around the country, despite Riga's original commitment to protect them under the 1994 bilateral agreement. On May 12 the enraged Saeima voted to suspend that agreement "until Russia terminates breaches of international law with regard to Ukraine, including the removal of its armed forces from the territory of Ukraine and the full restoration of Ukraine's territorial integrity and sovereignty.” Rihards Kols, the outspoken chairman of the Saeima's foreign affairs committee, who spearheaded the legislation, explained its rationale to me. "The so-called Victory Monument has been the site of May 9 'Victory Day' celebrations since the early 2000s, when Putin came to power," he told me in his modest office across from the fortress-like mid-nineteenth-century building in the historic Old Town that is the home of the Saeima.

Over the years the monument has become a catalyst for post-Soviet nostalgia for the small section of society living under the influence of the Russian media, while most of us perceive it as a reminder of Soviet occupation and a signifier of the “Russian Mir" ideology promoted by the Kremlin abroad. The Kremlin continues to use Victory Park "as a tool to mobilize its "Russian subjects” to its own distorted view of history and demoralize the Lat vian population, one in which it is acceptable to celebrate 'Victory Day’ on May 9," said Kols. "Latvia," he pointed out, has no public holiday--or anything to celebrate, really -in the context of the

Second World War. With the change in international realities, we now have an opportunity to express our true attitude toward the monument, which has come to symbolize the Soviet-successor regime that is perpetrating crimes against humanity today in Ukraine, and remove this “thorn."

Selma Levrence, a young progressive activist and former parliamentary aide who was one of the pro-Ukrainian counterdemonstrators in Victory Park on May 10, agrees. Until recently, she maintained, "I was very much against removing the Soviet me- morial, even though the annual event there had devolved into an increasingly militaristic celebration of Putinism, as were many if not all of the people in my bubble." Latvians, particularly young Latvians, often speak of living in one of the two ethnic bubbles.” Until recently it had been my impression, having employed students from both bubbles, that the differences dividing them were dissolving. Not anymore. "Many things have radically changed since February 24," said Levrence. “There is no value or benefit it brings to Latvian society," Levrence, who recently announced her candidacy for the Saeima in the forthcoming fall elections, told me. "Of course, the removal of the monument won't solve the deeper issues of our divided society. But it is an opportunity to start from a fresh page." That is why she showed up on May 10 to confront the pro-Russian protesters there, as well as to show her support for Ukraine. Ukraine's fight is also Latvia's fight, she insisted. The reaction of the Russian embassy in Riga, which has been in a state of semi-siege since a horde of angry Latvians descended on it on February 25, the day after the invasion, was predictably sulfurous. "We are outraged by the decision of the Latvian Saeima to unilaterally suspend Article 13 of the Russian-Latvian Intergovernmental Agreement of April 30, 1994, the embassy announced.

This situation clearly demonstrates for the entire responsible international community the true face of the political elite of Latvia: cynicism, double standards, a complete rejection of the civilised ways of settling interstate issues, and brazen disregard for the fundamental principles of international law. There were, understandably, a lot of smirks when legislators read that last line. Still, it is difficult to take issue with the next one: "In Latvia, the problem of settling the score with one's own historical past is looming large.” On the other hand, not all the Latvian Russian speakers who are angry at the prospect of the monument’s demolition are supporters of Putin and his invasion of Ukraine. Some of them, including several of my acquaintance, regard Victory Park as it was originally intended--or supposedly intended: as a commemoration of the USSR's victory over Germany, even though it was followed by draconian Soviet rule. One of these is Kersti Ilves, a Russian Latvian actress who lives in Paris. Ilves says that she and her family revere Victory Park "as a memorial to the soldiers who liberated Latvia from fascism. In each family- certainly the ones I know of - there is a grandfather or a great-uncle who fought against the Nazis. That is why it is special to us.” Not, she says, because of what is happening in Ukraine, despite the unapologetically pro-Putin and anti-Ukraine demonstrators who showed up on May 10.

Arturs Krisianis Karins, the American-born Latvian prime minister, is not worried about the pro-Putin faction among Latvia's Russian population. It is a "minority of a minority,” he said in a radio interview on May 19, a week after the Victory Park fracas. As proof, he cited a recent poll by the respected Latvian pollster SKDS, which showed that the number of Putin supporters had dropped from 20 per- cent to 13 percent since the war began. “That translates to about 5 percent of the population of our country," Karins pointed out, observing that even in most Western countries there is usually an equally small percentage of the population who are unhappy with the government. "We can live with that.”

Karins went on to enumerate his government's moves to fortify both the country's military defenses, in concert with its NATO allies, and its cultural defenses, by accelerating the ongoing effort to remove the Russian language from the educational system, "'so that all of our schools will be teaching the

state language.” Don't worry about the crazies who showed up at Victory Park on May 10, he said. And don't worry about Russia.

Yet rightly or wrongly, a lot of Latvians are worried about Russia, as well as the future of their country. One hears of older people, especially those with memories of the horrific Soviet deportations of the late 1940s, who packed their suitcases in February and March, just in case the Russians did come back. They are a minority. But there are many more Latvians from both sides of the ethnic divide who are worried about whether the still-fragile Latvian state will withstand the reverberations from the war in Ukraine.

The last week of May was an intense and eventful one, as the shadow of the war loomed larger. On May 26 Ukrainian president Volodymyr Zelensky addressed the Latvian parliament from Kyiv. He thanked Latvia for

the profuse military and humanitarian aid it has extended his country, including accepting, housing, and schooling more than 30,000 Ukrainian refugees, a not inconsiderable number for a financially strapped nation of fewer than two million. He also explicitly tied Ukraine's fate to Latvia's. "Dear Latvian people!" he exhorted. 

Our parents hoped that the war would not hit our generation. That you and I would not be threatened by what previous generations had to endure. Oppression, repression, deportation… We have everything we need to eliminate these threats. And I am sure we'll do it. Together. And guided by our values. Paldies, Latvija! Glory to Ukraine!

Four days later, on May 30, the Museum of the Occupation of Latvia had its grand reopening. Established in 1993 to depict what had happened in Latvia between 1940 and 1991, including the crimes committed under the Nazi and Soviet regimes, with a heavy emphasis on the latter, as well as the difficult path to the restoration of independence in 1991, the museum is in a massive, boxlike building with a checkered history. Built in 1971 to celebrate the one-hundredth anniver- sary of Lenin's birth, it was first a museum for the Latvian Red Riflemen, the Latvian Soviet troops who fought in the Russian Civil War. Each of the Baltic states has a museum of occupation, and Latvia's was definitely the least impressive of them. I recall tour- ing it on my first visit to Riga in 2002 and being struck by its amateurish, agitprop character. The reopening of the museum, which was housed at the former US embassy during its long-delayed, controversial €10 million renovation, would have been a charged affair under normal circumstances. The war in Ukraine and the dispute over Victory Park made it even more so. Latvian president Egils Levits, a mild-mannered, bespectacled sixty-six-year-old jurist and lawyer who was a longtime judge on the European Court of Human Rights, has yet to grip the Latvian public's imagination like his formidable and still-beloved predeces- sor Vaira Vike-Freiberga, who served from 1999 to 2007 and helped usher Latvia into both the EU and NATO. But his remarks, delivered before a standing-room-only crowd in an emotion-laden voice, electrified the room. 

“Ladies and gentlemen!” Levits began.

Russia's brutal invasion of Ukraine has evoked in our national memory the Soviet invasion of Latvia in 1940. The crimes committed by the Russian army in Ukraine remind us of the brutal murder of Latvian civilians during the [Soviet] occupation.

The president went on to extol the importance of the refurbished museum in "explaining the tragic knot in

Latvian statehood,” as he described the successive Nazi and Soviet occupations, the illegal mobilization of Latvians in occupation armies, and the all-but-forgotten resistance movement during the Soviet occupation, known as the Forest Brothers. 

Levits did not mention the Victory Park Memorial, but he strongly alluded to it, while dismissing both the Western interpretation of Latvia's liberation and the one that Putin and the Russian media have used to rationalize Russian aggression in Ukraine and, at least implicitly, to justify a possible future move against the Baltics.

“The European space of remembrance is still divided by different interpretations of World War II," declared Levits. In the West, the narrative of the Allied victory over Nazism as the only evil has dominated for years. Russia, on the other hand, especially under Putin, has based its identity on its victory in the so-called Great Patriotic War, glorifying its image as the liberator of the world. Neither of these interpretations corresponds to the Latvian experience. Latvia was not liberated by the West, but reoccupied by Soviet Russia in 1945.

After his speech, I toured the museum. The new exhibition, which takes up nearly a, thousand square feet is replete with dozens of fascinating, carefully edited videos and myriad creatively mounted photographs and accompanying texts. It is more under- stated than its predecessor, allowing the victims as well as the survivors of the two occupations to speak of the horrors they endured and witnessed. In the section about the Soviet Occupation, my eye was caught by a display illustrating how the Soviets tried to erase the memory of the first Latvian republic by defacing or demolishing monuments from that time. “Purging Memory; it is called. I asked Gints Apals, the head of the museum's public history department if that wasn’t what the Latvian government was now proposing to do with Victory Park and other memorials. He disagreed. "I do not think that the current developments around Soviet-era monuments could be compared to Soviet policies directly," he insisted.

The Soviet regime tried to erase the memories of independent Latvia in order to subjugate the people and build a new Russified communist society. Latvia is not trying to purge the memory of anyone. The fact is, many people in Latvia perceive the Soviet military monuments as a reminder that the Soviet or Russian terror might come back. To be sure, there is little evidence that any Latvians from either community- even the vociferous pro-Putin minority of Russians- have any interest in being part of Mother Russia again. Nor has Putin, his hands full with Ukraine, explicitly said that he has designs on the Baltics. Hackles were raised on June 9, however, when, in a bombastic talk about his predecessor Peter the Great, Putin hinted at such designs, praising Peter for “reclaiming,” as he disingenuously put it, the Swedish-ruled Estonian city of Narva in 1704, during the Great Northern War. How, I wondered, did the people of other Latvian cities, particularly ones in the eastern part of the country near Russia, perceive the Soviet-era military monuments in their towns? To find out, the weekend before the museum opening I traveled to Rezekne, a city of 27,000 twenty-three miles west of the Latvian-Russian border. Rezekne's population is almost evenly divided between ethnic Latvians and Russians - 47.5 percent to 41.5 percent. The hotel where I like to stay, the Kolonna, was built in 1939, during the waning days of the first republic. Designed in the Scandinavian style favored in the Baltics at the time, with large windows and a curved façade, it was intended in part to accommodate the Soviet officials and tourists who were expected to pass through Rezekne en route to the 1940 Olympic Games across the Gulf of Finland in Helsinki.

Those games were canceled after the Soviets invaded Finland in November 1939, and the three-month  Finno-Soviet Winter War, which the Ukraine war so eerily resembles, was followed by the first Soviet occupation of the Baltics. The Kolonna was almost completely destroyed in the heavy fighting between retreating German forces and advancing Soviet ones that raged in the area in the spring of 1944. After the war and the return of Soviet rule, the hotel was reconstructed and became popular with the Russian tourists who liked to summer in Rezekne and sun themselves along the shore of nearby Rezekne Lake. Before the Soviets departed, they also erected in the center of town the Monument to the Liberators of Rezekne, a hulking, approximately sixty-foot likeness of a Soviet soldier cradling a PPSh-41 submachine gun - standard issue for Stalin's troops. Unsurprisingly, the monument, which is also known as Alyosha, is high on the list of Soviet memorials that the Saeima would like to have removed. It also happens to be located within sight of the Kolonna. When I arrived, there were no police there, like the watchful ones now stationed around the clock at Victory Park, which has been blocked off. Nor were there many visitors. I did notice, though, that every morning there were more flowers. The impression I got from talking with members from both ethnic communities was that the monument was not as controversial as the Victory Park Memorial in Riga has become. Nevertheless, on June 7 the Rezekne City Council peremptorily decided to move it to the city cemetery on the outskirts of town, where some of the Soviet war dead are buried. 

No Friends to the Fir

From Sierra, May/June 1991

As Soviet acid rain falls on the forests of Lapland, nature-loving Finns find that glasnost alone isn't good enough.

The Soviet Union's problems in the Baltic region are not limited to burgeoning independence movements in Latvia, Estonia, and Lithuania. While the end of the Cold War should have brought an easing of tensions between the USSR and neighboring Finland, a new obstacle to harmonious relations is emerging in the form of transboundary environmental issues - most prominently, poisonous air pollution wafting across the border from Soviet factories. At risk are Finland's beloved fir forests, which Finns view as a spiritual as well as an economic resource. 

Although they share a common, 700-mile-long border - Finland was a Russian duchy between 1809 and 1917 - there has traditionally been little love lost between these two countries. Three times this century the Finns and Soviets (or their proxies) have clashed with bloody results. The outcome of the most recent confrontation was the grudgingly symbiotic political relationship that has come to be known as “Finlandization”. 

Finland’s last armed conflict with the Soviet Union came during World War I when the Finns joined with Nazi Germany in a vain attempt to recover territory lost in the "Winter War” of 1939. When it was over, the victorious Soviets could have turned Finland into a communist satellite with the Allies’ blessing. Instead, the Finns were allowed to retain their western-style democracy and capitalistic economy, but the Soviets forced them to pay $300 million in war reparations and to join the Soviets in a defensive military alliance against NATO. Over the years the ties binding the two countries have gradually loosened, to the point where, in October 1989, on the occasion of his first visit to Helsinki, Soviet President Mikhail Gorbachev openly endorsed Finnish neutrality. 

Nearly as important to the Finns, however, was Gorbachev's pledge that he would take tough action to stop the noxious gases issuing from the Soviet mining and industrial complexes on the Kola Peninsula, pollution that falls as acid rain in Finland. The massive factories, most run by Soviet military industries, send 700 tons of corrosive sulfur-dioxide emissions across the Finno Soviet border each year - far more than is produced in all of Finland. Much of it falls on Finnish Lapland in the northern third of the country. Forests have been ravaged within a 300-square-mile radius of the factories, extending over the border into the Finnish province of Salla. Another 500 square miles of both Finnish and Soviet forestland have been severely affected, reports the Finnish Green Party, with "clear signs of damage" in an additional 50,000 square miles. In all, an estimated 30 percent of the firs in Finnish Lapland are in danger of dying. 

As the largest exporter of paper products in Europe, Finland is economically dependent on its vast forests. But the trees play an important psychic role as well for a nation whose population was still 90 percent rural only 40 years ago. Even today a great many city dwellers maintain lakeside summer cottages and cherish the natural beauty of the countryside. The result is environmental consciousness elevated to an almost mystical level of intensity. 

"The beauty of nature affected me almost as profoundly as a religious “born-again" experience,” claims Finnish Foreign Trade Minister Pertti Salolainen, describing childhood visits to his family's cottage in the woody archipelago that rings the Finnish coast. “The whole of nature unfolded in front of my eyes. I'm not a religious person, but you could describe me as an eco-pantheist.”

"Finnish Lapland has always evoked images of pristine purity in the minds of those who admire scenic beauty,” writes Pekka Haavisto, a Green Party member of the Finnish Parliament. "But it is threatened by a reality that we have been slow to wake up to: Just across the Soviet frontier, industrial plants on the Kola Peninsula spew three times as much sulfur into the air as does the whole of Finland." Haavisto's tacit acknowledgment that the Finns are not entirely without responsibility for their environmental dilemma is echoed by Jorma Lavrila, editor of the widely read magazine Suomen Luonto (“Finnish Nature"), who admits, "We create one-third of our own pollution problems. “But," he adds, "'two-thirds come from the Soviet Union.” 

While Finns applauded President Gorbachev's promise to address the acid-rain problem, they are now coming to doubt the value of his word. Finland's delicate position vis-à-vis its powerful neighbor has traditionally made Finnish officials reluctant to air their differences with the Soviet Union in public. Nevertheless, Finnish Prime Minister Harri Holkeri reacted angrily last spring when he paid a visit to the disputed Soviet industrial complexes and saw the chimneys belching away as vigorously as before Gorbachev’s promise. 

"Mr. Gorbachev received a rapturous welcome when he visited Finland last year, considering that this is a country with a reputation for gloom," grumped a high-ranking Finnish minister quoted in the London-based newspaper The European. “He gained great credit for his speech praising Finland's neutrality and was liked for his warm manner. Every Finn wishes him well. But if there is one issue that clouds the new Finno-Soviet relationship, it is ecology.”

The problem of Soviet slopover extends beyond the high-profile issue of acid rain: A huge dam under construction near Leningrad is resulting in a large amount of untreated sewage from the city being discharged into the Gulf of Finland. Though the USSR is a signatory to the 1974 Helsinki Marine Environment Commission- "a lot has been done to protect the Baltic on paper,” says Green legislator Haavisto - there is no indication that there will be any delay in the construction of the Leningrad dam.

 In the case of acid rain, the sticking point is not so much Soviet will as Soviet pride. The Finnish government offered to pay the Soviets to employ technology for cutting sulfur dioxide emissions already developed by the Finnish state copper company, Outukemenu. But the Soviets balked, preferring to employ an experimental process of their own, which they said would do the job - though not for five to seven years. Last September they finally relented, accepting a $1-billion loan from Finland, Sweden, and Norway (all of whose forests are affected by the Soviet Union's acid rain) to help pay for the installation of the Finnish anti-pollution equipment. 

"One of the many new features that glasnost has brought to Soviet life is a lively environmental debate,” says Haavisto. "New groups of activists have sprung up, and Greenpeace now has an office in Moscow. But the task facing environmentalists in the Soviet Union is gargantuan. It isn't really clear whether the country as a whole really cares about the environment or the problems that their environmental recklessness is causing us.”

Are the Soviets capable of being good environmental neighbors? As the European country with the longest air, land, and water boundary with the USSR, Finland is a good place to look for an answer to that question. And Finland is having its doubts.

Enrollment Surge in Norway’s Colleges Brings Political Consensus for More Government Aid; Drive to Close Small Institutions Gains

From The Chronicles of Higher Education, January 1992

Overcrowding at the University of Oslo is so severe that officials may "suspend"' all final examinations this year because there are not enough rooms in which to administer them.

The conditions at Oslo are symptomatic of the situation throughout Norway's higher-education system, which over the past four years has experienced close to a 50-percent increase in full-time enrollment- from 95.000 in 1988 to more than 140,000 today. Each of the country's four main public universities--Bergen, Oslo, Tromso, and Trondheim--report it has too many students and not enough space. The universities' efforts to cope have led to a broad-based consensus among political leaders in Europe's northernmost country that swift and substantial increases in support for higher education are essential. 

A Record Increase in Funds 

Last month, following the recommendation of the minority Social Democrat government, the Storting-~-Norway's parliament agreed to a record 11-per-cent increase in funds for higher education and research, to about $1.42-billion, for the coming year.

At the same time, government officials are continuing their campaign to try to reduce drastically the number of small, regional colleges scattered across the country.

Originally designed as an alternative to the university system, the network of 104 regional colleges offers programs of study that lead to the equivalent here of a bachelor's degree.

About 55,000 of Norway's students are enrolled in the regional colleges, and about 10,000 attend private colleges and institutes. The rest-some 75.000-are enrolled at the four universities.

Current government plans, which the Storting has reluctantly endorsed, call for rolling back the number of regional Colleges which remain highly popular—to roughly 30 so that more resources can be focused on the universities.

"The system is under unprecedented pressure, says Jan Toska, executive officer in the university section at Norway’s Ministry of Education, Research, and Church Affairs. Mr. Toska, one of those responsible for preparing the new higher-education budget and pushing it through the parliament, says that about $ 20 million will go for the construction of new facilities at the teeming universities, particularly those at Bergen and Oslo.

Student leaders across the country say the amount to be spent on new facilities is not nearly enough.

"Ever since 1945 the government has been urging everyone to get a higher education, but then when it comes time to pay the bill, there isn't enough money, says Anne Lagoen, the head of the Oslo students' union. "We're fed up.”

No Provision for Library

Ms. Lagoen is particularly distressed that the new budget contains no provision for what she considers the most pressing need of the flagship Oslo campus: a new, conveniently located library. Overcrowding and no place to grow forced the university to relocate its campus from the city center to the outskirts of the capital, with only the law school and the main library remaining downtown. Hence students must shuttle between the library on the old campus and classes on the new campus, in a district called Blinder. Oslo students say the situation is not acceptable.

Mr. Toska of the education ministry promises that the university will get a new library, probably within the next two years. "We are working on it now," he says. He also cautions that planning has to precede expansion. "We can't just throw money at higher education--we have to get our signals clear first," he says.

Student leaders say money alone won’t correct the underlying problem, which they identify as the government’s ”skewed and confused” notions about support for higher education.

"University students in Norway are treated like second-class citizens,” says Signe Knappskog, vice-president of Norsk Student union, which represents the country's university students. “Society doesn't sufficiently value what we do. If it did, it wouldn't be shoving us into grossly overcrowded schools.”

Says Briten Stene, head of the students’ union at Bergen: “It's really a very depressing situation."

Ms. Stene says that classes on the Bergen campus--which was built for 6,000 students but currently enrolls 15,000-are so crowded that sunde fire marshals have suspended sessions in mid-lecture on several occasions because attendance exceeded the rooms' legal capacity. 

An Embarrassment 

Ms. Stene and other student leaders as well as many frustrated academics and administrators - see the overcrowding as clear proof of the government's inability to manage and meet the needs of its higher-education system.

At the very least, the overcrowding is an embarrassment to the government. In its 1990 report, "Education in Norway," the education ministry confidently declared: "The current objective of government policy is a capacity of 105,000 full-time students by the mid-90s." That projection was undone when 45,000 new students streamed into the system over the past three semesters.

"The strong and unexpected growth in the number of university applicants has made it clear that the knowledge base for steering higher education is too weak stated a recent white paper prepared for the government by the Norwegian Research Council for Science and the Humanities, a quasi-public group.

Per Olaf Aamodt, a researcher at the council, is trying to figure out where all the new students came from. According to Mr. Aamodt, the student-population explosion is probably the result of two forces: increased unemployment among young people and the government's own promotion of higher education as something that is good for all Norwegians.

Bitter and Discontented

Mr. Aamodt says the current unemployment rate - 5 percent, very high by Norwegian standards—has probably encouraged more 19-year-olds to go directly into the higher-education system instead of taking time out to pursue other interests, as had been the norm.

As for the government's push for higher education for all, "Education in Norway” stated it this way: "It is the view of the government that higher education should be regarded as contributing to the economic, social, and political life of all regions in Norway.”

Faced with such rhetoric, students can't be blamed for being bitter and discontented, says Mr. Aamodt. He sees as "'especially cynical” the government's implicit encouragement of higher education as a way to help solve Norway’s unemployment problem by continuing to offer high-interest, student-loan packages to all qualified seekers. "In a sense, the students are being asked to pay for the cost of their unemployment by mortgaging their futures," says Mr. Aamodt. "It's a cheap trick.”

"We are in danger of losing a generation," he adds.

Norwegian student leaders see the financial-aid situation as further proof of their oppressed and neglected status. “We find it unacceptable that students are forced to carry such a large burden of debt,” says Bjorn Tore Sund, vice-president for financial issues of the national students union.

Like many student leaders in neighboring Sweden, Mr. Sund supports the idea of paying students a salary to pursue a degree. "That would truly underline the value our society places on our work,” he says. Mr. Sund did not say how he expected Europe’s most sparsely populated nation, which is only now starting to climb out of a deep recession, to pay for such a program.

Mr. Sund and his fellow officer, Ms. Knappskog, are particularly anxious to have the government do something about the growing number of students who are parents. According to unofficial estimates here, one of every five students in the higher-education system is supporting at least one child. 

Tempered Sympathy 

The student grievances get tempered sympathy from Per Nyborg, the general secretary of Norway’s University Council, a quasi-public body that coordinates relations among the universities and between them and the state.

"In the 1970s, when the interest rate on loans was lower than inflation, it wasn’t so hard for students to pay back, he says. "Now, many students don't pay off their loans for 20 or 30 years, and some don't pay them off at all.”

A former official in the education ministry, Mr. Nyborg says that higher education did not receive sufficient economic or political support when he was in the government. That, he says, is one of the reasons why he is now working on behalf of the universities.

"We have to understand that the wealth we have acquired from our North Sea oil should be spent on building the system back up, he says in an interview in his office on the University of Bergen campus.

"We do have to spend more money, much more money on higher education, but that in itself will require a drastic change in attitude,” says Mr. Nyborg.

“Higher education is not yet an intrinsic enough part of our culture.”

Does Your Registrar’s Computer Invade Your Privacy?

From College Monthly, September 1974

Not too long ago, Steven Schwartz, a student at Cortland College in Cortland, New York, regretfully informed his landlord that he could only pay half the forthcoming semester’s rent at a time. Doubting Schwartz’s poverty plea, his landlord promptly telephoned the Cortland financial aid office and asked for a rundown of Schwartz’s fiscal status. Among other things he was told that Schwartz was about to receive a substantial loan; moreover, he was told the exact amount of the loan, its source, and the name of the bank that was floating it. Armed with this confidential information, the landlord confronted his startled tenant with a renewed demand for a full semester’s rent.

The incident was extraordinary only because it was made public.

“People from outside the college community are constantly asking me for information about students,” says Alfred H. Cope, Registrar, and Manager of Student Data Systems of Syracuse University in Syracuse, N.Y. Every working day, Cope, like thousands of other student data personnel across the country, is swamped with dozens of inquiries from equal numbers of self-anointed private detectives. The snoopers include government and corporate recruiters, junk mail company representatives, philanthropic organization personnel, former teachers, and even friends, and relatives; each is anxious to probe some sensitive aspect of the subject student’s past, present, and/or future without the student’s awareness or approval.

Sometimes the requests for information are downright amusing. There was a time when a man asked the Office of Student Affairs at Stanford University for a copy of the psychological test scores of a student whom he was considering marrying. It seems that the fellow wanted to assure himself that his betrothed was of equivalent (or inferior?) intellectual aptitude before it was too late to do anything about it.

But often the queries are anything but amusing. Last summer, for instance, the Northrup Insitute of Technology was visited by a scandal-mongering television crew from Los Angeles that wanted the institute to release the files necessary for an exposé of a Northrup student alleged to be a political protege of actress/activist Jane Fonda.

Fortunately, the institute refused to honor the prying request. If placed in a similar situation, would your college have been as tight-lipped? Would it have insisted that the information it has don you was for your eyes only?

Don’t count on it.

Several years ago the American Association of College Registrars and Admissions Officers (AACRAO) conducted a sweeping survey of record disclosure policies at 100 of its member institutions. The survey showed, amazingly, that most of the sampled institutions did not even have student record disclosure policies. Disclosure of the information requested by an inquiring party was immediately allowed by the data personnel at these institutions if, in their enlightened opinion, such disclosure “served the best interest of the student, the University, or the community”. In other words, if they felt like it.

The results of the AACRAO survey were buried in an appendix of its house organ, College and University. No wonder.

“Do you allow the release of grades and transcripts to students’ former high schools?” the 100 randomly chosen schools were asked, for instance. Ninety-seven percent said yes, they did. Do you immediately release information to philanthropic organizations tendering financial support to students without the students’ express consent? Seventy-six percent said yes, they did. Were academic transcripts made available in like fashion to prospective employers? Twenty-seven percent answered affirmatively.

Perhaps the most startling response came in answer to the following question: “Do you make available to local, state, or federal agencies, such as the FBI, Police, Civil Service, or Military Intelligence, the academic and personal information deemed pertinent to the query without the student’s permission?”

More than 90 percent said yes.

Admittedly, the situation has improved somewhat since that survey. In 1970 AACRAO distributed a brochure to its 900 member institutions in which the college or university data officer (usually a registrar or dean of students) was urged to adopt a carefully considered data banf disclosure policy, and strict guidelines for drawing up such a policy were included therein. As a result, many schools did indeed take prompt action in a concerted effort to “shut the vaults” of their student data banks.

One such school was California Institute of Technology in Pasadena, whose revised record disclosure policy was elaborated in a recent memorandum by CAL’s registrar, William Schaefer. “My personal philosophy and that of the Institute concerning student records and data is simple: a student’s record is essentially his personal property. I have custody of it, but what I do with it is in very large measure determined by what a student wants me to do.” Without the express, prior consent of the subject student, Schaefer, and his staff will allow the disclosure of no more than the academic equivalent of name, rank, and serial number. “All persons, after proper identification, requesting information about students,” Schaefer’s mimeographed fiat reads, “will only be given the following information: 1.Verification of date and place of birth, 2. School or division of enrollment and class dates, 3. Degrees earned, if any, date, major or field of concentration and honors received, 4. Verification of signature.” All rather innocuous stuff. Obviously, if all college and university data personnel subscribed to Schaefer’s “philosophy” there would be no need for students to worry – no need to raise the hue and cry.

But, alas, such is not the case. Today, holes in the academic data dikes continue to spring everywhere, causing irretrievable damage to the student community’s sense of privacy as well as its present and future financial, academic, and political security. Witness the landlord’s sneaky tactics at Cortland.

Students are protected even at schools that purport the AARCAO guidelines. Lex Barnett, registrar at Jacksonville University in Jacksonville, Florida, recently informed this writer that he “subscribes to and generally follows the AARCAO guidelines,” making available to inquirers “only the barest academic data about students.” Nevertheless, Barnett was quick to remind us, that he and his staff “do make individual decisions occasionally and are quite lenient (my emphasis) with those agencies which deal with national securities [sic] and national welfare.” One wonders how Jacksonville’s 1500 students would react if they realized how flimsy the barrier protecting them from Gordon Liddyish government dossier compilers is.

Paul Dresser, vice provost of Michigan State University and an authority on the abuse of student records: “The search by various organizations, congressional committees, and the like for information about students has brought to administrators an awareness that they have not fully realized the extent of the records kept on students, that their policies on maintenance have not been clear, and that their records really have not constituted a system, but rather a series of unrelated and often closely guarded preserves controlled by individuals who have determined both what went into them and how they were used.”

Perhaps the greatest demonstration of the growing concern over the ethical questions involved in student record-keeping came at a conference recently in Tuxedo, New York under the auspices of the Russell Sage Foundation. Numerous experts on student rights participated in the week-long think tank. Led by such student advocates as Michael Liethen, editor of the College Law Bulletin, and Drew Olim, director of the United States National Student Association’s legal rights program, the experts agreed on a set of guidelines and recommendations, which, if adopted by the nation’s institutions of higher learning, should go far towards buttressing the average college student’s right to privacy and his/her unimpeded pursuit of happiness. The guidelines were much tougher than those which AARCAO had endorsed. The think tankers strongly recommended that student data personnel not release any identifiable information from a student’s record “without the written consent of the student based on full knowledge of the intended uses of such information.” Moreover, in order that students may learn something of the parties seeking information about them, data personnel were strongly advised to keep a record of all requests for information in a student’s files, including the name of the investigative individuals or agency, data, alleged purpose of the request and disposition of the request.

In order that students not be blemished by false, erroneous, or malicious information in their files, the conferees urged that “students…be given the opportunity to challenge the accuracy of the information contained therein, to petition for the removal of specific items in the files, and to add written comments or explanations to the file.” It was even suggested that in order to minimize “distrust between the student and faculty” and to allow students to acquire a better knowledge of their academic strengths and weaknesses that institutions “experiment with practices designed to remove the cloak of confidentiality” from faculty recommendations and character evaluations. In the past, as is well known, few institutions have let students see more than the ink of the dossier.

The Sage Foundation’s think tank took a particularly noteworthy stance on the question of responding to subpoenas, recommending that a student be notified immediately when his or her records were served with a subpoena. In the past, few institutions bothered to do this.

It also urged that where a subpoena seeks information likely to chill freedom of expression or organization, a university “has an obligation to quash the subpoena in court.” Still, an academic question is how many universities would actually adopt such a politically “radical” role in defense of their students.

The record is certainly not very encouraging in this respect. In August 1966 the House Committee on Un-American Activities subpoenaed from the University of Michigan, the University of California at Berkeley, and Stanford University copies of known membership lists filed with the universities by campus political organizations to be critical of the U.S. involvement in the Vietnam war. The American Civil Liberties Union subsequently wrote the universities involved, calling this perhaps the most serious breach of academic freedom in years, and urged them to resist in every legal way. Yet none even tried.

In fact, things got worse. In reaction to the disturbances that had become de riguer on campuses four years later, the Pennsylvania State Legislature amended its scholarship and loan acts, authorizing the state’s Higher Education Assistance Agency to “deny all forms of financial assistance” to any Pennsylvania student who had committed “certain behavioral acts and offenses.”

The following March, several thousand institutions across the country were asked to sign a statement obligating them to report the names of any students residing in Pennsylvania who had been expelled, dismissed, or denied enrollment because of disruptive activities or had, to the best of the institution’s knowledge, been convicted of any court of record for felonies or acts of “moral turpitude.” If any institution refused to sign the agreement, it would immediately be denied “approved status” and Pennsylvania students at that school would be denied the state’s financial aid.

The score was a little better this time: about 18 schools balked at signing the agreement, including tiny Haverford College in Haverford, Pa., whose president, John R. Colemen, explained: “We can understand the state asking a would-be recipient directly if he has been dismissed from a college for disruptive activities. What we cannot accept is the idea that the college itself is put in the position of being the reporting agency…[It] would threaten academic freedom and, equally important, academic responsibility.”

That was the good news…Some 1200 institutions did sign. Numerous Pennsylvania students subsequently lost scholarships. (Those institutions that refused to cooperate with the state legislature’s witch hunt offered to replace severed scholarships and loans with their own funds).

Some will argue, of course, that since the members of the campus revolt of the sixties have, by now, been vindicated not once, but several times over, there is no longer need to fear the government intrusions such as those just cited, hence no need to feel apprehensive about how universities would react to them. A cautious few disagree, including Dr. John D. Black, Director of Research and Staff and officer of the Administrative Panel on the Privacy of Information at Stanford. “I have the impression that there is less sensitivity to the problem of privacy in the campus community since the end of the Vietnam War and the era of activism which accompanied it,” he recently told me, “but I think that the danger of privacy invasion remains a serious one which requires vigilance. Despite President Nixon’s recent statement on the subject of privacy, the Federal government has not inspired widespread confidence that it can be trusted to use information it gathers for benign purposes only.”

Will college and university administrators adopt the recommendations of the Tuxedo conference and act in forceful and decisive fashion to protect the privacy and security of their students’ records? Can they bring themselves to part with student records after they have outlived their usefulness rather than them to their cherished university archives? To work up the nerve to refuse government investigators when they ask to see students’ criminal and disciplinary records? Will they become convinced of the necessity of spending the millions of dollars necessary to prevent illegitimate access to their data-crammed computers?

Only your registrar knows, and he’s probably not telling.