Further and Higher Education (Access) Bill Debate
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Christopher Chope
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Further and Higher Education (Access) Bill
Christopher Chope Excerpts(13 years, 8 months ago)
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Mr Christopher Chope (Christchurch) (Con)
I beg to move, That the Bill be now read a Second time.
This is a Bill to make provision to require all institutions of further and higher education in receipt of public funds to allocate places on merit, something that I understand my right hon. Friend the Minister with responsibility for universities and higher education very much supports. I hope, therefore, that the Government will support the Bill today; and if they do not I hope that the Minister for Further Education, Skills and Lifelong Learning, who I am pleased to see on the Front Bench, will spell out in detail exactly why not.
The Minister for Further Education, Skills and Lifelong Learning (Mr John Hayes)
I am delighted that my hon. Friend has given way at this early stage. There is no doubt about our shared commitment to the principle that people should advance on the basis of merit. It would clearly be precipitous for me to say more about the Bill, but I give him the absolute assurance that that principle guides all that we do in the Department, and that it is a view shared by all Ministers who have responsibilities in this area.
Mr Chope
I am grateful to my hon. Friend. He is obviously demonstrating that he has an open mind on this subject, which is more than I can say for the Government in relation to another Bill that I have on the Order Paper, the Minimum Wage (Amendment) Bill. Yesterday, before he had even had a chance to the listen to the arguments for that Bill, the Leader of the House said that the Government would be against it. I welcome the fact that my hon. Friend has an open mind on this issue.
I am sure that my hon. Friend will agree that there is a lot of confusion at the moment, among universities in particular and other institutions of higher education, because the Government seem to be at sixes and sevens in developing their policy in this area. Originally, the Government said that they would publish guidance to the Office for Fair Access by the end of January to enable it to give guidance to universities by the middle of February on their admissions policies for the academic year starting in 2012. Despite full guidance having been issued in the middle of February, with the Minister for Universities and Science saying in a press statement at the time that OFFA would be able to advise universities by the end of February, as of now, in the first week of March, there is still no information from OFFA on the principles that universities should apply for next year’s admissions.
Mr Greg Knight (East Yorkshire) (Con)
On the subject of guidance, may I ask why my hon. Friend has, unusually, not published explanatory notes and guidance to his Bill?
Mr Chope
I am grateful to my right hon. Friend for that question. The reason is that I thought that my Bill was exemplary in putting forward an argument in simple language that everyone should be able to understand, and that it did not need any guidance. I will come to the detail of the Bill shortly. I hope that, having read the Bill, he accepts that it is plain about what it seeks to achieve.
Mr Chope
My right hon. Friend has just succeeded in getting his Bill through its Second Reading, Committee stage and Third Reading very fast. I hope that my Bill will make similarly rapid progress. That is why I look forward eagerly to hearing what the Government’s attitude to it will be. As a general rule, I am not sure that the length of the explanatory notes, or the fact that there are explanatory notes, is a good guide to whether a Bill will make progress. If I recall correctly, the Wreck Removal Convention Bill, which was brought forward by my hon. Friend the Member for Suffolk Coastal (Dr Coffey) and which we will discuss in a fortnight, has quite extensive explanatory notes. I am not sure that that is necessarily an indication of how much time will be spent discussing it.
I return now to one of the principal reasons for my concern about the guidance. The full guidance that was issued by the Secretary of State for Business, Innovation and Skills and the Minister for Universities and Science to the director of fair access in February was based on the draft guidance that was issued on 7 December 2010. Paragraph 6.1 of the draft guidance was very clear:
“There have been no changes in the legal constraints on your powers as Director of Fair Access. You are not empowered to interfere in institutions’ decisions about the admissions of students and you may only set conditions that clearly relate to promoting participation and access.”
When the final guidance was issued last month, that paragraph was omitted. I tabled a parliamentary question to the Minister for Universities and Science, asking why it had been omitted. Unfortunately, the fact that I received a holding reply rather than an immediate substantive reply makes it obvious that he had to think about why it had been omitted. Eventually, he came back with an answer pursuant to the holding answer of 16 February:
“Paragraph 6.1 was unnecessary as it provided no new information.”—[Official Report, 17 February 2011; Vol. 523, c. 981W.]
I am not convinced by that and remain very suspicious. Indeed, the full guidance is more extensive than the draft guidance. The full guidance is some seven and a half pages long, whereas the draft was only five and a half pages long. That clearly expressed paragraph is omitted from the final guidance.
I share the concern of many people in universities that the Government are trying to increase regulation and interference to tick boxes on social engineering and social mobility, and that that is ill conceived.
Julian Smith (Skipton and Ripon) (Con)
In the guidance—I am not sure on what date the guidance I have was published—have not the Government directed OFFA that it must be “fair, transparent and evidence-based” in all that it does? Does my hon. Friend have an issue with that? It seems quite clear from the guidance that I have read.
Mr Chope
Well, we will have to see what happens. If one looks at the detailed guidance—I do not have the paragraph to which my hon. Friend is referring to hand—one can see that it is full of contradictions. The director of fair access said that, based on the guidance, he would issue advice to universities before the end of February to meet their tight time scales. The fact that he has not yet done so perhaps indicates that he is finding it a bit problematic.
This issue even appears in today’s newspapers. In The Times, there is a letter from John Foster, a former chairman of the council at the university of Leicester, expressing strong concern about the Government
“digging itself into an ever-deeper hole”
over universities and student fees. In particular, he states that the Government
“now proposes to penalise some universities that wish to charge the maximum level by cutting their student numbers and diverting thus-frustrated applicants to lesser institutions.”
He states:
“Many will regard this as confirmation that the Government is viscerally opposed to students in general and to higher education in particular. Others will interpret it as a deliberate discouragement to excellence and a reward to mediocrity. I have no doubt that it will weaken the international standing and competitiveness of some of our finest universities.”
Such comments are coming thick and fast from people on the front line in higher education, and they reflect the concerns of, for example, the Russell group of leading universities. It issued a press release on 10 February commenting on the Government’s guidance to OFFA, which made a number of good points and emphasised that
“admission to university is and should be based on merit, and any decisions about admissions must also respect the autonomy of institutions and maintain high academic standards.”
That is four-square with my Bill, because clause 1, which is headed “Duty to allocate places on merit”, states:
“It shall be the duty of all institutions within the further or higher education sectors in receipt of public funds to consider applicants domiciled in England for any course of study below post-graduate level on the basis of merit alone unless the circumstances in section 3 apply.”
Jacob Rees-Mogg (North East Somerset) (Con)
Will my hon. Friend explain why that applies to people domiciled in England, but the Bill would have effect in England and Wales?
Mr Chope
Yes, I will explain that to my hon. Friend. It is because under our conventions, it is not possible to have an Act that applies exclusively to England. Acts have to extend either to England and Wales, to England, Wales and Scotland or to Northern Ireland as well. Although my Bill has to extend to England and Wales, it would actually apply only in England, because the issues that are the subject of it are reserved matters for the Welsh Assembly. I did not think it would be right for the House to interfere with the Welsh Assembly’s discretion on them.
Jacob Rees-Mogg
But does that mean that a Welshman who applied to Oxford could be admitted not on merit, but an Englishman who applied would have to be admitted exclusively on merit?
Mr Chope
My hon. Friend is very good at interpreting the words in the Bill, and that is obviously a factual situation. He will know from his constituents who apply to universities outside England that they are sometimes concerned whether they will be accepted purely on merit or whether, for example, a different set of criteria applies to students from Scotland compared with those from England applying to Scottish universities. I recognise that that is a potentially contentious matter, and I thought it would be better to limit the scope of the Bill in the way that I have.
George Freeman (Mid Norfolk) (Con)
As vice-chairman of the all-party group on universities, I hope to speak a little later.
Does my hon. Friend feel that a higher, philosophical question that should be uppermost in our consideration of the Bill is the importance of underpinning the freedom of our universities? It seems to me that they are crucibles of free inquiry, free speech and the freedoms that we as a society cherish. Although I recognise the intent behind his Bill, I worry about any Bill that places more burdens on our universities. Does he agree that the principle of freedom should be sacrosanct?
Mr Chope
Absolutely, and my Bill is designed to promote the freedom of universities to decide the issues in question for themselves and to restrict the Government’s ability to interfere in the governance of our universities, many of which are international institutions of high repute. They are expanding and raising their standards in the global higher education context, and they are highly respected. They do not need an interfering Government, who are pledged to reduce regulation, increasing the regulatory burden on them. However, that, of course, is exactly what the Government’s current policy seems to be.
Julian Smith
As I understand it, one of the biggest problems that the Government are trying to solve is that people of merit from socially disadvantaged backgrounds have not been getting to good further and higher education institutions. Does it not concern my hon. Friend that the Bill could restrict such people’s ability to get into our universities?
Mr Chope
Looking at the Bill, I do not see how that can be the case. I define merit in clause 2 as
“academic ability, potential and aptitude as assessed by the institution of further or higher education”,
thereby emphasising not just academic ability as reflected in exam results but potential and aptitude, to be assessed exclusively by the institution in receipt of an application. That emphasises the importance of giving institutions the freedom to make the judgment themselves.
Ian Lucas (Wrexham) (Lab)
Will the hon. Gentleman explain what would happen if, once the Bill had been passed, an institution did not admit students on the basis of merit?
Mr Chope
That institution would be in breach of a statutory duty, so all the remedies that flow from such a breach would be available to anybody who wished to challenge it. Putting a mirror to what the hon. Gentleman says, I believe that the same problem is writ large in the guidance to OFFA. It looks as though it will tell universities that are considering charging more than £6,000 a year in fees from 2012, “Unless you come forward with an access agreement that we support, you will not be able to charge those higher fees.” What will happen if a university applies to charge fees above £6,000—we have read in the newspapers in recent days about some that intend to do so—and OFFA tells them that they cannot? What will the sanction be? Ultimately, the less interference there is in the process, the better.
It is a pity that it is necessary to encapsulate in a Bill such as this something that my right hon. Friend the Minister for Universities and Science has said is already as plain as a pikestaff in legislation—the idea that the Government cannot and should not interfere in universities’ access arrangements. My problem, and the problem of a lot of people involved, is that although the Government say that, the whole rationale of OFFA’s director seems to be to interfere rather than leave judgments to the universities themselves.
Rehman Chishti (Gillingham and Rainham) (Con)
One must consider the concept of interference alongside the concept of fair access to universities for people from less privileged backgrounds, because there is a difference between the two. The Government have a responsibility to ensure that such people can go to the highest-performing universities, and if we can assist in that through legislation, it is right and proper to do so.
Mr Chope
The essence of what my hon. Friend says is in the phrase “if we can assist in that”. I do not believe that the Government can assist in that. The premise of what he says is that the universities themselves do not want to facilitate wider access or ensure that the best people can gain access on merit. All the evidence that I have seen suggests that they want to achieve that aim, but they resent the fact that the Government are using OFFA to try to impose additional criteria on them. That is certainly the view of the Russell group and other universities.
Mr Hayes
My hon. Friend’s perspective and the Government’s are close. We have a perfectly proper desire to widen access in the way that has been described, but we differ on the admissions system. I shall speak at some length about that when I reply, but he needs to address it too.
Mr Chope
I shall certainly address that, and I look forward to responding at the end of the debate to the Minister’s comments.
Perhaps one way to address the issue is to look at what the Russell group says. It states:
“We share the Government’s commitment that every student with the qualifications, potential and determination whatever their background has the opportunity to gain a place at a leading university”,
but emphasises that
“the most important reason why too few poorer students even apply to leading universities is that they are not achieving the required grades at school.”
If the main reason why students do not apply is that they do not achieve the required grades, why do the Government, who are responsible for almost all primary and secondary education in the country, not concentrate on that problem, rather than interfering in an area of education in which they have not hitherto interfered? That is a typical approach of the Government: rather than focus on their failure to undertake their responsibilities, they try to introduce more regulation for things that run perfectly adequately. That is the difficulty.
Rehman Chishti
I was here for the universities debate when the Government made it quite clear that through the pupil premium and other support, they will help to ensure that students from less privileged backgrounds get access to universities and improve their grades. I agree with my hon. Friend that we must ensure that those from less privileged backgrounds are given the opportunity and support they need to ensure that they get those results. I was the first in my family to go to university and I went on to become a lawyer and an MP. People like me need such help, but the Government have already committed in the universities package, which includes the pupil premium and other support, to support those from less privileged backgrounds.
Mr Chope
It is one thing to make a commitment and another to deliver on it. I hope the Government can deliver on that one, but my response to my hon. Friend is that if they concentrate on delivering on it through the pupil premium and other measures, they will not need to interfere in the right of the universities at the other end of the system to choose people on merit.
My point remains: there is something desperately wrong with how many our schools operate. They do not allow the full potential of their pupils to be realised in the form of exam results, which is one barrier to access.
The Russell group states:
“The main problem is that students who come from low-income backgrounds and/or who have attended comprehensive schools are much less likely to achieve the highest grades than those who are from more advantaged backgrounds and who have been to independent or grammar schools”,
and points out that
“this gap in achievement according to socio-economic background is getting wider. Too many students don’t choose the subjects at A-level which will give them the best chance of winning a place on the competitive courses at leading universities.”
That is why everyone in the House, including the Minister and the shadow Minister, will be pleased with the Russell group’s informed choices initiative. It tries to ensure that students choose the right subjects at A-level for the courses they are thinking of taking at university.
My daughter is studying veterinary medicine at university. Had she not discussed her preferences with her teachers before choosing her GCSEs, she might not have made the right subject choices. She made those choices on the basis of information provided to her, but quite often people who aspire to take veterinary or medical courses at university do not take the hard subjects in their preceding exams to enable them to do so.
Mr Hayes
My hon. Friend once again hits on a key reason for the failure of many students to achieve their potential—the lack of advice and guidance. I hope he will take this opportunity to welcome the Government’s commitment to an all-age career service to deal with some of the disparities he describes.
Mr Chope
Absolutely—I am not pouring cold water on that initiative. The Government have demonstrated over the past several months that they share many of our concerns about the failure of the education system to deliver.
The statistics show a desperately serious situation. In the last 15 years, the proportion of A-level students at comprehensive schools who achieve three A grades or more has increased from 4.2% to 8.2%, while the proportion at independent schools has increased from 15.1% to 32.3%. That is a commentary on the previous Administration’s lack of achievement. Anything that can be done to put that right would be a good thing.
Ian Lucas
I am listening carefully to the hon. Gentleman, but the statistics that he has presented are grossly misleading, because they take no account whatever of the restrictions on admission to many fee-paying schools, which do not apply to schools in the comprehensive sector. He should at least recognise that when he presents such figures.
Mr Chope
They are not my figures—they are from the Department for Education, but they speak for themselves. However, if the hon. Gentleman wants more figures to confirm what a miserable failure the previous Government were in that respect, I should tell him that 29.9% of all students who got three A or A* grades at A-level in 2009-10 were at comprehensive schools, which was 8.2% of the total taking A-levels at comprehensives, but that those comprehensives accounted for 46.7% of all A-level students. That shows that the comprehensive schools just did not deliver on the potential of the students whom they taught.
Mr Hayes
I recognise, and indeed acknowledge, that prior attainment, as well as advice and guidance, is a key factor in subsequent achievement. My hon. Friend might remind the shadow Minister that, as C. S. Lewis said:
“Failures are finger posts on the road to achievement.”
It is a long road for the Opposition and many finger posts.
Mr Chope
My hon. Friend the Minister is great with quotes, and I notice that the shadow Minister does not wish to respond to that one yet—he will have the chance to do so later.
Let us not think that the universities are doing nothing. They are trying to encourage people to apply and are engaging in outreach initiatives. The Russell group alone is investing £75 million a year in initiatives designed to help the least advantaged students to win places at university, which is quite a lot of money.
George Freeman
I am grateful to my hon. Friend for that information. Does not the fact that the universities, whose only interest is in academic excellence, find it necessary to make such investment, tell us everything we need to know about the lack of need to regulate them further?
George Freeman
I am sorry; I did not make myself clear. I meant regulating universities further through my hon. Friend’s Bill, which would further complicate the matter and require them to be guided by the words in the Bill. If it became law, it would place on them a duty to choose only on the basis of merit, as he has defined it. Can we not just trust them to work with the Government? Does not the fact that they already invest such sums in outreach give us all the reassurance we need that they believe that it is important and that therefore it must be?
Mr Chope
My hon. Friend is trying to attack my Bill as a regulatory measure, when in fact it is a deregulatory measure. It aims to prevent the burden that the Government are trying to place on universities in a less than transparent way—using the Office for Fair Access—and which is increasing regulation on universities. That would be prevented by the Bill, because it would be at odds with the duty to allocate places on merit other than in accordance with the exemptions set out in clause 3. He stands four-square with me in saying that we want to reduce the burden on these universities. However, at the moment the burden is being increased by the Government under their measures to try to bring about social engineering in a rather partisan way.
Julian Smith
Is the key fact not that, whether it was the fault of universities or the previous Government, there has been a failure to get people from disadvantaged backgrounds into our better universities? A piece of research by Martin Harris concluded that
“while there have been substantial increases in participation among the least advantaged 40 per cent of young people across higher education overall compared to the mid-1990s, the participation rate among the same group of young people at the top third of selective universities has remained almost flat over the same period.”
Is it not morally right that the Government are trying to address this issue?
Mr Chope
There might be an issue there, but Sir Martin Harris has a vested interest; he is the director of the Office for Fair Access and obviously has to keep himself in a job. He is saying that there has been an increase in admissions to universities from people from poorer backgrounds, but that that has not yet percolated through to the top universities. He is therefore seeking a mandate to have more powers to interfere in those top universities. I am trying to put the point of view of the Russell group, which is a representative sample of those top universities. It points out that it has made enormous progress without that sort of interference. Indeed, it thinks that the Government’s ideas—and, by implication, Sir Martin Harris’s ideas—on this will be dangerous and counter-productive by being too prescriptive.
The Russell group has commented on the question of how we are going to measure success in improving access. It is the same with all these principles: if we cannot measure it, we cannot control it. It says:
“Any measurement of universities’ progress in improving access must be undertaken with great care. The investment of Russell Group institutions into outreach activities benefits the sector as a whole, with many students being inspired to study at other institutions as a result of our widely targeted work with potential candidates of many ages and backgrounds. We believe our universities have a role in helping all students to fulfil their potential, not simply widening access to our own institutions.”
That demonstrates how difficult it is to judge an individual university’s outreach programme solely on the basis of how many students it has brought into its own university as a result of that outreach programme, because that programme might have enabled students from poorer backgrounds to apply to, be accepted by and go to other universities. Obviously, the next question that arises is, how will we possibly measure that? It would be very complicated. That takes me back to the point that we do not need to have all this regulation. Why can we not trust these universities to carry on doing as they have been doing up until now.
Rehman Chishti
My hon. Friend referred to the Russell group’s saying that £70 million will go towards ensuring that people from less privileged backgrounds can go to university, but if I remember correctly—from the universities debate—the Government were looking at providing £150 million for widening access. Surely it has to be a good thing that more money is made available to allow more people from less privileged backgrounds to have hope and aspiration.
Mr Chope
Absolutely, but the £150 million is going towards scholarship funds. At the moment, the Russell group, which represents only about 20 universities, is already investing more than £75 million a year. Pro rata, it is already investing more than the Government are promising to invest in the future, yet the Government are saying that if a university wants to raise its fees to anything beyond £6,000, the Government will, through the Office for Fair Access, interfere in its ability to do so and exercise their own judgment on the level of the fees because they are concerned about improving access. I am saying that these universities should be trusted. Many of them are international centres of excellence and should be trusted to make their own judgments. There is no reason to criticise anything that the Russell group universities have achieved, or indeed what some other universities have achieved.
I suspect that at the heart of all this is a feeling on the part of some elements of the coalition Government—I will not spell out, following the Barnsley by-election, which elements I have in mind. [Interruption.] As the hon. Member for Wrexham (Ian Lucas) says, it is the part of the coalition not represented in the House today.
Mr Deputy Speaker (Mr Lindsay Hoyle)
Order. I think we should get back to the subject, rather than discus the Barnsley results.
Mr Chope
Certainly, Mr Deputy Speaker. It would ill-behove either you or me to bask in any glory as a result of that by-election result. It is a pity, however, that there is no Liberal Democrat representative in today’s debate to discuss these very important issues.
I turn to the measures being taken already to improve access. There is going to be a measurement system under the proposals for assessing the ability or willingness of OFFA to allow universities to charge higher fees. The system for measuring the success in improving access needs to include—it does not at the moment—access to other institutions as a result of the work carried out by a particular university. The Russell group welcomed
“the Government’s guidance that institutions should set their own targets and measures of progress”,
but was concerned that
“existing…widening participation benchmarks are unsuitable as targets against which institutions’ progress can be meaningfully measured.”
It quotes Lord Browne—the guru on this issue, who produced his report last year—who found that
“the benchmarks do not provide a sophisticated enough picture of the student population actually qualified to meet the entry requirements of many courses. For example, they take no account of the fact that someone with 4 A*s at A-level might have a high tariff score but would not have a strong chance of being accepted on a Medicine course if these A-levels are in the wrong subjects…Moreover, financial penalties for not meeting these targets would be unfair and unhelpful to our aim of investing in ways to help poorer students win a place at our universities.”
Mr Knight
We are having a very interesting debate, but underlying it is the question of whether we should support the Bill. I have to say to my hon. Friend, however, that the more I look at his Bill, the less I think of it. I do not see how it can achieve anything, because clause 3 on exemptions blows a hole in clause 1, under which a decision has to be made on the basis of merit alone. Clause 3 states that a course can be advertised where there are
“criteria additional to or in substitution for the criterion of merit”.
To use an extreme example, if this Bill was the only arbiter that universities have to follow, they could advertise a course for aspiring gentlefolk where the only requirement is that someone can pay the high fees.
Mr Chope
Exactly, but my right hon. Friend fails to appreciate the transparency of the measure. If an institution of higher or further education is going to give places on a particular course on criteria other than merit, it should make that clear when people are considering applying to that university. For example, if it offers a sports science course, and welcomes in particular people who are proficient at playing soccer, it should say so in the application so that people who cannot kick a ball at all will not apply, or understand that if they do so it is unlikely that they will be accepted. Clause 3 tries to make sure that where universities give places on criteria other than academic merit those criteria are spelt out openly and transparently. I am surprised that my right hon. Friend is concerned about that. Perhaps he will accept that his interpretation of the clause is incorrect.
Mr Chope
I believe that it is pretty transparent, although some academic work has been done that shows that, inevitably, subjectivity is involved in assessing people’s suitability for going to university. There is no way in which someone who has been refused a place at a university can find out the specific reasons for that decision, although it is normally possible for them to obtain informal feedback from the university through their school or college.
I am not suggesting that the current system is completely transparent, which is why it would be better for it to be plain as a pikestaff that admissions should be made on the basis of merit. There is a feeling, borne out in research for Oxford university, that some admissions tutors for that university are inclined to choose pupils who do not come from independent schools, because they believe that independent school pupils have an unfair advantage and they wish to discount that advantage. They do so on the basis of subjective judgments, which very much runs against the principle of transparency. I hope that the Minister will deal with that point. A problem with the speech by my right hon. Friend the Minister for Universities and Science on 17 February was that he misquoted some of the evidence from the Ogg, Zimdars and Heath report for Oxford. He used that evidence to suggest that there was a bias in favour of pupils from private schools, when a proper reading shows quite the reverse, with a bias against pupils from private schools.
With all these issues, the problems that concern me are problems of definition. If we are going to try to categorise schools, whether they are independent or private on the one hand, or state schools on the other, how do we categorise those pupils who move from the independent sector into the state sector in the last two years of their course, or perhaps leave an independent school and go to a tertiary college to resit their exams and apply to university? There are quite a lot of independent schools with pupils who came originally from the state sector, often with bursaries. Will those pupils be penalised when they apply to university—or do the universities accept those pupils?—because their last place of education was an independent school, even though they started off in the most difficult circumstances? Many pupils at independent schools are in receipt of education maintenance allowance, which may surprise the hon. Member for Wrexham (Ian Lucas), and it may cause some people to say that that is another reason why EMA is ill-targeted. However, there are many pupils at independent schools whose backgrounds would be regarded as poor or disadvantaged in the context of the higher education access arrangements that the Government are discussing.
Mr Knight
I am afraid that my hon. Friend has not convinced me. It is quite clear that clause 3 is so wide as to blow a hole in clause 1. In response to my earlier intervention, he appears to accept that it would be quite possible, if the Bill were the only arbiter, for a university to decide that it wanted to take unintelligent people with money. It could advertise a course for aspiring gentlefolk when, to use a colloquialism, all that it is interested in is money from rich thickos.
Mr Chope
I do not know whether my right hon. Friend has read today’s press reports about the London School of Economics and one of its erstwhile postgraduate students from Libya. I am not sure whether his remarks would apply to that particular happening. If a university chooses to have a closed scholarship arrangement, as some do, there is no reason why that should not continue under the Bill, provided that it is set out transparently. Ultimately—this is why the desire for ever more Government regulation is ill conceived—why can we not trust those universities to do what is best for them in the great marketplace? No self-respecting institution wants a reputation, to use my right hon. Friend’s example, for taking on a lot of thickos who will not perform at university, because that will push the university down the league tables, and will affect its ability to attract research grants and the brightest and the best. The Government cannot second-guess all those decisions—they have to be made by universities or other higher education institutions themselves.
George Freeman
I am grateful to my hon. Friend for giving way yet again. Everyone in the House will agree that the educating of thickos, rich or otherwise, is not the role of our universities. However, does he believe that an important role for universities is to develop leadership? In that education sector, are we not sometimes in danger of over-emphasising purely academic criteria? Would we want clause 3 to be used by universities to encourage a wider definition of leadership in society? That is something that our universities have always done, and it is not purely academic.
Mr Chope
My hon. Friend makes a good point. My view is that we should allow universities to do that if they want to, and clause 3 would enable them to do so, and would give them that freedom. The debate centres on the overt desire by the coalition Government for more bright students from disadvantaged backgrounds to go to the top universities. It is likely, however, that the consequences of the access arrangements that they are seeking to impose will be counter-productive and certainly discriminatory.
Someone said to me the other day that merit is almost the last taboo in terms of discrimination; that we have outlawed discrimination on the grounds of race, sex, gender and all the rest, but we still allow discrimination on the ground of merit, and the Government are really keen to do away with discrimination on the ground of merit. The Bill is designed to ensure that that does not happen, and that the Government’s arrangements for access to further and higher education will not be allowed to be at the expense of merit.
Rehman Chishti
My hon. Friend talks about various forms of discrimination, but the recent education legislation tackled another form of discrimination. For a long time there was discrimination against part-time students, who were unable to get funding on the same scale as full-time students, and who often tended to be mature students. On that basis, it was absolutely right and proper for the Government to put that package through, so that mature students could have their aspirations fulfilled. The Office for Fair Access guidelines mention
“the scale and nature of outreach activity to be undertaken to attract mature students—including work with local communities”.
That must be absolutely right and proper, and this Government have already committed to it.
Rehman Chishti
If my hon. Friend is saying that he does not agree with the Government’s regulation and the OFFA guidelines, some of which I have just read out, and if his Bill goes against giving OFFA a number of different guidelines and the option to make sure that more mature students can go to university, then of course it is at odds with his Bill.
Mr Chope
If those students are going to go to university on the basis of something other than merit, or on some basis other than the exemptions that are set out in clause 3, but my understanding is that the Government want to open up opportunities for part-time students but not on the basis of anything other than merit. If I am wrong about that, I am sure that my hon. Friend the Minister will correct me.
I have been speaking for longer than I intended, so I shall briefly outline how I think the problem can be dealt with more effectively. Hon. Members will be aware of the Social Mobility Foundation. Sir Terry Leahy, the outgoing chief executive of Tesco, has now joined the board as a trustee. My right hon. Friend the Prime Minister has said:
“The Social Mobility Foundation provides an exemplary service to help academically-talented disadvantaged students achieve their potential. I and many other Cabinet Ministers have been delighted to host SMF students”
and he encourages others so to do. It seems to me that that is the way forward. If we want to encourage the brightest and the best to be able to get access to our universities, we can give support to worthy organisations such as the Social Mobility Foundation.
What is interesting is that even the Social Mobility Foundation has to set eligibility criteria for those who apply to it for assistance. To join the aspiring professionals programme, students have to be in year 12, in receipt of education maintenance allowance or free school meals, and, significantly, in possession of at least five A grades in five different subjects at GCSE and predicted to obtain at least an A grade and two B grades at A-level. Even the Social Mobility Foundation is accepting that academic performance has to play a part in deciding whether people are appropriate to be taken on for help from that foundation.
Julian Smith
My hon. Friend must know that leaving this issue to institutions such as the Social Mobility Foundation will not have anywhere near the same effect as the Government taking a stand and saying that we will select young people on merit, and we must get more people of merit from socially disadvantaged backgrounds. He must know that Government involvement is the only way to deal with that.
Mr Chope
I am afraid that I am completely at odds with my hon. Friend, because I think that getting the Government involved will be—even more so than it is already—a disastrous policy, and it would be much better to improve the quality of education in our mainstream schools.
I want to quote a final statistic. In 2009, only 232—4.1%—of students in maintained mainstream schools who are known to be eligible for free school meals achieved three or more A grades at A-level. It is a matter not of trying to get more of those students into higher education but of trying to increase that cohort of students, from 4.1% to maybe five times as many. That is the problem. I am not sure that anything that the Government are proposing to do in interfering in this area will help that problem; instead, it will exacerbate it.
There is a mass of literature on all these matters. I was looking—some hon. Members may say, surprisingly —at a couple of articles in The Guardian. One was headed, “Grammar schools do not improve social mobility for working-class. Study shows little difference in work prospects for poorer children who attend grammar schools and comprehensives.” Earlier this week, on 1 March, there was an interesting article by Mr Owen Jones, headed, “Social mobility is a dead end. Our society relies on working-class jobs—dangling a narrow ladder for moving up is a diversion from tackling inequality.” I do not know whether those are articles on which my hon. Friend the Minister intends to comment in his response.
Mr Hayes
I had not intended, given the breadth of the material that I shall have to address, to deal with that matter particularly, but I will do so in the form of an intervention, and I am grateful to my hon. Friend for giving way to allow me to do so. Grammar schools pertain in my Lincoln constituency. I went to a grammar school myself and I hope that my young sons, if they are bright enough, will go to one too. I think that explains my views on grammar schools pretty clearly.
Mr Chope
Good. I am glad that I have given my hon. Friend the opportunity to put that firmly on the record.
I was looking at the access agreement 2010-11 for the university of Exeter. The university has been criticised in some quarters for announcing, this week, that it is going to charge £9,000 fees—subject, of course, to being able to get approval for that. Yet that university has achieved an enormous amount in recent years in increasing access to those who are from less-favoured backgrounds. I cannot understand why the Government wish to interfere in the right of that university to charge whatever level of fees it wishes up to the maximum, when it already has a very good record of increasing access to the university. There has been a significant increase in the number of students from state schools and from lower socio-economic groups.
The problem, I think, is that the Government realised that it would not look good if they allowed some universities to have no limit on the fees that they charged, so they introduced a ceiling of £9,000. They then allowed the loan system backing that scheme to be fixed in such a way that it is actually adding significantly to the potential burden on the Exchequer. The Minister for Universities and Science has said that if universities charge more than £7,500, that will add to the costs to the Exchequer, given the generous loan scheme and the fact that the Government expect a third of loan applicants never to pay anything back.
As the Treasury has looked at the figures, the Department for Business, Innovation and Skills has realised that it has to try to put the brakes on allowing universities to increase their fees to £9,000. It is using the threat of access restrictions and sanctions against those universities to try to get them into line. However, courageous universities, such as those in the Russell group and the university of Exeter, are saying that their first duty is to maintain academic standards in their universities and that if students pay higher fees, it is because they want more investment in the services that they receive. Those universities are not prepared to allow the Government to threaten them with sanctions if they exercise their freedom to take such decisions. My Bill would prevent the Government from interfering in universities any more and effectively forcing them to put quotas on the numbers from different backgrounds who should be admitted. The Minister has told the House that quotas are illegal, but ways short of express quotas are being used to threaten and cajole universities, and the Bill would prevent that from happening.
Jacob Rees-Mogg
It is very depressing when we get to a state at which there is a bit of legislation that we do not like, about which we have doubts and that we think ought to be changed, and yet instead of arguing to get rid of that legislation we say that the clever thing to do is to have yet more legislation. We go on and on legislating so that the British people are weighed down with a mass of rules, regulations and complications that mean that they do not know where they stand. If the intention of my hon. Friend the Member for Christchurch is that we should scrap the controls in place, he should argue for that and his Bill should be a repeal Bill, which might then be supported by other hon. Members.
Jacob Rees-Mogg
I think the Bill should have said that in the first place. I am even more suspicious of the new Labour approach of a Bill that says one thing initially and then does something completely different.
Jacob Rees-Mogg
I thank the hon. Gentleman for his helpful intervention. That is absolutely right. Transparency is, in a sense, everything. As long as people know where they stand, they will be able to see what they ought to do. It is a tremendously beneficial reform for the Russell group to have said which subjects it views as being proper subjects, because now pupils from across the country can say, “If I do history, classics and double maths, I have a really good chance of getting in, if I do well; but if I do knitting and photography, I won’t have a very good chance of getting into the top-rate universities. My chances and opportunities will be limited.” It is absolutely right to let people know at an early stage the way that they ought to be going. Understanding the interview process when one applies to a university is also extremely helpful. If one is going from a public school to Oxford, one will be very well trained in what to expect in the interview, and that should be made as widely available as possible to people from other schools and backgrounds. I agree with the hon. Gentleman on his point on transparency.
We have, I think, established that in terms of merit, the Bill has a lot of waffle in it. What it says is fundamentally subjective, cannot work in practice, and, if taken to the courts, would be impossible to adjudicate on. It is hard to see where the Bill is going, in that respect. The exemptions are glorious, because they are so splendidly old-fashioned. By and large, I rather like things being old-fashioned, and I do not normally use it as a term of disapprobation, but in this case it means that one could reintroduce the closed scholarships. At New college, Oxford, which has a close connection with Winchester, places could be reserved for Wykehamists. People may think that that is all fine and dandy, but as an Etonian, I would feel that I was being prejudiced against, and that it was wrong to give places to Wykehamists rather than Etonians—or, more seriously, to deny them to people from all over the country. Allowing the reintroduction of a system of closed scholarships cannot be what my hon. Friend the Member for Christchurch is really trying to do. That cannot be an advance for universities, and it does not make this a sensible Bill to pass.
Jacob Rees-Mogg
We should always deal in the realms of reality, and not assume that people would be so barkingly eccentric as to run off down that route. Universities want to be places of great academic excellence, and they want to be able to have a system that admits people fairly and freely. We are sometimes too suspicious of people’s motives. I accept that the Bill applies to publicly funded universities, but most universities receive public funding of one kind or another, if only via their charitable status.
That helpfully moves me on to another point—the key point of money. Money is always relevant to our discussions, but it is one of the most dangerous things with which Governments have to deal. We give money to an independent institution—great universities—and say, “Now we’ve given you some money, we must decide how you spend it,” and then, “Now we’ve decided how you should spend it, we must take a little more control”—and it becomes more and more control, until independent bodies become agents of the state. The Bill continues that process. Instead of our saying that the money will now come from students, and universities will become more independent of the state, the Bill is an effort to claw back state control. We see in the charitable and university sectors that when Governments spend money, they always want their pound of flesh, and the pound of flesh is interfering in the day-to-day running of organisations, denying them their freedoms. In some cases, that does not really matter, but it is crucial that academic freedom, as a fundamental good, be maintained as an absolute priority.
Let me carry on dealing with the details of the Bill. I raised this matter in an intervention: I am very much against passing Bills that are slightly absurd—I apologise to my hon. Friend the Member for Christchurch for being so harsh as to use that term. To have a Bill that applies to England and Wales only, and also only to people domiciled in England, does not seem to work. Surely, the universities in England should admit on the same basis anyone who comes along. To say that they will admit English people on merit but that they can admit the Scots, Irish and Welsh and people from the Commonwealth or European Union not according to merit does not make any sense. If we are to pass laws of this kind, there must be the same principle of application and entry for everyone who is eligible to enter subject to public funding. One might say that it is a good idea to take some overseas students because they can pay a vast fee that will subsidise some of the rest of the university’s operations, although after the Gaddafi affair one might not think that quite such a clever idea, but one really does not want to say that people from Scotland can be taken in on a completely different basis from the people of England.
I am also concerned about the term “domiciled in England”, because I am not quite sure, legally, where it comes from. I do not know whether my hon. Friend the Member for Christchurch will explain it. I understand that with tax laws for which domicile is relevant, it is United Kingdom domicile that matters, although that may change with the Scotland Bill. I am not convinced that there is an agreed English domicile classification.
I want to elaborate a little more on academic freedoms. What is it that allows thought to develop? What allows us not just to produce people who can go into the workplace, fill jobs and earn a living, but allows that great development of thought that we have had in this country for hundreds of years? Whom should we go back to as our earliest notable philosopher? One could argue for Shakespeare or go back even further and argue for Chaucer, although one might think of them more as literary figures. One could start with Hobbs and Locke and the development of thought in which this country has been so powerfully involved. When talking about science, one could mention Boyle and Newton, both of whom had strong associations with our great universities. How did they achieve that? Yes, they sometimes got Government money: Chaucer was sponsored by the King and so was Shakespeare. Newton was the Master of the Mint and got an income from his service that allowed him to afford his academic studies. So, there is a connection between the state and academic excellence, but it is not a control: it is not the state saying, “You may do only these things or you must educate only these people.”
We must be very wary of putting constraints on our institutions. I hope that the Minister will consider this point in relation to the current state of legislation rather than just in regard to this Bill. Our institutions need to be free to take in the people whom they think best even though we might not agree that they are the best—indeed, they might seem to us not quite up to the mark. Our institutions might decide to take a bet on someone who has no academic qualifications, because they have been failed by their secondary school—such failure has been a problem—but who appears absolutely genius in quality. They might decide to take people who have that spark of intelligence and thoughtfulness that makes them interesting and exciting and means they can push on the great development of thought.
Many areas of university life are not covered by the academic subjects that are done up until A-level. There are developments that people need to take with a philosophy, politics and economics qualification.
Jacob Rees-Mogg
I thank the hon. Gentleman for his intervention and I am sorry that we appear to be confusing two things. I am not for a moment suggesting that we ought to go back to the standard of living of the middle ages, or the level of literacy. That is not what we should aim for. It would be bonkers. What I was saying, and I thought I was agreeing with the Minister, is that I would like the status of education to be as high as it was in the middle ages, and to be something that people love and rejoice in. Of course, we want it to be open to everybody rather than only to the narrow, broadly clerical, class that it was open to in the past.
To think of education as a great and exciting thing is tremendously important, and we do that best by allowing the universities their freedom. The less control the Government have, the better. One of the great things about tuition fees is that they will follow the student. Although the Government will provide the money initially, eventually it will be paid back. The Government are beginning to retreat from the financing of the universities, so universities will have greater freedom because they will not be so subject to the Government’s interference.
Mr Chope
I am concerned that my hon. Friend accepts too much at face value what the Government say. In paragraph 5.4 of the “Guidance to the Director of Fair Access”, the Government make the point:
“The subsidised loans that Government offers students represent a significant cost to the public purse.”
That is then used as justification for interference. Surely, that is inconsistent with my hon. Friend’s vision, which I share, that universities should be free to charge whatever fees they wish.
Jacob Rees-Mogg
We have to evolve. We have to move to a position where freedom is re-established. We are going from a position where most university funding is state-controlled to one where a large proportion of it will come from individuals. The Government would be in a ludicrous position if they were getting students to pay what was the Government’s money. That would not make sense. We have a wise, good and forthright Government, made up of some of the best brains ever born in this country. We are lucky. We know where we are going in terms of tuition fees; we have a well-thought through plan that will aid the independence of universities, particularly once we move through it and we find that the money is being paid back, the loan book can be run profitably and a major cost can be taken off the Government’s balance sheet. I am all in favour of student loans, which will help to achieve the Bill’s aims—the admission of people whom universities want because they have the ability to attend them.
Let me draw broadly to a conclusion.
Philip Davies
I am grateful, Mr Deputy Speaker; I was indeed tempted by the Minister to go down a route that neither you nor I want us to go down.
I will keep my remarks brief because I am intrigued to hear what the Minister has to say. I want to hear some kind of confirmation, not only that while he lives and breathes he will support grammar schools, but that while he is the Minister and while our right hon. Friend the Member for Witney (Mr Cameron) is the Prime Minister, he will ensure that universities recruit people on merit alone and that people are not allocated places simple because of their background, the school they went to, the socio-economic environment in which they live or the wealth or otherwise of their parents. If we started going down that route, it would be a disaster for this country. The idea of positive discrimination, which lies behind such proposals, is a disaster. Positive discrimination is discrimination, and we should not advocate it, because it demeans people. Many parents make terrific sacrifices to send their kids to private schools. People who cannot ordinarily afford to do so make the most amazing sacrifices, because they understandably want their children to have the best start and opportunities in life.
My parents made terrific sacrifices to enable me to go to a boarding school that they really could not afford to send me to, and I am immensely grateful to them. I do not see why this Government, in particular, or anybody for that matter, would want to say to such parents, “Well done. You’ve made these sacrifices to help your children get the best possible start in life. What we’re going to do now is rig the rules to make sure that all your sacrifices have been in vain, because we’re going to stop your daughter or son having the opportunity to go to the university they deserve to go to, based on the hard work that they put in, as you don’t meet the criteria, you’re not from the right socio-economic background or they didn’t go to the school we would have preferred them to go to.” What an appalling message.
Mr Chope
My hon. Friend makes a very powerful point. Does he share my concern that the Government, in their desire to bring about social engineering, are going to penalise people who pay off their loans early— perhaps with the help of their parents making the sort of sacrifice to which he refers? Does he condemn that as a gross interference?
Philip Davies
My hon. Friend is absolutely right. As it happens, I voted against the Government on tuition fees for the simple reason that I did not want people from poorer backgrounds to be denied the opportunity to go to the best possible universities. Tuition fees are being increased to pay for more and more people to go to university, and the argument is that if we want more people to go to university, students are going to have to pay a higher price. That is a perfectly logical argument, but I do not want more people going to university. Too many go to university; I want fewer to go. I want universities to be the bastion of high standards again.
In an intervention on my hon. Friend the Member for North East Somerset, my hon. Friend the Member for Gillingham and Rainham (Rehman Chishti) inadvertently touched on that point when he asked, “Shouldn’t people who want to go to university have the opportunity to do so?” My answer to that is no. It should be a question not of whether someone wants to go to university, but whether they have the aptitude and have reached a high enough mark to do so on merit. That should be what determines whether they go.
Otherwise, it is like asking athletes whether they would like to compete in the Olympics—I am sure they all would, but surely nobody is advocating that any athlete who happens to fancy a crack at the 100-metre sprint should be allowed to compete at the Olympics. Most people accept that athletes have to reach a certain level before they are even considered for the Olympics, and the same should apply in education: people should not go just because they want to; they should go because they have reached the level in their education that allows them to go. That is the whole point of merit and, as I see it, of this Bill.
All the other factors that people are trying to introduce into the system can only devalue our education system—dumb down the standards. Then the Government will say, “Isn’t it marvellous? Haven’t we been good for education, because now X% of people have a degree?” Well, no it would not be marvellous—not if the result had been achieved only by dumbing down standards.
Mr Hayes
I am grateful to the hon. Gentleman for that correction. I will not say that it was a U-turn—that would be too strong—but he seemed to clarify his remarks in a way that is helpful to us all in considering these matters in a balanced and measured manner.
The principle that I have described in respect of merit linked to a consideration of potential is time honoured. The other things that OFFA suggests that universities should take into account are no more frightening than those that I have already identified:
“progress towards benchmarks…published by HESA and others more immediate targets and measures agreed”
in respect of those less well represented groups. Targets agreed and measures suggested and agreed do not form the frightening perspective that my hon. Friend the Member for Christchurch described in his opening remarks, although, of course, I celebrate the fact that he has given us the chance to explore these matters because I want to put on the record what I have told him previously: I agree with him about merit.
Mr Hayes
They would be irrelevant were it not for the fact that we know—do we not?—that many high-performing students from state schools do not get to some of the universities that they might get to if they had the wherewithal that is available to people such as he and I and will be available by proxy to our offspring. I have not finished my list, but that brings me conveniently to advice and guidance.
We know—do we not?—from what Lord Browne and Mr Milburn said in their reports that part of the problem in matching the abilities of the under-represented in higher and further education to the institutions that might best serve their tastes and talents is that they do not have the wherewithal to get to where they might want to go. What I mean by that is this: we know that social networks and familial understanding are the basis on which those who are already advantaged cement their advantage. It is not aspiration or ambition but wherewithal that limits working class people from achieving what they might.
This is a difference between the two sides of the House. There has been a bourgeois left misunderstanding of working class culture. Lord Mandelson is a case in point—he felt that there was lack of ambition. Aspiration, we are often told, is what the working classes lack. That is completely untrue. Working class parents and grandparents seek exactly the same for their children and grandchildren as middle class people. What they lack is the means to achieve those ambitions because of a gap in wherewithal. They do not have the social and familial networks that understand the process by which their talents might be turned into actuality through higher learning.
That is why the Government are introducing an all-age careers service from this autumn that will balance the advice that it gives in an empirical and independent way. The Education Bill that is going through the House will place a duty on schools to secure that independent and empirical advice because we know that learning is a key driver of social mobility, and social mobility is a critical component of social justice. I would go as far as to say that a free society, which is by its very nature an unequal society, can be legitimised only when social mobility prevails. The inequalities that are the natural bedfellow of freedom can be ethically justified only by social mobility. That is why social mobility and social justice are so central to our mission.
I return to the requirements published by OFFA in respect of access and admissions, which universities must take into account, as that is a subject that has been raised repeatedly in the debate. The list of requirements goes on to identify
“the support offered to students once enrolled on courses—for example additional study support, mentoring, pastoral support, help with basic skills; and the range of programmes the university will offer which could be easier for under-represented groups, particularly mature students, to access—part-time courses, distance learning, two-year degrees, intensive, accelerated degrees, supported foundation year.”
Why is all that so important? We know that when the rhythms and patterns of study match the rhythms and patterns of many more kinds of people’s lives, they are likely to engage in learning, and that for a mature student, for someone working to fund their study, for someone with caring responsibilities, the traditional three-year degree course, full time, at a leafy campus is not an option. By being more creative about modes of learning and access points to learning, we can engage many more kinds of people.
I gave a speech on broadening access to higher education—I know that you will be familiar with it, Mr Deputy Speaker, but others in the House may not be—some time ago at Birkbeck college in London. I have a copy for anyone who would like one. I am prepared to sign them for particular fans and admirers. Birkbeck college is the embodiment of the principle that I have just outlined. At Birkbeck, the idea of taster courses, first years which allow people to move on to a degree, and the very business of part-time study are intrinsic. It is central to the college’s mission, as it is to the Open university. I was with the Master of Birkbeck college and the vice-chancellor of the Open university briefly yesterday, as I was anticipating this debate. The Open university, too, shows us that by changing the way people study we can change the level of engagement of those who are typically under-represented in higher education. I have mentioned further education, where part-time study is generally the norm, rather than the exception, which is one of the reasons why we want to expand HE in FE.
To return to the Bill and the remarks of my hon. Friend the Member for Christchurch, the real issue is that OFFA’s requirement that universities must use a range of programmes, including distance learning, part-time study and taster and foundation courses, far from being malevolent, is extraordinarily virtuous in achieving the mission that he and I share, which is that those who have the ability should be able to access higher education.
Mr Chope
I do not want to get between my hon. Friend and Pope John Paul II, but if a university court, for example, is to have the freedom to decide what is best for its university, why can we not trust the universities themselves to do what is best? Why are the Government prescribing this set of requirements through OFFA?
Mr Hayes
My right hon. Friend the Minister for Universities and Science, when dealing with those issues in the House, has made it clear that universities are indeed independent institutions that will make their own judgments on precisely how they deal with those matters. It seems perfectly reasonable, based on our desire to spread good practice as far as we can, to draw to their attention those salient matters that might affect their ability to give opportunities to those people with merit who typically do not do as well as those with equal merit from advantaged backgrounds. I do not think that that is unreasonable. I know that my hon. Friend the Member for Christchurch would not want to inhibit in any way those who are under-represented in higher education, but who have talent and merit, from prospering. I give him absolute assurance that merit is the basis on which universities should choose students, and we are not in the business of dictating to independent institutions on how they go about meeting the requirements, which seem to me very reasonable, set out by OFFA.
We believe that freedom is central to the concept of a university. Indeed, a free university linked to academic freedom and freedom of thought seems to me to be important elements of a civilized society, as was mentioned earlier. I qualify that, however, by noting that John Paul II said that freedom has its merit when it is exercised to pursue truth. I do not want to leave on the record any misunderstanding that freedom is intrinsically of value, separated from truth, because that could misrepresent my views on the character of freedom.
That takes us to Cardinal Newman’s “The Idea of a University”, which I know my hon. Friend the Member for Christchurch will have read before the debate. Newman’s idea of a university was that by definition it should be distinct from instruction, vocation or a profession. That is one of the tenets he sets out in his discourses concerning what a university should comprise. That is no longer the case in Britain. Pursuing a university career in Britain might, indeed, still be about studying something peculiarly—solely—academic, but it might also include studying something that is highly vocational or practical in character, and so it should. I admire Cardinal Newman immensely, but on that matter I disagree with him, which might be because we live in different times. For that reason, however, the business of access to university, tied to what is studied and how, needs to infuse all we do regarding admissions and access. That is why I take a rather more lateral view about the character of higher study: how, where and what people study all seem to be linked when we consider the matter of access.
My hon. Friend fears that we are engaged in social engineering, but I can absolutely assure him that, far from that, the independence vested in universities by their very nature remains unaffected by the Government’s determination to pursue an agenda that will widen access as I have outlined.
My hon. Friend will know, and it has been discussed today, that the Government have been looking at how universities are funded. The changes in fees and funding will put universities on a more sustainable footing, and, as he argues, part of that will involve universities deciding what they charge their students. There are those who think that that will inhibit our plan to widen access, but I absolutely believe that it is not admissions or fees that are central to spreading opportunity in that way, but, as I have said, prior attainment, advice and guidance, what people study, access points to learning and modes of learning.
For example, the Government’s response to Browne, which accepts his recommendations on part-time funding, will, I believe, in a short time have a more dramatic effect on widening access to higher education than any change to the admissions system could ever have. We already know that part-time learners tend to be drawn from a wider cohort than full-timers, and the change has been widely welcomed by the universities sector, in particular in the House yesterday by the Open university and Birkbeck college and, indeed, by others. I know that it is welcomed also by the Association of Colleges, Universities UK and the Million+ group, and it is going to be an essential component in allowing us to achieve our objectives to broaden access.
My hon. Friend seeks to prescribe in law the circumstances by which people might be admitted to university, but my hon. Friend the Member for North East Somerset suggested—and I was able to help him through an intervention in making the point, I hope, even more clearly—that in doing so my hon. Friend the Member for Christchurch would prescribe not merely what universities chose to do, but what they chose not to do, because universities that use interviews as a way of assessing students would, I guess, be prevented from doing so.
Mr Hayes
That is a helpful intervention, because a student with less prior attainment, for all kinds of variables that we do not need to expand on now, might well be admitted to a university as a result of an assessment of their potential at interview, whereas a student who had achieved strong results and so had strong prior attainment might not be. I am glad that my hon. Friend is not saying that there is rigidity in these principles. He displays an understanding of merit that is rather more liberal than I had imagined. I assure him that the Government’s understanding of merit is equally liberal. I do not usually like to use the word liberal in a positive way, but we are now in a different world so I will do so. The Government are absolutely clear that it is for universities to make decisions about who will best benefit from their provision, and not for us. We do not want to dictate that any more than I have now learned my hon. Friend does. Universities are, as the Minister for Universities and Science has made perfectly clear in this House, independent institutions, and long may they remain so.
The principle of institutional autonomy is enshrined in the Further and Higher Education Act 1992, which I happen to have with me. My hon. Friend will know that that Act—from memory I think that it is in section 62 or 63—makes it absolutely clear that universities are autonomous institutions. That limits the power of the Secretary of State. The Act, which I hasten to add is unchanged by this Government, limits the Government’s power, subject to certain terms and conditions. For the benefit of the House, I will read the provisions because I do not imagine that everybody has the Act to hand. Section 68(3) states:
“Such terms and conditions may not be framed by reference…to the criteria for the selection and appointment of academic staff and for the admission of students.”
That could not be clearer. It could not be more plain that the Government, in leaving the Act unaffected by any changes that we are making to fees and funding, are absolutely confirming the independence of our universities in those terms. That principle has been observed for a very long time and we do not wish it to be challenged or amended.
Institutional autonomy, whether in further or higher education, remains a central tenet of our system, and it is a key theme in our current considerations. Perhaps I should add that in respect of further education colleges the Government are going even further. We are determined to lift much of the bureaucratic burden that they have endured for too long. To unleash the human capital in our further education colleges and to build on their excellent work, we will free them from some of the target-driven, centrally micro-managed and directed edicts that emerged from the previous regime. In those dark days, further education was undervalued by Government; it is not now. As we have moved from the shadows into the light, so has further education in the United Kingdom. The Education Bill that is currently making its way through this House rescinds some of the requirements that were placed on further education colleges late in the previous Government’s life. It will increase their powers to borrow and invest, and make various other changes. The principles of institutional freedom that I have described will be retained.
Although I understand the reasons for doubts about what OFFA has said about admissions, I do not believe they are well founded. I have given a firm commitment on behalf of the Government to the principle of merit, but I wish to say a little about how we might move ahead in agreement.
To help identify individuals with the greatest potential, institutions may want to use data about the context in which a young person has achieved their qualifications. The Government believe that that is a valid and appropriate way for institutions to broaden access while maintaining excellence, as long as individuals are considered on their merits and institutions’ procedures are fair, transparent and evidence-based.
That is not a change from previous good practice, it is what universities and colleges have always done. Many universities already take into account a range of such contextual information in considering whom to admit. The sector has taken steps further to develop its use of such information, and the sector-led supporting professionalism in admissions programme already has as one of its key themes the use of contextual data to support fair admissions. Good practice principles on the use of such data have been developed.
Comments have been made about the proportion of private school pupils who go to university. We have no policy view on the number of privately educated students entering HE. The Government’s policy view is that access should be on the basis of merit, irrespective of background. It would be wrong for the Government to suggest that the number of people from private schools going to our universities should be limited, and we have no intention of doing so.
There is no chance of the Government interfering or setting quotas. Our recent guidance letter to the director of OFFA makes that point, stating that universities will select their own performance measures and set out, in their new access arrangements agreed with OFFA, the progress that they expect to make in widening participation and access. The Government are quite clear not only that quotas are undesirable, but that as I have explained, legislation simply does not permit us to interfere in university admissions in such a way.
I am inclined to move to my summary now, although I know the House would like me to speak at greater length. The Government fully support the principle that universities and colleges should admit students based on their academic ability, potential and aptitude, as assessed by the institution in question. That is precisely the aim of the Bill, as my hon. Friend the Member for Christchurch articulated with his usual flair. We believe that his concerns about accessing educational opportunities on merit do not need legislation. I hope that given my firm assurances from the Dispatch Box, he agrees with that, particularly as I have illustrated the legislation that already exists to protect the very interests that he has mentioned.
Chesterton—we have heard too little about him in this debate, have we not?—said:
“Education is simply the soul of a society as it passes from one generation to another.”
In passing on the soul of society, we need always to be conscious of the fact that the relationship between learning and opportunity is profound. It would be inappropriate, but worse than that unethical, for a Government not to focus on how we can spread opportunity as widely as possible. That is one reason why I championed vocational education so vociferously in my time as a shadow Minister and now as a Minister. Many people’s tastes and talents will take them down a vocational pathway, which must be as navigable, progressive and seductive as the academic route. Notwithstanding my support for apprenticeships, to which the Government are devoting unprecedented levels of funding, the tastes and talents of many other people from the kind of backgrounds that I come from will take them towards an academic career in a university. Our duty is to ensure that they too get their chance of glittering prizes.
We believe that my hon. Friend’s objectives do not need legislation, as I said. We know that good sense and good government demand that universities remain free to make those judgments about their future. Accordingly, while recognising the worth of his intentions and admiring his ambitions, and frankly, being envious of his perspicacity, the Government are bound to oppose the Bill.
Mr Chope
With the leave of the House, Mr Deputy Speaker, I would like to thank everybody who participated in this debate, which has now extended beyond three hours. This fraught subject commands enormous interest both outside and inside the House, and I hope that as a result of the debate, we have collectively flushed out a bit more of the Government’s thinking.
My hon. Friend the Minister, whom I thank and congratulate on his contribution to the debate, identified section 68(3) of the Further and Higher Education Act 1992 as the reason my Bill is not needed. Under that provision, the Secretary of State is not allowed to interfere in the role of universities in deciding their admission policies for students.
On the face of it, that is the end of the matter, but of course, clever Governments try to find alternative means of achieving their objectives. Using the Office for Fair Access, this Government have come up with a clever scheme. They are saying, “We will allow universities to increase their fees to up to £7,500 or £9,000 a year, but we will give OFFA a veto over them if they wish to increase fees beyond £6,000. The veto can be exercised on the basis of advice that the Government give to OFFA.”
That is an attempt to control access arrangements. Obviously, the Government can say ultimately, “It’s nothing to do with us that university X or Y has decided to increase its fees to £9,000, but in return for the privilege”—as it is seen—“of doing that, there will be restrictions on its ability to admit students purely on the basis of merit.” There is a subtle agenda behind that—the policy is designed to put pressure on universities that want to charge the highest fees, and to introduce constraints on their admissions policies, which they cannot freely decide. Whether as a result of intended or unintended consequences, undoubtedly universities that wish to be able to increase their fees to £9,000 a year in exercise of their sovereign power will not be able to do so unless they get the permission of OFFA. However, OFFA will not give permission unless the conditions set out in the regulations are met and complied with. That is why a lot of universities are worried about this meddlesome interference and increased regulation in the system.
During the debate, I was attacked by my hon. Friend the Member for North East Somerset (Jacob Rees-Mogg) for being far too left wing and interventionist. I am prepared to take the criticism on the chin. However, I pray in aid my plea in mitigation, which was in a sense anticipated by my hon. Friend the Member for Shipley (Philip Davies): if there was not already interference by the Government in the freedom of universities to decide their own admissions arrangements, and if they were free to chose the level of fees that they charge without interference from OFFA, there would be no need for this measure. The Bill is a response to the Government’s meddlesome regulatory interference in higher education and in the ability of HE institutions to set fees at the level that they want. I accept that criticism, therefore, but my mitigation is that the Bill has been made necessary by the Government’s attitude.
When one listens to and analyses what my hon. Friend the Minister has said, and if one reads paragraph 6.1 of the Secretary of State’s new guidance to OFFA, it is clear that
“In the new Access Arrangements, institutions should agree with”
the director of fair access
“a programme of defined progress each year… The access performance indicators relate to the percentage of students admitted…from state schools or colleges,…from lower socio-economic classes, and…from low-participation neighbourhoods.”
What is the purpose of introducing such criteria, if ultimately the Government do not want to interfere in universities’ freedom to choose their own students? Ultimately, if we trust our universities—my hon. Friends the Members for North East Somerset and for Shipley made this point—they will come up with the right results, particularly if we set them free, and leave them accountable to themselves, their student bodies and the wider public. We have seen in today’s news about the director of the London School of Economics an example of the exercise in practice of such accountability, independence and freedom. There was no interference from the Government. That institution took responsibility for the consequences of its own decisions, and I am sure that that will be widely welcomed.
I am grateful to the hon. Member for Wrexham (Ian Lucas) for his contribution. We agree about a lot of these issues, although perhaps not interviews. My daughter’s experience when undergoing interviews for veterinary medicine showed that there is more to going on some of these courses, whether veterinary medicine, medicine or other courses, than academic qualifications alone. Students also have to demonstrate an aptitude, and the people who conduct the interviews are good at identifying that aptitude. For example, an aspiring veterinary or medical student who does not like the idea of going to an abattoir or seeing a dead body is probably not heading in the right direction for their career, however good their exam results. That sort of thing can be found out in an interview, but it cannot necessarily be ascertained on the back of an exam paper.
There is an important role for interviews in the admissions process, but I share the concern expressed by the hon. Member for Wrexham about the delay in putting the higher education White Paper before the people. I share universities’ concern about the fact that time is running out if they are to be able to draw up access arrangements so that students can know where they stand in relation to fees and other things from the 2012 academic year.
I hope that, in the spirit of belt and braces, the Bill is given a Second Reading so that it can go into Committee. If, in the end, we find that I am wrong and my hon. Friend the Minister is right, and there is no covert interference in university admissions policies through OFFA, the Bill will be nugatory, but I fear that the Government’s agenda, egged on by the minority party in the coalition, is one of interference and trying to achieve social engineering. If one wants evidence to back up that suspicion, I can do no more than cite the fact that the Government are intent on penalising people who pay back their loans early. What could be more ludicrous than that? I hope that the Bill receives a Second Reading.
Question put, That the Bill be now read a Second time.