DRAFT HIGHER EDUCATION (TRANSPARENCY CONDITION AND FINANCIAL SUPPORT) (ENGLAND) REGULATIONS 2018
(Limited Text - Ministerial Extracts only)
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The Minister for Universities, Science, Research and Innovation (Mr Sam Gyimah)
I beg to move,
That the Committee has considered the draft Higher Education (Transparency Condition and Financial Support) (England) Regulations 2018.
It is a pleasure to serve under your chairmanship, Sir Christopher. I thank the noble Lords on the Secondary Legislation Scrutiny Committee for their scrutiny of regulations under the Higher Education and Research Act 2017, which were laid in the other place in June and detailed in the Committee’s 35th report. I aim to speak today to draft regulations encompassing two elements of the Act that require approval.
Section 9 of the Higher Education and Research Act 2017 relates to the transparency condition. We have made much progress in widening access and success for students from disadvantaged and under-represented groups in higher education. Following the latest data from UCAS, as of the end of clearing, university application acceptance rates for English 18-year-olds to full-time study are at record levels. The proportion of disadvantaged 18-year-olds entering full-time higher education increased from 13.6% in 2009 to 24.4% in 2017—also a record rate for English applicants.
However, we want to go further and strive to ensure that anyone, no matter what their background, who has the talent and potential to benefit from higher education, is able to do so. I particularly want further improvements in the rates of progress for students from disadvantaged backgrounds going to the most selective institutions, and commensurate progress in the outcomes they achieve. For example, I want such students to experience rates of completion and attainment similar to those of other groups of students.
We have charged the new regulator, the Office for Students, to urge higher education providers—particularly the most selective ones—to make greater progress in such matters. The introduction of the transparency duty through section 9 of HERA is a vital measure that will support the OfS in making the further progress that we all want. The duty requires certain higher education providers to publish information on application, offer, acceptance, completion and attainment rates of students, by ethnicity, gender and socioeconomic background.
The duty will apply to all providers registered with the OfS—in both the “approved” and the “approved (fee cap)” parts of the register. It will ensure that data on admissions similar to that released by the University of Oxford and the University of Cambridge in recent months, in anticipation of the duty, will be available from August 2019. That greater transparency will clearly identify which higher education providers need to do more to widen the access and success of students from disadvantaged and under-represented groups.
The duty also requires the information to be given to the OfS. Crucially, that will help to inform the OfS’s assessment of providers’ performance on access, student success and progression. To ensure that there is progress, the OfS will have the power to take action if the provider does not comply with its obligations, including those on access for and participation of students from disadvantaged and under-represented groups.
The OfS has a range of interventions and sanctions that it can use to push providers to make improvements. Its powers, should it find it necessary to use them, include putting additional registration conditions on providers, suspending them from the OfS register and imposing monetary penalties. That duty was broadly welcomed by Members in debates on the Higher Education and Research Act 2017.
During the passage of HERA the Government made a commitment to ask the OfS to undertake a consultation in respect of additional information on protected characteristics such as age and disability that should be made available by providers in the future to help to drive equality of opportunity for all students. I am pleased to be able to report that the OfS has undertaken a formal consultation on the matter and held a series of supporting events. The consultation was part of a wider consultation on the OfS’s work on access and participation. Its findings will be published later this year. Implementation of the duty through these regulations will be a crucial and effective step in helping to ensure that we make further progress on the access for, and success of, disadvantaged students as well as more broadly supporting informed choice for all.
The second part of these regulations, section 39 of HERA, allows the OfS to provide financial support for higher education. These funding powers broadly replicate the funding powers conferred on the Higher Education Funding Council for England by section 65 of the Further and Higher Education Act of 1992, but have been expanded to enable the OfS to fund any eligible higher education provider.
In the new system, eligible providers are those that are subject to a cap on the fees they can charge, and thus are registered in the approved “fee cap” part of the OfS register. These powers ensure that the OfS can continue to provide funding for those important subjects which cost more to teach than can be met solely from tuition fees, such as the science and medicine courses that are so crucial to the economic and social future of the country.
These powers also make it possible for the OfS to provide funding to incentivise and support providers’ work on widening participation, allow indirect funding of qualified schools, colleges or other institutions that are connected to an eligible higher education provider, and meet the unavoidable costs of small and specialist provision, such as performing arts courses. In those aspects, they are the same as the previous HEFCE powers. The new element is that under the new Act, the OfS has the power to financially support a wider range of bodies and delivery models.
In conclusion, the transparency condition and financial support regulations work together to enable the Office for Students to promote access and participation and student choice across all of higher education, and to support higher education teaching through financial support. Together, they are part of the vital foundations for the new regulatory framework, which will give the Office for Students the tools to deliver sector-wide reform and ensure that higher education delivers for every student. I move that these regulations are approved.
Mr Gyimah
I thank the Opposition spokesperson for his comments. We have had several debates since I was appointed to this job; he always has a fistful of pertinent questions for the Government, and I welcome his contributions to our debate on the draft regulations. Before I make my concluding remarks, let me address some of his questions, in no particular order.
The hon. Gentleman asked about the rates of progression by area. The proportion of 18-year-olds entering higher education from disadvantaged backgrounds is at record levels. We use 18-year-old full-time rates in our calculations because they are the most up-to-date information that we have; we acknowledge that there has been a decline in part-time entrants, but it has been no more pronounced for disadvantaged entrants than for advantaged entrants.
On the subject of part-time students, it is worth mentioning one of the general duties set out in HERA:
“In performing its functions, the OfS must have regard to…the need to promote…greater choice…in the provision of higher education”.
That includes choice over means of provision, including via part-time study or distance learning. The OfS also targets an element of its teaching grant at part-time study, recognising its additional cost; £72 million was made available for that purpose in 2017-18, and the same amount was allocated in 2018-19.
Quite rightly, the hon. Gentleman brought up the subject of care leavers. Our guidance to the OfS asks it to monitor care leavers as a key target group, which it has done. We expect to see providers focusing on that in their access and participation plans. Whether to add age and disability is a decision for the OfS, but I am pleased that it has included that in its consultation, as we asked.
The point about outcomes for students is important. The transparency duty covers not only offers made, but the number of disadvantaged students who complete their courses and attain a particular degree.
Finally, on staff data, HE providers are autonomous, as the hon. Gentleman is aware. Data on HE staff is published by the Higher Education Statistics Agency.
I know that hon. Members have a keen and understandable interest in the implementation of HERA. There is no doubt that today’s scrutiny has played a vital role in ensuring that the reform promised by that Act is achieved. I commend the regulations to the Committee.
Question put and agreed to.