The UNESCO International Institute for Higher Education in Latin America and the Caribbean (UNESCO IESALC) recently released the Higher Education Global Trends Report, which is the first important report by UNESCO to systematically outline the development of higher education from a global perspective.Based on data from 146 countries integrated by the Higher Education Policy Observatory, the report presents the structural changes that global higher education is undergoing from an empirical perspective. The report emphasizes that while global higher education continues to expand in scale, its internal imbalances and institutional pressures are accelerating.
1. Higher Education Expansion and Lagging Completion Rates
Over the past decade, global higher education enrolment has continued to expand. Counting only the bachelor's to doctoral levels (ISCED 6–8), the global number of enrolled students has grown by more than 30%, approaching 213 million in 2023. Widening participation remains a high-frequency goal in national policies, but entering higher education does not equate to successfully completing it. Globally, the improvement in graduation rates significantly lags behind the expansion of enrolment. Over the past decade, the overall global graduation rate for higher education has only risen from approximately 22% to 27%. This means that in a rapidly expanding system, a considerable proportion of students encounter structural barriers during their studies, leading to delayed graduation or even dropping out. At the same time, gender differences present starkly different pictures at different stages. Women have become the majority group at the bachelor's and master's levels, but remain significantly underrepresented at the doctoral level.
Figure: Gross graduation ratio from 1st degree programmes (ISCED levels 6 and 7), both sexes
and female populations, 2013-2023
2. Lack of Equity and Inclusivity in the Learning Process
At the policy level, although over 80% of countries emphasize access opportunities in their policy documents, the proportion that explicitly sets "inclusivity" as a goal is significantly lower, and related measures are mostly concentrated at the admission stage. Once students enter the system, support for disadvantaged groups often diminishes rapidly. Scholarship systems are relatively common globally, but most remain merit-based, rarely covering living costs, and are inadequate in addressing the practical pressures faced by low-income students during their studies.
In the graduation and employment stages, although many countries include graduate employability in their policy goals, few explicitly distinguish the actual benefits for different social groups. The lack of data disaggregated by dimensions such as gender, disability status, and geographical location means that inequalities are averaged out statistically and ignored at the policy level. The report specifically points out that disadvantaged learners, such as students with disabilities and indigenous groups, remain neglected in the higher education planning of many countries.
3. The Tension Between Centralized Governance and Institutional Autonomy
In terms of institutional structure, global higher education governance remains predominantly highly centralized. The vast majority of countries place higher education under direct national-level management, often tying it to goals of research, innovation, or economic development. As enrolment expands, the complexity of governance structures continues to rise, but institutional adjustments often lag behind practical needs. Although most countries have confirmed the principle of institutional autonomy through legislation, the report notes that legal recognition does not necessarily translate into practical operational space. In key areas such as funding allocation, personnel appointment, and curriculum design, institutional autonomy remains subject to multiple restrictions. Meanwhile, the share of private higher education in the global system remains stable and dominates in some countries. While this trend expands supply, it also places higher demands on regulatory capacity, quality assurance, and public accountability.
Figure: Share of countries recognizing institutional autonomy in their legislation, 2024-2025
4. Uneven Capacity of Higher Education Quality Assurance Systems
Quality assurance has become the infrastructure of global higher education systems. Most countries have established national-level quality assurance agencies and refer to international or regional frameworks to enhance the comparability of qualifications and degrees. However, the report also points out that there are massive differences in the autonomy and resource allocation of quality assurance agencies. In some regions, quality assessment still faces issues of insufficient professional staff, limited funding, and weak institutional enforcement. This contradiction is particularly acute in systems where higher education is expanding rapidly and private institutions account for a high proportion. Against the backdrop of continuously growing cross-border educational mobility, weak quality assurance will directly impact the establishment of international qualification recognition and mutual trust mechanisms.
Figure: Regional distribution of countries mandating the establishment of one or morequality assurance agencies by law, 2024-2025
5. Sustainability Challenges in Higher Education Financing
In terms of investment levels, the gap in government expenditure on higher education across countries remains significant. Overall, the proportion of higher education expenditure to GDP is not high, and there are clear differences between countries of different income levels. At the same time, many countries are shifting part of the costs to families and individuals by raising tuition fees or introducing market mechanisms. The report warns that if cost-sharing mechanisms lack complementary designs, they can easily amplify the risk of inequality. The experience of some countries shows that tuition fee waivers or subsidy reforms do help expand access for low-income groups, but without stable funding sources and refined governance, the system itself may face sustainability challenges.
Figure: Government expenditure on tertiary education (ISCED 5 - 8)as a percentage of GDP, by region, 2022
6. Lagging Governance in Digital Transformation
Digitalization and artificial intelligence have become keywords in the higher education planning of various countries, but institutional readiness significantly lags behind technological application. Although an increasing number of teachers and students are using AI tools in teaching and research, clear institutional norms, ethical guidelines, and capacity support remain very limited. The uneven distribution of digital infrastructure means that the impact of technology on different social groups is clearly polarized. Without effective regulation and public investment, flexible learning pathways and digital courses may instead entrench existing inequalities.
7. Pressures on Teaching Personnel and Risks to Academic Freedom
The bearers of the higher education system are under continuous pressure. Among teaching personnel, issues of precarious employment, excessive workloads, and limited career development are widespread, yet fewer than 15% of countries prioritize the well-being of their teachers. Gender and structural inequalities also exist within the teaching workforce. The proportion of women among academic staff continues to rise, but they remain significantly underrepresented in senior academic and leadership positions. The gender imbalance in STEM fields also largely constrains the diversity of the academic workforce.
Furthermore, there remains a significant gap between the institutional guarantee of academic freedom and its actual implementation. Academic freedom has regressed to levels not seen in 50 years. Although most countries make commitments at the legal level, in reality, academic freedom still faces multiple challenges, which directly impacts the innovative capacity and public value of higher education systems.
Figure: The proportion of countries with legal recognition of academic freedom, 2024-2025
Borhene Chakroun, Interim Director of UNESCO IESALC, points out in the report that this document is not a static summary of trends, but a clear call to action. In an era of continuously rising global uncertainty, higher education faces deep-seated challenges while also bearing the critical mission of driving inclusive growth, social cohesion, and sustainable development. This report helps guide national strategies, inspire institutional innovation, and ultimately drive the realization of Sustainable Development Goal 4 and equitable, quality education.
Editor | HAN Baiqing
Quick Access:
UNESCO International Institute for Higher Education in Latin America and the Caribbean. Higher education global trends report: towards inclusive, equitable and quality higher education in an internationally mobile landscape[EB/OL]. (2026)[2026-05-27]. https://doi.org/10.54674/IN.2026.94.
