e&t a r atechnical education and technology notes series · 2016-08-30 · education and...

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Education and TechnologyE&T a r aTechnical Notes SeriesVolume 5 C] Number 2 C] 2000

Korea's Experiments with Virtual Education

byInsung Jung

EDUCATA"ONT H E W 0 R L D B A N K

A publication of the World Bank Human Development NetworkEducation Group - Education Technology Team

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EDUCATION AND TECHNOLOGY TECHNICAL NOTES SERIES

This series of Education and Technology Technical Notes is a collection of informalpapers, written by experts working with various applications of teclnology for educa-tional purposes. The primary aucdiences for this series inclucle: WVorld Bank staff respon-sible for education projects; educational policymakers and practitioners in developingcountries; and academics in the field. The focus of the publication may include one ortnore of the following:

* How to plan ancd/or implemenit a project using technology for edlucatioi-nal purposes.

* An evaluation of the effectiveness of a method or approach in wllichl technology isused in teaching, learning or professional clevelopment of educators.

* A description of an educational-technology project, along with lessons learned anclrelated costs.

* Defining issues for involving the use of technology in education and recommnendcidstrategies acl Options.

* A rcport of new rcscarcli and development that has exceptional promisc to impacton important ecltcational priorities in developing countries using technolog,y.

This series is intended to draw upon the experiences, views and beliefs of those com-missioned to write the publications, but clo not necessarily represent the views or poli-cies of the Wbrld Biank.

Copies of issues in this publication series can be obtained fromtl:The Ecducationi and Technology Tcam

HDNED, The World Bank1818 H Street, NW

Washington, DC 20433, tJSAPhone: (202) 473-1736

Fax: (202) 522-3233or online at:

http: ,"Nwwxv.worlclldank.org*Development Topics+Edu cation and Training-CEducation and TIechnology

IPerinission to photocopy is granteci with appropriate acknowledgi,ement of the author andthe Eclucation and Technology Team of HIDNED antl the \Vorld Bank.

VOLUME 5 * NUMBER 2 * 2000

EDUCATION AND TECHNOLOGYTECHNICAL NOTES SERIES

A PUBLICATION OF THE EDUCATION AND TECHNOLOGY TEAMHUMAN DEVELOPMENT NETWORK - EDUCATION

THE WORLD BANK

byInsung Jung

Korea National Open University

EditorJoanne Capper

Education and Technology Team

EDUCATION AND TECHNOLOGY TECHNICAL NOTES SERIES, VOL. 5, NO. 2,2000

FOREWORD

The development of the Korean education system over the past 50 years is a well-documented success story.Faced with a devastated national economy and education system after the Korean War and guided by well-

planned systemic educational reforms linked to national development goals, Korea achieved universal primaryand secondary education in the span of little more than a generation. The high priority of educational expansionand the subsequent high levels of national investment in education paid off in the form of increased foreigndirect investment and rapid evolution from a primarily agrarian economy to an industrial economy accompa-nied by an increase in the standard of living for all Koreans.

At the end of the twentieth century, Korea's new challenge is to keep apace with the rapid changes in the globaleconomy. And, like their predecessors, Korean policy makers in the 1990s responded with strategies for thefurther expansion of educational opportunities at the tertiary level, especially in the realm of lifelong learning. Inorder not to be left behind in the evolving economy, the government recognized the urgency of opening up itseducation system. It had already done so with the creation of the Korea National Open University. But, facedwith the need to provide training opportunities for an increasing number of people in a time of financial crisis,the government needed to do more with less. This situation has led to bold sectoral reforms and experimenta-tion with advanced technologies for the delivery of degree programs and lifelong learning opportunities, becauseit believes that these technologies are cost-effective in reaching large numbers of learners with quality educationalprograms.

Preliminary results suggest that cost savings can be realized through the careful design of virtual educationprograms, and that creative alliances with the private sector can produce innovative educational programs. However,the greatest lesson to be learned from Korea's example is that when governments view education as a means to

national development, and support that position with financial and policy commitment, real progress can beachieved.

. .

KOREA'S EXPERIMENTS WITH VIRTUAL EDUCATION INSUNG JUNG

ACRONYMS AND DEFINITIONS

BEIT Bureau of Educational Information and Technology

BK 21 Brain Korea 21 (21: Twenty-First Century)

CTTC Cyber Teacher Training Center

ICTs Information and Communication Technologies

ISD Instructional Systems Design

IT Information Technology

ITESM Instituto Technologico y de Estudios Superiores de Monterrey

KMEC Korea Multimedia Education Center

KNOU Korea National Open University

KRIC Korea Research and Information Center

KVU Korea Virtual University Consortium

MIC Ministry of Information and Communication

MIT Massachusetts Institute of Technology

MOE Ministry of Education

NTU National Technological University

OCU Open Cyber University

OECD Organisation for Economic Cooperation and Development

OUN Open University Network

SNU Seoul National University

iv


TABLE OF CONTENTS

Foreword ......................................................................... iii

Introduction ......................................................................... 1

The Korean Higher Education System ........................................................................ 3

Recent Government Policies and Practices in Higher Education and Lifelong Learning ........................ 5

Innovations at the Korea National Open University ........................................................................ 8

Experimenting with Online Education Delivery: the Virtual University Trial Project ........... ................. 13

Virtual Teacher Training ......................................................................... 19

Design and Cost Issues of Virtual Education ............................. ........................................... 22

Recommendations ........................................................................ 24

Conclusion ........................................................................ 29

References ........................................................................ 30

v


INTRODUCTION

As the demand for higher education and lifelong the country's civil education system and increasinglearning increases everywhere, governments are look- emphasis was placed on personal development anding for ways to make their educational systems more lifelong education. The government also launched aeffectiveandefficient.ThegovernmentofKoreahas national computer education system and thegone even further in its efforts to reform its educa- Educational Broadcasting System, and introduced ation system and prepare its citizens to be leaders in new education tax to fund further investments inthe information age, declaring its goal as no less than education, including a massive effort to develop high-the creation of"Edutopia, an education welfare state level human resources in science and technology.- a society of open and lifelong education, to allow Korea's investment in science and technologyeach and every individual equal and easy access to education alone increased from US$190 million ineducation at anytime" (Presidential Commission on 1975 (14.4% of the total education budget) toEducation Reform, 1997). US$2,077 million in 1995 (19.9% of total

expenditures). The 1980s also saw significantThe birth of Koreas modern education system can improvements in the quality of schools and higherbe traced to the establishment of the Republic in education institutions (Ministry of Education,1948. One of the first acts of the new government 1998a).was to create an autonomous educational structure Over the past decade, Korea has continued to focuswith a universal and compulsory primary education on meeting increased public demand for highersystem. Between 1945 and 1950, the government education and lifelong learning. However, rapidadopted a 6-3-3-4 school system, founded a national population growth and increased enrollment at thenetwork of public universities, and launched tertiary level have resulted in overcrowding and aprograms to train teachers and to eliminate illiteracy shortage of academic staff From 1994 to 1998, athrough adult education. Presidential Commission on Education Reform,

considered ways to make the Korean educationEducation enrollments expanded substantially in the sysemed ans to the learin

1960s nd 197s, an the cuntrys succss in system less rigid and more responsive to the learning1960s and 1970s, and the countrys success in needs of students in the twenty-first century. Inachievinguniversalprimaryandsecondaryeducation 1997, the Commission recommended thefueled remarkable economic progress, leading to establishment of a virtual university, a national creditfundamental political and cultural changes at all bank system, and the use of advanced technologieslevels of Korean society (Presidential Commission in education as possible means for realizing the goalon Education Reform, 1997; OECD, 1998). This of an Edutopia. To support these recommendations,period also saw major reforms in student and teacher the government established the Korea Multimediaeducation; the founding of the Korea Air and Center and the Korea Research and InformationCorrespondence University (now known as the Korea Center.National Open University), the Korea Air andCorrespondence High School, and the Korea The government also is revising relevant laws andEducation Development Institute, an organization regulations such as the Lifelong Education Law andmandated to lead future educational research, the Higher Education Law. Revisions are aimed atdevelopment and reform. improving quality and access to higher education

by introducing market principles and promoting theThe focus in the 1980s shifted to ways to improve creation of new types of formal and non-formal in-the quality of education. Reforms were instituted in stitutions, thus maximizing the possible benefits of

I


Table 1: Number of Higher Education Institutions by Type

H0Eigher Educafitiitton institution8 Piit ic Pria Ttal

Four year universities 26 130 156

Four year teachers' colleges 11 0 11

Two year iunior colleges 15 143 158

Four year polytechnics 8 10 18

Four year distance teaching university 1 0 1Miscellaneous schools 0 6 6Total 61 289 350

(17%) (83%) (100%)

competition and collaboration. To support such ini- tems to meet the specific needs of individuals andtiatives, greater funds have been allocated to the es- industries, and to differentiate themselves from othertablishment of a lifelong education system (up from institutions to be more competitive.US$500,000 in 1996 to US$8.6 million in 1998)and to the development of a greater technology in- Efficiency. The restructuring of all higher educationfrastructure in the college and university system (up institutions should be accomplished in a cost-effec-from US$31 million in 1996 to US$89 million in tive and efficient way, making the best possible use1998). of information and communications technologies.

The government's plans for Korea's education sys- The OECD team, which examined Korea's educa-tem include establishment of an information infra- tion system, remarked that the country's vision forstructure by the year 2005; development of a multi- reform is bold, comprehensive, and well suited tomedia database, and heavy investment and training meet the challenges of globalization and the increas-in the use of advanced technologies. The ingly information-based international economy.government's efforts to encourage lifelong learning Moreover, the government's plans enjoy almostalso have stimulated formal and non-formal higher unanimous support among the people, and few haveeducation institutions to restructure and to use new even raised objections or concerns about thetechnologies to improve their services. program's high cost. Koreans have a strong desire to

see their country become a world leader in the newThe principles guiding reforms in higher education information-based economy. Since the early 1990s,include: the introduction of cutting-edge information and

communications technologies has come to be seenFlexibility. All Koreans should be able to continue as a barometer of national competitiveness and qual-their learning beyond the years of compulsory edu- ity of life, and is being specifically pursued as part ofcation and all types of non-formal continuing edu- a national development strategy (Ministry of Infor-cation should be integrated into the formal higher mation and Communication, 1998). By 1998-99,education system. Koreans owned over 9 million personal computers

(representing a penetration rate of 20 percent of theExcellence. Higher education institutions should entire population) and 4 million Internet users (al-educate and train Koreans to be competitive in the though only 27% were female).twenty-first century.

The remainder of this paper will examine the cur-Diversification. Institutions should specialize and rent state of Korea's higher education system, includ-diversify their entrance examinations, educational ing recent changes and reforms, and will look atprograms, delivery methods and management sys- government initiatives aimed at promoting the use

2


Figure 1: Number of Students in Higher Education by Year

3,800,0002,771,053

2,639,376

2,500,0e02,230 058 2438

C 2,600,000

,500, 1,383

1,000,000

560,000

13 179 3,349

1965 1070 1975 190 1985 1990 1995 1900 1997 199

YEAR

of advanced technologies and training. It will trace teacher education at the secondary level is providedthe impact that Korea's commitment to education is by the colleges and schools of education within thehaving on educational achievement and national four-year university system and the Korea Nationaleconomic growth, and will show how experiments University of Education.in online education suggest that further investmentin virtual education programs could be a cost-effec- Korea has 158 junior colleges, 15 of which are pub-tive way to expand overall access. Policy recommen- lic. Junior colleges provide two-year vocational edu-dations are offered in the concluding section. cation programs to provide students with practical

skills, and often collaborate with the private sectorto develop on-demand curricula, which reflect that

The Korean Higher Education System sector's urgent training needs. Polytechnics offer four-year technical and engineering programs, both dur-

Formal higher education institutions in Korea ining the day and at night for students with jobs. Ko-clude universities, teachers' colleges, junior colleges, rea has 18 polytechnics, including eight public in-polytechnics, a distance education university, and stitutions and the Korea National Open University,miscellaneous schools such as theological colleges and which offers bachelor's degree programs and non-seminaries (see Figure 1). degree courses to adults with jobs through various

distance education methods.Universities provide four-year advanced education,conduct research in specialized academic disciplines, Of Korea's 350 formal higher education institutions,and offer graduate programs. Korea has 156 univer- 83 percent are private and 17 percent are public.sities, 26 of which are public. Most of Korea's 130 The MOE funds between 60 and 70 percent of theprivate universities operate self-financed lifelong budgets of public institutions, and less than 30 per-education and training programs. The eleven public cent of the budgets of private colleges and universi-teachers' colleges provide four-year pre-service ties (OECD, 1998).The Korea National Open Uni-teacher education at the primary level; pre-service versity, Korea's only national distance learning uni-

3


Figure 2: Number of Universities and Collegeso byYear

410

350~~~~~~~~~~~~~~~~~~~~~4 5

300

cc 250

200~~~~~~~~2

15 E0 162

100

50

01s 1 19 1971 14 ls 1 1 100 1997 1908

YEAR

versity receives about 35 percent of its budget from to higher education enrollments. In 1998, 64.1 per-the government. Parents and the private sector play cent of secondary school graduates went on to highera major role In financing higher education in Ko- education institutions, not including enrollmentstea. On average, the MOE has typically funded only at Korea National Open University. Despite the20 to 25 percent of the higher education budget. In increased number of institutions, the rapid growthno other industrialized country do parents and pri- of the student population has resulted in over-vate educational institutions bear such a heavy fi- crowded classrooms and a shortage of academic staffnancial burden for higher education. With the in- and educational facilities (see Table 2). The use oftroduction of market principles into the higher edu- educational technology and distance education pro-cation system, and Koreads recent economic crisis, grams, however, is expected to solve some of thesethis situation is not expected to change in the near problems.future.

Non-formal higher education institutions includeSince the mid-i1970s, the number of institutions lifelong education and tra-ining centers affiliated withoffering formal higher education in Korea has in- four-year universities, private independent lifelongcreased dramatically, as have the student popula- education centers, training centers within corpora-tion, academic staff and educational facilities. Fig- tions, government-supported training centers (suchures 1 and 2 show increases in student enrollment as inservice teacher training centers and inserviceand the number of tertiary institutions. By interna- training centers for civil servants), and adult train-tional standards, KoreaL ranks very high with regard ing programs offered by schools and non-govern-

4


Table 2: Student/Instructor Ratio by Type of these annual evaluations has already led to structuralHigher Education Institution (1998) changes in many higher education institutions.

Students Increasing Autonomy

Tye of Instituton er instructor To respond to the needs of Korea's increasingly het-Four year universities 3. erogeneous population, the government is decentral-Four year teacher's colleges 30.3 izing some decision making power to the institu-

Four year polytechnics 72.6 tions themselves by encouraging them to diversifyTwo year junior colleges 73.4 their educational approaches and curricula. Toward

this end, the government has begun to promote the*Excluding Korea National Open University autonomy of colleges and universities, a move, which

represents a significant change. In the past, Korea'smental organizations. There are approximately educational system was highly centralized, with the200,000 non-formal education institutions in Ko- national government fixing enrollment quotas andrea, including 63,000 private independent lifelong influencing curriculum development, budgeting, andeducation centers. With the exception of certain other academic affairs of public and private institu-government-supported training centers, the govern- tions alike.ment provides no financial support to these non-formal institutions. In 1999, however, the MOE al- Since 1994, tertiary institutions have been able tolocated 1.1 percent of its budget to practices in the choose a semester system, to determine the numberfield of lifelong education, and plans to increase this of credits required for graduation, and to set stu-amount every year (Open University Network, dent quotas. In 1996, the government granted au-1999). tonomous management rights to seven of the nation's

highest-ranking universities. The following year, thecomprehensive entrance examination administered

RECENT GOVERNMENT POLICIES by individual universities was abolished and replacedAND PRACTICES IN HIGHER EDUCA- by other selection criteria such as high school achieve-TION AND LIFELONG LEARNING ment, scholastic achievement test scores, and inter-

views thus providing broader range for colleges and

The Korean government has responded to the grow- universities to select students.ing need for lifelong learning through policies aimedat making higher education institutions more flex- The Special Budget Act of 1999 has contributed toible, competitive and diverse. Several of these poli- this autonomy as well by permitting higher educa-cies are examined in this section. tion institutions to solicit funds from different

sources and to invest those funds in specific pro-

Introducing Market Principles gram areas. Although it is too soon to tell, it is hopedinto the Funding Process that this Act will stimulate greater competition

among colleges and universities seeking to raise funds

Over the last decade, the government has imple- from the private sector as well as leave them bettermented a competitive funding mechanm fr al positioned to offer diversified and specialized pro-mented a compeutitve funding mechanism for all ppp

tertiary institutions, which has taken on greater im- grams, and to experiment with new approaches toportance in the face of decreased fiscal resources in education delivery such as virtual education.'light of Korea's recent economic crisis. Funds aredistributed on the basis of annual evaluations con- 'Virtul education is any 'form ofdistance education in whichducted by a body comprising members from a num- an advanced information and communication technologyber of professions. In these evaluations extra points such as the Internet or a teleconferencing system is used as theare given to universities which make effective use of main instructional and communicational tool" (Jung elinformation technologies (IT). The importance of Leem, 1998).

5


Increasing Emphasis On Quality (KRIC) and Korea Multimedia Education Center

As a result of greater autonomy and an increased (KMEC) in 1997.emphasis on competitiveness, colleges and universi- The KRIC has used government funds to build aties in Korea have begun to institutionalize quality number of digital libraries using its own server andand management systems, and the government's use network system, to which all higher education insti-of evaluations to make decisions regarding distribu- tutions are now linked As a result, education pro-tion of funds has further accelerated quality con- fessionals across Korea' now have access to onlinecerns. With an increased budget for improving qual-ity (from about US$330 million in 1993 to journals, research papers, databases and other aca-ityS(from1, bout0US1330 million in 1996 e g eto hdemic materials. The KMEC supports the imple-US$1,014 million in 1996), the government has mentation of virtual education programs in primaryevaluated all of Korea's higher education institutions and secondary schools and provides online teacherbased on criteria measuring the quality of the ser- training. The KMEC also o erates its own servervices provided. One important criterion has been trandng he KM Ed a variety of sediarthe institutions' establishment and use of informa- system and has conducted a variety of multimedia-ton infrastructure, related activities, including researching the current

use of technology in schools, implementing tech-

The government has also focused on the improve- nology initiatives, developing online learning mate-ment of research activities, expanding research sub- rials for teachers, students and parents, helpingsidies from US$27 million in 1993 to US$90 mil- schools create their own homepages, and establish-liodin 1996. AS27 pos-o itor and90 mil- ing and providing a comprehensive educationallionwanroue in 1996,Apost-doctoratetri and research Internet service called EduNet. The two centers weresystem was introduced in 1996, and research activi- united in April 1999 to create the Korea Educationties and the publication of study results have been and insArch Informate the or Ernencouraged and formally included in the perfor- and Research Information Servilces. Other govern-mance evaluations of academic staff. In 1999, the ment initiatives include the Virtual University Trialgovernment launched BK21 (Brain Korea 21) ini- Project, discussed in detail later.tiative to promote research activities among univer- With financial support from government and dona-sity faculty and graduate students, to develop high tions fiva t com Koreancege andquality curricula, to lead to structural changes in tions from private companies, all Korean colleges andhigher education institutions, and thus to nurture universoties are now connrcted to an online educa-world class leaders for the 21"' century. A total of tion and research network and provide accounts forUS$ 1.2 billion is allocated for this initiative from students and staff. Since 1998, when the hardware1999-2005. system of higher education institutions was up-

graded, increased emphasis has been placed on the

Encouraging The Use Of Advanced use of technologies for education and research, andTechnology a videoconferencing system is now being used for

Tech vology communication among different campuses and to

The government believes that increased use of tech- expand or make more efficient existing educationalnology will achieve its aim of a more flexible and programs.responsive higher education system. To promoteresearch and development in the use of advanced Universities and colleges have been attracted to in-technologies in education, the Ministry of Educa- formation technologies (IT) because they believe thattion and the Ministry of Information and Commu- distance education and the use of IT in educationnication have provided special research funds. Al- provide a less expensive way of expanding access thanthough the promotion and use of technologies in conventional classroom teaching. However, high-education and research has been a national policy quality distance education and the effective use ofsince 1988, it was not actively implemented until IT require careful planning and implementationthe establishment of the independent Bureau of strategies, systematic design and program develop-Educational Information and Technology (BEIT) in ment, and substantial student support.1996, the Korea Research and Information Center

6


Promoting Lifelong Education increased competition for students among highereducation institutions, which has driven them to

While the funding allocated to lifelong learning rvd oeafral adfeil rgaso

programs in the past has represented less than 0.5% higerq increased and f or tcof toal MO expediturs, th govenment higher quality; (IV) an increased demand for tech-

of total MOE expenditures, the government nologically literate employees in the workplace; (v)increased this to 1.1%in 1999an pn to dvte increased incentives from the government to use theeven more funds to distance education in the future. , national information superhighway system to pro-Although the Korea National Open University is still vide quality higher education services; and (vi) in-

the only four-year, degree-granting distance learning creased competition for financial support from theuniversity in the country, the revised Lifelong government.Education Law passed in 1999 now allows privateinstitutions to establish similar degree-granting Collaborating with Foreign Institutionsprograms. The Higher Education Law will beamended to specify the necessary criteria. The Korean government has actively sought advice

from external educational institutions and has en-Since 1997, individuals studying at accredited higher couraged higher education institutions in Korea toeducation institutions have been able to accumulate collaborate with each other and with more estab-course credits in an account and apply them to lished distance learning universities and training cen-appropriate certificates or degrees. This program, the ters in other countries. Joint research with profes-

National Credit Bank System, also accepts units sionals from these foreign institutions is encouragedearned in private and business sector programs and and supported by the government.a range of other formal and non-formal institutions.In 1998, with an eye towards further qualitative For example, in the area of continuing engineeringimprovements in lifelong education and training, education the government has supported the formalOECD indicated the need to develop appropriate observation and analysis of distance education mod-educational and training standards at the higher els employed by Stanford University, the Massachu-education level and in industrial training schemes setts Institute ofTechnology (MIT) and the Nationalto ensure the quality of the units earned through the Technological University (NTU). Some NTU pro-Credit Bank System. grams have been used to train employees in several

Korean companies, and some Korean higher learn-The number of lifelong education centers affiliated ing institutions have collaborated with the Worldwith four-year universities increased from 48 in 1993 Trade Virtual University and the Western Governors'to 116 in 1996. These centers create on-demand University. Korea National Open University main-courses and employ experts from industry to pro- tains close relationships with the Open Universityvide practical courses to their students. Since the of the United Kingdom and a number of open uni-government initiated the Virtual University Trial versities in other parts of the world, but specific col-Project in early 1998, more than 40 percent of higher laborative measures - such as program and facultyeducation institutions have offered virtual education exchanges, and credit transfers - have been takencourses using the Internet, CD-ROM, cable TV or rather slowly, principally due to language differencesvideoconferencing. About 25 percent of the institu- and Korean universities' lack of experience in col-tions that offered virtual education courses in the laboration.fall of 1998 provided lifelong learning courses toadults and professionals. The policies for higher education reform examined

here are only the latest in a long series of measuresThese changes are direct responses to the increased aimed at improving the Korean tertiary system, butsocial demand for access to higher education and they are unique in at least two respects. First, Korealifelong learning, and also reflect: (i) the public's is at a crucial transition in its development and seescontinuous need for retraining; (ii) increased public comprehensive reform of its education system as ademand for equitable access to higher education; (iii) critical step in educating its citizens in creativity and

7

KOREA'S EXPERIMENTS WITH VIRTUAL EDUCATION * INSUNG JUNG

leadership. Second, as the increasingly globalized in recent years; in 1999, more than 40 percent ofeconomy is propelling Korea toward more open new KNOU students already had a college certifi-markets and deregulation, the technology revolution cate or a bachelor's degree.is creating greater pressure for the provision of learn-ing opportunities for people of all ages. Higher edu- KNOU currently serves more than 300,000 studentscation institutions must play a major role in meet- nationwide and matriculates around 150,000 newing these economic and technological challenges. students every year. It employs 670 full-time staff

(including 176 academics), 2,670 part-time faculty,Accordingly, Korea's education system has already and 500 administrative employees. Thirteen regionalmade several big changes in response to the study centers located in the larger provinces and 31government's policies for flexible lifelong learning local study centers in small cities provide instruc-and to address social and economic challenges. tion sessions, individualized tutoring and other sup-

port services such as assistance with applicationforms. In addition to traditional face-to-face instruc-

INNOVATIONS AT KOREA NATIONAL tion, KNOU utilizes print, cable TV, radio, audio-OPEN UNIVERSITY cassettes, videoconferencing, the Internet and PC

networks.As the use of IT in education and the rise of distancelearning programs become more prevalent in the A typical three-credit course at KNOU uses a basicconventional universities, the Korea National Open textbook, a series of twenty 30-minute video, radioUniversity (KNOU) has been forced to implement or audiocassette programs, eight hours of either face-new development strategies to remain competitive to-face instruction or lectures delivered viawith them. The university has also faced new chal- videoconferencing, one assignment, and a final ex-lenges as a result of Korea's economic crisis. This sec- amination. With an average of 1,000 students en-tion examines the changes in KNOU's development rolled in each course and one professor assisted by apriorities, IT strategies and funding approaches, and few part-time instructors, the course delivery sys-their impact on its ability to deliver quality distance tem at KNOU is highly standardized. However, theeducation and lifelong learning programs. minimal learning support which this implies has re-

sulted in high dropout rates for first- and second-Korea National Open University (formerly, the Ko- year students (Daniel, 1996); furthermore, in sev-rea Air and Correspondence University and Korea's eral courses, roughly 90 percent of students dropfirst distance learning institution) was founded in out during the first year due to dissatisfaction with1972 as a branch of the Seoul National University. program quality (Park, 1995).It initially offered a two-year junior college programthrough distance education mode to 30,000 students Since increasing numbers of KNOU students arewho were unable to attend traditional universities. coming from conventional institutions where theyThe universiry became independent from the Seoul experienced greater learner support and interaction,National University in 1981 when it began to offer there is great pressure for KNOU to improve thea five-year university program serving 150,000 stu- quality of its services. KNOU has responded to thisdents. In 1992, it added the standard four-year pro- demand by introducing tutoring services, greater usegram, and its cnrollment increased to 300,000 of interactive technologies, and a course evaluationamounting to roughly 11 percent of Korea's overall system in -which students provide feedback on thehigher education enrollments. course textbook, TV programs and other course

materials and media.KNOU offers instruction in 18 fields of study andnow seeks to enhance the skills of professionals At the government's request, KNOU began operat-through post-graduate education. The percentage of ing a cable TV channel in 1995. Although the an-KNOU students who have already attended other nual operating cost of this channel absorbs 10 to 15higher education institutions has been rising steadily percent of the university's budget, only 8 percent of

8


KNOU's students actually watch the programs, since self from conventional universities by being on thethe network does not reach all parts of the country, cutting edge in its use of advanced technologies forand program viewing is not required for course service delivery. Its major strategies are discussed incompletion (Hong, 1998). This has raised concerns this section.at KNOU regarding the cost effectiveness of usingthis expensive technology as a supplemental medium Development ofan online database andand the return on investment of new technologies multimedia digital libraryin general. Since its inception in 1992, KNOU's text-based

UNO habenhrdit es$. eo cri- database has grown to include supplementary learn-sis.OIts total budgeen haropd from USby8 Ka micrion ing materials for more than 300 courses (60 percentsis. Its total budget dropped from US$45.8 million of all courses offered by KNOU). Its collaborationin 1996 to US$42.8 million in 1999, and enroll- with three nationwide PC network systems, also ini-ments declined from 215,788 to 190,694 between tiated in 1992, enhanced the university's ability to1996 and 1998 (table 3). Accordingly, KNOU has provide services and materials to students nation-become extremely sensitive to cost issues, especially wide and facilitate instantaneous student-teacher andsince 65 percent of its budget comes from student student-student interaction as well.tuition (compared to only 30 to 40 percent for otherpublic universities). As part of a drive to reverse the With technical and financial help from IBM, KNOUuniversity's declining enrollments and rising drop- established a multimedia digital library on theout rate, KNOU opened a public relations depart- Internet in 1997. This initiative digitized and inte-ment to promote the university to prospective stu- grated all of KNOU's TV, radio and cassette pro-

dents. The university has also taken steps to improve grams in 1998 to provide for full multimedia ser-vice delivery on the Web. The digital library systemcost effectiveness by implementing a project to mea-

sure the return on investment of various advanced has two main functions: authoring and instruction.technologies. Using the authoring function, professors or instruc-

technologies. tional designers can create a standardized Web-based

Table 3: Changes in KNvOU's Budget course, which integrates digitized KNOU TV or ra-and StudentgEnrosment dio programs, graphics and text. The instruction

# of function allows students to access the digital libraryTotal # of students on from any place at any time via the Internet, watch

budget rgisered leave of the university's TV or radio programs, read supple-Year (US$) students absence mentary notes from professors and interact with pro-

fessors. KNOU began adding its educational cable1996 45.8 215,788 110,909 TV programs for lifelong education to the digital

million library system in 1999.

Increasing interaction through videoconferencing

million , 1 As the result of a 1995 government-funded researchproject into possible uses of the information super-highway, KNOU has introduced an interactivevideoconferencing network to enhance service de-

Technology Strategy livery to all the university's regional and local studycenters nationwide. This initiativc has connected 13

KNOU's technology strategy seeks to provide more study centers with the main campus, has introducedflexible programs for the university's increasingly interactive tutorial sessions, and has been used todiverse student body, to improve overall quality of facilitate meetings and open discussions among stu-service, and to enhance communication between students, faculty members and general citizens in dif-dents and faculty. KNOU hopes to differentiate it- ferent parts of the country. The system has also been

9


used to deliver non-degree programs such as teacher and the development and evaluation of Web-basedtraining. courses; it also conducts staff development training

seminars and allows the other member universitiesIn 1998 this system, which uses a commercial Ti to use its production facilities and videoconferencingline' was used to deliver instruction for more than system. Over 2,000 students from KVU's member74 of the 288 KNOU courses requiring eight hours universities Cook virtual courses in 1998, and KVUof face-to-face instruction, cutting travel costs for began developing non-degree, lifelong learning vir-KNOU professors and part-time lecturers who tual deselor non-dents ing ler thewould otherwise have to provide face-to-face lectures tual courses for non-students in 1999. Under thein regional study centers. The new system has also Virtual UniversityTrial Project, KNOU students cancut costs for faculty and directors' meetings. Indeed, now obtain credits for Web-based courses offeredthe videoconferencing system has proven to be one by other KVU universities as well.of the most successful uses of the national informa-tion superhighway as it has significantly enhanced Using an integrated Web-based support system tointeractivity among students, faculty and staff (Rha improve student serviceset al, 1996). In 1997, KNOU launched a self-financed upgrade

of its 12 year-old computerized administration sys-Using cable TVfor cifelong education tem. The new system includes databases of studentKNOU's cable TV channel, the Open University and staff records, credit files, syllabi, and other ad-Network (GUN), was founded in September 1996 miitrtv an.dctoa eod.Uigtessand carries programming for students, related to minstratve and educational records. Usmg the sys-KNOU's regular degree courses, and lifelong educa- tem, which is also linked to the database of onlinetion courses for the general public. About 40 per- learning materials and library services, students maycent of GUN's broadcasting time is devoted to life- review their grades, apply for a transcript or certifi-long education courses, including such topics as elec- cate, download course materials, reserve books ortronic commerce, business management, the infor- articles in the library and even receive academic coun-mation society and education, Korean culture, us- seling online.ing the Internet, and English language. OUN hasalso been transmitting on satellite TV since March1999, allowing it, without a high increase in trans- Financing And Costing Strategiesmission costs, to reach remote areas, which do nothave cable TV access. The Korean government, private corporations and

KNOU itself finance KNOU technology and equip-Collaborating with other universities ment. Between 1992 and 1994, KNOU receivedIn February 1998, KNOU joined the MOE's Vir- $250,000 from a commercial PC network companytual University Trial Project and the Korea Virtual for the development of a PC network database andUniversity Consortium (KVU), under which matched these funds with $250,000 of its ownKNOU and eight other universities collaborate in money. To generate the funds needed for databasethe design of Web-based virtual courses. KNOU maintenance and revision, KNOU reduced the

provides consulting services to the faculty of the other amount of printed materials provided to students,eight universities in the areas of instructional design requiring them to print their own copies from the

online database instead (Table 4).

Videoconferencing systems were established in 1995with funds from the Ministry of Information and

2A Ti line is a digital carrier of 1.544 mbps (megabytes per Communication (MIC) as part of the national in-second) data range, or a general term for a digital carrier formation superhighway project. A total of US$1.6availableforhigh-volume voice ordata trafficandcompressed million (with US$1.2 million coming from MICvideo. and the rest from KNOU) was invested in equip-

10


Table 4: Contribution Source andAmount by Type of Technology

FundingSource

Type of Tech (Date) KNOU Govt. Private

1992 $ 150,000 0 $ 150,000PC Network

1993/94 $ 100,000 0 $ 100,000

Video conferencing 1995 $ 400,000 $ 1,200,000 0

ment to connect KNOU's regional study centers with dent ratios (20:1), providing facilitation training forthe main campus. instructors, and instituting requirements for greater

online involvement. Still, cost is a major issue andThe cost of providing instruction for a course of all of these suggestions would increase costs for the1,000 students has proven to be significantly lower, university or the students. Other strategies whichsince the implementation of the videoconferencing would not significantly increase costs could include:system -about $15,000 compared to $28,000 for (i) providing standardized forms for online feedback;the face-to-face instruction necessary without the (ii) using student assistants who will voluntarily pro-system. In 1998, 74 courses used the vide feedback to theirpeers; and (iii) organizingcol-videoconferencing system, leading to savings of laborative online learning teams where students canUS$1 million. These savings were then used to pay provide feedback to one another.for the system's transmission fees and operationalcosts. KNOU spends an average of US$13,000 to create

and deliver a three-credit Web-based course to 30Increasing interactivity students. This is relatively low compared to the costsEach of KNOU's 13 regional study centers has a incurred by other institutions, since KNOU is ablecomputer lab with 20 to 30 computers. Each of these to draw upon existing distance education materials,labs serves an average of 20,000 students, which including CD-ROMs, printed textbooks, and videotranslates to only one computer for every 1,000 stu- and audio clips stored in its digital library. A typicaldents. Although KNOU reports about 120,000 con- three-credit distance learning course for 1,000 stu-nections per month, interactivity is much lower than dents - consisting of a textbook, TV programs andexpected. Possible reasons for this include the short- face-to-face instruction - costs about $80,000 toage of computers, slow feedback, inadequate facili- produce and deliver, but this cost is much lower whentating skills on the part of instructors, and a student radio is used instead of TV (see Table 5).culture of passive involvement. One study, for ex-ample, showed that although most students use the The average cost per student is significantly higherPC network to download and exchange study mate- for Web-based courses than for other distance learn-rials, few students use it as a communications tool ing courses. The average cost per student for a 16-(Shin, 1999). And although half of KNOU's stu- week Web-based course for 30 students is US$434,dents access the computer network system from their while the average cost per student for a traditionalhomes or places of work, students using the network 16-week distance education course for 1,000 stu-at home pay high telecommunications fees for slow dents is only US$80. Still, this vast difference in costsconnections, which discourages active involvement is offset by the fact that the dropout rate for KNOU'sin online discussions. traditional distance education courses is around 60

percent, whereas the university's Web-based coursesJung & Leem (1998) suggested that online commu- have dropout rates of less than 10 percent. More-nication could be increased by lower instructor-stu- over, 70% of students taking Web-based courses have

11


Table 5: Cost Comparison: Standard Distance Education Courses versus Web-based Courses

cost per

Standard DE 1,000 $80,000 $80 60% 40% $200course (TV)

Standard DE 1,000 $35,000 $35 60% 40% $87.5course (Radio)

Web-based 30 $13,000 $434 10% 90% $482course

expressed satisfaction in their course evaluations, cit- are funded by the Small and Medium Businessing in particular the interactive learning support they Training Promotion Center; and the Koreanreceive from online tutors and instructors. Language Association assists in the development of

language education programs for foreigners. As theThese results suggest that KNOU's efforts to im- needs of these programs' target groups are identifiedprove the interactivity and quality of distance edu- in cooperation with relevant institutions, thesecation by introducing online technology have suc- programs have been very successful with mostceeded, but at high costs. To explore ways to reduce students and private sector partners because theircosts without diminishing quality, KNOU has content reflects the practical training needs of theirlaunched a project to examine and compare the re- audiences.turns on investment for different distance educationtechnologies. The results of this project will be used KNOU's succcss shows the potential of technologiesto formulate policy strategies to increase cost-effec- to meet the diverse educational and training needstiveness and accessibility. KNOU is also consider- of the Korean people through the comparativelying the possibility of introducing a differentiated inexpensive distance education mode. Tuition for atuition policy, based on the amount of learning sup- 90-hour Korean language course at KNOU is $400,port provided in each course.3 compared to $800 at conventional language

institutions. A 60-hour distance learning course forProviding low-cost lifelong education top business managers costs $250 at KNOU,KNOU's Center for Lifelong Education was compared to $1000 elsewhere. KNOU's 60-hourestablished in 1997 and uses advanced technologies teacher training course costs $60, compared to $80such as videoconferencing, cable TV, and the Internet at conventional training centers. These low costs,to provide inservice teacher training, training for coupled with the flexibility that distance educationmanagers of small- and medium-sized businesses, provides to working professionals and Korea'sKorean language education for foreigners and other geographically scattered population, have attractedprofessional training programs. growing numbers of students and has contributed

Many of these programs are developed and deliveredin collaboration with external partners. Inservice 3KNOUstudents currentlypay US$100persemester, regard-

teacher training programs are developed in less of the number of courses they take or the types of media

collaboration with the Provincial Teacher Training used in the courses. This is about 1/13 of the tuition in a

Centers; TV programs to train top business managers public university and 1/20 of that in a private university.

12

EDUCATION AND TECHNOLOGY TECHNICAL NOTES SERIES, VOL. 5, NO. 2, 2000

to KNOU's strong reputation as a university for the still the country's only single-mode, degree-grant-working public. ing distance learning university.

Seeking long-term cost-efficiency by improving In 1998, the government established the two-yearself-directed learning skills Virtual University Trial Project, which was designedAs computer network technologies are introduced to: (i) encourage partnerships and the sharing of ex-into distance education, students must develop stron- isting resources among universities and the privateger learning management and self-directed learning sector; (ii) create a cost-effective virtual educationskills to compensate for the lack of direct contact system without diminishing quality; (iii) develop andwith instructors. Through its experience in using implement Web-based courses or other types of dis-these technologies, KNOU has learned that self- tance education courses; (iv) identify appropriatedirected learning skills must be taught to help stu- policies and standards for running a virtual univer-dents manage their schedules, conduct research, en- sity; and (v) share experiences. During its two-yeargage in online discussions and regulate cognitive trial period, the MOE revised the Higher Educa-processes in an independent learning environment. tion Law to accept private virtual universities as partAs orientation sessions alone are not sufficient to of the formal higher education system. After thishelp students acquire these skills, KNOU plans to period ends in the year 2000 and detailed criteriaoffer a one- or two-credit course to help students for establishing a virtual university are specified indevelop these skills to reduce KNOU's high first- the Higher Education Law, Korea is expected to haveyear dropout rate and to increase the cost efficiency several private distance learning or virtual universi-of the distance learning system. ties which use advanced information and commu-

nications technology.

A total of 65 universities and five companies have

EXPERIMENTING WITH ONLINE participated in the Trial Project, resulting in the cre-EDUCATION DELIVERY- THE VIRTUAL ation of 15 virtual entities (see Table 6). Eight ofUNIVERSITY TDEAL PROJECT these universities joined independently, while the five

companies and the other 57 universities formed sevenconsortia. The eight independent members each es-

Until recently, KNOU was the only distance learn- tablished a virtual campus within their own univer-ing university in the country. But as Korea opened sity systems, while each of the seven consortia estab-its education market to the rest of the world in the lished a virtual institution for their members to share.mid-1990s, several foreign education institutions- All 15 entities have implemented programs usingparticularly from Canada, the United States, Aus- various information and communication technolo-tralia and the United Kingdom - have begun to gies (ICTs) such as satellite broadcasting,develop distance education programs for the Korean videoconferencing, video-on-demand, the Internetpeople, and increasing numbers of Korean students and Intranets.are now turning to these foreign universities.

Objectives and StrategiesIn response to this challenge from foreign competi- The unives and companiestors, the Korean government and the country's higher Thunvriesadcmnesptcptngnteeducation Knsgonmentoand the Virtual University Trial Project have three principalHieducation iioaw the need torer amen e objectives: reducing costs, differentiating themselves

from other universities to attract more students andcation institutions and the private sector to estab- increase enrollments, and improving quality through

lish degree-granting virtual universities using infor- increased interactivity. This section highlightsmation and communications technology. Although some of the technology and financing strategies thatthe Higher Education Law allowed conventional project participants have developed to meet theseuniversities and the private sector to offer virtual objectives.courses to their students and the public, KNOU is

13


Table 6: Participating Universities in the Virtual University Trial Project

Pti;at '0 Name UiL

8 Conventional Universities

1. Seoul National University provides Internet courses for students and snuvc.snu.ac.krlearning programs for the public.

2. Dongguk University established inter-disciplinary cyber program called cyber.dongguk.ac.krthe School of Cyber Creation.

3. Sogang University provides virtual courses to its students and lifelong multinet.sogang.ac.kreducation courses to adults (including foreigners) using theInternet and satellite.

4. Gyungsang University provides Internet-based online courses to its vu.gsnu.ac.krstudents.

5. Chungnam University provides Internet-based online courses to its business.chungnam.ac.krfull- and part-time students and adults.

6. Foreign Language University provides cyber foreign language courses www.hufs.ac.kr/cyberusing the Internet and synchronous technologies.

7. Sookmyung Women's University provides retraining courses for snow.sookmyung.ac.krprofessionals such as pharmacists and TESOL experts usingthe Internet.

8. Yeungjin Community College provides practical courses to the www.yeungjin-c.ac.krcommunity.

7 Consortia

1. Korea Peninsular Virtual Campus is 5 conventional universities that www.inje.ac.kr/cvberformed a consortium to provide virtual programs on informationtechnologies for adults

2. Korea Virtual University Consortium is comprised of 8 conventional kvc.chollian.netuniversities and KNOU, and provides virtual courses for (www.knou.ac.kr)member students.

3. Korea Online Virtual University is comprised of 4 conventional www.kovu.ac.kruniversities and provides practical courses for adults registered in thelifelong education centers of member universities.

4. Korea Universities Virtual Education Consortium consists of 22 www.chosun.com/classconventional universities and a newspaper company and providesvirtual courses using satellite and the Internet to member students.

5. Bool Virtual University consists of 4 conventional universities in the bool.tit.ac.krSouthern region of Korea and provides graduate degree programs formember students, teachers and public officers.

6. Open Cyber University consists of 12 universities, a newspaper www.ocu.ac.krcompany and a network systems integration company. It providesInternet courses for students of member universities and lifelongprograms for the public.

7. Seoul Cyber Design University consists of 2 universities that specialize cyber.hongik.ac.krin art design and provides cyber art design courses for member students.

14


Three major strategies have been found to help re- As a result of Korea's recent economic crisis, higherduce costs for institutions offering virtual education education institutions have suffered the effects ofprograms: maximizing the use of existing technolo- financial cutbacks in government support and a sharpgies, sharing physical and human resources, and pri- decrease in student enrollments, resulting in drasti-vate financing. Since the institutions participating cally lower income from student fees. Private col-in the Virtual University Trial Project received no leges and universities have been the hardest hit, asinitial funding from the government, they all had to more than 70 percent of their budget is derived fromprovide thcir own grants to establish the virtual pro- student fees. This shortfall has been further com-grams.4 To minimize investments, these institutions pounded by the fact that an increasing number ofused existing hardware and network systems, and Korean students are beginning to take virtual coursesmost formed a consortium to share costs and re- offered by foreign higher education institutions.sources. In line with the national technology imple-mentation policy for higher education, most colleges As higher education institutions must now scrambleand universities have also established a solid server to compete for new students and retain those alreadysystem and are linked to the national educational enrolled, the cost effectiveness of virtual educationcomputer network or the national information su- makes this and other programs involving advancedperhighway. technologies more attractive. Attracting students in

today's competitive market, however, requires moreSome universities have established videoconferencing than just advanced technology and differentiation.systems and are using satellite channels to deliver The quality of educational services must be very high,courses. Collaborative development of virtual courses and online technology must continue to improveand team teaching among professors from member the level and quality of interactivity, which has of-institutions is encouraged, although these types of ten been poor in conventional classroom-taughtcollaboration have been limited so far because there courses.is little or no systematic support for this type of col-laboration or simply because professors prefer to In most conventional universities, one of the biggestwork independently. Production facilities and com- challenges to the use of educational technologies isputer and network systems (including those of pri- resistance of the academic staff. Many academicsvate companies) are shared extensively, however. believe that technology is useful only for informa-

tion transmission, but that human contact duringAlthough the government provided no direct finan- class is essential for building higher-level knowledge.cial support to participating institutions at the be- Most institutions have sought to improve the qual-ginning of the Trial Project, it did give extra points ity of courses by providing training, adopting a con-when determining its budget allocations to institu- cept of instructional systems design, and setting uptions experimenting with new technology applica- monitoring mechanisms. But unfortunately, only ations. Most institutions charged its students tuition few institutions have recognized that quality virtualrates ranging between $40 and $50 per credit, much education requires an instructional systems approachlower than the average $80 charged for conventional with well-connected components to help studentscourses. This low tuition policy - which is based experience meaningful online learning.on the assumption that even though virtual programsare expensive to develop, they are more cost-effec- To help academics better understand the nature andtive in the long run - is aimed at attracting more benefits of virtual education and thus help thempeople to virtual programs. build effective virtual course design skills, most of

the Trial Project's participating institutions have pro-vided training that emphasizes the effectiveness ofvirtual education. Some have gone a step further,

'In 1999, however, the Korean government granted providing faculty with on-demand technical assis-$500,000 to those institutions it deemed to have provided tance and continuous training in the design andhigh quality virtual programs with strong reputations. management of virtual courses.

15


Some educators are concerned that new technolo- national university integrated virtual programs intogies are not being used in the best possible way. Some its educational system to offer more choices to itsinstructors, for example, see network technology students and to open its educational services to themore as a means of overloading students with read- public at large.ing materials and database links than as a tool topromote interaction. In other cases, expensive mul- Open Cyber Universitytimedia materials went unused because they exceeded The Open Cyber University (OCU) is an examplethe capacities of the student hardware and network of a virtual university with an efficient organizingenvironments needed to operate them. Most insti- body. The management system of this consortiumtutions had not considered beforehand where and is similar to those found at the Western Governors'how technology should or can be applied to reduce University or the National Technological Universitycosts, differentiace their university from its competi- in the United States. The consortium was officiallytors, and improve quality. founded in October 1997 and consists of 12 con-

ventional universities, a newspaper company andThe Virtual University Trial Project has encouraged Samsung Data Systems, a network systems integra-Korean companies to develop software, and several tion company. The consortium's universities providehave created successful virtual education platforms content and design virtual courses, while Samsungor distributed learning systems for authoring, imple- Data Systems provides the hardware and technicalmenting and managing virtual courses. At least six skills needed to develop and deliver the courses, andof these platforms are now available and some com- the newspaper company provides advertising. All 14-panies have begun to develop Web-based training consortium members share the costs of running theprograms to be delivered through one of the Trial university through their payment of annual mem-Project's participants. bership fees.

Project Implementation in Sample Cases OCU offers degree programs to students of its mem-The Virtual University Trial Project has led 25 per- ber universities and non-degree and certificate pro-cent of Korea's higher education institutions to col- grams to non-members. No extra tuition is requiredlaborate with each other and the private sector in of students from member universities, but externalthe provision of virtual courses and the incorpora- candidates are required to pay tuition of $40 pertion of distance education in their campus-based credit hour. OCU began operations by creating asystems. As of February 1999, eight Trial Project virtual university council made up of representativesparticipants had developed and delivered online from its member institutions to determine policies.courses, and 60 percent of the 15 project partici- The next step was to create a management team con-pants had created a special team or administrative sisting of a project manager, computer operators,division to manage their participation in the pro- programmers, instructional designers and mediagram. specialists to develop and deliver virtual programs.

A planning and evaluation team was formed to iden-This section will examine case studies from three tify the needs of the target audience; to suggestTrial Project programs. The first explains how a con- courses for meeting identified needs, to evaluatesortium consisting of conventional universities, a courses and to make recommendations for improve-newspaper company, and a network systems inte- ment. When evaluating courses, the team considersgration company divided their roles in the Virtual the number of enrolled students, course completionUniversity Trial Project and created a management rates, responses from the students, and commentsand quality-control system. The second case shows from outside instructional designers.how a conventional private university established avirtual campus system and differentiated its virtual Delivery and communication strategies include Web-programs and financing strategy from other institu- based instruction, real-time interactive education,tions participating in the Trial Project. The final case asymmetric satellite course delivery and off-line CD-highlights the ways that Korea's most prestigious ROM-based instruction. Most undergraduate degree

16


courses for students from member universities re- guage and music teachers. In 1999, the Center en-quire little or no human contact since the students rolled 550 students and added other virtual pro-already interact with professors from their other grams for child education experts, nutrition coun-courses on a regular basis. Non-degree courses for selors and virtual education specialists. After thelifelong learners, on the other hand, provide more expiration of the Trial Project, the Center will as-face-to-face tutoring or real-time interaction based sume the new name of Sookmyung Cyber Campuson the assumption that those outside the formal and will continue to develop and provide virtualeducation system require more direct and more fre- inservice courses and create graduate degree pro-quent learner support. In the first quarter of 1998, grams for professionals.OCU's virtual courses enrolled 914 students fromits member universities and 122 adults from outside To ensure the quality of its programs, the Centerits student population. More than 90 percent of those formed a course development team consisting of anwho enrolled went on to complete the courses. instructional design expert, a programmer, a media

expert, a graphic designer and an administrative staffOCU also collaborates with other virtual universi- member. Content experts - often-famous scholarsties outside Korea - including the World Trade or practitioners - are invited from within and out-University run by the World Trade Association and side the university. In four to six months, the coursethe National Technological University, which offers development team analyzes learners' needs, designscourses for practicing engineers - although there the course and produces Web-based instruction. Thehave been no concrete exchanges of programs or staff university video and audio production team devel-members so far. OCU would ultimately like to op- ops video and audio materials and digitizes them forerate as an independent, for-profit virtual university integration into the course.and has actively urged the Korean government toamend the Lifelong Education and Higher Educa- Since it expends comparatively high amounts to de-tion Laws to permit the operation of private distance velop its virtual courses and since its target audiencelearning universities. Even though the private sector is composed chiefly of adult professionals, the Cen-has played a significant role in education by sharing ter charges high tuition rates. An average 16-weekthe burden of its cost, education has never been con- course costs $1,000, and programs cost even more.sidered a commercial industry or a commodity in Sookmyung Cyber Education Center's tuition policyKorea. Recent changes in the global economy have is unusual, with fees running six to seven times higherchanged this view, however, by directly linking pro- than any other virtual program offered by higherfessionalism and commercialism to education. The education institutions. The Center's justification forKorean government is expected to adapt to this these higher rates is that it develops practical courseschange by permitting the establishment of for-profit for professionals who are willing to pay more forvirtual universities in its education laws in the near flexible, open and on-demand learning. By differ-future. entiating its programs from other institutions and

targeting only busy professionals, Sookmyung CyberSookmyung Cyber Education Center Education Center receives more of its income fromThe Cyber Education Center of Sookmyung private student fees and is able to invest more inWomei's University was established in May 1998 developing high-quality virtual programs.and offers virtual programs only for working profes-sionals. In addition to offering virtual courses, the Seoul National University Virtual CampusCenter disseminates electronic information, estab- Several years ago, Seoul National University -lishes professional databases and provides a digital Korea's most respected conventional university -cyber-library. provided distance education programs to working

engineers via interactive videoconferencing. TheseIn 1998, the Center enrolled 430 students in vir- non-degree programs were intended to supplementtual programs for pharmacists, general English ex- the engineers' field experience with information re-perts, experts in teaching English as a second lan- garding recent innovations in engineering.

17

KOREA'S EXPERIMENTS WITH VIRTUAL EDUCATION I INSUNG JUNG

Using this experience, Seoul National University signers, faculty members and technicians work to-(SNU) has created a virtual campus that provides gether as a team. Most participants lack adequateWeb-based credit courses for both its own students monitoring and evaluation systems as well.and students from other universities. Non-SNU stu-dents may take courses at their own schools or from Several evaluation studies were conducted by Trialhome. Fourteen Web-based virtual courses were cre- Project participants in 1998 and 1999 to use stu-ated for SNU students in 1998 and twenty more dent feedback to develop more effective online teach-were offered on the Internet in 1999. Non-credit ing strategies.courses are also available. In 1998, over 500 studentstook virtual courses, which use the Web and are According to a preliminary survey conducted by thesupplemented by face-to-face tutoring. The univer- Education Research Center of Seoul National Uni-sity has organized a virtual campus team, which pro- versity in 1998, about 85 percent of the studentsvides staff development programs for faculty and enrolled in virtual courses used the network's com-helps the faculty develop and deliver virtual courses. puter labs. More than half of these students declared

themselves satisfied with the university's physical andSNU also offers its conventional courses in virtual technological infrastructure, although 30 percentformats to increase access to courses, which are high complained of slow network speed. Overall, studentsin demand. The faculty who teach the conventional were satisfied with the flexibility offered by virtualcourses are responsible for content, course design and courses and said they would like to see more virtualcourse delivery, and are usually assisted by a gradu- offerings in the future - particularly if developedate student paid by the university. No extra fees are in collaboration with other Korean universities orcharged to SNU students for virtual courses, and foreign universities. Further development of SNU'snon-credit lifelong education programs are free as digital library was identified as the most importantwell. SNU's main objective is to expand student ac- priority for further action. Other recommendationscess to existing courses and to provide an alternative included greater collaboration with industry andmethod of conventional face-to-face instruction, more focus on lifelong learning for the general pub-unlike OCU and Sookmyung, which focus more on lic.providing virtual programs to adult professionals forprofit. KNOU polled 136 students who had taken one of

its online courses in the second semester of 1998and found that although 70 percent were satisfied,

Outcomes many felt that KNOU had not provided sufficient

The Virtual University Trial Project has increased learner support in its traditional distance educationcollaboration among colleges, universities and com- courses (those using print, radio or TV), mainly duepanies. Despite their lack of prior experience in such to the huge number of students and the lack of tu-collaboration, many of these institutions have de- tors in regional centers. Eighty percent of studentsveloped highly successful virtual programs and have surveyed reported unintended learning outcomes inentered into formal relationships with foreign vir- terms of improved knowledge and skills in the areatual universities, of data analysis, Internet use, and self-directed learn-

ing skills, indicating that online courses can have

An informal report conducted by KNOU in 1999 positive effects on IT literacy.found that four of the 15 Trial Project participants'programs are not well managed (ung, 1999). The More than 70 percent of respondents indicated that,five participants whose programs were found to be although they had received support from online tu-excellently managed were those with effective sys- tots and instructors, there were often substantialtems for staff training and continuous technical as- delays. More than 60 percent of the students whosistance. Most participating institutions, however, articipated in online discussions reported that thestill do not fully recognize the importance of sys- topics were not concrete enough to actively engagetemic design approaches in which instructional de- participants; little useful information and few refer-

18


ences were provided to guide constructive discus- in schools between 1989 and 1996. By 1996 everysions, and online discussion teams were not well or- school in Korea was equipped with an average of 33ganized. Many students also reported getting lost computers, and in 1997 the government initiated aon the Internet due to inadequate icon design, ex- comprehensive six-year strategic plan to establish ancessive use of multimedia and graphics, and too advanced educational infrastructure. Since then, themuch required reading or other online activities. MOE has made major efforts to place two multime-

dia computer labs in each school, to establish a mul-Student recommendations included: (i) installing timedia network in each classroom and to provide ahigh-speed Internet facilities in KNOU's regional computer for every teacher. By 1997 there werestudy centers for use by students without access to about three teachers and slightly over 20 studentshigh-speed LAN systems, (ii) providing orientation per computer in primary and secondary schools.and training for instructors, online tutors and stu- 2002 will reduce that ratio to one computer perdents to help the students use the Internet more ef- teacher.fectively, (iii) implementing systems for continuousmonitoring and evaluation, and (iv) implementing The Ministry of Education and the Provincial Of-various cost-cutting measures, such as combining the fices of Education have provided inservice teacherInternet with textbooks and other less expensive training in the use of educational technologies inmedia and decreasing the number of instructors the classroom since 1988, and by 1998 all primarythrough greater peer collaboration. and secondary teachers received between 30 and 180

hours of training in ICT. The training focus in theearly years was on understanding computer technol-

VIRTUAL TEACHER TRAINING ogy, acquiring programming skills and developingcomputer-assisted instruction. Later, the focus shifted

Teachers are one important group of professionals to emphasize the educational use of computers andfor whom lifelong learning opportunities are crucial the network systems in school. This training wasespecially in the area of ICT. It is essential for Ko- conducted mostly in large groups, however, with lim-rean primary and secondary students to acquire skills ited time for hands-on practice.in the new technologies, and in order to accomplishthis, the teaching force must have continual access Many of the teachers who received this training re-to training and upgrading. Although virtual educa- ported a lack of confidence about introducing com-tion is still not the most prevalent method for puters and the Internet in their classrooms, as mostinservice teacher education, several teacher training of their training time was spent in downloading in-centers in Korea have used the PC network as a formation and not enough was spent on practicesupplementary tool for the distribution of learning (KMEC, 1998a). There is some evidence, though,materials and to encourage interaction between train- that the introduction of online teacher inservice edu-ers and trainees. The government has also supported cation has had a positive effect on their use of edu-major initiatives to support the development and cational technologies in the classroom.launch of Internet-based teacher education programs.

By the end of 1997, about 20 percent of KoreanThis section will examine the goals of the introduc- schools had established LAN systems and were linkedtion of virtual education for inservice teacher train- to the Internet. To respond to schools' concerns re-ing, and the strategies that have been employed to garding the high cost of Internet connections, inachieve them. 1998 the government introduced a line item in the

budget to cover the cost of these fees, either by pay-In 1987, the government began the large-scale ining a one-time, up-front charge for a dedicated linetroduction of computers in primary and secondary or by covering a portion of a school's telephone bill.schools. With financial support from Korea Telecom, More than half of all schools subscribe to text-basedthe Ministry of Education invested about US$53 PC online services provided by local or national PCmillion to establish computer systems and networks network companies, although many are switching

19


to full Internet access. By the end of 2002, all Ko- systems encourage their teachers to use the schoolrean schools will have high-speed Internet connec- infrastructure for online training. Most schools ac-tions. Administrators and teachers have also begun tually request that teachers use the school networkadvocating online teacher training or distance edu- only for administrative and instructional purposes,cation training using advanced technologies already and ask that teachers use the PC network from theiravailable in schools and training centers. homes to download training materials and to com-

municate with other teacher trainees. Teachers have,Each of the 16 Provincial Offices of Education col- therefore, become relatively heavy users of the PClaborates with nearby colleges and universities to network from home and are now the second largestprovide inservice programs. Several of the centers group of network users.adopted the text-based PC network as a teachingand communication tool to complement other con- A lesson to be learned from this experience is thatventional training methods. This required little in- financial support must be secured for both telephonevestment since the network companies conducted lines and transmission costs to maximize the use ofthe initial development of text-based training mate- the school network system. Fortunately, the Koreanrials, and the technology was already in the schools. government began to provide funds for school trans-

mission fees in 1998, offering US$1 million the firstNine teacher training centers have used the PC net- year and increasing this to US$3.4 million dollarswork to distribute text-based course materials, to in 1999 (MOE & KMEC, 1998).announce important messages, to allow participantsto interact with others on specific issues and to en- A recent evaluation of inservice teacher training re-courage interaction between trainers and learners in ported that as Internet use grows and expands in79 general and specialized training courses. Although schools, there will be a growing need for flexiblethe network has been used only as a supplement to teacher training in the use of this technology andconventional teacher training in most of the online for quality training programs that allow the activeprograms, little teacher tutorial support was pro- involvement of teachers in their own learningvided. Some courses use the PC network as their (KMEC, 1998a). This evaluation noted that mostprincipal training medium, however, and are able to teacher training programs are delivered in large class-offer greater interactivity with course instructors. rooms with little interaction between instructors and

teachers. To meet the need for more flexible and in-Teacher training centers have been using the text- teractive teacher training, in the summer of 1997based PC network because it is fast, cheap and uti- the MOE and the MIC jointly funded a project tolizes the schools' existing computer and network in- create the Cyber Teacher Training Center (CTTC)frastructure. Until recently, however, most centers within the KMEC. This project developed a soft-have ignored the fact that schools usually have only ware platform for managing virtual teacher traininga few telephone lines for all staff members and can- and 11 general education courses, with more coursesnot assign separate lines for teacher training.5 As a to be added each year. These courses, now availableresult, even though schools had computer and net- through KMEC's EduNet, include "Computers andwork systems which could be used for online train- the Information Society," "Educational Reform,"ing, those systems were not fully used because of "Future Society and Education," and "Environmenthigh transmission fees and lack of telephone lines. and Education."

Only a limited number of schools that have connec- Most of the virtual training courses offered by CTTCtions to dedicated high-speed educational network are developed as self-directed Web-based learning

programs, lasting anywhere from a few hours to sev-eral months. The facilitator of each course is encour-aged to provide online support and motivation to

5Until 1998, schools were required to pay transmission fees teachers, give them task-oriented feedback and evalu-as well. ate their performance. Group discussions are also

20


encouraged among learners, with some courses re- tors' limited time and the lack of onlinequiring participation in one or two face-to-face tu- facilitation skills.toring sessions. Although learners are sometimesevaluated on the basis of their participation in online * Most of the instructors in the virtual trainingdiscussions and are required to submit a report, most courses were busy, well-known scholars whocourses include a final examination administered in were unavailable to provide frequent learninga classroom setting. support. Delayed responses (or none at all) to

trainees' questions was cited as one of theTraining centers in provincial education offices are biggest shortcomings.encouraged to use CTTC's virtual programs free ofcharge, to revise them to meet their own purposes, * Most instructors were found to lack the neces-to add other learning support services, and to pro- sary skills to facilitate online interaction, thusvide the programs to teachers within their respec- failing to provide the interactive learningtive provinces. Since early 1999, three provincial environments needed to stimulate activeoffices and the Korea National University of Educa- learner-to-learner interaction.tion have used these virtual programs, and more cen-ters are expected to use them in the future. These results show the possibilities of Internet-based

courses in the provision of a flexible learning envi-A formative evaluation conducted by KMEC in 1998 ronment, but also suggest several areas for improve-to test CTTC's management platform and solicit ment. First, it is important to integrate instructionallearner feedback found that: design considerations into the development and

implementation of virtual training courses. Second,* Fifty-four percent of the 680 teachers surveyed early training sessions must be provided for instruc-

were satisfied with their online training courses; tors to help them acquire effective online facilitat-many of those who were dissatisfied coming skills. And third, high-speed connectivity is es-plained of inadequate instructional design, sential for promoting active use of the Internet inwhich made it difficult to use features such as both teaching and learning.online conferencing, e-mail and hyperlinks toother databases. More than 70 percent indi- These points were confirmed by another study, con-cated that they preferred virtual training to ducted by Jung and Choi in 1999, which looked atconventional methods because of its flexibility. two virtual training courses in the private sector. This

study identified several factors that affect the educa-* Approximately 43 percent of teachers surveyed tional effectiveness of online courses. In particular,

accessed the Internet from their schools, and 42 it was found that good design strategies which in-percent from the computer lab of the Provincial corporate different Internet features and encourageOffice of Education or the KMEC, to take active interaction with instructors and other learn-advantage of these facilities' high-speed connec- ers in an organized way have a direct impact on thetions and to avoid transmission fees. Only 15 quality of online courses and lead to greater learn-percent studied at home. ing, higher levels of satisfaction and stronger gains

in IT literacy.* Most teachers were not satisfied with the

method of testing in their virtual training Some findings suggest that virtual teacher trainingcourses, and found it inappropriate to adminis- has had a positive impact on teachers' computer lit-ter tests for virtual courses in a regular class- eracy. Many teachers who used the local PC net-room. Many suggested an online test instead. work for training later joined online teachers' clubs

in which they exchanged ideas and materials with* Many respondents complained of a lack of other teachers and used online materials for their

interaction between instructors and teachers teaching. Thus, it appears that most teachers whoand among teachers, primarily due to instruc- have participated in online training continue to use

21

KOREA'S EXPERIMENTS WITH VIRTUAL EDUCATION *INSUNG JUNG

the network for other purposes as well. Furthermore, able when that same course is later delivered to sev-teachers who have participated in virtual training eral hundred trainees. In fact, many educators haveprograms have become leaders in their schools in criticized the norm-referenced test because it has notthe implementation of new technologies more ac- provided adequate evidence that each trainee has mettively than teachers who have not participated in course objectives and achieved adequate improve-these programs. And finally, those who have taken a ment in teaching performance. A criterion-referencedvirtual course in the past tend to enroll in other vir- grading system must be integrated into the currenttual courses and to perform better in these courses evaluation system for virtual inservice courses, sincethan novice users (ung & Choi, 1999). In general, the teachers are encouraged to develop their owncomputer literacy skills obtained during virtual train- learning objectives and to select course content baseding tend to be applied to the next level of training. on these individual objectives.

KMEC (now known as Korea Education and Re- The evaluation studies also indicated that the gov-search Information Services) provides a common ernment should provide incentives for teacher train-platform for developing and managing virtual teacher ing institutions to restructure their programs and totraining courses, along with a sample of courses that include online teaching as part of their future initia-can be easily revised and integrated into other train- tives. The government was expected to revise itsing activities by individual training centers. Virtual teacher training policies in 1999 to reflect these con-courses developed by training centers can then be siderations and to permit various forms of virtuallinked to KMEC's EduNet and shared with other education in teacher training. However, due totraining centers. Although there is no concrete data changes in leadership and other positions in theat this stage that compares the relative cost-benefit MOE, and extended hearings from teachers' unions,of virtual training to conventional teacher training, this revision in policies has yet to be made.sharing training programs among training centers islikely to reduce training costs in the long run. In summary, virtual teacher training is seen to have

several benefits: (i) teachers can access training with-However, an internal evaluation report prepared by out leaving their classrooms, (ii) teachers can im-the Distance Education Team of Korea's Samsung prove their computer literacy, (iii) teachers are bet-Human Resources Development Center recom- ter able to interact with their trainers and other teach-mends a number of strategies for reducing training ers online, and (iv) once a "bank" of online coursescosts using the Internet. According to this report, if has been developed, teachers can access those coursesan Internet-based training course is used twice a year that meet their individual needs. Online teacherfor three years, with at least 400 trainees per year, training is also believed to be more cost-effective andthen the cost of virtual training courses would be efficient, although sufficient data to support this isreduced to only 10 to 15 percent of the costs of their not yet available.conventional counterparts. In 1998, Samsung pro-vided 28 web-based training programs four times ayear, to more than 3,500 employees each time, and DESIGN AND COST ISSUES INspent only 9% of the costs of the face-to-face coun- VIRTUAL EDUCATIONterpart courses (Oh, 1999).

Even though no single type of technology has beenDuring the implementation of some of the virtual proven superior over the others, the evidence showsteacher training programs, several barriers were rec- that interactive technologies are more effective thanognized at the policy level that must be removed. traditional one-way technologies such as radio orThese barriers include requirements regarding class- television in covering certain elements of course cur-room attendance and the use of a norm-referenced ricula, such as simulations, collaborative learning andgrading system. For example, the current norm-ref- problem solving (Harasim et al, 1995; Hiltz, 1995;erenced grading system established for certain train- Romiszowski & de Hass, 1989). Multi-channel in-ing classes consisting of 50 trainees, may not be suit- struction has been shown to improve instructional

22


effectiveness compared to single-channel instruction. Some of these issues have already been explored. ForConsidering the interactive and multi-media char- example, in comparing two different instructionalacteristics of current ICTs, advanced technologies design strategies for Web-based training courses forhave the potential to significantly improve the ef- corporate employees in Korea, Jung & Leem (1999)fectiveness of teaching and learning. reported that a Web-based course, which adopted

design strategies to provide specific guidelines to self-Importance Of Instructional Design directed learning, appeared to be more effective thanHowever, without careful instructional design, ap- a course that provided a more open-paced, prob-propriate learner support services and continuous lem-based learning environment. The first Web-staff development and evaluation, the potential ben- based course presented content in small chunks, pro-efits of ICTs may not be realized. Many studies show vided specific guidelines to help learners manage theirthat virtual education can produce learning outcomes everyday learning schedule and offered opportuni-equal or greater to those of conventional, face-to- ties for self-examination through various types offace education only if it employs appropriate tech- checklists. The course's completion rate was 93.4niques and skills in the design and implementation percent, with an average final grade of 85 (out of aof its technology-mediated learning programs possible 100 points). In the other course, each learner(Verduin & Clark, 1991; Carter, 1996; Thompson, was asked to solve authentic problems using various1996; Russell, 1998; Jung & Choi, 1999). online resources, and students later collaboratedwith

other learners to improve individual solutions. TheWhile Korea has identified some key strategies for completion rate for that course was 72 percent, withimproving the quality of virtual education, it must an average final grade of 62, suggesting that a coursecontinue to explore more sophisticated means of that required active online discussion and individualimproving the quality and effectiveness of these pro- research without specific guidelines was some-grams. Future studies should address the following what inappropriate in a corporate training course inquestions: Korea.

* Instructional strategies: What are the most Yet another example is a study that explored moti-effective design strategies for helping learners vational strategies for virtual education.maintain and manage their learning goals and Gunawardena & Zittle (1997) reported that "socialprocesses while browsing through online presence" - the degree to which a person is per-resources? ceived as a real person in the technology-mediated

learning environment - was a strong predictor of* Strategies for active involvement: How can we learner satisfaction and motivation.

enable learners to more actively process infor-mation and construct meaningful knowledge? Little empirical research has been conducted to ex-

plore the effects of specific design strategies on stu-* Motivational strategies: How can virtual dents' learning and motivation. Future research

education motivate the learner? should examine effective design strategies to developquality virtual education courses in a variety of learn-

* Strategies for guidance and feedback: What are ing contexts.the most effective and efficient means ofproviding guidance and feedback to learners Cost Effectivenessduring the learning process? Cost reduction is frequently cited as one of the ob-

jectives to be met through the introduction of ICT* Testing strategies: What are the most effective in education. Declining ICT costs have made com-

testing strategies in virtual education to ensure puter-aided and online instruction increasingly fea-that learners have integrated the relevant sible, and these cost savings are even greater nowknowledge and skills? than in the past (Wolff, 1999). Nonetheless, costs

23

KOREA'S EXPERIMENTS WITH VIRTUAI, EDUCATION INSUNG JUNG

are still significant in most countries and investment * To what degree can online resource sharingtradeoffs must be considered. improve the cost effectiveness of virtual educa-

tion? How do different design strategies affectCost-effectiveness studies comparing various tech- cost effectiveness?nologies also have been carried out. Early studieson videoconferencing indicated substantial cost- * What are possible ways to improve cost effec-benefits (Showalter, 1983; Hosley & Randolph, tiveness while maintaining high levels of1993; Trevor-Deutsch & Baker, 1997) and increased interactivity?productivity by providing training directly to theworkplace (Thompson, 1994). Even though its costs * How can economies of scale be achieved inwere higher than those of other classroom-based pro- specific contexts?grams, interactive satellite-delivered training courseswere found to be cost-effective due to their higher * How often must virtual education courses beenrollments, increased student access to quality pro- updated or revised to maximize cost effective-grams and resources, and other benefits (Ludlow, ness?1994).

The increased number of ICT options available to-Hall (1997) compared CD-ROM-based training to day means more opportunities than ever before inclassroom-based training in a high-tech company and the area of distance education. Online virtual edu-found that over the program's three-year pilot pe- cation programs create possibilities that might oth-riod, costs for the CD-ROM-based course were 47 erwise not exist by overcoming cost, time and loca-

percent lower than those for classroom-based courses. tion constraints, particularly for working adults. EvenIn addition, the CD-ROM-based course's improved traditional institutions that have never provided dis-instructional design, variety of instructional models tance education courses can now use ICTs to increase

and other strategies contributed to more effective the flexibility and openness of their programs. Butlearning and reduced training time. even though most agree that advanced technologies

have made education and training more flexible and

A recent study on the cost-benefit of Web-based open, many learners are still unable to access thesetraining reveals that Web-based training has higher technologies, and there is a growing fear that thefixed costs than conventional face-to-face training. gap between the "haves" and the "have-nots" is only

However, those costs are offset by lower variable costs widening. We must therefore develop practical strat-in course delivery due to the reduction in delivery egies to remove or lessen the disparity of access and

time and the increase in student enrollments improve the cost effectiveness of virtual education.

(Whalen & Wright, 1999). While these studies areuseful for identifying and comparing the costs andbenefits of technology-mediated courses, no specific RECOMMENDATIONSresearch has been conducted to assess the cost effec-

tiveness of Web-based virtual courses and to address As a result of the exponential growth in informationthe question: Is the educational outcome of virtual and communications technology, many new formslearning worth the cost? of educational media have become available. Virtual

education media eliminate the spatial limitations andTo answer this question, more reliable empirical data time constraints of more conventional education

are needed. Some specific questions for future stud- methods, removing the need for the learner to beies on cost effectiveness include: present at an instructional site at a designated time.

This unique characteristic of information and com-* Does standardization of the virtual program munications technology has the potential to make

format reduce costs without diminishing the education and training more effective, affordable and

quality of education and/or decreasing online flexible if used properly.interactions?

24


The government of Korea has placed a high priority Each of these strategies is explained in more detailon improving the reach and effectiveness of its ter- below.tiary system through experimentation with advancedtechnologies. Its higher education institutions have Improving Qualityresponded with bold experiments in the use of vir-tual education and training, and this experience sug- Faculty support and developmentgests several strategies for improving the quality of The Korean experience reveals the importance ofvirtual education, reducing costs without diminish- establishing a support system that provides continu-ing quality and promoting more widespread use of ous professional development and technical assis-virtual education. Major strategies for improving the tance to academic staff to ensure the quality of vir-quality of virtual education at the higher level in- tual education. As participants found when imple-clude: menting the Virtual University Trial Project, success-

ful implementation requires academic staff to be* providing support and professional develop- skilled in instructional design and learning, online

ment for online educators; facilitating, promoting on- and off-line interaction,

and providing for learner evaluation. These skills are* applying a systems approach and constructivism often very different from those required in conven-

to program design; tional teaching.

* building a monitoring and evaluation system; Reluctance of faculty has been found by several stud-and ies to be the major force undermining the develop-

ment of virtual education (Farrell, 1999;* Providing organized student training for self- Romiszowski & de Hass, 1989; Kaye, 1990; Paulsen,

directed learning. 1995; Berge, 1996). In these studies, instructors'

Strategies for reducing costs without diminishing facilitating skills and positive attitudes towards onlinequality include: teaching and learning were found to be the most

important factors affecting the success of onlinecourses and learner satisfaction levels.

* network integration;

Ongoing workshops can be a useful way to allowtshariong online databases with other organiza- faculty to discuss problems and find solutions in the

tions; and process of virtual education program design and

implementation, and may be supplemented with* Forming partnerships and alliances wt ote r input from computer engineers, programmers, in-

structional designers and online instructors. Onlineinstructors should be trained as mentors or facilita-

Strategies for promoting virtual education include: tt ahrta eetasitr fifraintors rather than mere transmitters of Information.Teacher support systems should also include assis-

rdigosfitrtcntvtance for online course production and on-demandtechnical assistance.

* adopting special pricing policies for

virtual-education; Applying a systems approach and constructivism

to program desig* providing appropriate and adequate legal and

policy foundations; and The Korean experience in inservice teacher trainingand the Virtual University Trial Project confirms that

* Providing a variety of personal incentives, if merely introducing advanced technologies or hiringneeded. famous content experts to deliver virtual courses does

not necessarily guarantee the quality of educational

25

KOREA'S EXPERIMENTS WITH VIRTUAL EDUCATION, INSUNG JUNG

services. Specific needs and capacity must be taken At least one researcher should be hired to conductinto account, and technologies must be used to keep monitoring and evaluation. The major points of re-students actively engaged and to encourage and en- search to be carried out include conducting a for-able them to interact with each other and with course mative evaluation during the design and develop-instructors. ment process, monitoring the electronic logs of net-

work use and teaching-learning processes, and as-Instructional Systems Design (ISD) models can sessing the direct and indirect effects of virtual pro-guide virtual educators through the step-by-step grams on individual learners, faculty members ordevelopment and implementation of effective vir- trainers, and teaching organizations.tual education programs. The steps of this modelare: (i) identifying learners' specific needs; (ii) devel- Provide organized student training foroping concrete instructional objectives based on these self-directed learningneeds; (iii) selecting and organizing content accord- KNOU's 27 years of distance education experienceing to learning objectives; (iv) developing and imple- reveal that successful completion of a virtual pro-menting online teaching strategies to promote ac- gram requires that learners possess self-directed learn-tive learner involvement in the virtual learning pro- ing skills. Research demonstrates that not all learn-cess; and (v) evaluating the effectiveness of virtual ers have those skills and that a few hours of orienta-education. tion is not enough to reach them. Capper and

Fletcher's review (1996) found that the adult stu-Constructivism provides another important ap- dents most likely to drop out of distance educationproach to effective instructional design (Jonassen, programs are those that are field-dependent (that is,1988; Bonk & Cunningham, 1998). Using the tech- significantly influenced by their surrounding envi-nologies at hand, learners should be given opportu- ronments) and that have an external locus of con-nities to actively manipulate the information and trol, with a lack of self-regulation. Distance educa-tools they are given, to integrate new ideas with prior tion is easier for those with self-directed or self-regu-knowledge to build their own meaning and to work lated learning skills (Thompson, 1984; Butler &with others in learning and knowledge-building Winne, 1995; Moore & Kearsley, 1996).communities. Constructivist principles provide de-sign guidelines for the creation of online learning A variety of studies have suggested strategies for help-environments that support learners' efforts to ac- ing distance learners complete their programs. Thesetively engage in the learning process, articulate cog- include providing academic, social and administra-nitive goals and construct meaning in collaboration tive support services through study centers; encour-with other learners. Several empirical studies con- aging the formation of study groups; allowing stu-firmn that these strategies help learners to actively dents to pace their own study and assignmentengage in the construction of knowledge, form a completion; and providing opportunities for syn-virtual learning community, articulate what they are chronous and asynchronous interaction through thedoing, and develop team responsibility (Bruckman, use of various technologies (Sewart, Keegan &1996; Shaw, 1996; Bonk & King, 1998; Ward & Holmberg, 1983; Candy, 1991; Capper & Fletcher,Teissen, 1997). 1996).

It has also been suggested that organized sessions to

The Virtual University Trial Project highlights the facilitate self-directed learning, are necessary to helpThe Virta Unvrst Tra rjcihihs th learners develop and strengthen competencies such

importance of systematic monitoring and evaluation, leas an appreciaon of the concepts of virtual learn-Institutions that employ a regular system of moni-toring and evaluation ate able to identify the ing, an understanding of how these differ from the

strengths and weaknesses of virtual programs and concepts of traditional education, and the ability torevise programs and policies accordingly. manage and regulate their virtual learning processes.

A meta-analysis on the effectiveness of distance edu-

26


cation conducted by Athabasca University research tutions to enjoy a high-speed national informationstaff revealed that a short-term workshop for tutors superhighway and expanded network connectionsto teach facilitating skills was insufficient to instill without additional investments.those skills in an actual tutoring situation. The studyrecommended that tutors be provided with a long- In today's world, limitations in access to an infor-term home-study package and follow-up workshops. mation and communications infrastructure has a

direct negative impact on citizens' abilities to acquireSeveral well-established open universities through- information and skills, and technology infrastruc-out the world offer courses to help students under- ture indicators show great disparities both betweenstand distance education and to develop indepen- countries and in different parts of the same countrydent, self-regulated learning skills. Athabasca Uni- (World Bank, 1999; OECD, 1999). Before build-versity in Canada offers a core course called "Intro- ing an infrastructure, countries should develop aduction to Distance Education and Training" to all comprehensive and strategic plan for thatentering students, and the Open University of the infrastructure's educational applications.UK provides a similar course to postgraduate stu-dents called "Foundations of Open and Distance Database sharingEducation." Since development of self-regulated Since the cost of developing a database is high, mostlearning skills takes time and effort, offering a one- higher education institutions have experienced fi-credit required course at a very early stage will help nancial difficulties in establishing a large databaseimprove students' completion rates and the quality for their students and staff. Virtual universities in aof the learning experience. number of countries, particularly the United States,

have "unbundled" many educational functions -Reducing Costs Without such as virtual course development, distribution,Diminishing Quality tutoring, assessment, general administrative affairs

and learner supports (Farrell, 1999; Dirr, 1999) -Network integration and nationalplanning which are increasingly shared among specialized in-One of the important lessons to be learned from the stitutions.Korean experience is that there is a strong need foran integrated network system that links the educa- Unlike analog systems, digital databases can be linkedtional computer network to the national informa- through computer networks, shared globally, revisedtion superhighway. In many countries, the Ministry by users, and transformed into meaningful knowl-of Education is responsible for building an educa- edge. The Cyber Teacher Training Center, for ex-tional computer network system, and the Ministry ample, is establishing a database of virtual teacherof Information and Communication is charged with training programs in cooperation with other Koreanestablishing the national information superhighway. teacher training institutions. Virtual training pro-The failure of these two ministries to collaborate may grams in this database can be used, revised and imple-result in a disconnect between the educational net- mented in different ways by different centers, andwork and the national information infrastructure, sharing allows each training center to reduce its costsor other problems such as slow connection speeds for program development.and high connection costs.

Another example is the Instituto Tecnol6gico y deIntegrated network systems provide learning envi- Estudios Superiores de Monterrey (ITESM). ITESMronments in classrooms, homes and workplaces, and is a 27-campus university system with more thanminimize the exclusion of learners and schools in 78,000 students throughout Mexico and Latinremote areas. Governments should develop a vision America. Using the IBM Global Campus - an in-for an integrated network system that addresses both tegrated system which provides Internet access, toolsthe network infrastructure needs of a society and the to design online courses, and other databases -education use of a national information superhigh- ITESM draws on resources outside its system andway. Such integration allows higher education insti- offers more than 2,500 distance learning courses to

27


students throughout the hemisphere (World Bank, Internet use in these schools are less than 20 percent1998). With the Internet, a comprehensive intranet of the fees for other organizations, but preferentialconnecting its campuses and a distributed learning rates are not applied to higher education institutionssystem called Lotus LearningSpace, educational re- and teacher training centers. Since network use issources developed by each instructor can be shared; reportedly increasing five to ten times each year atstudents can interact collaboratively with other stu- these levels, it is important that the E-rate be insti-dents and have direct access to instructors as well as tuted here as well. In turn, the government shouldlibrary resources; and instructors can update their provide incentives (such as reduced taxes, exemp-courses as needed. By sharing educational resources tions for educational investment, or publicity forand providing additional classes and curricula with- participation in national ICT initiatives in educa-out incurring the capital investment costs of build- tion) for telecommunications companies to developing new campus facilities, immediate savings were special pricing for the educational application of ICTreported. and virtual online teaching. In light of the rapid

growth of virtual education, it is necessary to reviewPartnerships and alliances national information and telecommunications poli-Partnerships reduce the burden to single providers cies and regulations to ensure that they support theby distributing costs across partners. An example of effective and flexible use of ICT in higher educationa sound partnership is the one between Boston Col- and training.lege and the government of Ireland. In collabora-tion with other business partners, these two entities Legal and policy foundationsare developing technology resources for both K-12 Korea's Lifelong Education and Higher Educationand higher education in a project called Schools Laws, which promote virtual education for retrain-IT2000. This project aims to integrate ICTs into ing and lifelong education in higher education in-Ireland's school system; Boston College provides stitutions, are expected to bring enormous increasesmuch of the infrastructure and creates curricular in the use of network technology in higher and life-materials, and Telecom Eireann provides Internet long education. Providing the appropriate legal foun-access (Oblinger, 1999). dations at the national and institutional levels is es-

sential. First, at the national level, the establishmentBy forming appropriate partnerships with businesses, of virtual education institutions or virtual campusesuniversities diminish their investment risks. Govern- within conventional universities or training centersments should encourage such partnerships by insti- must be permitted. Those virtual institutions shouldtuting policies that provide incentives for private be able to provide degree-granting programs andparticipation and investment in virtual education other certificate programs and, at the same time,programs. Collaborations with training centers can practical strategies to control the quality of virtualalso be mutually advantageous by permitting the education should be built into the national educa-exchange of technology and human resources and tion quality assurance system.the sharing of courses. Each center can develop vir-tual courses in its areas of specialization and exchange Second, at the institutional level, legal barriers toaccess to those courses with its partner institutions. online teaching should be removed. Many conven-Partnerships can also be formed with universities or tional education institutions require classroom at-companies in foreign countries. tendance for a certain period of time and demand

fixed teaching or training schedules. Since most ofPromoting Virtual Education the teaching and learning activities in virtual educa-

tion programs occur outside of the classroom on aPricing policies flexible schedule, these regulations must be reviewedIn Korea, as in many other countries, special rates and revised.known as E-rates are applied to the educational useof network communications in primary and second- Policies regarding credit transfer must be examinedary schools. Network communication fees for as well. In many countries, restrictions regarding the

28


transfer of course credits among different institu- faculty who offer or support virtual courses. Otherstions constitutes a major restraint for learners regis- provide these faculty with expensive professionaltered in courses at several institutions who wish to training. As online materials are accumulated andtransfer into a specific program. To help student's academics become more comfortable with virtual

function as true virtual learners, a flexible transfer education, fewer incentives are necessary.system must be established.

The government should also provide incentives for CONCLUSIONtraining institutions to restructure their programsin a more flexible way. Incentives may include pro- Korea recognized early on that providing its citizensviding seed money for initial online course develop- with flexible lifelong learning opportunities is cru-ment and recognizing excellence in virtual teacher cial for workforce skills development and respondedtraining programs. with the creation of the distance education programs

through the Korea Air and Correspondence Univer-Personal incentives sity which evolved into the Korea National Open

At the course development stage, virtual education University. KNOU, as evidenced by its high enroll-demands more work from academic staff than con- ment rates, served as a leader in the provision of dis-ventional classroom education. Once the course is tance education programs since the 1970s.developed, faculty members only need to update andmanage the course site, although if they design a In order to keep pace with rapid changes in the glo-course requiring extensive interaction, their bal economy Korean policy makers recognized theworkloads will exceed those of conventional classes need to further open-learning opportunities to itsduring teaching as well. Once the virtual course is citizens so that they could remain competitive in ancreated, however, teachers are freed to devote more information-based and technology-driven world.time to advising and other activities. Teachers may They responded with bold reforms in tertiary edu-also be able to reach more students and create an cation and lifelong learning followed by financialinteractive environment without the logistical dis- support and experimentation so that institutionstractions of materials distribution. Virtual office make the transition to a more competitive arena inhours may also be established to save scheduling time education. The expansion of traditional distance(Williams & Peters, 1997). learning opportunities through the development of

virtual education has been one avenue vigorouslyIn some cases, providing incentives at the institu- pursued because of the potential for higher qualitytional level or emphasizing the positive features of teaching and learning and greater cost savings.virtual education is not enough to promote the useof technologies, especially at the beginning stage. However, the government also recognized that itsKorean experiences in implementing online tech- education system could not rise to this challengenologies indicate that different types of personal in- without a supportive environment in which to ex-centives for staff can accelerate the use of advanced periment. Furthermore, synergies across governmenttechnology in education. When KNOU first an- ministries and with the private sector were nurtured,nounced the development ofWeb-based instruction, especially in the area of the national informationonly a few faculty members volunteered to offer Web- infrastructure. Preliminary data shows that cost sav-based courses. But when these instructors were of- ings can be realized through the use of virtual edu-fered a $2,000 honorarium in addition to develop- cation and that quality learning does take place.ment costs, the number of virtual course offerings Korea stands as an example of strong governmentincreased significantly. leadership in the area of education for national de-

velopment.Some universities participating in the Virtual Uni-versity Trial Project lighten the official burden of

29

KOREA'S EXPERIMENTS WITH VIRTUAL EDUCATION I INSUNG JUNG

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33

OTHER PUBLICATIONSIN THE EDUACATION AND TECHNOLOGY TECHNICAL NOTES SERIES

Y Research onz Edlucationz and Tecbhnology (1980-1996). Abstracts of Publications bv tbeWorld Bank, M. Potashnik, M. Gonzales and W. MaFville, Vol. 1. No. 1, 1996

Y Chile'sLeacrninlg.V-twi.Sork, M. Potashnik, Vol. 1 No. 2, 1996

Y CostAnalysis ofInJforuniatioizu Tech nology Projects ini Editcation: Experiencesfromn Devel-opinZg Countlies, M. Potashnik and D. Adkins, Vol. 1. No. 3, 1996

Y I uter-actiVe Radio Iiustrulction: Tu : enti -Three Years of imp r0lug Ecatio zal Qu ali[3', A.Bosch, Vol. 2, No. 1, 1997

Y Teacher Education Cat a Distance, H. Perraton and M. Potaslnik, Vol. 2, No. 2, 1997

Y Coniputers in Schools: A Qualitativ e Stucd), of Chile and Costa Rica, M. Alvarez, F. Ro-man, M.C. Dobles, J. Umana, M. Zuniga, J. Garcia, B. Means, M. Potashnik, L. Rawlings,Special Edition, 1998

Y Comiputers in EdZIcationZ in Developing Count1ties: Why an1d Ho2? L. Osin, Vol. 3, No. 1,1998

Y Tertiary Distance Eduication and?C Technlology i1Z Sub-Saharan Afi-ica. W. Saint, Vol. 5,No. 1, 2000

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