Lifelong Learning (Higher Education Fee Limits) Bill

Baroness Garden of Frognal Excerpts

2nd reading
Monday 19th June 2023 Lords Chamber

[Baroness Garden of Frognal (LD)]

My Lords, there has been great enthusiasm for the Bill, which makes welcome ground in a number of areas. Who cannot support the idea of lifelong learning? I think it was Adam Smith who was reported as saying that every man is a student all his life and longer too, which betrays a rather curious view of the afterlife. It was obviously before the days of equal opportunities, because women should of course be included in that. We all continue to learn, so why not learn in the interests of the nation and the economy?

I thank the Minister for being a listening Minister and for her patience in listening to the points of view from these Benches. There is much to welcome in the Bill, but it is rather a curate’s egg. We welcome the modular approach, giving funding for units or modules to encourage people to learn parts of skills and qualifications and get credit for the parts they have mastered, even if not a whole qualification. We are also pleased to see the demise of the ELQ restrictions. It never made any sense to deter people from studying for a qualification of equal level to one they already held but in a different discipline.

But we are left with a number of questions. As the noble Baroness, Lady Wilcox, said, it is a short Bill and short on detail. Obviously, the Welsh seem to be doing it a lot better than us. First, the Liberal Democrats are not convinced that large cohorts of adult learners will be keen to take on debt, and the lifelong learning entitlement is indeed a debt. We proposed a skills wallet, putting money into learners’ pockets to be used to enhance their skills, learning and competence at three key stages of their careers. We argue that that money would be rapidly recouped by their enhanced earning capacity.

We know that many adults are loathe to take on additional debt, so I ask the Minister: what research was undertaken to establish what enthusiasm there would be for adults taking on debt to increase their skills? What criteria will be used to determine which modules are eligible for funding under the lifelong loan entitlement? How will positive student outcomes be defined? What career information, advice and guidance will be available to adult learners as they embark on their programmes?

We also have questions about maintenance support, which should be a key consideration when making changes to the student finance system. For learners to pursue flexible study, they are likely to reduce working hours or require childcare support. There is also a lack of clarity on disabled students’ allowance and eligibility. Can the Minister shed light on that? The suggestion is that all these details should be in secondary legislation, but we feel that we need more in the Bill.

The Open University is among those interested to find out how the Bill will help distance learners. They tend to be excluded from maintenance support, which can be a barrier to learning. Why is this? Will the LLE be accessible to all in 2025-26 or will it be introduced gradually for different courses, modes of study or age cohorts?

Fees and maintenance levels should be proportionate to a full qualification, with support to deliver wraparound support—such as well-being support, careers advice and access to facilities—and high-cost modules. Would high-cost modules attract pro rata teaching grants? If not, this would disincentivise modularisation in many disciplines where there are particular skill shortages; at the moment, we think particularly of maths, physics and—from this morning’s news—English. Are there examples of good practice already in place for modular learning? If so, we should build on them, not try to reinvent wheels.

When national vocational qualifications were introduced around 1990—I was involved in the very first one—how exciting it was that we had a system of vocational qualifications that could parallel academic qualifications in its simplicity. Oh dear—happy days. They were all in units and, after much debate, they were allowed to be accredited. Of course, Governments always choose to ignore vocational qualifications if they can, but I suggest that the lessons learned from those days could be just as useful if lifelong learning is to be successful.

I am sure that others will also wish the Bill well, but I hope we can make some amendments to ensure that it really does encourage and enable people to add to and embellish their learning and their contribution to their lives and those of the community and the economy. I look forward to the debate and the Minister’s reply.

Lifelong Learning (Higher Education Fee Limits) Bill

Baroness Garden of Frognal Excerpts

Report stage
Tuesday 5th September 2023 Lords Chamber

Moved by

[Baroness Garden of Frognal]

1: Clause 1, page 2, line 10, at end insert—
“(1A) For the purposes of this Schedule, one credit corresponds to 10 notional learning hours.”Member's explanatory statement
This amendment puts the number of hours that constitute a credit on the face of the Bill.

[Baroness Garden of Frognal (LD)]

Amendment 1 proposes the widely accepted requirement that the learning hours associated with credit must be consistent with sector-wide standards. It would be beneficial to have 10 hours written in the Bill in order to cement its definition, because that would mean that no new definition could be introduced or imposed at a later date for the purposes of setting fee limits.

We continue to express concern that the lack of detail in the Bill could mean that in the future the policy could significantly change from the intentions of the current Government, and there is little constraint against decisions made by the Secretary of State—often a “here today, gone tomorrow” Minister—but I recognise that on Report we are unlikely to be able to change the powers of the Secretary of State.

Amendment 2 proposes the insertion of a new clause to review the provisions in the Act. Businesses are reporting having difficulty recruiting employees with the relevant skills. In August 2022, the Federation of Small Businesses found that 80% of small firms faced difficulties recruiting applicants with suitable skills in the previous 12 months. The Recruitment and Employment Confederation estimates that if labour shortages are not addressed, the UK economy will be £39 billion worse off each year from 2024.

Despite the rising population, many employers are facing skills gaps. Some 28,300 London employers report that not all their employees have the right skills for the job. Almost a quarter—23%—of all vacancies in London are due to a lack of applicants with the right skills, while almost half of firms—42%—are not confident that they will be able to recruit people with the higher-level skills their organisation needs over the next five years. It is possible that many of the migrants waiting to be processed will have the skills that the country urgently needs, so when will the Home Office speed up the processing so that we can see if that is the case?

We are not convinced that the introduction of the lifelong loan entitlement will help to plug the gaps. The Liberal Democrats have called for grants, rather than loans, to encourage adult reskilling, concerned that many adults will be reluctant to take on debt for their further training. Will the LLE allow people to upskill effectively? Will they want to take out loans to upskill? It will be important for the Government to review the impact of the provisions of the Bill to assess whether these measures alleviate the skills shortages.

I am not my party’s expert on sharia finance, but I am aware of the Islamic belief that benefiting from lending money by charging interest or repaying more than the initial amount borrowed—riba—is forbidden. The investments made by loan companies, which might be in industries such as gambling or alcohol, are also considered problematic. For these reasons, Muslim students are deterred from taking out student loans from the Student Loans Company to cover the tuition fees and living costs associated with higher education. Research has shown this can act as a barrier to higher education for Muslims or cause financial hardship for those who do choose to study at university.

The UK Government first proposed a student finance product consistent with Muslim beliefs about interest-bearing loans in 2013. The Higher Education Research Act 2017 allows the Government to introduce such a product, but it has yet to do so. The issue has been raised in Parliament a number of times, with the delay described as shameful by my noble friend Lord Sharkey, who is indeed an expert on sharia finance.

In March 2023, in their response to the consultation on the lifelong loan entitlement, the Government said that a sharia-compliant alternative student finance product would not be available as part of the launch of the LLE in England in 2025. In July 2023, the Government said that they remain committed to delivering alternative student finance as soon as possible after 2025. Can the Minister say why the Government have yet to do this? It would be useful to understand their thinking behind the delays and whether they could explain how the introduction of the LLE would impact those who require sharia-compliant loans.

The other part of the amendment calls for a review before the end of 2026, and preferably earlier. I have also added my name to Amendment 4, which Labour will introduce. I look forward to the Minister’s response, and I beg to move.

[Baroness Wilcox of Newport (Lab)]

My Lords, I rise to speak to Amendment 4, which would require the Secretary of State to publish a review of the lifelong loan entitlement before bringing in further regulations on fee limits. I welcome the Minister's comments in Committee, and I fully understand her feedback about what information will accompany further regulations as these changes are rolled out.

We have brought this amendment back to further raise the point about ensuring that students, the sector and Parliament are given clear information on the details of the LLE as soon as possible. Throughout the passage of this Bill, we have raised concerns, often after input from those in the higher education sector, that so little about the LLE in terms of course provision, maintenance, credits, transfers, and further rollout of modular study at other levels is confirmed in any meaningful detail.

I am none the less grateful that, following Committee, the Minister outlined further details of the LLE that relate to this Bill in a letter. However, as we know, this huge shift in higher education policy goes further than fee limits. We all want this change to work, but for that to happen the sector will need much more clarity than has been provided through this very narrow Bill.

The accounting officer assessment for the LLE states:

“The main feasibility risk of LLE is meeting the 2025 delivery timescale”.


Is the Minister still confident that the department will be able to deliver on time, particularly in the light of current pressures arising from the major emergency that the department is currently dealing with in school buildings across the UK?

My next question follows on naturally: what is in place if this timescale turns out to be unworkable? There are a great many sector stakeholders—as well as the students themselves, of course—who will need clearly communicated timelines. Amendment 1 from the noble Baroness, Lady Garden, puts in the Bill the number of hours that constitute a credit. We understand why she tabled that amendment: it is important that the sector is given clarity and control over the definition of working hours and that it is consistent with the QAA’s higher education credit framework. As she noted, her concern is about the lack of detail. This is one of many areas in which the higher and further education sectors still have questions about how a credit will be defined.

The concept of a credit in education terms will also be completely alien to the general public, and there is a risk that employers simply do not understand its value. The Government need to think about how this can be communicated. We do not believe that putting a number in the Bill at this point would be beneficial. However, we would like a commitment from the Government that they will not seek to amend the value of a credit and will be led by the sector’s understanding of it.

On Amendment 2, I am glad that the Minister has outlined the Government’s plans to ensure sharia-compliant loans in writing; we look forward to receiving further engagement on this issue as the LLE progresses. But, as the noble Baroness, Lady Garden, pointed out, there is a distinct problem with skills gaps—a lack of applicants with the right skills. The economy cannot move forward appropriately with skills shortages.

--- Later in debate ---

[The Parliamentary Under-Secretary of State, Department for Education (Baroness Barran) (Con)]

My Lords, ahead of speaking to the amendments tabled, I thank all noble Lords across the Chamber for their contributions and the support they have expressed, both for this Bill and for the wider programme to transform opportunities to build qualifications over one’s lifetime. We heard from the noble Baronesses, Lady Garden and Lady Wilcox, about the importance of filling skills gaps so that the economy can grow. I thank both my noble friend Lord Willetts and the noble Lord, Lord Berkeley of Knighton, for their support and acknowledgement that the Bill will open new opportunities for learners.

Amendment 1, tabled by the noble Baroness, Lady Garden of Frognal, would define a credit as equivalent to “10 notional learning hours” in the Bill. The Government believe that it is crucial that the definitions of credits in the fee limit calculations align to standard practice in the sector—a point the noble Baroness, Lady Wilcox, made. The Government plan to set out this detail in regulations, rather than in primary legislation. The power to do so is provided for in new paragraph 1B of Schedule 2 to the Higher Education and Research Act 2017, introduced through Clause 1 of this Bill. Specifying learning hours in secondary rather than primary legislation means that providers that might choose to use a different number of learning hours per credit will simply have those courses treated as non-credit-bearing for fee limit purposes. If we took the approach of this amendment, those same providers could instead be considered in breach of the fee limit rules as a whole, with all the regulatory consequences that might bring. I am sure that is not what the noble Baroness intends with her amendment.

To be clear, as I think the noble Baroness’s amendment seeks to do, the Government do not intend to change the number of learning hours in a credit unless standards in the sector change. Learning hours are, and should continue to be, based on sector-led standards. Regulations on learning hours will follow the affirmative resolution procedure, so Parliament will get the opportunity to debate and formally approve any changes to those regulations.

Amendment 2 and Amendment 4, tabled by the noble Baroness, Lady Twycross, and the noble Lord, Lord Watson of Invergowrie, would require the Secretary of State to publish a review of the impact of the future Act on the progress of the rollout of the lifelong loan entitlement. Amendment 4 sets out that such a review must be published ahead of regulations being laid, and Amendment 2 would require the review to be presented to Parliament before the end of 2026. I thank my noble friend Lord Willetts for being the very eloquent messenger of the noble Baroness, Lady Wolf. We absolutely agree with her point and that made by the noble Lord, Lord Berkeley. Amendment 2 specifies that the review should include the impact of the credit-based method on sharia-compliant loans and skills gaps.

I thank your Lordships for these amendments. The Government agree with the sentiment behind them, if such sentiment seeks the department’s commitment to monitoring the impact of these measures on the transformation of student finance under the lifelong loan entitlement. As your Lordships will be aware, the Government published an impact assessment alongside the Bill upon its introduction in the other place in February this year. Subsequently, the department published an updated and more extensive impact assessment of the lifelong loan entitlement, more broadly, alongside the publication of the consultation response in March. As was committed to in the impact assessment published in March, and in accordance with the Better Regulation Framework, a more detailed assessment of impacts will be published at the point when the Government lay the necessary secondary legislation to implement the lifelong loan entitlement fully. Therefore, the Government already intend to publish an updated impact assessment covering all aspects of the LLE, including the measures in the Bill, when regulations are laid.

In addition, parliamentary accountability mechanisms are already in place to review Acts of Parliament and the impact that they have on policy, including post-legislative scrutiny in particular, but not exclusively. There will be continued scrutiny of the LLE and the impact of these measures in both this place and the other place, including the role of the Education Select Committee in scrutinising the work of the department.

I will just rest for a moment on the point about post-legislative scrutiny, which I understand the noble Baronesses raised at the briefing yesterday. The noble Baroness, Lady Wilcox, will be aware that under the current government guidance and as proposed in 2008, between three to five years after an Act is passed it should be reviewed by the government department and Parliament. I can assure the noble Baroness that the Government will seek to work together with the relevant Select Committee in line with that guidance. However, while we recognise the importance of reviewing the implementation, it should be not just of this Act but of the reform of the system—and again, I can commit that the Government would like to see that review happen.

On the specific details within the amendments themselves, the timing requirement in Amendment 4 would require a review of the impact of the Bill on the rollout of the LLE prior to regulations being laid. I want to be clear here that any impact assessment which is conducted ahead of laying regulations would not be any different to the impact assessment currently available for the Bill and the consultation process. The next point at which impacts can be assessed is when the regulations are laid and, as stated, the Government are committed to publishing an impact assessment at that time.

Amendment 2 relates to the impact of the credit-based method on sharia-compliant loans and skills gaps. First, it is important to note that fee limits are set on courses, not on students. Therefore, the credit-based method—like the current fee limit system—will not depend on any characteristics of individual students. All students on a course will have their fees determined in line with the same fee limit rules, regardless of whether they use their LLE, self-fund, or use alternative loan arrangements.

I take this opportunity to assure your Lordships that the Government remain committed to delivering an alternative student finance product compatible with Islamic finance principles. The noble Baroness, Lady Garden, questioned why it was taking so long. I will not rehearse all the arguments, but I think she will remember that we touched on this in Committee, and it really is linked to the complexity of implementation. Every element that changes within the student finance systems needs to be mirrored for the alternative finance product, so it is a more complicated process and is contingent, and it has to follow the building of the systems which will allow us to deliver the new approach.

The noble Baroness, Lady Wilcox, questioned our commitment to being able to deliver by 2025. I remind the House of the measures that we set out in the letter that I sent your Lordships on this point following Grand Committee. I am pleased to confirm that in August, the Student Loans Company commenced delivery planning for alternative student finance, and it is supported on this phase of work by experts in Islamic finance, the Islamic Finance Council UK. I continue to meet on a quarterly basis with the Student Loans Company, the Islamic Finance Council UK, the noble Lord, Lord Sharkey, Stephen Timms MP and representatives from the Islamic community to discuss the steps the Government are taking to deliver alternative student finance as swiftly as possible. Because of the delays there have been, we need to be as transparent as possible to make sure that we build or rebuild trust with the community that we really will deliver on this. I will provide a further update on alternative student finance later this year.

On skills gaps, in response to the LLE consultation, the Government made it clear that they will be taking a phased approach to modular funding, as the noble Lord, Lord Berkeley, reminded the House, focusing on higher technical courses which have the clearest employer value. It is important to note that fee limits are not a means to address skills gaps; they are to ensure that students have affordable access to higher education provision provided by those higher education providers who receive government funding to support course delivery.

Finally, it is worth noting that the LLE policy is much wider than the provisions of the Bill, and as such, the reviews sought through these amendments would focus narrowly on fee limits and not on the impact of the LLE as a whole.

For these reasons, while the department understands the sentiment behind these amendments, they would either have unintended consequences or would be unnecessary, as there will already be mechanisms in place to provide such review. Therefore, the Government cannot accept these amendments and I hope that your Lordships will withdraw or not move them.

[Baroness Garden of Frognal (LD)]

My Lords, I thank the Minister for her response and her reassurance, and I thank the noble Baroness, Lady Wilcox, and the noble Lords, Lord Willetts and Lord Berkeley, for their comments on this short debate.

Of course, we are all committed to encouraging lifelong learning—it is essential for the well-being of the country and of individuals—and we all want to make sure that it is encouraged. As I say, we continue to express concern that adults may not prepared to take on loans for this but, obviously, only time will tell. I thank the Minister for her remarks about sharia finance, because it is a concern that Muslim students are deterred from entering higher education because they cannot get the means to do so. With that, I thank all your Lordships and I beg leave to withdraw the amendment.

Amendment 1 withdrawn.

--- Later in debate ---

[Baroness Thornton (Lab)]

My Lords, I support the amendment, to which my name is attached, but I also echo my noble friend’s remarks on this matter. As I mentioned to the Minister, the rollout will be very important, and the three to five-year assessment of whether the legislation has worked will not serve, because it will be a moving feast. Indeed, I thank the Open University for writing to us to draw our attention to the accounting officer’s assessment, which my noble friend mentioned, which highlights concerns within the department that the rollout might be a problem.

There are two things here, really. First, I seek some clarity on how this will be promoted. This partly echoes the remarks made by the noble Lord, Lord Willetts, in Committee, which we rather liked; they were about trust and how this will be sold to people as something that we would want them to take up in the long term. The second point is about addressing the concerns that have been expressed within the department by the accounting officer.

[Baroness Garden of Frognal (LD)]

My Lords, we have here a fairly formidable list of things, all of them important. I want to focus on subsection (2)(j) in the new clause proposed by Amendment 3, which concerns:

“the financial sustainability of the tertiary education sector”.

We note that student fees have not gone up in all the years they have been there and that universities now face intense financial pressures. I note that, in Committee, the noble Lords, Lord Willetts and Lord Johnson, put forward a suggestion that student fees should rise with inflation; that has not gone further but I wonder whether the Minister could give some succour to university vice-chancellors, who are desperately worried about how on earth they can balance their books as costs go up but income does not.

[Baroness Barran (Con)]

My Lords, I now turn to Amendment 3, tabled by the noble Baronesses, Lady Twycross, Lady Thornton and Lady Wilcox of Newport, and the noble Lord, Lord Blunkett. This amendment would require the Secretary of State to publish an annual review of the operation of the provisions of this Act and specifies several areas that the review must cover, including learner uptake, access to higher education and financial sustainability in tertiary education more broadly.

As mentioned in relation to Amendments 2 and 4, the Government published an impact assessment upon the introduction of this Bill in February and an extensive impact assessment of the lifelong loan entitlement more broadly in March. The Government intend to publish an updated impact assessment covering all aspects of the LLE, including the measures in this Bill, when regulations are laid.

There will be continued scrutiny of the Bill and the LLE via existing parliamentary accountability mechanisms, for example post-legislative scrutiny and the Education Select Committee. In addition, there are already systems by which the areas mentioned in this amendment are monitored. I will take each area in turn to provide reassurances as to the existing work being undertaken in these areas and the mechanisms in place for review.

In relation to the point from the noble Baroness, Lady Thornton, about three to five years, I was speaking specifically about post-legislative scrutiny. It is in the Cabinet Office guidance from 2008—a period that I imagine the noble Baroness might support. Obviously, as I have just listed, there are a number of other mechanisms for scrutiny.

The amendment lists a number of areas relating to uptake. I want to take this opportunity to refer noble Lords to the publications produced by the Higher Education Statistics Agency, which will continue to include data on learner uptake and enrolments. For example, the Higher Education Statistics Agency website allows anyone to view information about higher education student enrolments broken down by year, level of study, higher education provider, subject, mode of study and more. High-level national results are also published in its annual statistical bulletin.

Regarding uptake of modular and part-time study, the Government expect to see a shift in how, what and when people study as the LLE provides support for alternatives to full-time study. For example, Universities UK polling in 2020 on modular study indicated that 82% of prospective students polled who were either unemployed, at risk of unemployment or looking to learn a new skill would be keen to study individual modules of a university degree.

Turning to access, tackling inequality in higher education is a central part of the Office for Students’ mission. The OfS shares information through its access and participation data dashboard, which allows it and the public, alongside registered universities and colleges, to identify gaps between groups. The OfS also maintains an equality of opportunity risk register, which identifies key sector-level risks to equality of opportunity in higher education and highlights the student groups that are most affected by each one.

The Government recognise the importance of supporting access, which is why maintenance loans will be available for all eligible courses and modules that require in-person attendance under the LLE, as will targeted support grants such as the disabled students’ allowance and the childcare grant. The impact assessment published alongside this Bill notes that learners who will particularly benefit from the introduction of fee limits for short courses and modules are more likely to be older, female, from ethnic minority backgrounds or from lower socioeconomic groups.

Lifelong Learning (Higher Education Fee Limits) Bill

Baroness Garden of Frognal Excerpts

3rd reading
Tuesday 12th September 2023 Lords Chamber

[Baroness Twycross (Lab)]

My Lords, I thank the Minister for her constructive engagement on this Bill and for briefing Members at an early stage, along with the noble Lord, Lord Evans of Rainow, and the right honourable Member for Harlow. I also thank the Bill team. Labour supports the Bill’s aim; we support the idea that people can access funding to undertake the learning they need throughout their career. With people undertaking portfolio careers and with continual changes in technology and society, it is no longer the case that what you learn through a traditional three-year degree course is all that you will need in your work for the next 45 years or so.

We had a number of interesting, if concise, debates as the Bill passed its various stages. The Bill is quite limited in scope and Labour still believes that there could have been scope for setting out a more formal review process on a number of its aspects. This would, not least, have helped to safeguard against unintended consequences, whether around distance and flexible learning or employers making a proper contribution to staff development.

There are a number of potential negative impacts on people who are less able to move to study or who are less able to study full-time because of caring responsibilities. From what the noble Baroness said, we hope and believe that the Government intend to monitor and review the lifelong loan entitlement as it is established and rolled out, to make sure that its promise and potential are fulfilled, and especially to ensure that every person in England can have their own promise and potential fulfilled.

I thank the team in the Labour group office, particularly Clare Scally, as well as my Front-Bench colleagues and mentors—my noble friends Lady Wilcox and Lady Thornton. Their patience and kindness in imparting their own lifelong learning and talking me, a relatively new member of the Labour Front-Bench team, through the process of the passage of the Bill has been hugely appreciated.

[Baroness Garden of Frognal (LD)]

My Lords, I apologise profusely to the House for arriving after the Minister started speaking; business moved much more quickly than I expected.

From these Benches, I thank the Minister and the Bill team very much for all their work on the Bill. We remain concerned about how many adults will wish to take on debt in order to improve their learning, and we look forward to hearing updates from the Minister about how many people have done so. From these Benches, we feel that grants would be a much more effective way of persuading adults to learn. But, of course, we are all totally in favour of lifelong learning, and we wish the Bill well.

[Baroness Wolf of Dulwich (CB)]

My Lords, as many of you will know, the number 1 recommendation of the Augar review of post-18 education and funding was for this sort of reform. As someone who was a member of that review and who has spent a considerable part of the last three and a half years on secondment to government to work on the Augar review proposals, among other things, I take this opportunity to thank everyone involved.

I have been jinxed: I have not managed to contribute to any of the fine and informative debates that have taken place on this. They have highlighted some of the challenges that lie ahead. I am enormously encouraged by the cross-party support for the principle of a funding system that genuinely takes us forward into not just the 21st century but a future where post-compulsory lifelong learning is the rule, not the exception. We now have an opportunity to build on this.

I thank everyone involved in the drafting and passing of the Bill—although we have not quite passed it yet. I particularly put on record my appreciation of the work put in by a large number of officials who have worked enormously hard on this—on teasing out the policy implications and on minimising the amount that had to be put into primary legislation. I thank them and the Minister for her support. It is a little miraculous that we have moved from a major recommendation in 2019 to putting this reform on its way to implementation in 2023. So, on behalf of the Augar review team—and, I think, all the future students of this country—I thank everyone involved in this reform.