Higher Education and Research Bill

Michelle Donelan Excerpts

2nd reading: House of Commons & Money resolution: House of Commons & Programme motion: House of Commons & Ways and Means resolution: House of Commons
Tuesday 19th July 2016 Commons Chamber

[Mr Lammy]

That was, in a sense, the point I was making. Some of the tensions in Whitehall, particularly those emanating from the Home Office vis-à-vis whoever is at university and where they are placed, lie behind this problem.

There is, however, another problem that has been mentioned by Members, not least by my right hon. Friends the Members for Birmingham, Hodge Hill (Liam Byrne) and for Oxford East (Mr Smith)—namely that the vote to leave the European Union has made the future very uncertain indeed for higher education institutions. In looking at this Bill, surely the Government must acknowledge the need to provide greater certainty and not further instability at this time. The higher education sector will be particularly adversely affected by the UK’s decision to leave the European Union. Brexit will significantly diminish research funding across our universities unless the Government propose a large-scale programme for research funding across all disciplines to fill the gap. It would be interesting to hear from the Minister about that.

We know, of course, that the leave campaign’s claim to be saving £350 million a week was entirely fictitious, but I note that the right hon. Member for South Northamptonshire (Andrea Leadsom) promised that any lost EU subsidies paid to farmers would be replaced by central Government funding, so I am sure the House would welcome a similar promise today that any lost research funding will be replaced. I look forward to hearing from the Minister about that.

Universities face the prospect of losing out across the board, so how will they fare in this post-Brexit world when the calls to curb immigration inevitably come? Universities have been warning for years that making student visas harder to come by was having a hugely damaging effect, as indeed the right hon. Member for East Devon (Mr Swire) just said. Sir Keith Burnett, vice-chancellor of the University of Sheffield, estimates that 40% of his university’s income from teaching comes from international students, and non-UK students also generate £11 billion for the wider UK economy. Almost 100,000 students had their visas cut short between 2013 and 2015, and between 2010 and 2015 the number of overseas students arriving in the UK fell by 25%.

The issue is not just about money, however. What message does Brexit send out? The world-leading reputation of our higher education sector is contingent on a perception of the UK as a globally engaged country; it is this reputation that attracts so much investment, drives so many partnerships across the globe and helps to cement our universities’ place at the top of the tree internationally—and it is this reputation that is at risk. Surely in this context, the Government must take a step back, take stock of how Brexit will impact on our universities and then come back to the House with a revised Bill when that impact becomes clearer. I say that as strongly as I can. I know the Minister has worked hard on this Bill—he is a hard-working Minister generally, as we are all aware—but the biggest coach and horses running through the Bill is, frankly, Brexit. It would be good to hear something from him about that.

I am proud of the work that the last Labour Government did in higher education. In 2010, over 50% of additional university places went to students from poorer neighbourhoods for the first time. Our higher education system expanded and together with increased funding for state schools and the introduction of the education maintenance allowance, more students from disadvantaged backgrounds were able to go to university than ever before in our history. In 2010, too, 2 million people were studying at university—a record number and 400,000 more than in 1997. I know that that was a record achievement, because officials who are sitting in the Box now wrote some of those statistics for me at that time.

At this time of flux, it is crucial that we do not take a step backwards when it comes to improving access to our universities. Earlier this year, the last Prime Minister announced plans to force universities to disclose applicant data so that we could see how they were doing in that regard. The Government aim to double the proportion of pupils from disadvantaged backgrounds who enter our universities, and also to increase the number of students from black, Asian and minority ethnic backgrounds by 20%.

At this time of flux, the House will need assurances that that agenda will be taken very seriously and will be driven from the centre, especially given that, in March, the Social Market Foundation’s report “Widening Participation” warned that both those targets would be missed on current trends. Les Ebdon, the director of Fair Access to Higher Education, has given the same warning, pointing out that only 21% of universities have met, or are on course to meet, all their access targets.

The figures are striking. Between 2005 and 2015, the proportion of the intake of Russell Group universities who were from poor backgrounds rose from 19.5% to just 20.8%. That is 1% in a decade, and it is not even close to being acceptable. According to the Higher Education Statistics Agency, the percentage of deprived pupils admitted by seven of the 24 Russell Group universities—including Oxford, Cambridge and Durham—has fallen in the last decade. According to the Sutton Trust, only 4% of students at our top 10 universities are from the most disadvantaged areas, an increase of 0.6% compared to 2009. Just 3.6% of Cambridge students and 2.4% of Oxford students are from the 20% of areas with the lowest higher education participation levels,

I know that the new Prime Minister is making her mark by ensuring there is not over-representation of people from independent schools on the Front Bench, but I think I should put on record why that is so important. Independent school pupils are nearly three times more likely to be accepted by the 30 most highly selective universities than comprehensive school students: the acceptance rates are 48.2% and 18% respectively. State pupils in Hammersmith and Fulham are 10 times more likely to be accepted by highly selective universities and 50 times more likely to be accepted by Oxbridge than pupils in Hackney. Four schools and one college send more students to Oxbridge each year than the bottom 2,000 schools and colleges put together.

[Michelle Donelan (Chippenham) (Con)]

Does the right hon. Gentleman accept that the removal of caps on university places brought about a dramatic transformation, enabling people from disadvantaged and, indeed, all backgrounds to apply to universities and to gain places? If the number of places is limited, that limits life chances from the start.

--- Later in debate ---

[Ben Howlett (Bath) (Con)]

It is a pleasure to follow the hon. Member for Sheffield Central (Paul Blomfield)—I should call him my hon. Friend—who is the chair of the all-party parliamentary group on students. I am the vice-chair, and it is a pleasure working with him to champion students across our country. I agree with some of the points he made.

I congratulate my hon. Friend the Minister on continuing in his position, on his work over the past year in championing the Bill, and on engaging with the sector more than any other Minister for Universities and Science. That is to his credit and to the credit of the Secretary of State, who spoke earlier. It was great to see her on the Front Bench.

When black people and people from lower socio-economic backgrounds struggle to get on in life, the Conservative party has a responsibility to put our country together again and focus on unity. All the key components of that one nation narrative can be applied coherently to the Bill. We have a responsibility, as I have seen in conversations with my hon. Friend the Minister and when reading the Bill, to ensure that those who have not necessarily had the best start in life can get on. That is a deep Conservative message of aspiration.

My parents never went to university; I was the first one in my family to go. My father was the breadwinner and my mother was disabled. In the 1980s, my parents aspired to become a middle-class family by saving up enough money to get me and my brother through university. Now my brother is a doctor and, well, I am here. That is a great testament to my parents and their determination over the years. As a new MP, I want to enable others in my constituency to follow their own dreams. That is why I rise today in wholehearted support of the Bill.

The changes to the higher education system in 2011 aimed to improve the student experience and the teaching they receive. On the whole, the changes have improved the higher education system, encouraging more students to go to university and improving social mobility. It became clear, however, that the regulatory system did not match what students wanted. There is a need to create a body to check that universities are using the increased funds to improve teaching and resources.

The opportunity to gain a degree in a subject you enjoy or that will help to get the career of your dreams is important for so many in the United Kingdom. The experiences gained in one of our higher education institutions, whether at the age of 18 or as a mature student, are invaluable and often changes people’s lives. I am pleased that a record number of students are going to university as a result of the cap being lifted, with them taking the opportunity to advance their minds as well as themselves. However, these students must be the focus of the university. This long-awaited Higher Education and Research Bill will put students at the heart of the regulatory system. The office for students will be able to monitor and improve institutions. It is set to be full of experts in the field, who can judge the quality of teaching being given by universities.

I am proud to represent a city that has two world-leading universities: Bath Spa University and the University of Bath, which is ranked one of the best universities for student satisfaction year-on-year. I do not want other MPs to try to take that accolade away from us, but good luck. I am concerned, however, about my young constituents who travel elsewhere and do not necessarily get a teaching experience comparable to the fees they end up paying.

Going to university is a big financial investment and students need to be safe in the knowledge that there is a body to ensure that they receive excellent quality teaching that will set them up for a superb graduate life. The new framework and the office for students will monitor teaching quality and provide broad ideas about how best quality teaching can be achieved. This will be done without telling an institution how it should teach or assess or what content should be in their courses. That independence for universities is crucial, as it means they can maintain the individual flair that attracts students, while providing excellent teaching. The new scrutiny will provide an assurance to students about the excellence of the teaching they will receive, and that they will have the skills that employers are looking for. In the west of England, the G4W group of universities is working closely to ensure that businesses and universities work together to deliver skills in the interests of our regional economy. That example will be improved and enhanced across the rest of the United Kingdom as a result of the framework in the Bill. I hope other areas of the country, with their devolved settlements, will be able to deliver just that.

I want to turn to the teaching excellence framework, the measure by which the teaching quality of universities will be assessed. The new framework will finally bring together teaching in line with funding for research, as teaching funding will be linked to quality, not just quantity. That is important, as it prevents universities from focusing too much on mass, often sub-par education, and ensures that those they invite to study are their priority. I have to admit that when I speak to students up and down the country—this has been the case since 2011—many student bodies and student union organisations say time and again that fees have increased but the quality of education and teaching has not necessarily increased with them. That has been a great frustration for students.

It is important that the Government make it clear well in advance what makes a good course value for money, so that universities can tweak their current practices using the guidance provided. It will be difficult to measure such different styles, even across the leading universities, but I urge the Government to come up with a coherent, easy-to-understand set of qualities and priorities that universities can install, so that they can be confident of receiving the highest quality rating. I hope that in Committee we can focus on the quantitative, not just the qualitative side, which obviously has come up several times, and which no doubt the Minister will talk about when he sums up.

The university quality rating will be an invaluable tool for prospective students choosing between the hundreds of higher education institutions across the country. Alex Neill from Which?, an organisation that exists to promote consumer choice and information, said:

“Our research has shown that students struggle to obtain the information they need to make informed decisions about university choices. We welcome measures to give students more insight into student experience, teaching standards and value for money… These proposals could not only drive up standards, but could also empower students ahead of one of the biggest financial decisions of their lives.”

Deciding to go to university is easy for some people, but not for everybody. It is a big decision—the choice of course or institution can make or break a person’s future—and there are many tools available that talk about student experience, teaching style and support, but it is difficult to compare teaching quality, and with all universities raving about how good they are, it is unlikely they would wish to champion such a tool. The Bill will provide students with invaluable and directly comparable data on the quality of teaching they can expect at each institution. I would have found such information incredibly helpful when I was making that choice.

[Michelle Donelan]

Does my hon. Friend agree that the Bill gives students the opportunity not just to gamble and take a chance on their future but to make an informed decision so that they might have the best opportunities in life and get real value for money?

[Ben Howlett]

I completely agree with my hon. Friend and near neighbour. Since 2011, students have said many times that they want more information, and in this digital age, it should not be too difficult to go online and find out in one place what information is available to help them make these choices. I hope that the Careers and Enterprise Company will end up streamlining careers advice and guidance, but the Bill will put at the heart of the system the student making that choice with the information freely available to them.

When fees rose in 2011, teaching quality was supposed to improve with it, and this new regime focusing on teaching quality will be supported by the cap on the fees that a university can charge if it is not hitting the highest teaching quality. This power provides a good stick to prevent universities from disregarding teaching quality, which I know the universities sector has long championed. I have been contacted by key stakeholders in the universities sector concerned that, although they are keen to offer students the best value for money and excellent teaching, these changes will come at the expense of the postgraduate sector, particularly the science, technology, engineering and maths research that is so crucial to our economic development—it is a main component of what the University of Bath specialises in. The Minister has provided me with reassurances, but I hope that he can reassure the entire House that the postgraduate sector will still be able to bloom, while teaching in undergraduate degrees improves.

I have focused on the measures that will improve the student experience. I turn now to the provisions in the Bill providing for more data on diversity and inclusion in our universities. As part of the registration process with the new office for students, it will be a condition that institutions publish admissions stats on gender, ethnicity and socioeconomic background. Given the disconnect in our society at the moment, there is no better time to deliver on this crucial part of the Bill. The data will include the numbers of applications from these groups and—crucially—how many are accepted. I am sure that this publicity will encourage institutions to become increasingly inclusive and provide good tools to identify trends and what policies might be needed to address any shortcomings.

For too long students have been asking for better quality teaching. They want to get a degree, but they also want to receive the best quality education to equip them for their future careers. I am pleased that the Government have taken action, finishing what they started with their changes to higher education in 2011. Students can now be confident that their education is being scrutinised. I hope that the Bill will put students’ minds at rest and reassure them that their institution has good teaching quality and cares about the experience as much as the research side. Sadly, as we all know, this has not always been the case, and I am concerned that a lack of focus is sometimes left, with some students leaving university feeling quite deflated.

I urge all Members to do what the former shadow Business Secretary, the hon. Member for Wallasey (Ms Eagle), unfortunately failed to do in the Queen’s Speech debate, when she failed to mention exactly what students want. At the heart of that, this Government have listened to what students actually want. Students want to see better quality teaching and better quality of future outcomes. We should listen to the students and what they are asking for. Ultimately, the Bill delivers on that, and I look forward to voting for it with the Government in the Lobby later today.