In the past 50 years, higher education systems in the Nordics have undergone significant transformations. Once focused on educating a select intellectual elite, they have evolved into diverse and inclusive institutions designed to serve a broad spectrum of the population with various educational and professional aspirations. This transformation was marked by the geographic expansion of higher education into more peripheral regions, with the purpose of providing more diverse and accessible educational opportunities, reducing geographic and social imbalances in recruitment to higher education, and thereby fostering regional growth and innovation. 

This policy brief explores the current status, key characteristics, and distribution of peripheral higher education institutions located in smaller towns and rural regions across the Nordic countries.  It aims to increase knowledge about the types of students who are attracted to these institutions and the factors influencing their choices. The analysis in this policy brief draws on statistical data, a literature review, results from focus group discussions, and a survey conducted among young adults in the Nordic countries.   

(Jakobstadsregionens Utvecklingsbolag Concordia, Finland).

Efforts to expand educational institutions to new, often rural, locations and demographics in the Nordic countries began in the 1960s. Notable milestones include Sweden’s 1977 reform of the higher education system and the establishment of “district colleges” in those Norwegian counties which did not have a university between 1971 and 1979 (Lindbekk, 2015). Despite a wave of institutional consolidations in tertiary education in the Nordic countries during the 1990 and 2000s – which involved merging or restructuring higher education institutions (HEIs) aiming to reduce the total number of campuses and create more streamlined, efficient, and competitive entities – geographic distribution of higher education still remains relevant today. Denmark is a good example of this, with its 2021 parliamentary agreement aimed at enhancing educational access nationwide. This agreement focuses on diversifying educational opportunities across the country and creating new educational initiatives outside Denmark’s four largest cities (Eurydice, 2023). 

In this research, we define peripheral higher education institutions (PHEIs) as either independent institutions or satellite campuses of major universities, offering higher education at levels 6 and 7 of the International Standard Classification of Education (ISCED). Located in regional centers or small towns, PHEIs are distinct from their counterparts in major or historic university cities. While there is no strict definition, we explore the concept of peripherality in terms of both geography—such as specific distances to urban centers and socio-spatial relationships (Kühn, 2015)–and institutional characteristics relative to old and well-established traditional institutions. These parameters include the institution’s size, location, regional context, year of establishment, and organizational structure.

PHEIs exhibit a wide range of differences, including various funding and organisational models, focal areas, and the types of degrees and programs they offer. Common to many of the PHEIs, such as university colleges and polytechnics, is that they offer a vocational orientation that caters primarily to the needs of local communities and employers. These institutions often tailor their educational goals to local labour market demands and welfare systems (Fonseca & Nieth, 2021). Additionally, some emphasise a ‘third mission’ of external engagement, focusing on societal outreach and closely aligning with regional needs (Kohoutek et al., 2017).

PHEIs are often more recently established than their older urban counterparts and often navigate in a complex context (Eder & Döringer, 2022). In contrast to older, more traditional educational institutions, many PHEIs operate in environments that are ‘in flux’ and are influenced by shifting political agendas (Pinheir et al., 2019). These institutions’ reliance on the geographical context and collaboration with local entities often leads to conflicting goals. For example, prioritizing research excellence can limit their capacity to engage effectively in local and regional outreach (Atta-Owusu et al., 2021).  

Research and grey literature indicate that small-scale challenges and resource shortages often hinder the success of PHEIs. These issues are particularly evident in activities that benefit from economies of scale, such as participating in research projects or maintaining a diverse academic portfolio (Charles, 2016).  

Additional challenges for PHEIs may include difficulties in attracting staff and students, securing third-party funding, as well as managing constraints associated with the lack of capacities and expertise of local businesses (Eder & Döringer, 2022). Furthermore, the perceived prestige of PHEIs can influence student preferences and their overall attractiveness (Haley, 2020). These challenges, which sometimes involve conflicting focuses, underline the urgency and potential for comparative learning across Nordic PHEIs.   

”We are a municipality of 1,800 inhabitants. Those who were educated with us often choose to stay, or they come from small communities and remain in small communities. Over time, those who chose to work in such places have made a significant difference.”
(NESNA municipality, Norway) 

Map 1 shows the distribution of higher education campuses across the Nordic region in 2023-2024, categorized by type of institution and student numbers, revealing a broad geographical spread with noticeable sparsity in the northernmost parts of Sweden and Finland. The higher education landscape comprises both universities and university colleges, with university colleges being more prevalent in Denmark and Finland. Notably, Finland features university consortia—collaborative networks that operate regional campuses through several universities. UiT The Arctic University of Norway and VIA University College in Denmark have the largest number of campuses, each operating 10 sites.

The number of students at these campuses varies significantly, from as few as 10 at some smaller campuses in Norway and Finland to over ten thousand at larger sites. This disparity is mainly attributed to whether campuses are located in urban or rural areas and the variety of academic programs they offer. Additionally, variations in the methods used to count students at national and organisational levels also account for these differences.