Sharia-compliant Student Finance
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
There is a process in place. I know that the noble Lord, Lord Sharkey, has expressed frustration about its progress, as has the noble Baroness. These changes were mooted in 2012, and there was a consultation in April 2014 and the Government published their response. We then enabled the process to go through Parliament through the Higher Education and Research Act 2017. This is a complex process and it requires time to get it right.
Lord Watson of Invergowrie (Lab)
My Lords, the Minister has just given us what can best be described as obfuscation. This is a sorry tale dating back, as the noble Lord, Lord Sharkey, said, to 2013, when Prime Minister Cameron spoke to the World Islamic Economic Forum and promised a sharia-compliant student loan scheme:
“Never again should a Muslim in Britain feel unable to go to university because they cannot get a Student Loan—simply because of their religion”.
The Government’s chosen vehicle was the Higher Education and Research Act 2017, which the Minister himself guided through your Lordships’ House. At no point did he rebut the view given to those of us involved in that legislation that an Islamic-compliant scheme could be in place within a year, given the political will. There have now been six years and three Prime Ministers since that commitment was given to the Muslim community. The Minister says—and I believe him—that he is very keen to increase diversity in our universities, so how can he justify the foot-dragging that is causing precisely the opposite?
Viscount Younger of Leckie
I certainly do not call it foot-dragging. We would be the first Government to introduce a system of student finance compatible with Islamic finance principles; that is a good start. To give a little more detail on the complexities, we have identified and have been considering a range of issues which include, among others, accounting for the new arrangements, the degree of legal separation required, the treatment of cash flows, the nature of the commitments that a student will make under the new system and the method for establishing equivalence of outcome.
Creative Industries: Apprenticeship Levy
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
There is a lot more that we are doing for the creative industries regarding the apprenticeship scheme. For example, we are working very closely with industry bodies such as the Creative Industries Council, Creative & Cultural Skills and ScreenSkills, so on the back of the Bazalgette report we are looking in greater detail at what more we can do in this important sector for the UK.
Lord Watson of Invergowrie (Lab)
My Lords, despite what the Minister said, the Government have raised the transfer rate. According to ScreenSkills, the skills body for the screen-based part of the creative industries sector, a total of £55 million a year in creative apprentice levy payments is wasted because two-thirds of levy payers in the sector are able to use only 20% of the funds, for the reasons already outlined by noble Lords. One means of clearing that blockage would be to introduce new flexibilities which would allow employers to pool vouchers and share apprenticeships through a specialist apprentice training agency. Will the Minister agree to press the Skills Minister to meet urgently with creative sector companies to find out how that can be achieved?
Schools: British Sign Language
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
Again, it is helpful to have some expert input. I know that in developing this GCSE—if it goes ahead—work has been done between Signature, the DfE and Ofqual. The SEN code of practice makes it clear that children and young people with special educational needs should be helped to prepare not just for school but for adult life.
Lord Watson of Invergowrie (Lab)
My Lords, the noble Baroness, Lady Nicholson, spoke of course with great authority when she highlighted the gulf between the number of people in this country who are deaf or hard of hearing and those who are British Sign Language users. So I welcome what the noble Viscount said about the DfE working to develop subject content for a sign language GCSE.
It is now 16 years since the Labour Government gave British Sign Language official status as a language. The next Labour Government are committed to introducing a British Sign Language Act, which will go a step further and ensure that it is allowed in schools and that, as with other languages, British Sign Language users are able to access education in their first language. This should not be party political issue, so will the noble Viscount undertake to press his party to mirror that commitment to British Sign Language legislation for schools?
Viscount Younger of Leckie
I will not be drawn into making any commitment, but I say again that the department takes this extremely seriously. The process is well under way but as I said at the beginning, it is complex. The department reviewed a proposal from the exam board for a BSL GCSE in November 2018. After considering that initial proposal, it confirmed in February 2019 that it would begin the process of developing draft subject content. We think that is the right way forward at present.
Education: Flexible Lifelong Learning
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
I reassure my noble friend that there is no delay, as far as I am aware—“shortly” is the word that I am using. The Government will respond to the proposals that Philip Augar produces by the end of the year. But the Government plan to invest nearly £7 million this academic year for 16 to 19 year-olds in education or training, including apprenticeships.
Lord Watson of Invergowrie (Lab)
My Lords, the Government’s 2012 higher education funding reforms have resulted in a drop of something like 60% in part-time undergraduate study. The noble Viscount and indeed other Ministers use as a defence the Augar review recently referred to, saying that no government action can be taken in advance of that—but that does not stand up to scrutiny. Last September, the Department for Education announced the introduction of maintenance loans for face-to-face part-time undergraduates, which was meant to be extended to part-time distance learners this September. But last month, the Universities Minister used a Written Answer to slip out the news that distance learners were no longer to have that access support available to them. Will the noble Viscount explain why, when he talked earlier about barriers to learning, his department believes that that decision will assist in reversing the downward trend of those indulging in part-time education?
Viscount Younger of Leckie
The issue of whether distance learners should receive maintenance grants was considered very carefully and rejected. But the Government are absolutely dedicated to stopping the decline in the number of part-time students. In other words, it has reduced. We have made a number of changes to support part-time and mature learners. This academic year, part-time students are, for the first time ever, able to access full-time equivalent maintenance loans.
Education: Alternative Providers
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
I cannot confirm that it will be produced before Easter. I know it is due to be published shortly, and I think we all want to see what he comes out with. Ofsted certainly needs to, and does, view the private providers with as much attention as the other providers.
Lord Watson of Invergowrie (Lab)
My Lords, the noble Lord, Lord Storey, raised an important point about unregistered schools in the AP sector. I think the Minister—who is slightly out of his normal remit today in answering this Question—may have confused the Ofsted inspections of schools of faith character with those in alternative provision. However, I can give him a useful route map out of this problem for the Government. The Labour Government’s Education and Skills Act 2008 provided for the registration and inspection by Ofsted of unregistered schools for alternative provision. Plans for that to come into practice in 2012 were put on hold by the coalition Government, and that is where they remain. With exclusions in schools having risen by more than 50% in the last five years, why are the Government still refusing to implement fully the 2008 Act and ensure that all providers of alternative provision are registered?
Viscount Younger of Leckie
I am not sure the noble Lord is right. My full understanding, having looked at the matter very recently—in the last two or three days—is that Ofsted is responsible, working with local authorities, schools and AP providers, for looking at AP settings that for a variety of reasons are unregistered. That continues to be the case.
Brexit: Research Funding
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
Of course it depends on which jobs they are seeking, but yes, I certainly fully endorse learning languages, and I am sure that all educationalists agree.
Lord Watson of Invergowrie (Lab)
My Lords, despite several opportunities, the Minister has failed to say what will happen after 2020 when the Government’s guarantees run out. He will be aware that last month the EU Committee of your Lordships’ House published a report on the Erasmus and Horizon programmes, in which it noted that,
“it would take many years to emulate the tried and tested mechanism for international research collaboration provided by the EU framework programmes, the established research partnerships they support, and the EU’s joint infrastructure capabilities”.
I hope the Minister has taken note of that. With fewer than 20 days left until this country is meant to depart the European Union, can he give any kind of certainty to EU students and researchers about their futures after 2020?
Viscount Younger of Leckie
I have given the guarantees I can to the extent that I can. However, the Government are absolutely clear that ensuring that the UK is at the forefront of science and technological innovation will be at the core of next week’s Spring Statement. The Chancellor will maintain the country’s reputation as a pioneering and world-leading nation as it leaves the EU by investing £200 million in cutting-edge genetic research in Cambridge, state-of-the-art lasers in Oxfordshire, and a supercomputer in Edinburgh. Much action is going on in the UK, notwithstanding what might happen with EU exit.
Universities: BAME Women in Leadership Positions
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
My Lords, there is a balance. I thank my noble friend for making that point because this House took through autonomy for institutions during the passage of the Higher Education and Research Act, so that autonomy is important. On the other hand, the Office for Students has a statutory duty to protect the academic freedom of English higher education providers, so while it has its duty to put some pressure on the universities, equally, universities must be allowed to make decisions themselves as to who they employ and how much they are paid.
Lord Watson of Invergowrie (Lab)
My Lords, the dearth of black, Asian and minority ethnic people, particularly women, in senior positions in Russell group universities, is shocking but not surprising. Surely it a symptom of so few BAME students having been to those universities over the years; academics who were themselves at Russell group universities tend to dominate senior positions there. They should adopt appointments policies that deal with underrepresentation in the short term. I welcome the Minister referring this matter to Karen Blackett to look at, but have attempts by leading universities to widen student participation not proved inadequate? Should the Minister now advise the Office for Students, as the regulator, to put greater pressure on Russell group universities to make sure that their admissions policies are fit for purpose?
Viscount Younger of Leckie
The Question is mainly focused on staff and the workforce. There is more to be done to create a workforce that represents British society today, particularly in universities. It is important that universities, as the noble Lord alluded to, set up a pipeline to encourage BME students to come in, go on to do research and then become academics. That is a genuine focus of this Government.
Universities: Financial Sustainability
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Lord Watson of Invergowrie (Lab)
My Lords, I thank the Minister for repeating the Answer to the UQ in the form of a Statement. Two impending great unknowns have combined to leave many universities feeling vulnerable. The first is, of course, that the Augar review, whose publication date remains shrouded in mystery, seems likely to recommend a significant cut in tuition fees. Can the Minister give a commitment that should that be the case, it will not lead to a reduction in university funding? The more serious problem facing universities is the uncertainty after we leave the EU, particularly if that should happen without a deal, which the Prime Minister has consistently refused to rule out.
Now we learn from media reports that at least four universities have serious financial problems. I hope the Minister will tell noble Lords how many institutions his department understands to be at risk of insolvency. Reading we know of, but it seems the Government do not have a handle on the situation there because when the Urgent Question was heard in another place this afternoon, the Universities Minister suggested that Reading should contact the Office for Students, even though the university has said that it did so last week.
The Minister caused some astonishment in the Urgent Question exchanges when he stated:
“There is an expectation that providers may, in a small number of cases, exit the market altogether as a result of strong competition”.
It was almost a throwaway remark. The Government seem not to have considered that not the least important factor when a university finds itself in financial difficulty is the potential knock-on effects in the local community, because it is a matter of concern not only for students and staff at the institution but for the local area in which it is based.
There also remains some doubt about the fundamental role of the Office for Students in this situation. Is it merely the regulator or is it a player? Last year, its chair, Sir Michael Barber, stated unequivocally that the OfS would not bail out any institutions that found themselves in financial trouble, yet soon after we learned that an unnamed institution had been provided with an emergency loan when it ran out of cash at the start of this academic year. Will the OfS remain a lender of last resort? That question, I fear, may be put to the test in the not-too-distant future. Will the Minister clarify government policy on this?
Finally, last week the Universities Minister said that the DfE was working with the OfS towards establishing student protection plans. Earlier today in another place, the Minister said he hoped to complete reregistration by the end of the year. If that is the case, it is not very reassuring to people who need reassuring at this time. Will the Minister say how many universities and students are currently covered by student protection plans and how many are not? These questions have assumed even greater importance over the past few days.
Viscount Younger of Leckie
I thank the noble Lord for multiple questions. I shall first address the Sir Philip Augar review. As the noble Lord would expect, I cannot comment on what might come out of the review, but I say again that it is ongoing and more information on its outcomes will be available in due course. When that happens, the Government will be in a position to respond.
The noble Lord also asked about reports in the papers of some universities with serious financial problems. We are certainly aware of them, but I am not in a position to speak about any universities that have these issues and do not want to do so. The OfS continues to say that it will not bail out providers. That is not its role. The noble Lord asked about student protection plans. I will need to write to him on the number of universities with protection plans in place. The noble Lord raises a very important point. One of the most important aspects of the reforms that we brought forward in the Act was to ensure that students have proper protection plans in the unlikely case that providers do not make any.
Higher Education (Fee Limits for Accelerated Courses) (England) Regulations 2018
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Lord Watson of Invergowrie (Lab)
My Lords, I think it is fair to say that there is broad agreement on the urgent need to address the lack of flexibility in our higher education system. With the challenges facing us when we pull up the drawbridge on 29 March, not to mention the many unknowns around the world of work as automation gathers pace, our education system urgently needs to adapt, particularly the further and higher education sectors.
To some extent, the Government have acknowledged that, because over the past 18 months or so we have seen the publication of the Made Smarter Review, the industrial strategy, the Government Office for Science report Future of Skills & Lifelong Learning, the post-18 review, the careers strategy and the national retraining scheme, inter alia, which leads to something of a conundrum. With Philip Augar about to publish the review of his panel’s look at post-school education, why did the Government pre-empt that, as long ago as November, by publishing their proposals for accelerated degrees? Would it not have been better to await the Augar recommendations before announcing the accelerated degree proposals to fit in with the Government’s intentions thereafter?
The proposal for the increase in accelerated degrees serves little purpose in the great uncertainty that existing universities and providers face from the lack of knowledge of what the future holds in terms of our participation in Erasmus+ and the Horizon research programmes, plus the withdrawal of funding from the European Social Fund and European Regional Development Fund, from which many community-focused universities and providers have benefited.
Accelerated degrees received statutory underpinning in the Higher Education and Research Act. During the passage of that legislation, the Minister and I, together with many others, some of whom are here this evening, spent hour after hour discussing hundreds of amendments. It was the task with which we were engaged at this time two years ago, and I doubt that any of us would wish to turn the clock back to that particular period.
We support the concept of accelerated degrees but not in the form outlined in these regulations. Many universities already offer this form of study, but the new provisions will allow the two-year course funding system more flexibility to further encourage their uptake.
Many noble Lords have highlighted the fact that accelerated degrees tend to be limited to subjects such as business and languages. As others have done, I put it to the Minister that it is important that he sets out whether he intends to ensure that universities are properly funded so as to be able to offer higher course subjects such as engineering or the sciences to further increase student choice. I was taken by the suggestion from my noble friend Lady Blackstone that the Government should provide specific funding to universities to reduce the load on students wishing to study for an accelerated degree. I look forward to hearing the Minister’s response to that.
The Government highlight as a benefit of these regulations that students who opt for a two-year degree will save at least 20% in total tuition costs compared with the costs of a standard three-year course. More accurately, I suggest, we are being asked to support a 20% hike in tuition fees, albeit for a two-year period of study, without any commensurate guarantee of an improvement to, or at least maintenance of, the quality of tuition and …, the other provision from universities.
It is the details and the firm focus on increasing the maximum fee cap with which we disagree because we do not believe that, at this stage, it will bring the wider benefits to universities or, more importantly, to potential students that the Government claim it will. We are not alone in that view. For example, the chief executive of the Russell group said:
“Greater choice for students is always good but I would caution ministers against ‘overpromising’. The Government’s own projection for the likely take-up of these degrees is modest and we actually hear many students calling for four-year degrees, for example, to spend a year on a work placement or studying abroad”.
MillionPlus said:
“Demand for accelerated degrees has been low for many years and is unlikely to increase significantly on account of these fee changes”.
There is little evidence of solid demand for this type of course.
The real casualties from the 2012 funding changes that led to the tripling of tuition fees have been part-time students in England, whose numbers have dropped by 59% in the last six years. Those who have been most deterred from study by that increase are not those aged 18 entering full-time higher education but older, especially disadvantaged, students. It is apparent that the biggest reason for the decline is the fees and funding policy in England because, as noble Lords will know, the average student debt in England has risen to £46,000. Even more alarmingly, the Institute for Fiscal Studies found that the removal of maintenance grants from students from low-income families meant that they were graduating with the highest debt levels, which in some cases are in excess of £57,000. Therefore, the trend in those potential applicants has been away from participation in higher education.
These regulations increase the higher amount to start a degree to £11,100 on an annual basis. It is not difficult to imagine the impact that will have on the ability or willingness of less well-off students, or potential students, to enrol for these courses. Of course we shall never know how many were unable or unwilling to meet the increased pro-rata figure.
The University and College Union has said that the new arrangements are not about increasing real choice for students, but could allow for-profit companies to access more public resources through the student loans system. That was a point that many noble Lords cautioned against during the various stages of the Higher Education and Research Act 2017 in your Lordships’ House and it is a strong possibility that we believe the Government should not ignore. However, I should say that it is at least open to speculation as to whether or not such an outcome would be anathema to the Government’s ambitions for the future direction of higher education.
The Explanatory Memorandum to these regulations lists the theoretical benefits for providers and students, but it also refers to the numerous concerns that have been expressed across the sector. It says:
“Students on existing accelerated degrees report a very high level of satisfaction, and highlight the opportunity to graduate and start or resume work a year sooner … together with costs savings and academic benefits”.
That ignores the fact that those degrees would be available only to students able to study all year round. That has major implications for access and participation for part-time students which, as I have already highlighted, are in freefall under this Government. Can the Minister explain how accelerated degrees will address the devastating fall in part-time higher education study?
There is another consideration about the wider benefits of student life beyond the degree itself—what the Minister called “the student experience” in his opening remarks. The University and College Union has stated that:
“Accelerated degrees result in reduced opportunities for students to engage in part-time employment over the course of their studies. This limitation is particularly acute for students from disadvantaged backgrounds who are more likely to need to seek employment in order to fund themselves through university”.
Would that students did not need to work part-time during their course, as was the case when noble Lords here today were studying. But we know that most do and perhaps that demonstrates that the accelerated degree proposals are focused not on those sorts of people, but in many cases on better-off or employer-funded applicants.
The lack of downtime—holiday time, if you like—factored into these degrees also means that they could prove difficult to student parents or those with caring responsibilities. Have the Government given due attention to such considerations? I hope the Minister might say something about that aspect of the regulations, because I suspect that the students he quoted, who enjoyed pursuing hobbies and other activities, were not encumbered by financial constraints.
The Open University says that there needs to be increased choice and flexibility for students to study at a time, pace, mode and place that they choose; we very much agree. One of the stated objectives of the 2012 funding reforms was to allow greater diversity of provision, including more short two-year courses and more part-time opportunities. With the reforms having failed to achieve that objective, it is vital to increase options. However, the Government have failed to address the crisis for the Open University and other adult learning providers. Accelerated degrees are just one form of flexibility and, as MillionPlus says, the Government have missed out on the opportunity to create,
“greater flexibility in fee structures and loan availability to enable students to access financial support for periods of study of less than a year (for example to borrow by modules rather than by year)”.
We agree with it when it concludes that:
“True flexibility…can only come when students are not penalised for studying part-time, or for shifting between full and part time study”.
Finally, it is clear that the Government have given little thought to the impact on staff workloads of accelerated degrees. There is no guarantee that existing university teachers will be willing or able to teach the new accelerated degrees as proposed. There is a risk that an increase in accelerated degrees will compromise time currently allocated by these teachers to research, as other noble Lords have said. Worse, it is likely to lead to the use of even more casualised teaching staff to deliver provision during the summer months. With threats to our existing world-class higher education institutions and research piling up from the uncertainties of an existence without the solidarity offered by membership of the European Union, that is not a chance that we should be taking.
What steps have the Government taken to alleviate the pressures on staff that these courses may create? Ministers should focus on not simply accelerated courses for a market driven by untested new providers but protecting the global strength and reputation of UK higher and further education.
We do not support these regulations in what they seek to achieve because we do not believe that they are equipped for that. When they were debated in another place two weeks ago, the Government carried the day when the Opposition put the regulations to a vote. We do not intend to do likewise in your Lordships’ House, but the concerns that I have outlined must be addressed if accelerated degree courses are to contribute meaningfully to the greater flexibility needed in higher education.
Viscount Younger of Leckie
My Lords, I appreciate the broad support for these regulations, but I have also taken note of a good number of questions that have been raised this afternoon in the Chamber, which I regard as being extremely helpful.
As one lays regulations such as these, it is important to continue to listen. This will definitely feed into and impact on the monitoring and reviewing of what we have started today—and that helps to answer a question from the noble Lord, Lord Luce, who asked what we will do to be sure that we monitor these regulations and their rollout, effect and impact. I reassure the noble Lord that we will most certainly do that.
I will also say at the outset that I agree with the noble Lord about the inspirational leadership that has come from Sir Anthony Seldon, who has spoken a lot about accelerated degrees. Knowing him a bit, it is not all in favour. He has his own points to raise about it, but he has been a leading light, I think it is fair to say, in this particular respect, so I am delighted that we have reached this point today on the regulations, bearing in mind his input.
The noble Lord, Lord Willetts, mentioned the Augar review. To repeat what I have said before in the Chamber, there is no new news but the review will report in early 2019, as scheduled. Mr Augar will report at an interim stage. The Government will then consider and conclude their overall review—it is a government review—and accelerated degrees are being considered by this review. So, until the review is concluded, we will continue with the government aim to increase wider provision and access—but, of course, as the House would expect, I cannot pre-empt the review’s conclusions.
The noble Lord, Lord Winston, raised an interesting and much broader point. I listened carefully to what he said about the—if I may put it this way—human side of accelerated degrees and their participation in society, and also a focus on the measures for success, which I thought was very interesting. We of course agree about the importance of higher education in developing a student’s all-round character and we will certainly reflect on this point in considering how we review accelerated degrees. Accelerated degree students’ term-time so called “free time” is the same as that of standard students. Accelerated degree students do not consider their student experience and their capacity to mature as inferior to those of standard students. I say that at the outset because it is an interesting reflection on the subject that we are talking about today.
The noble Baroness, Lady Garden, raised an interesting question about international recognition and whether the Government had considered this. The QAA does not believe that accelerated degrees pose a specific issue in terms of international recognition. An accelerated degree comprises the same number of academic credits as a non-accelerated equivalent—but it is obviously another thing that we need to reflect on.
The noble Baroness, Lady Garden, also asked about assurances and an update on the future of Erasmus+. We welcome the proposal for the successor scheme and, as stated in the White Paper, we are,
“open to exploring participation in the successor scheme”.
Timing is dependent on the wider negotiations on the future UK-EU partnership, as she will be aware, and I am sure that other Ministers have said this in the past. In addition, an updated technical notice has been published by the DfE on GOV.UK which states the current position on no-deal preparations for Erasmus+. The department is working to agree with the European Commission what continued participation in the programme post exit could look like, but we have, so far, had no formal engagement or response from the Commission—that is where we are on that.
The noble Baroness, Lady Garden, also asked about the extension of accelerated courses beyond the humanities. I say to the House and to the noble Baroness that there is no reason why many courses other than humanities could not be accelerated. It would be for providers to consider the requirements of professional accreditation bodies. I go further to remind the House that the whole point of HERA was to allow universities and providers to have the autonomy to decide for themselves what might be best for their students, and to look at the demand and how they can best market the courses. As I said, it is early days, and we think, as the noble Baroness, Lady Blackstone, said, that there is the opportunity for some enlightened thinking in universities on these regulations.
Disabled Students’ Allowance: Assistive Technology
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
This is continually being looked at but I know, as I have said in the Chamber before, that three-quarters of students—including disabled students—own their own laptop and that the average spent is £253. Given that we top up the £200 by whatever is required for the disabled students, we think it is reasonable for them to pay the first £200. Some help can be gained from individual higher education providers.
Lord Watson of Invergowrie (Lab)
My Lords, earlier this year the All- Party Parliamentary Group for Assistive Technology published a comprehensive report, Accessible Virtual Learning Environments, aimed at assisting the Government and the further and higher education providers to implement effectively the new digital accessibility regulations, which became law in September. Can the noble Viscount say whether the Government intend to respond to the recommendations in that report, particularly those aimed at the Department for Education, the Office for Students and Ofsted, and if so, when?
Viscount Younger of Leckie
I cannot give a date as to when we will respond but we certainly will. On the question of IT, the SLC has recently issued a letter informing the sector that we will be launching a tendering exercise for the supply of IT hardware, so this matter is continually under review.
Local Authorities: Children with Special Needs
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
I know that the noble Lord has strong feelings about this area, and so do we. But I say again that the vast majority of cases are concluded without the need to resort to tribunal hearings. Where families make an appeal, the local authority will need to judge how to respond, and, in so doing, must put the interests of the child or the young person first. Ultimately, it is for local authorities to make these judgments. This is a long-term rollout, so it is too early to say how well it is working, but we believe that we are definitely going in the right direction.
Lord Watson of Invergowrie (Lab)
My Lords, earlier this year we had the shameful sight of parents crowdfunding legal action against cuts to SEN provision caused by councils whose own budgets have been cut yet again. There are certainly local authorities which could target scarce resources more effectively, but it would be wrong to let the Government dodge responsibility for the fact that there is inadequate SEN provision across the board, because they have sole ownership of that.
The Minister said in his Answer to the noble Lord, Lord Lexden, that councils have responsibilities under a code of practice. That is all very well, but local authorities have had their budgets cut by almost 50% since 2010, which makes it extremely difficult for them to meet their needs. The Minister made no reference to that. This is driven by the austerity policy, which was eviscerated brilliantly by the noble Lord, Lord Skidelsky, in the Budget debate in your Lordships’ House last week, when he called it,
“economically illiterate and morally fraudulent”.—[Official Report, 13/11/18; col. 1828.]
What could be more morally fraudulent than parents being driven to the courts to seek the adequate SEN provision that their children so desperately need?
Viscount Younger of Leckie
It is not so much that they are being driven to the courts. The fact is that it is beginning to work well, to the extent that the local authorities, in conjunction with CCGs and schools, are identifying what is required. Altogether, 5,460 appeals were registered in 2017-18. So the number of appeals is going up and demand is going up. It is varied around the country: Kent, for example, had 204 appeals. The point is that the load on local authorities is increasing. Yes, we recognise that there are strains, but the most important thing is to put the child and the young person first.
Design Engineer Construct Programme
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
In answering the noble Baroness’s question I would say that it is not the end of the road, because schools and colleges can offer any qualification that has been accredited by Ofqual and approved for teaching to the appropriate age group, under Section 96 of the Learning and Skills Act 2000. It is up to schools, therefore, to decide whether they want to continue with this particular qualification—although it is unlikely that they will do so, because they are not going to be listed on the performance tables. Again, what we are talking about is the greatest shake-up that we are undertaking of post-16 education since A-levels were introduced 70 years ago.
Lord Watson of Invergowrie (Lab)
My Lords, there is little understanding of the built environment professions. As the noble Lord, Lord Redesdale, says, few young people aspire to a career in what is a significant sector of the economy. That is why Design Engineer Construct was developed as a learning programme for school students, to help to inspire and create the next generation of those professionals. Surely they should be given every encouragement to flourish in that endeavour? From what the Minister says, that is not the case so far. When will the Government end their obsession with the English baccalaureate and accept that a place at a Russell Group university is not the appropriate destination for every young person, and instead encourage young people to get the sorts of employability skills that Design Engineer Construct will provide?
Viscount Younger of Leckie
We are on the same page. I hope the noble Lord will understand that we are undertaking a number of very important reviews, looking particularly at the 16 to 18 year group. The T-level rollout is one of the most important schemes, and we are on track to roll out the first three from September 2020 and a further 12 from then on. This is joined up with other reviews: we want to provide a seamless approach from a younger age with better career progression and management for young people; and to make sure that we push people up the vocational route into the right positions to produce the skills that we need for the economy in the future.
Student Loan Books
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Lord Watson of Invergowrie (Lab)
My Lords, I thank the Minister for repeating the Statement. I have to say, it contains rather less detail than the announcement headed “Government Asset Sale” that appeared on the website yesterday evening.
I listened to Mr Gyimah’s exchange today with my colleague Angela Rayner, the shadow Secretary of State. Unfortunately, he dodged all of her questions on the valuation of the loans the Government are selling. He simply confirmed that the Government would forgo the 25-year revenue stream in favour of a one-off receipt. I hope that the Minister will be more forthcoming. Will he tell noble Lords whether the Government have identified a minimum amount to be raised—that is, an amount at which they will decide that the sale would simply not be financially viable? Previously, the Government have said that they will raise £12 billion by selling off these loans, but will the Minister tell us the total value of the loans that will need to be sold to achieve this? Will he also explain how the apparently random figure of £12 billion was calculated? Mr Gyimah said that he would share the range of estimates with Back-Bench Members in another place. Is the Minister in a position to confirm that this information will also be shared with Members of your Lordships’ House?
The Government have said that the revenue from selling off student loans now will enable them to invest in vital public services today. We all know that the Treasury has the final say on specifically where this windfall will go, but surely most, if not all, of it should be reinvested in the education budget; goodness knows there is a need for it.
I will mention just two areas. First, the schools budget is in such a dire state that last week, 2,000 head teachers—yes, head teachers, no less—demonstrated outside 10 Downing Street to highlight their predicament. As we heard in Oral Questions today, that led to the Schools Minister issuing misleading statistics to cover up the true position on schools funding. Secondly, further education has suffered dreadfully over the past two decades, losing more funding than any other education sector. Next week, we will see a lobby on Parliament by colleges and their staff in an attempt to highlight and begin to redress the funding cuts they have endured. Those are just two areas of education in vital need of additional funding. The £12 billion that the Government say they will raise would go a long way to filling those gaps. What effort will the Minister and his colleagues make to ensure that a major chunk of the proceeds from the second sale of the student loan book will return to the education budget?
Viscount Younger of Leckie
I thank the noble Lord for his questions. The detail in the WMS that we issued yesterday was pretty comprehensive, but perhaps I can help the noble Lord by adding a few things.
Yesterday, we announced the start of the process for the second of these sales. It relates to the selection of loans that became eligible for repayment between 2007 and 2009. They have a face value of £3.9 billion but, for commercial reasons, we cannot disclose what the Government think the retention value is, particularly as we are pursuing this programme of sales. I am sure that the noble Lord will understand. He will know that the Government received cash proceeds of £1.7 billion from the first sale of the student loans and the reduction in the PSND.
Another question the noble Lord raised concerned the proceeds that will be received by the Treasury. Yes, they go to the Treasury and it is up to the Treasury to decide how to spend them. I cannot confirm whether those funds will go to the DfE.
Higher Education and Research Act 2017 (Cooperation and Information Sharing) Regulations 2018
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie (Con)
My Lords, I thank the noble Lord, Lord Watson, for tabling this Motion. The noble Lord has raised concerns that these regulations create significant powers for the Office for Students to grant access to students’ confidential data to a single commercial provider. He also calls on Her Majesty’s Government to carry out a privacy impact assessment on the regulations. Before addressing the noble Lord’s concerns, I reassure noble Lords that these regulations are very much in the interests of students and taxpayers. They enable the OfS to work appropriately with other bodies to address any potential wrongdoing or concerns about quality, students’ experience, and the management and governance of the higher education system. These regulations are essential for the OfS to do its job well, and will be accompanied by strong safeguards around data protection and privacy.
The noble Lord, Lord Watson, asked about the timing of the laying of these regulations and proper scrutiny. I reassure him that these regulations are absolutely subject to proper scrutiny, as is any other statutory instrument laid under the negative procedure. They are important to the OfS being able to operate effectively as a regulator.
Lord Watson of Invergowrie
I thank the Minister for that answer, but it does not get to the root of the problem. He talks of scrutiny, but the point is that these regulations came into force some five weeks ago. How does that square with scrutiny? It does not with me.
Viscount Younger of Leckie
They have been scrutinised as part of the scrutiny process. That is where we are—there is no issue to discuss here.
Viscount Younger of Leckie
They have gone through the scrutiny procedure, as mentioned.
Let me continue. These regulations and the enabling primary legislation provide greater protection, scrutiny and control over information sharing than before. The regulations replicate, and in some cases improve on, the arrangements that HEFCE, OFFA and the DfE had in place for sharing information with other bodies. As HEFCE’s and OFFA’s enabling legislation did not place controls around co-operation and information sharing in the same way as the Higher Education and Research Act 2017 does for the OfS, the legal framework around information sharing has actually been strengthened. The parliamentary process for the regulations, including this very debate, also means that there is more scrutiny and oversight of the information sharing than before.
I should now like to address the concerns raised by the noble Lord, Lord Watson, in turn, starting with his question about the consultation with UCAS and universities, and, in particular, students’ concerns regarding access to their data. As the noble Lord may know, officials and Ministers have regular meetings and interactions with universities, and they work closely with UCAS. On student concerns regarding access to their data, I reiterate that personal data would be shared only if there were serious concerns and if it were necessary to share that data.
Viscount Younger of Leckie
I take note of my noble friend’s broader points about the scrutiny of secondary legislation—I am simply taking note of that—and I will write to him on his points about data-sharing agreements and their publication. I hope that that will satisfy him.
Lord Watson of Invergowrie
My Lords, I thank all noble Lords who have participated in the debate. I thank the noble Lord, Lord Lucas, for his support, which I welcome, and for sharing our concern about the privacy of the information which is to be shared. I noticed that while he was characterising the fact that the Government have got this wrong he referred, I think, to the Minister saying, “Sorry, we will not do it again”. I did not hear those words, or anything that approximated to them, and there is a great likelihood that the Government will, in another setting, do something similar again. That is why we felt it appropriate to table this Motion to Regret.
The noble Lord, Lord Lucas, also referred to the bad drafting and wide phraseology. I concur with him—it is a part of the hole that the Government have dug for themselves.
I appreciate the support of my noble friend Lord Adonis, who spoke about the significant invasion of people’s liberty, which we believe this is. Our doubts are not assuaged by the Minister’s comments that these regulations will be in the interests of students. He mentioned the issue of quality—we will give him that—but that is not what we are talking about today; we are talking about privacy. I welcome two points made by the Minister. He said that the collaboration agreement with Pearson will be published and that Pearson will be prohibited from selling data that students have given it, as we know it did in the USA.
I have to come back to the Minister on the question of scrutiny. He maintains that this SI has been scrutinised adequately. However, it is all about timing. Yes, the JCSI looked at it, as it does, and the noble Viscount mentioned a debate in the House of Commons. However, that debate took place on 2 July and these regulations came into force on 18 June. I do not call that scrutiny by any standards and it is disingenuous to suggest that these regulations have been scrutinised.
The Minister also said that data sharing would conform to the data protection law. Only weeks after the Government made quite a bit about the new Data Protection Act which is supposed to give people more control over how their data is used, they are passing—I would say pushing through—regulations into law that could ride roughshod over students’ data rights, a point we have heard being made by many noble Lords. There is an inconsistency and a disconnect in this which I do not think the noble Viscount has dealt with.
I was rather surprised when the Minister went on to say that the OfS is not obliged to share data. I do not think that any suggestion was made that it is obliged to do so, but the fact that it is merely possible when appropriate is the issue. The sharing of information, including personal details, will clearly take place at some point, but of course the unknown is how often, in what circumstances and what information will be involved. I suggest that many students and their families will be uneasy and I doubt whether their fears will be assuaged by the statement made by the noble Viscount that the regulations will provide greater protection with more security control and transparency than has been the case in the past. That is certainly not the impression which noble Lords have gained in this debate.
It is interesting to note that the Benches opposite have filled up in the past 10 minutes or so, perhaps in anticipation of the denouement of this debate. I have to disappoint them because while I would like to press this issue, given how the debate has unfolded, and although we remain concerned about the lack of adequate assessment of the impact on privacy for those whose data will be made available under these regulations, at this point we will monitor their effect in the immediate period following. I am sure that noble Lords can read between the lines and for now I beg leave to withdraw the Motion standing in my name.
Higher Education (Fee Limits and Fee Limit Condition) (England) Regulations 2018
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Lord Watson of Invergowrie (Lab)
My Lords, I thank the Minister for introducing and moving these regulations. He will not be surprised to hear me say that we accept they are necessary, because we want to ensure that higher education providers do not have the ability to charge fees in excess of the level of £9,250 set out in the regulations. I make those comments bearing in mind those just made by my noble friend Lord Liddle. We also welcome the fact that the regulations have the effect of freezing fees for a second year although, given the level at which they are set, we believe that is the bare minimum the Government could have done to alleviate the burden on students, until 2020 at least.
Of course, these regulations do not take account of the provisions of the Higher Education and Research Act 2017, which will see different levels of fees across the sector following the introduction of the teaching excellence framework. I imagine those provisions would have been brought into force via these regulations had it not been for the fact that, in the wash-up prior to the snap election, Labour forced the then Government to concede that there would be a review of the TEF. It had been one of the most controversial parts of a Bill which, it is fair to say, was no stranger to controversy.
When these regulations were discussed in another place last week, my Front-Bench colleague Gordon Marsden MP asked the Minister of State for Universities, Science, Research and Innovation—a title which, I imagine, must be challenging to fit on a business card—for a progress report on the appointment of the independent person who will be in charge of the review. That elicited the response that,
“an announcement will be made in due course”—[Official Report, Commons, Second Delegated Legislation Committee, 16/7/18; col. 8]—
the catch-all phraseology used when the Government do not really know quite what is happening or when anything actually will. I say to the Minister that if someone, somewhere within the DfE does not inject some urgency to the process then the introduction of the TEF will not fall within the planned timeframe. I think he will share my view that it was always going to be a challenge to gain the agreement of all those involved.
The TEF was intended to address the failure of the 2012 reforms to create a market among universities. The recent report by the Economic Affairs Committee of your Lordships’ House noted that there was,
“little evidence to suggest that the higher education sector is suitable or amenable to market regulation”.
The committee went on to say that the TEF,
“will not impose sufficient discipline on the sector to ensure the quality of the ever-increasing provision of undergraduate degrees”,
because:
“Risk is borne almost entirely by students and taxpayers rather than the institutions”.
Further criticism has emanated from the Public Accounts Committee, which has characterised the student loan system as economically unsustainable and damaging to social mobility.
The Minister will know that I believe strongly that those hardest hit by the 2012 funding changes have been in the part-time and distance-learning sector. I have raised this issue on various occasions in debates, most recently last week when we considered the export value of higher education. The noble Baroness, Lady Garden, has just mentioned adult education. The numbers of part-time students in England have dropped by almost two-thirds in the last six years, while those who have been most deterred from study by the trebling of tuition fees are not 18 year-olds entering full-time higher education but older, especially disadvantaged, students. It is beyond doubt that the main factor in that decline is tuition fees because the scale of the decline in England, where fees are much higher, is 2.5 times greater than in the rest of the UK. The Sutton Trust has reported that the biggest decrease in part-time students has been in the 30 to 49 age group, which is of course prime working age. These regulations are silent on that issue.
In a debate on lifelong learning in April, the Minister said that the post-18 funding review, to which various noble Lords have referred, would look at how we can encourage flexible and part-time learning. We await the details with interest. Hopefully, they will emerge when the interim report to which he referred is published in the autumn.
The introduction of full-time equivalent maintenance loans in the coming academic year will provide some financial support to part-time students, although their family circumstances often starkly differ from those of the typical full-time student. Any changes resulting from the post-18 review will not come into effect for at least three years. Can the Minister point to any further government initiative in the interim that could encourage the reversal of the decline in part-time and distance learning?
I could have introduced the thorny topic of student debt but I think I shall leave that for another day. It is important, though, that the Minister does not gain the impression that, while we are content with these regulations, we are also content with the overall structure and distribution of funding in the post-school education sector. The report of the Economic Affairs Committee, to which I referred earlier, characterised it as “unfair and inefficient”. That is a conclusion with which we on these Benches wholeheartedly agree.
Viscount Younger of Leckie
I thank noble Lords for their broad support of the regulations, but I shall pick up on the words mentioned by the noble Lord, Lord Watson. There are some issues circling around; he will be aware of that. Most of the questions focused on the future of fees and I shall spend most of my remarks focusing on the 18-plus review, which was raised initially by the noble Lord, Lord Adonis. I shall give as much information as I can on this important review.
The questions raised by the noble Lord, Lord Adonis, focused on whether there will be an interim report, consultation and polling, which was an interesting question. I think he was asking whether it would be a good thing to poll young people to ascertain their views. That is noted, but I reassure him that part of the extensive programme of engagement with stakeholders and experts includes students and recent graduates, and that is ongoing as part of the review. I shall give a little more information on this.
Noble Lords will know that this review was announced by the Prime Minister on 19 February. It is a major review across post-18 education looking at funding. We want to ensure that there is a joined-up system that works for everyone and is accessible for all. The review will ensure, as an overarching principle, that the system gives everyone a genuine choice between high-quality technical, vocational and academic routes. Students and taxpayers must get value for money and employers must be able to access the skilled workforce they need. Above all, we are also looking at the student experience. We must have a system whereby students go to university and come out feeling that they have had a good experience and have a good degree.
The review is being informed by independent advice. I must stress the independence of this review, so I may not be able to answer some of the questions directly because the review is independent. It is chaired by Philip Augar and one of our colleagues, the noble Baroness, Lady Wolf, is on the panel. There are five leading figures from across the post-18 education and business worlds. There is extensive engagement going on. I reassure the noble Lord and the House that there will be an interim review. I do not have a particular date in mind, but my understanding is—and I will write to noble Lords if I am wrong—that the interim review will come out some time this year. The actual review will come some time early in 2019 and after that there will be a response from the Government.
Apprenticeship Levy: Creative Industries
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
My Lords, we will certainly look at the recommendations and we recognise that the creative industries sector comprises a workforce that is different—it is more diverse, and largely made up of freelance and sole-trader businesses. However, if an apprenticeship linked to the levy is not suitable, then the apprenticeship training agencies could provide a solution for this important sector. ATAs recruit, employ and arrange training on behalf of employers, which includes the 20% off-the-job training. A further solution is for the major levy-paying employers to transfer up to 10% of their levy funds to help the sector.
Lord Watson of Invergowrie (Lab)
My Lords, in giving evidence to the Select Committee on Communications of your Lordships’ House last year, the Skills Minister, Anne Milton MP, said this on apprenticeships in the creative sector:
“One of the challenges for the DfE … is to make sure that we have a flexible system that is fast and constantly renewing itself”.
Further to the comments from the noble Lord, Lord Foster, about the Bazalgette report, Creative Skillset—the strategic body that works to ensure that the UK’s creative industries have access to sufficient skills and talent—produced a four-point report seeking to enable appropriate apprenticeships to be delivered within that sector. One of the points in that report was structural flexibility involving longer apprenticeships and periods between placements. It seems that the Minister is in agreement with Creative Skillset, so can he explain why his colleague has not yet taken steps to ensure that flexibility for the creative sector has been introduced?
Viscount Younger of Leckie
I have already said that we need to do more for the creative sector and that it is an unusual case. That is why, as part of the creative industries sector deal announced on 28 March 2018, there are shared commitments laid out by the Government and industries to address the current and future skills needs in the creative industries. That includes working with employers to monitor the impact of the levy, and to continue to analyse apprenticeship starts. It also includes funding to support the development of priority apprenticeship standards.
Universities: Contract Cheating
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
The OfS of course takes responsibility for this and undertakes an annual analysis of degree classification trends at sector and provider level. It will publish its findings and directly challenge the sector where there is evidence. We welcome the UK Standing Committee for Quality Assessment’s work to define the standards for all classifications of degrees.
Lord Watson of Invergowrie (Lab)
My Lords, the Minister will remember that when the Higher Education and Research Bill was before your Lordships’ House last year his colleague the noble Lord, Lord Young of Cookham, stated that legislation to counter cheating was not necessary and that he had asked the sector bodies to develop guidance with tough new penalties. The Minister just referred to that guidance, but it contains no penalties either tough or new. I noticed that he mentioned sanctions against institutions, but what about individuals? The emphasis is very much on prevention rather than cure, which is all right up to a point, but surely there comes a point when sanctions have to be taken against students on an individual basis. I shall repeat the question just asked by the noble Lord, Lord Storey, and again invite the Minister to say at what point the Government will conclude that guidance is not sufficient and that legislation targeting the providers is necessary to root out the source of this serious problem.
Viscount Younger of Leckie
There are a number of questions there, but I say at the outset that it is often made clear when individuals sign on for courses that they have to be aware of the punishments for students who deliberately cheat. They include being sent down from university. That is made very clear. Some universities, including Nottingham and Oxford, demand an authorship signature from people submitting essays so that if something has gone wrong and they are seen to be cheating, it is down to them and they have signed for it.
Apprenticeships: Levy
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
No. I know that the possibility of MBAs being attached to apprenticeships has been raised in the House before, but that is not the case. It is clear that the system is rigorous so it can check that apprenticeships are up to the right standard and are launched so that they cannot be dressed up as other types of qualifications.
Lord Watson of Invergowrie (Lab)
My Lords, under the co-investment rule that applies as part of the levy, the 10% that members have to pay towards the cost of apprenticeships means that many of them are unable to access the levy funds. Given that the Government have next to no chance of achieving their target of 3 million apprenticeship starts by 2020 without the support of the small business sector, will they consider piloting the suspension of co-investment in order to let small businesses play their full part in boosting the number of apprentices?
Viscount Younger of Leckie
The noble Lord makes a good point about the 10%, but we want to introduce the transfers in a gradual and well-managed way, allowing levy payers to benefit from the added flexibilities while protecting the integrity and affordability of the programme and the interests of non-levied employers. I reassure the noble Lord that we are carefully monitoring the implementation of the transfers, including how the 10% is working.
Apprenticeships: Levy
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
My noble friend is absolutely right. I had not heard about this, and I will certainly follow up on the points that he has raised. The whole point of the apprenticeship scheme is that it is employer driven; it is what employers will need. The standards and quality are set by the Institute for Apprenticeships. We believe it is working well, but I will look into my noble friend’s points.
Lord Watson of Invergowrie (Lab)
My Lords, the noble Viscount the Minister should be aware that young people from low-income families are underrepresented in the apprenticeship programme. Some 13% of school children received free school meals last year; only 10% of young people starting apprenticeships had been on free school meals. One reason for that is that the Government still do not classify apprenticeships as approved education or training, with the result that the families of young apprentices lose the right to claim child benefit and tax credits. Last month at Oral Questions, I highlighted this structural barrier to the noble Viscount and asked him to speak to ministerial colleagues in the Department for Work and Pensions to try to make it more attractive for young apprenticeships to start. Has he done that, and if not why not?
Viscount Younger of Leckie
I can reassure the noble Lord that I have indeed done that. If he has not received a reply, and I am sure he should have, I will follow up immediately and make sure of that. Yes, it is true that some apprenticeships are on the minimum and I have no doubt that is a bit of a struggle. Having said that, many employers are paying more than the average, which is £6.70 an hour, rather than the £3.50 an hour that is now going up to £3.70.
Apprenticeships
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
That may well be the case, but, as I said already, there are several initiatives with employers going into schools, to ensure that schools can push further to encourage apprentices. It is important to create parity of esteem between apprentices and those going along the academic path. A lot of work needs to be done. There are advertisements on the radio at the moment—I heard one on my way in last night—and a full marketing or promotional campaign is going on.
Lord Watson of Invergowrie (Lab)
My Lords, when the Prime Minister announced her review yesterday, she called for parity of esteem between academic and technical routes, to create what she called,
“a system of tertiary education that works for all our young people”.
That is certainly a worthwhile objective. Yet, bizarrely, the Department for Work and Pensions does not class apprenticeships as approved education or training, which leads to the sort of problems outlined by the right reverend Prelate in his Question. Can the Minister envisage a situation in which a 16 year-old goes to his or her parents and says, “I’m considering an apprenticeship or going to further or higher education, and in one of those cases you will lose my child benefit and your tax credits”? It is not difficult to see what road the parents will usher him or her down. To deal with this structural barrier, will the Minister speak to his colleagues from the Department for Work and Pensions to get them to understand that there will have to be some change if a level playing field is to be created for apprenticeships?
Viscount Younger of Leckie
The Government are doing an enormous amount to encourage apprenticeships for all, and in particular for those from disadvantaged backgrounds. The noble Lord mentioned parental input, but it is a joined-up effort of parental input plus schools, led by our own careers strategy. As the noble Lord will know, schools have a mandatory obligation to give proper careers guidance to young people. It is very important indeed that we raise the level of advice that is given to young people on careers.
Education: Modern Foreign Languages
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie(6 years, 10 months ago)
Grand CommitteeRead Full debate Read Hansard Text
Viscount Younger of Leckie (Con)
My Lords, I am pleased to answer this Question for Short Debate and thank the noble Baroness, Lady Coussins, for her passionate advocacy of the importance of teaching modern foreign languages. When the national curriculum was first introduced, it was compulsory to teach at least one language to all pupils in key stages 3 and 4. However, it may be that the true value of languages was not widely embraced, as the Government of the day removed this requirement in 2004, as the noble Baroness, Lady Coussins, mentioned. We know that there is much more to be gained from studying a foreign language. It can build cultural and global understanding, and improve the ability to think laterally and creatively. It can also bring benefits from a career perspective: languages are important for those working as translators and in the diplomatic service, but also for those working in petrochemicals, engineers, banking and any profession that can lead to working overseas or with international partners.
I would like to chip in at this point to answer a question raised by my noble friend Lady Hooper. She asked whether civil servant applicants are routinely asked about any foreign language skills. As far as I am aware, the Civil Service does not ask applicants directly about language skills unless it is relevant to the role. That is something for us to mull over.
As the noble Lord, Lord Dykes, said, we know it is a myth to believe that, as English is spoken fluently by many around the world, there is no need for us to converse in the languages of our international business partners. My noble friend Lord Sherbourne put it rather more starkly and succinctly. I was interested also to hear what the right reverend Prelate the Bishop of Derby said. He made an important point about the commonality of language to cross religious and country values.
We have never been an insular nation, and, in leaving the European Union, it is important that we adopt an even more global outlook. In support of this concept, the British Council’s Languages for the Future report, published in November 2017, said that we must,
“initiate a bold new policy to improve foreign language learning for a transformed ‘global Britain’”.
I agree, but we are still far from achieving the levels of uptake and proficiency in languages that we need to, and those points have been made today. Only 47.3% of pupils entered a languages GCSE in 2017, and in too many schools only the most academic pupils are encouraged to study languages to GCSE level. Yet taught well, all children can become fluent. Maintained schools must offer languages at key stage 4, although it is not mandatory for pupils to take up that offer. We need taking a GCSE to be an option that all pupils might want to take, in the knowledge that it will be enjoyable, is of value and that quality teaching will enable them to make good progress.
What action are we taking to improve the take-up of languages? I start by saying that I absolutely read the view of noble Lords including the noble Baronesses, Lady Coussins and Lady Janke, and my noble friend Lord Sherborne about the interesting idea of a national language recovery scheme. I will be taking that back to the Department for Education as an idea to look at.
In September 2014, we made it mandatory for maintained primary schools to teach a language to pupils at key stage 2, a point raised by the noble Baroness, Lady Morris. Maintained secondary schools must also teach a language to pupils at key stage 3 and offer it at key stage 4. An important point about continuity was made by the noble Lord, Lord Storey. The noble Lord, Lord Watson, asked what was being done to encourage students beginning language study as early as key stage 1. Schools are free to teach languages to children at key stage 1 if they choose to, and a wide range of resources are publicly available to support teachers who wish to teach languages to younger children. However, this is not a mandatory requirement, and we have no plans to make it so.
We have introduced the English baccalaureate performance measure, which shows how many pupils entered a GCSE in English, maths, sciences, a language and history or geography. The noble Lord, Lord Watson, asked why the EBacc has not stemmed the downward trend in those studying languages in school and whether the English baccalaureate affects teaching of other creative subjects. Pupils who took GCSEs in 2017 will have made their subject choices in 2014, before the publication of the EBacc consultation. We therefore were not expecting language entries to rise significantly this year. In July 2017, we published the outcome of the EBacc consultation, which sets a clear direction of travel for the EBacc, and we expect schools to respond to it. Entries to language GCSEs are now higher than they were in 2010, but we have always said that the EBacc should be studied as part of a broad and balanced curriculum.
In July, we announced our ambition for 75% of year 10 pupils to be studying the EBacc by 2022. This is an indication of the importance that the Government attach to languages, as these aspirations cannot be met without pupils taking a GCSE in a foreign language. But there is much more to do, and the noble Baroness, Lady Coussins, eloquently set out most of the challenges in her speech. Although the proportion of pupils taking the EBacc has risen from 22% in 2010, only 38% of pupils in state-funded schools were entered for GCSEs in all five EBacc subject areas in 2017.
Take-up of languages GCSEs has been the biggest obstacle to achieving high EBacc entry rates. In 2017, of those pupils who entered GCSEs in only four of the five EBacc subject areas, 80% had not been entered for a languages GCSE. These figures serve to highlight the extent of the challenge facing us.
The noble Baroness, Lady Coussins, reported that schools are using Progress 8 to avoid MFL and that the EBacc and Progress 8 are in conflict, but we believe that these measures are in fact complementary. It is true that a people does not have to do MFL to get a good Progress 8 score, but the EBacc’s subjects are given emphasis. What is more important than relying on performance measures is to ensure that pupils want to take languages because they see the value and are well taught—a point I made earlier.
We have considered practical steps to help schools. First, Mandarin is cited by Languages for the Future, along with French, German, Spanish and Arabic, as one of the five most important languages for this country’s future. The Mandarin excellence programme, which began in September 2016, will see at least 5,000 young people on track towards fluency in Mandarin Chinese by 2020. Schools on the programme provide four hours’ direct teaching time to pupils, supplemented by another four hours’ study. This has led to pupils making great progress in that language.
Secondly, the recently published social mobility action plan outlined plans to improve access to high-quality modern foreign languages subject teaching. Expert hubs will see schools with a good track record in teaching languages sharing best practice in pedagogy.
Thirdly, there is a need to step up communications by highlighting the importance and value of languages to parents, pupils and teachers alike. Our future communications will highlight the role that languages can and must play in improving pupils’ achievement across subjects. These actions to increase the number of pupils entering languages GCSEs will build a larger pool of potential A-level and degree students.
The noble Lord, Lord Watson, asked a question about the Government’s plans to address the causes of the decline in modern languages degree courses in universities—and he asked what we think the cause is. We think that the key factor impacting MFLs in higher education is the decline in the take-up of languages at GCSE level. I have already referred to the positive steps we are taking to address that, but there is some evidence that a substantial number of students continue to develop language and intercultural skills during higher education, evidenced by an upswing in students choosing to study language modules alongside their non-language degree subject. The annual UCML/Association of University Language Centre’s survey of institution-wide language providers in UK higher education institutions suggests that the numbers have more than doubled in a decade.
Lord Watson of Invergowrie
I thank the Minister for answering some of the questions I provided in advance, but there seems to be an element, if not of complacency, at least of just leaving it at young people being encouraged to take up more languages. It may happen or it may not happen, and at the moment it is not happening. I have heard nothing which suggests that what the Government are doing or planning to do will suddenly create the step change that the noble Baroness, Lady Coussins, said is necessary in her introduction. As the noble Lord, Lord Storey, said, in countries such as Germany it is compulsory. We really have to grasp the fact that language teaching in this country, certainly in the early years, has to become compulsory or there is no reason to believe that the figures will improve.
Viscount Younger of Leckie
I thought that the noble Lord might want to make that point, but that is the next step, is it not? We are not at the stage of wanting to move towards the compulsory angle. I have set out clearly the actions that we are taking, but I did say at the outset that this debate, along with other debates which might be held, will feed into the department. Perhaps new ideas will emerge, particularly those raised by the noble Lord and the noble Baroness, Lady Coussins, in their speeches.
I would like to move on to teacher supply and retention. We cannot grow this pool without enough high-quality teachers in our schools. That is why we are working to grow a strong pipeline of teachers from within England. But let me be clear: there are more teachers than ever before in our schools—15,500 more than in 2010. The number of teachers returning to the profession has risen by 8% since 2011, and we are encouraged that the number of people starting initial teacher training in 2017 was up on the year before. However, in case I am accused of being complacent, we know absolutely that the recruitment landscape is tough. We are alive to the challenges that the improving economy and the pressures of rising pupil numbers pose. Recruitment in priority subjects like languages has historically been challenging, and that is why we have put a package of measures in place to support the recruitment of trainees and the retention of existing teachers. We continue to offer generous financial incentives, including scholarships and tax-free bursaries, which are typically worth up to £26,000, for trainees in priority subjects, including modern foreign languages. We have also developed a number of measures to encourage more specialists into initial teacher training, including targeted marketing campaigns and providing support to potential applicants across priority subjects.
I should like to move on to the recruitment of teachers from overseas. As we grow the domestic pipeline of teachers, we are exploring international recruitment initiatives in the short term. For example, we have worked with the Spanish Government to expand their visitor teacher programme to England. While most teachers are recruited from this country, schools have been able to recruit staff from overseas to fill posts that cannot be filled from the resident workforce. As we recruit more teachers nationally—this is a point mentioned by the noble Baroness, Lady Coussins—and work to increase retention, we expect a reduction in the need for these initiatives.
We fully appreciate the valuable contribution that EU nationals make to teaching languages in our schools and universities. In December, the UK and EU negotiating teams issued a joint report on the first phase of the Brexit negotiations. This has helped to provide certainty for those EU nationals, including MFL teachers, who will be living in the UK when we exit the EU. It sets out a fair deal on citizens’ rights that allows UK and EU citizens to get on with their lives broadly as they do now, continuing to enjoy rights such as access to healthcare, benefits and education.
I realise that time is against me and know that a number of other points were raised, notably by the noble Baroness, Lady Coussins, and the noble Lords, Lord Watson and Lord Evans. I shall write to all noble Lords and put a copy of the letter in the Library of the House answering those queries.
To conclude, I have heard certain messages from noble Lords today, and it is clear that we are at a crossroads in the future of languages teaching in our education system. Doing nothing is not an option and the Government are taking positive steps through the initiatives I have outlined. There may be more to do, but I am encouraged by the passion and support your Lordships have shown today for improving the profile of languages within our education system.
Apprenticeships: Training Providers
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie(6 years, 11 months ago)
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Viscount Younger of Leckie
I am aware of my noble friend’s interest in this area, and I have also read the report linked to the UTCs. His point is noted, although I do not entirely agree with him.
Lord Watson of Invergowrie (Lab)
My Lords, whichever way the noble Viscount dresses it up, a 59% decline in new apprenticeships year on year is hardly an auspicious start to the main plank of the Government’s attempts to address the skills gap. One issue is pay. The Department for Business reported in July that one in five apprentices was not receiving the correct national minimum wage, even though it is only £3.50 an hour. Another question relates to flexibility, which has been raised by other noble Lords, although I would like to put a slightly different angle on it. The Chancellor said in his Budget speech last week that he would keep under review the flexibility with which levy payers can spend their money. I very much hope he will, because part-time apprenticeships have a role to play here and flexibility would certainly be valued by young parents. Will the Government offer advice to employers to make sure that they make more part-time apprenticeships available, not only for their own benefit in terms of skills but to boost the overall number of necessary apprenticeships?
Viscount Younger of Leckie
The noble Lord has raised a number of points but I shall pick up on two. As he will know, the national minimum wage is going up from £3.50 to £3.70 per hour from April 2018. However, we do not see pay as being a particular issue in the way he has suggested. Apart from that, his point about part-time apprenticeships is important, and that is very much part of our plans.
Pension Schemes: Universities
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie(7 years, 2 months ago)
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Viscount Younger of Leckie
My noble friend knows more than I do how complex managing pension schemes is. There are lots of variables and issues to consider. She is right that there was a review in 2014. In fact, there is a review of the scheme every three years and a recovery plan is in place. My noble friend is right: the recovery plan, we believe, is robust and will offer a good degree of stability for the next 30 years.
The DWP is publishing a Green Paper in February to build on the ongoing discussions on pension schemes in general. We will publish a response to the consultation in a White Paper this winter.
Lord Watson of Invergowrie (Lab)
My Lords, the Question in the name of the noble Baroness, Lady Falkner, mentioned university schemes, although for the reasons she outlined to us, she only referred to the Universities Superannuation Scheme. In fact, there is a two-tier system in pensions provision for academic staff in universities. An academic retiring after 30 years at Oxford University will have a pension pot with the USS scheme worth around £150,000 less than an academic retiring at the same time from Oxford Brookes University in the Teachers’ Pension Scheme. While the Teachers’ Pension Scheme is in good financial health, despite the comments from the noble Baroness, Lady Altmann, the Universities Superannuation Scheme is certainly not. The Universities and Colleges Union has real concerns about the manner in which the scheme’s executives carry out valuations and make investment decisions.
Will the Minister ask the Department for Education to challenge university finance directors over the manner in which the scheme is being run—leaving aside the role of the Pensions Regulator—when academic staff, their representatives and others have made suggestions for a change in direction for the scheme which have so far been ignored?
Viscount Younger of Leckie
I do not agree with the noble Lord’s assessment of the scheme. It has a deficit, but so have many pension schemes. He will know more than I do about how that operates. It is being closely monitored and Universities UK, which oversees the scheme as a representative of employers, has launched a consultation this month which will run until 29 September on the proposed assumptions for the scheme’s technical provisions. A lot is going on to be sure that we monitor the scheme’s progress. Without getting too technical, interest rates, as the House may know, have played a part. These can change, and suddenly the parameters can change.
Cultural Institutions: Curriculum Fund
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
Yes, of course I pass on my congratulations. That may allow me to bring a little academic input, which is that the whole idea behind bringing knowledge-rich into the curriculum—we will have to hear what comes out of it—is that cognitive science analysed and shared by thinkers such as Dan Willingham and Daisy Christodoulou reinforces the fact that a knowledge-based academic curriculum can stimulate critical thinking and creativity. So quite a lot of science goes into this.
Lord Watson of Invergowrie (Lab)
My Lords, the need for a curriculum fund for Britain’s leading cultural and scientific institutions is urgent because, as my noble friend Lady McIntosh said, of the need greatly to reinforce the teaching of art and creative subjects in schools. The figures from Ofqual show a 9% continuation of the drop in take-up of studies in those subjects. I am encouraged by what the noble Viscount said about the curriculum fund, but in many cases, the reason that schools are unable to continue with art and creative subjects is that they cannot afford to do so because of cuts to their budgets. The curriculum fund may address some of that, but when the noble Viscount and the Government report on that, can they ensure that this money will be additional to what has been provided through the national funding formula?
Viscount Younger of Leckie
I cannot confirm that at the moment. I say again that we are waiting to hear the details of the curriculum fund, which will come out in due course, as I said to the noble Baroness. The House will appreciate that I should say that the arts are very important to this country, and the creative industries provide a very important sector for exports.
Child Welfare
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
Well, indeed. The whole House will agree that every child needs and deserves the best possible start in life. The noble Baroness referred to early years and childcare. All three and four year-olds and the least advantaged two year-olds can access 15 hours a week of funded early education. The proportion of all children achieving a good level of development is improving year on year, but it remains work in progress.
Lord Watson of Invergowrie (Lab)
My Lords, the Minister said that the Government were committed to children and children’s rights. I have to say to him that the evidence is quite to the contrary. The DWP’s own figures in 2015 showed that 28% of children in the UK were living in poverty, yet last year the Government abolished the Child Poverty Unit and abandoned child poverty reduction targets. That does not seem to be in any sense a commitment to children. Surely children should be at the forefront of all government policy. Do the Minister and what I might describe as his caretaker Government intend to introduce the recommendations of the UN committee report or have they implicitly accepted that they are on borrowed time and it is only a matter of time before a Labour Government come into power who are really committed to children’s rights and to ending poverty?
Viscount Younger of Leckie
My Lords, poverty is something that the whole House needs to take seriously, as we do. We are very aware that despite record levels of employment, there are still around 1.3 million children in workless households across the UK. This is something that we are really looking to address. We need to ensure that children are in households where work gets them out of poverty.
Universities: Teaching Excellence Framework
Debate between Lord Watson of Invergowrie and Viscount Younger of Leckie
Viscount Younger of Leckie
The noble Lord is absolutely correct. He will know that the process is an iterative one, which we believe is becoming more robust. For example, the assessment process takes account of diverse forms of teaching, the level of academic support and the learning experience—everyone knows about the NSS—and also looks at outcomes and where students end up. Each application for this particular trial also included a 15-page submission from the providers, so it was very much qualitative as well as quantitative.
Lord Watson of Invergowrie (Lab)
My Lords, when the Higher Education and Research Bill was going through your Lordships’ House earlier this year, noble Lords from all sides, including the Government Benches, argued strongly against the concept of a teaching excellence framework, warning that it was a blunt instrument and ill equipped to show what actually happens within lecture rooms. Now we are where we are. Everyone knows that the London School of Economics, the School of Oriental and African Studies, Goldsmiths, University of London, the University of Liverpool and the University of Southampton are in no sense third-rate institutions, but that is not how it looks now to potential students, particularly those from overseas. Although we accept that an independent review will be carried out—which I am sure will sweep away the nonsense of gold, silver and bronze—will the Minister say in the interim, to address the inevitable reputational damage to institutions, what support he will offer to them in that situation?
Viscount Younger of Leckie
Again, I do not share the pessimism that has come across from the noble Lord. I was very pleased to be part of the process of the Bill. There were over 500 amendments, and I appreciated the noble Lord’s contribution. I repeat that it is an iterative process. Once the TEF has been properly introduced a year or so down the line, there will be that proper independent review and, as we pledged in the process of the Act, it will look at the metrics and the definitions. We will see what happens from there.