University of London Bill [Lords]

Bob Stewart Excerpts

2nd reading: House of Commons
Tuesday 16th October 2018 Commons Chamber

[The Minister for Universities, Science, Research and Innovation (Mr Sam Gyimah)]

Last year, the Government passed the Higher Education and Research Act 2017 with the aim of opening up the higher education market. The Act enables high-quality providers of higher education to gain degree-awarding powers more quickly, and also allows those with an excellent track record to achieve university titles.

I recognise, however, that existing legislation poses problems for the colleges in the University of London federation. Under the current rules, colleges that wish to obtain university titles will have to leave the federation altogether, which could undermine both its provision and its reputation. If, however, colleges remain under the current arrangement, their lack of university title may also undermine their prestige and standing, which could have an adverse effect on their ability to recruit students, particularly those from overseas. I therefore fully support this private Bill, which seeks to correct technicalities in existing legislation and allow the colleges of the University of London to become universities in their own right, while remaining part of the university’s federal structure.

[Bob Stewart (Beckenham) (Con)]

Does that mean that Birkbeck College, for instance, will become “Birkbeck University, University of London”, or will it be “Birkbeck University”? How will we refer to it in future?

[Mr Gyimah]

That will depend on how Birkbeck chooses to refer to itself, but I anticipate that once this Bill gains Royal Assent, most of the University of London’s prestigious colleges will apply to gain full university title, and they are very well placed to be successful. The colleges are already fully compliant with the financial sustainability, management and governance requirements that apply to all directly funded higher education institutions, and they also already have their own degree-awarding powers.

The University of London is one of the very few providers whose powers are set out in a private Act. The primary purpose of the Bill is to correct technicalities in the current Act, which disallows the colleges from applying to become universities in their own right. Given that it is uncontroversial—I hope—and long overdue, I expect it to be passed, with a significant number of colleges taking full advantage of the opportunity to gain university status.

I am very aware that the university and its colleges have already invested considerable time and expense in rectifying the existing situation. Any further delay in the Bill’s progress will be a significant setback to them, and will become increasingly harmful. I therefore encourage the House to allow the Bill to proceed with all reasonable speed.

[Gordon Marsden (Blackpool South) (Lab)]

I thank my hon. Friend the Member for Westminster North (Ms Buck), who I gather is, according to the nomenclature, the promoter of the Bill. She cut through the thicket of a highly technical and somewhat convoluted selection of arguments with a crisp and concise message—the Minister has just echoed it—which is that at the moment, in technical and practical terms, there are significant concerns for the colleges concerned that, to use the old adage, they are neither fish nor fowl. For all the reasons that my hon. Friend set out and the Minister reiterated, at a time when it is so important that the international reputation of our existing universities and institutions is understood and held in high esteem, especially given the situation in which we find ourselves with Brexit and other challenges from competitor countries with universities, our institutions must not be hampered or impeded with regard to the way in which they are understood by people not just in this place or even in this country, but internationally. That is an important part of the process.

I want first to declare a triple interest, albeit an historical one, in this debate. First, I am a former postgraduate of London University—from the Warburg Institute—which serves as a reminder that the University of London consists of not only colleges, but a number of separate institutions and institutes, many of which found themselves in quite a difficult position in the 1990s and 2000s when the changes that we know about began to take place in the relationship of the central university and the colleges. Secondly, of course, this took place some time ago, and, thirdly, to illustrate that, in the 1990s I was a member, by virtue of my editing the magazine History Today, of the board of the Institute of Historical Research. At that time, the debate about the relationship of the university to the various colleges, and what would happen to the university and its institutions, was a strong and fevered one. Thankfully, in the years since, there has been a coexistence—I suppose that that would be the word—between the central register of the university and the colleges, and that coexistence has brought about the uncontroversial Bill before us today.

I do not want to repeat the points made by my hon. Friend and the Minister about the technicalities of the Bill and the processes, but I do want to make one or two observations about the 1994 Act and where this new settlement might take us. In the promoter’s statement of support for the Bill’s Second Reading, we are told:

“The current arrangements are…unnecessarily cumbersome. The 1994 Act allows consultees 4 months in which to make representations”,

and

“if the governing body wishes to take forward its proposals, it must pass two resolutions with an interval of at least one month.”

That is all very true, but I believe that it has a broader relevance than simply today’s technical debate, as it puts the onus on all the member institutions, when they are changing elements of their statute in the way my hon. Friend has explained will happen under the new set-up, to consult strongly with all their workforce—all their academic staff and students. The Minister will be well aware of the Opposition’s concerns in this area in the light of all we said in the debates on the Higher Education and Research Bill with his predecessor, and the various exchanges that he and I have had about this area since.

The importance of giving the colleges university status cannot be overstated, and I understand the concern of all hon. Members and those involved with the colleges that they should not be hampered externally. The hon. Member for Henley (John Howell), citing his role as a Government envoy to Nigeria, was worried about this, which I can understand, but in defence of the central functions of the University of London, I would like to reassure him that the status of the university as a brand is still very strong internationally. I pray in aid of that argument the tens of thousands of graduate students whom I see every year at the enormous graduation ceremonies, which are often presided over by Her Royal Highness Princess Anne, the chancellor of the University of London. I do not think we should entirely set aside the brand value, if I can put it that way, of the University of London.

Clause 3 of the Bill refers to conferring a general power on the university’s governing body—the board of trustees. The Bill was amended in the House of Lords, and I have taken the time to look at the evidence given to my noble Friend Lord McFall over two sessions in February and March this year, which was very interesting. In putting forward its proposals, the university made a number of claims about the existing process being unnecessarily cumbersome and protracted and the need to refresh its status in a more dynamic way. I pay tribute to the diligence of my noble Friend, because he pressed the university quite hard on the relationship between the university and the colleges. In particular, he was concerned that there should not be a sense of mission creep regarding to what needs to be done to establish that relationship. As a result of my noble Friend’s probing, two amendments were tabled, one of which restored the right of the trade unions at the colleges and the university to be consulted—[Interruption.]

[Bob Stewart]

I am hoping that the hon. Gentleman can have a short break to get his cough under control. I should like to ask him, and indeed the Minister, how much these changes are going to cost. Has there been a cost analysis of the changes?

[Gordon Marsden]

That is a good point. I do not have the answer to the hon. Gentleman’s question, but the Minister might be able to give him an indication. I would simply say that it is important that these processes are taken forward as economically and speedily as possible, which will obviously involve some degree of expense. I hope that no one would wish to see flights of enthusiasm for spending lots of money to promote new titles and logos, for example, especially at this time. That is not the official Opposition’s view; it is just my personal opinion.

I shall return to the question of amendments having to go out for consultation by recognised trade unions. This needs to be widely and substantially understood, particularly by the heads of the colleges and particularly in relation to the two unions involved—the University and College Union and Unison. It is important that the workforce should be involved in the process.

The second change relates to the Privy Council, and I understand the need for that change. As a general principle, however, we remain sceptical about the diminution of the role of the Privy Council in the position of universities. Members of the other place made that point when the Bill was going through. This goes back to the old Bagehot definition of the monarchy: it is not the powers that it confers, but the powers it denies. The Privy Council has historically been a useful backstop against the flights of fancy of higher education administrators, and I will be sorry to see its role entirely extinguished. That said, I understand the reasons given in the Bill.

--- Later in debate ---

[Sir Christopher Chope (Christchurch) (Con)]

This debate would not have taken place had I not blocked this Bill going through on the nod on Second Reading, and the contributions we have had today show that it has been a worthwhile exercise. I do not believe Bills should go through this House without being discussed, particularly when they are opaque. When the Bill was being debated in the other place, it was conceded that the foremost reason and key rationale for it was that it would facilitate universities becoming universities in their own right in London, and it was conceded that that was not clear in the Bill. If something is not clear in the Bill, how are we going to get to the bottom of it unless we start debating it? That is where the value of what we are doing this evening lies.

At the moment, there are 18 self-governing institutions within the University of London’s federal structure, a lot of which are, in many respects, regarded as universities in their own right. For example, if one looks at the 2019 university league tables, one sees that the London School of Economics is third, University College London, of which my late father was a graduate, getting first-class honours in Latin, is 10th—

[Bob Stewart]

Better than you then.

[Sir Christopher Chope]

Far better than me. King’s College London is 26th, Royal Holloway is 28th, Queen Mary is 38th, the School of Oriental and African Studies is 46th, St George’s is 52nd, Goldsmiths is 62nd and City, which has recently joined the University of London, is 66th. The college to which my hon. Friend referred, Birkbeck, is 125th. We are told that other colleges, beyond the ones I have mentioned, are aspiring to become universities in their own right. They may include the Royal Central School of Speech and Drama, which this league table puts top of the arts and drama institutions. The question I would like to ask is this: what is going to happen to the other colleges within the federation of the University of London? They are probably not going to be in a position to become universities in their own right, and may not even aspire to do so. What is going to be done to protect their position? Obviously, they operate on the basis that they are part of the University of London, with all the prestige that that brings to their activities. A number of the 24 Russell Group universities are in fact colleges of the University of London—King’s College, LSE, Queen Mary and University College. A lot of these colleges are already seen as universities in their own right, so is it really going to make an enormous difference when this Bill is enacted? I am not so sure about that.

I was disappointed that the Minister did not address one of the hot topics of the moment, which is grade inflation. To what extent are these 12 new universities, instantly created as a result of this legislation, going to engage in grade inflation? A report was produced by Reform, and Tom Richmond, the senior research fellow who was its author, has said:

“Rocketing degree grade inflation is in no one’s interest.”

It continued:

“Universities may think easier degrees are a way to attract students but eventually they will lose currency and students will go elsewhere, even overseas.”

It went on to say:

“Restoring the currency of degrees would also mean better value for money for the £18 billion that universities receive each year in tuition fees.”

That report recommended that universities are stripped of their powers to award degrees and that final-year students should instead sit new national assessments for each degree course. The Bill will do quite the reverse by increasing the number of organisations that will be able to award degrees, with the perverse incentive that they will want to be able to make their degrees easier and engage in the grade inflation about which so many people are concerned. I am interested to hear the Minister’s response to that point.