Higher Education and Research Bill

Baroness Warwick of Undercliffe Excerpts

Committee: 4th sitting (Hansard): House of Lords
Wednesday 18th January 2017 Lords Chamber

[Baroness Deech (CB)]

I declare an interest as former principal of St Anne’s, Oxford, and former independent adjudicator of higher education. I am speaking in support of Amendment 122. I have three very brief points to make.

First, it has been alleged that the whole purpose of the Bill is to enable universities to raise fees, and that all the contortions that we are going through in relation to the Bill is centred on this one element—that one will be able to raise fees if the teaching is good. That seems to me not a healthy way to approach it.

Secondly, there is profound disagreement about what is good teaching. One metric is likely to be the prevention of drop-outs and helping students from non-traditional or underprivileged backgrounds to get through the course without failing. This must tempt tutors and lecturers to spoon-feed and it is simply not clear in higher education whether the temptation for spoon-feeding—a brief term but I think all noble Lords understand what I mean—will be enhanced by some of the metrics, as I understand them.

My third point is related to the question of teaching students from less-privileged backgrounds. What will this link do to social mobility? The better universities, however they are judged, are quite likely to be Oxbridge and the Russell group, are they not? They will be able to charge higher fees. Some other universities, which will be taking more of those from underprivileged and less-traditional backgrounds, and may be doing more spoon-feeding, may well find that their teaching is not rated so highly, for reasons that all of us who have ever taught such students very well understand. They will charge lower fees. It will become a reinforcing division: the so-called “best” universities charging the higher fees will attract those students who can afford them and the not so good under this scale—the bronze—will likely get the not-so-good students who cannot afford the fees. This will really damage social mobility and parity of esteem, not to mention the fact that this is coupled with the abolition of maintenance grants, meaning that more students will be forced to go to their local university. So my question to the Minister is: what effect do the Government think the linking of fees to teaching quality will have on social mobility?

[Baroness Warwick of Undercliffe (Lab)]

My Lords, I declare an interest as a member of the council of two universities. Like others, I am in something of a quandary on this part of the Bill; I have several concerns about the TEF, but I support enthusiastically any attempt to improve the status and excellence of teaching in universities. As chief executive of Universities UK, way back in the 1990s, I was instrumental in helping to develop the Quality Assurance Agency, which has gone on to do such a great job of encouraging institutions to take teaching much more seriously. It has developed the extensive framework for assurance and quality enhancement that characterises the HE sector today and which is admired around the world.

Despite the fact that there is an enormous amount of good teaching in universities, producing excellent learning outcomes, it has long been a dilemma that—at least in certain institutions—research and not teaching has become the means of individual advancement and the basis for institutional reputation, reinforced by league tables. That is not to say that researchers do not make good teachers—many do—but it is research that garners the accolades. Not enough weight is given to the support of students through good teaching, although I am heartened to learn that there has been much more emphasis recently on showing students how research and scholarship links with undergraduate learning.

The HE system is changing rapidly. It is already a diverse system and is becoming ever more diverse as new providers enter the sector. I was astonished to learn in a recent report that, on one count, there are 700 alternative providers; I gather that the more reliable figure is 400, but that is still more than double the number of established universities and clearly offers students a great deal more choice than was available, say, five or 10 years ago. Inevitably, though, there is a greater risk of poor-quality provision if these providers are not subject to the same extensive quality assurance process or regulatory regime as existing providers. So it is wise, in this new and changing environment, to review the way in which the quality assurance system deals with this much more complex world. Talking to people in the sector, and from what I read, I believe that the teaching excellence framework—the TEF—has the potential to provide more encouragement and support for teaching, to produce useful information for students, and, hopefully, to raise the status of teaching in all HE providers. But some of its provisions worry me—those worries have been reflected by other noble Lords.

We have been given a very useful briefing from the department on this part of the Bill and I thank the civil servants, some of whom I recognise in the Box, for the careful, helpful and comprehensive way that they have guided us through this Bill before each of our sessions. However, the recent briefing highlighted some of my concerns. The range of metrics described in the briefing, while voluminous, do not seem related to good teaching. They seemed much broader than a framework for teaching excellence would suggest. The metrics on employability and equality of opportunity—while perfectly good—suggest, for example, that the TEF is really about the student experience, or indeed about any provision that is not evaluated by the research excellence framework—the REF.

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[Baroness Warwick of Undercliffe]

My Lords, several noble Lords around the Chamber—probably all of us, actually—are anxious about the risks associated with this process; that is what we have been trying to describe. We are not resisting the way forward but trying to assess the extent of the risk. Can the Minister tell us whether there has there been a risk assessment and whether he can publish it if there has?

[Viscount Younger of Leckie]

I will reflect on what the noble Baroness has said. It may give her some comfort if I say that we are not rushing this in. The proposals that we have are not all in the Bill; that is why this is an iterative process. I will continue to engage, as will the team and my honourable friend in the other place, on rolling out the TEF.