Germany’s Great Tuition Fees U-turn
During the past eight years, university tuition fees were introduced into most west German federal states. Yet in a few months, every single state will have abolished them. These facts raise a series of topical questions that cast current English higher education policy in a fresh and revealing light.
Why did Germany introduce tuition fees in the first place? The answer, in short, is that politicians favoured the idea. Self-styled “modernisers” had been advocating tuition fees since German reunification in 1990. Cultural differences between east and west initially hindered this plan, but the main obstacle was a federal law banning tuition fees, which echoed provisions guaranteeing free education in the constitutions of individual states. In 2005, however, the Federal Constitutional Court in Karlsruhe ruled that moderate fees, coupled with affordable loans, would safeguard these constitutional provisions. Within two years, a cascade of laws had swept through most of the federal Länder. The attraction of shifting some of the funding burden to individual beneficiaries was irresistible. So was the compulsion to imitate the changes made elsewhere, lest universities in one’s own state should remain less well funded, and the public purse more stretched, than in neighbouring states.
Seven out of 10 states in west Germany introduced fees in 2006 or 2007; an eighth, Bremen, was prevented from doing so by a lawsuit. Only two – Rheinland-Pfalz and Schleswig-Holstein – resisted the tide completely.
If such unanimity had been maintained, policymakers would now be declaring these changes inevitable. Yet within a single electoral cycle, their long-sought policy was comprehensively overturned. The only state still charging tuition fees in 2014, Lower Saxony, will cease to do so at the end of this academic year.
This raises a second and more interesting question: what immovable object blocked this seemingly irresistible force? The answer, in a word, is democracy. In Hesse, for instance, students protested en masse, a citizens’ initiative collected 70,000 signatures, and the ruling Christian Democratic Union party, fighting for re-election in 2008, reversed course in order to retain power. Tuition fees then unravelled at almost the same speed as they had been stitched up. Those state governments that followed Hesse’s lead in abolishing fees stayed in power; those that refused were removed from office at the next election. The U-turns involved were often spectacular. The conservative prime minister of Bavaria, threatened with a fee referendum, arm-twisted his liberal coalition partner into abolishing fees. He survived the election of September 2013 but his liberal partner, the Free Democratic Party, having announced it would return with a better idea on fees, lost power. In a few months, Germany’s brief experiment with university tuition fees will be over....