Higher Education and Research Bill

Baroness Brown of Cambridge Excerpts

Committee: 2nd sitting (Hansard - continued): House of Lords
Wednesday 11th January 2017 Lords Chamber

That leads me to what the right reverend Prelate said about the role of denomination providers. One of the great virtues of the Church of England is that it is a national institution that regards itself as having a mission in all communities. As we have this ever-greater suction towards London and the south-east, that aspect is important. Allying institutions with a powerful social mission—such as the religious communities, which are located community-by-community across the country and are not simply regionally based—to the great cause of opportunity and higher education is hugely important. They will have a big and perhaps increasingly important role in introducing and enhancing the quality of higher education to communities that are not advantaged and which are distant from London.

[Baroness Brown of Cambridge (CB)]

My Lords, I shall speak to a couple of issues. First, although I generally support the reasons behind the amendments in this group, I have to express some concern about what I infer from the comments of the noble Lord, Lord Lucas, who was speaking about the role that the OfS might play in encouraging universities to take students with different qualifications. Until recently I was vice-chancellor of Aston University, which has the outstanding Aston Business School, which does indeed take students with BTECs. However, our experience at Aston Business School was that these were the students who were least likely to succeed in that course. They had the highest rate of third-class degrees and failures. They had real problems with the mathematical elements of the economics in the business degree, such that we put on a lot of additional teaching to try to assist them through it. It is very important that universities are allowed to set their own admissions criteria because their curricula will require different things of the students who attend. It is important to indicate to students what is going to be needed to get through those courses.

I therefore have a lot of sympathy with Exeter over not taking students with BTECs for the curriculum that it teaches. Aston and, I think, Durham are able to, but I am sure that they do so by providing additional help. I encourage the Minister to stick to what Clause 2(4) says—that the guidance from the Secretary of State must not relate to the criteria for the admission of students or how those criteria are applied—because that is hugely important to the autonomy and independence of our universities.

[Lord Lucas]

I entirely agree with the noble Baroness: it absolutely is not interference with an individual university; it is looking at the system as a whole and saying, “We need to do something about providing better courses for people coming out of school with BTECs”, if we have decided that BTECs are what schools are providing. BTECs are just being upgraded to address some of the problems, and I hope that works, because clearly there are problems with the old syllabus. Universities have to take their own decisions but the OfS surely ought to be looking at the system as a whole and changing the provision somewhere, because the system as a whole is not meeting people’s needs.

[Baroness Brown of Cambridge]

I thank the noble Lord for that clarification, which I strongly support.

I shall speak briefly to Amendment 56, in my name and that of my noble friend Lady Wolf. The Office for Students is tasked with promoting quality. Promoting quality seems a modest ask, and we feel that the Office for Students should be given a more dynamic and assertive challenge—not just to see that a particular objective or standard has been reached, but to be active in ensuring that quality is delivered in an environment of continuous improvement. We urge the Minister to consider some more active wording about the need to secure and improve the overall strength and quality of higher education provision in England, with a stress not just on ensuring quality but continuing to improve it.

[Baroness Cohen of Pimlico (Lab)]

My Lords, I support the amendments. I would like to see something more definitive in this package of clauses. One of the most important developments in higher education is the growth of the degree-level apprenticeship. It has not had the fair wind that it deserves, but it is immensely important, because people come out of it without debt and, usually, with a good job, but there is a distinct feeling that it is looked down on as being in some way trade training rather than degree level. I have 2,000 such students in my university and we expect to expand, not as a matter of principle but in response to huge demand. There is very little in the Bill about degree-level apprenticeships, and perhaps there is not meant to be, but since it is such an enormously important development, I would like something in the Bill to say that we will encourage it.

That goes along with geographical diversity. We have eight establishments all over England—again driven, I fear, not by social purpose or a plan but by the market. We discovered that we had students coming to London who did not mean to be there. They were making great sacrifices to be in London and a lot of them seemed to come from York or Leeds. We thought that the local profession would have welcomed them and given them a hand to get started. So I fear that demand did that but, as many noble Lords have said, you cannot expect everybody to travel to London or the great southern centres to go to university. It is enormously helpful to a locality to have a decent university. Much of the demand for degree-level apprenticeships will not be in London; it will be outside London and geographically spread. I am looking for a way to say this in the Bill.

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[Lord Stevenson of Balmacara]

My Lords, we move to the other half of the discussion on Clause 2, which is primarily about competition and collaboration, as indicated in the Marshalled List and the groupings, although there are a number of sharper amendments around them. I shall not go through them in detail: they are basically about trying to prioritise collaboration and development and to reduce the reliance on competition.

We have already had a debate in which the Minister made it clear that the various points in Clause 2 are to be taken as a whole. Therefore, it could be argued that there is no need to worry about the problems created by competition or the fact that collaboration is not given a high enough position among the priorities. Nevertheless, if people read the clause from beginning to end, they will come across some words earlier than others that will be bound to set the tone. Therefore, these amendments—others will speak to the bits that they are most interested in—are interesting in that they try to give a sense that these measures must leave the sector with a predisposition to work together and the idea that, if it does work together, there will be benefits, and through that collaboration quality will be improved. For instance, Amendment 45 would explicitly encourage collaboration and innovation. You can say that that is not necessary but, if it were included in Clause 2, it would clearly make a difference. I beg to move.

[Baroness Brown of Cambridge]

My Lords, I will speak to Amendments 35 and 37 in my name and that of my noble friend Lady Wolf. In doing so, I want to support the intent of Amendment 33 in the name of the noble Lord, Lord Stevenson. As we have heard, universities are, by their nature, highly competitive; the noble Lord, Lord Bragg, commented on this on Monday and the noble Lord, Lord Liddle, reinforced the point today. They compete for the best students, the best academic staff and research funding, and they compete particularly fiercely for positions in the large range of existing ranking and league tables, and in particular for positions in the National Student Survey.

Much of this competition benefits students. For example, the importance of doing well in the areas of the National Student Survey that concern assessment and feedback has meant, in almost every university in the country, that students now have their work marked and returned much more quickly than they used to a couple of years ago. There is now a real focus on doing that in a timely manner so that students get good feedback on modules in which they are weak so that they can use it for revision and to ensure that they are well prepared for examinations. Clearly, competition in many forms strengthens the student experience.

Collaboration between institutions is also hugely important. Let me give noble Lords some examples. When I was director of engineering for the marine business at Rolls-Royce, we made use of a modular Masters in marine engineering and technology that was developed by a group of very distinguished universities, mainly in the north-east of England. Students could register at any one of the institutions for their degree and assemble a bespoke course, with specialist modules across the institutions. It was a collaboration that worked for industry and for students.

Collaboration and the sharing of best practice in the area of efficiency and effectiveness, as reported in Professor Sir Ian Diamond’s reviews, has enabled universities to reduce back-office costs, share access to expensive teaching facilities and invest in new infrastructure in recent years. Again, this is of direct benefit to students. Birmingham City University, Aston University and the University of Birmingham—all the universities in Birmingham—continue to collaborate on a joint outreach programme into schools across the city. It is a collaboration that supports widening participation and university access for some of Birmingham’s least advantaged children.

I argue that students, employers and our economy will benefit directly from this type of collaboration—and we want to see more of it, not less. To focus on competition in the absence of collaboration could slow the rate of improvement and innovation in our higher education system. I urge the Minister to ensure that the Office for Students has regard to the need to encourage both competition and collaboration between HE providers. This will be in the interests of students, employers and our economy.

[Lord Jopling (Con)]

My Lords, over the past 30 years, I have spent a good deal of my parliamentary time involved with international bodies such as the OSCE Parliamentary Assembly and the NATO Parliamentary Assembly, with which I am still quite heavily involved. I have become, at those organisations, exasperated sometimes by the capacity of members to put down a series of amendments to motions that amount in many ways to decorating a Christmas tree—I have always described it as such and have had my leg pulled about it. Looking at the two paragraphs in Amendment 33, I question whether the main part of what they are driving at is already covered in the various subsections of Clause 2.

It may be that on reflection the Government will feel that way about some of these amendments. For instance, I would have thought that a great deal of,

“the need to promote collaboration”,

was covered by subsection (1)(b) on encouraging competition—not all of it, but most of it. Again,

“the need to promote innovation”,

is largely covered in subsection (1)(a), which refers to,

“the need to promote quality, and greater choice and opportunities”.

Rather than making this clause a sort of Christmas tree, I hope that the Government will look at these amendments to see if anything useful can be added to the Bill—but if they are not necessary, please do not bother.