Higher Education and Research Bill

Lord Blunkett Excerpts

Report: 2nd sitting (Hansard): House of Lords
Wednesday 8th March 2017 Lords Chamber

[The Duke of Wellington (Con)]

My Lords, I realise that this does not have quite the interest of yesterday’s debate on the withdrawal from the European Union. I declare, as always, my interest as a former chairman of King’s College London.

Clause 26 deals with the quality of teaching in our universities. All universities—and, I am sure, all noble Lords—accept the objective of wishing to continue to raise the standard of teaching in our universities, but the question is whether the metrics or the rating system will achieve that. The purpose of this amendment is simply to delete from the Bill the word “rating”. The teaching excellence framework is under way and will classify each university as gold, silver or bronze.

Times Higher Education recently published a table of universities with the highest international reputation in the world, and in the top 20 are 10 British universities: Imperial College London, Oxford, Cambridge, University College London, the London School of Economics, King’s College London, Edinburgh, Warwick, Glasgow and Manchester. The irony is that, when the ill-named Office for Students publishes its new classifications and some of these very same universities, as expected, are graded silver or bronze—in other words, graded as second or third-class universities—this will be despite their well-deserved reputation in this country and abroad.

The teaching excellence framework, as currently designed, will use ratings and, because Clause 26 requires the use of ratings, it will be legally necessary to continue with them until the next higher education Bill in 20 or 30 years’ time. However, if we change “rating” to “assessment”, a future Minister or “Office for Higher Education”, which I believe would be a better name, will have the option not to use a ratings system. Many noble Lords have voiced concerns and doubts about the gold, silver and bronze grades—as have many involved in, or interested in, higher education.

Ministers argue—indeed, on Monday my noble friend Lord Younger proudly announced—that 299 providers have joined the teaching excellence framework and that it has near-unanimous support. But in fact these providers had no choice. On the website of the University of Warwick, with which I have no connection, the vice-chancellor says that,

“we agree with the fundamental proposition that universities should provide high quality teaching, we don’t believe that TEF will measure that”.

He goes on to say that,

“the Government has us over a barrel. It has linked TEF to fees and potentially our ability to recruit international students. The risks are too high”.

So the Government must understand that there are grave concerns about the teaching excellence framework, about the metrics and about the gold, silver and bronze scheme. My amendment would allow, in the future, a different system of assessing teaching, and I very much hope that the Government will accept it. It is designed to be helpful. I beg to move.

[Lord Blunkett (Lab)]

My Lords, I declare my interests as set out in the register. I shall speak to Amendment 72 in my name and in the names of the noble Baronesses, Lady Garden and Lady Wolf. I thank them for their support and for the work that they have done on the Bill. This is the first time in my life that I have been wedged between a duke and a viscount, and it is appropriate to know my place as a baron in your Lordships’ House.

My interest in the Bill is both as someone who benefited greatly from higher education as a mature student and as someone who has taught and still teaches in higher education and has had a long-standing interest in quality as Secretary of State and beyond. I put on the record that I think that all of us in this House agree that it is right that we drive forward and drive up the quality of teaching and learning in our university sector. It has long been neglected, and the driving force of the research excellence framework has to be matched so that the experience in the classroom, in the lecture theatre and in tutorials can be properly evaluated and given the rating that it really deserves. That brings me to the nub of the Bill.

As the noble Duke, the Duke of Wellington, said, there are real issues about the nature of the metrics being used. The teaching excellence framework could well be undermined by a simple lack of confidence on the part of those who are crucially involved in it, both in teaching and as students receiving that teaching.

I have not spent as much time on this Bill in your Lordships’ House as I would have liked, although I have spoken on a number of occasions. However, I pay tribute to those who have spent and will continue to spend an enormous amount of time on it. I give credit to the Government for the way in which they have listened, reflected on and responded to suggestions so far, which has made a great difference to the quality of the Bill. My noble friend Lord Stevenson and other colleagues have spent hours not only in the Chamber but outside working on the Bill, and liaising and negotiating with the Government and colleagues. That has made a tremendous contribution and I hope that, whatever the irritations of the moment about the capacity of the House of Lords to bring about change in legislation, the Government will continue to want to listen and learn, in particular in relation to the metrics of the TEF.

I have a great deal of time for Chris Husbands, the vice-chancellor of Sheffield Hallam University. He is reviewing the trial of TEF 2, as I understand it is now called, and no doubt he will bring forward positive proposals for change. But if there is no proper way of taking forward that change, what guarantees does anyone have that the process will have a satisfactory outcome? Changing the nature of the way in which the TEF is being taken forward by the Government at the moment, and dealing with concerns about the narrowness of the metrics and about the process of how future change will be dealt with, explains why the amendment includes references to the role of Ministers and of this House and the House of Commons through statutory instruments. Providing for proper transparency and accountability is important; that is why we should have a continuing interest in and concern about what is taking place.

The nub of the amendment is that change must take place in the lecture theatre and through the process of learning, not from outside. It has to be driven by, and created and expanded from, what is taking place, and from spreading best practice in higher education generally. There is a great deal of good practice as well as some extremely shoddy and unacceptable teaching. As the noble Baroness, Lady Wolf, said in our debate on Monday, it is based on the presumption that this is about students. If it is about students, you would expect student bodies to be in favour of the proposals—but they are not. You would expect universities to be universally in favour of them—but they are not.

I just want to refer to the Faustian deal that Universities UK and the old HE body appear to have made with the Government. I have no idea how it came about. Much of what is in the letter sent out last week is highly commendable, but the timing and its presumption that the deal has been done are unworthy of those with the highest academic standards at their fingertips and the best interests of the sector at heart. So let us presume that we have made great progress, although a great deal can still be done. Let us hope that Ministers have the confidence to continue listening and reflecting so that they can bring to bear the wisdom that has been evident both in this House and beyond, and will be prepared to adjust and to deliver something that we all want to see: considerable improvement not only now but in the future so that we can provide the kind of support for teaching that has been evident for research for so long.

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Moved by

[Lord Blunkett]

72: Clause 26, leave out Clause 26 and insert the following new Clause—
“Scheme to provide information about the quality of higher education and higher education teaching
(1) The Secretary of State must by order bring forward a scheme to assess and provide consistent and reliable information about the quality of education and teaching at English higher education providers and at higher education providers in Wales, Scotland or Northern Ireland which apply to participate in such a scheme.(2) The scheme must be wholly or mainly based on the systems in place in higher education providers which ensure that the courses offered are taught to a high standard.(3) The Secretary of State, or that body designated by the Secretary of State to develop such a scheme, must, before such a scheme is introduced, and on a regular basis thereafter, obtain independent evaluations, including an evaluation from the Office for National Statistics, of the validity of any data or metrics included in such a scheme.(4) Any scheme introduced must evaluate and report on whether an institution meets expectations or fails to meet expectations on quality measures, but must not be used to create a single composite ranking of English higher education providers.(5) The Secretary of State’s power to make an order under subsection (1) is exercisable by statutory instrument, a draft of which must be laid before, and approved by, a resolution of each House of Parliament.”

[Lord Blunkett]

In light of the Minister’s response and, with respect, the fact that things have got worse rather than better with the words “ineligible for a teaching excellence award”, it would be wise to test the view of the House and give the Government time to think again.