Tagged / duty of care

February 26, 2024

HE policy update 5: 26th February 2024

Industry collaboration, innovation, international, Knowledge Exchange, NHS, parliament, policy, Student Engagement jforster

An interesting mixture of news: a look around through the eyes of the House of Lords library and a lengthy analysis of the differences between the 4 nations, a hopeful look forward through the UUK manifesto for the election, Research England are taking steps on spin-outs and there are serious concerns about abuse of franchised provision arrangements in some parts of the sector. I also look at the latest developments in two sad cases of student deaths and what the might mean for the sector going forwards. A look at Scottish and Welsh funding for HE just makes everyone scratch their heads more about how to make the numbers add up.

Politics and Parliament

Here’s something cheerful in the context of all the criticism of the sector: a House of Lords library briefing on the sector’s contribution to the economy and levelling up. This has come out because there is a motion in the House of Lords in early March: Lord Blunkett (Labour) to move that this House takes note of the contribution of higher education to national growth, productivity and levelling up.

As we were reminded by all this week’s chaos and anger about the Gaza motion and its various amendments, these “motions” have no actual force: they don’t directly lead to any action or decision, they are usually very party political in nature and it is not unusual for one party or another to decline to vote on them at all so that while they may be passed there is even less meaning to be taken from them.

That is not to say that they don’t have some impact: the debate itself can influence perceptions in the longer term and the briefings are always interesting. A reminder that briefings from the libraries of the House of Commons and the House of Lords are not party political: they are intended to be factual and to be used by all potential participants in the debate. As such they provide a useful summary of the current state of affairs.

So to this one:

Citing a London Economics report for UUK in August 2023: Its analysis estimated that the ‘economic footprint’ of HE providers across the UK resulted in:

768,000 full-time jobs
£71bn in terms of gross value added (GVA)
£116bn in terms of general economic output

And goes on to quote from the report: In addition to the large impact within the government, health, and education sector itself (£52.8bn of economic output), the activities of UK HE providers are estimated to generate particularly large impacts within the distribution, transport, hotels, and restaurants sector (£15.4bn), the production sector (£12.6bn), the real estate sector (£9.7bn), and the professional and support activities sector (£9.2bn).

Using a separate London Economics Report with HEPI and Kaplan International Pathways from May 2023 it also refers to findings about the contribution of international students: The average impact was highest for parliamentary constituencies in London (with an average net impact of £131mn per constituency, equivalent to £1,040 per resident). The average impact per parliamentary constituency in the North East and Scotland was estimated at £640 and £750 respectively per member of the resident population; between £500 and £510 per member of the resident population in the East and West Midlands, Northern Ireland, and Yorkshire and the Humber; and between £360 and £390 in the North West, South East, South West, the East of England, and Wales

There is a load of data about participation, and then this on outcomes, using the government’s graduate labour market statistics from June 2023

Looking at the labour market as a whole (therefore not just 2020/21 graduates), the government has identified better employment outcomes for graduates than non-graduates:[28]
In 2022, the employment rate for working-age graduates (those aged 16–64) was 87.3%, an increase of 0.6 percentage points on 2021 (86.6%). For working-age postgraduates, the employment rate was 89.3%, an increase of 1.1 percentage points on 2021 (88.2%). For working-age non-graduates, the employment rate was 69.6%, a decrease of 0.2 percentage points from 2021 (69.8%).
In 2022, 66.3% of working-age graduates were in high-skilled employment, compared to 78.3% of postgraduates and 23.6% of non-graduates.
In 2022, the median nominal salary for working-age graduates was £38,500. This was £11,500 more than working-age non-graduates (£27,000), but £6,500 less than working-age postgraduates (£45,000).

The paper goes on to talk about government policy, including its levelling up strategy, but also its policy statement from July 2023 which was the final response to the Augar review from 2019. You’ll remember this one, it talked about promoting level 4 and 5 courses, applying student numbers controls to provision with “poor outcomes”, and proposed fee caps and loan limits for foundation years. [You will also recall that this confirmed they would not go ahead with the minimum entry requirements that had been proposed].

In the context of international students, the paper notes the concerns about immigration and the recent changes to visa rules to prevent most students bringing their families to the UK. Following some exciting stories in the press about entry standards (which were covered in the last update), the paper notes the recent announcement by UUK that they will review admissions practices for international students.

UUK has recently announced a review of admissions practices for international students following concerns that institutions were lowering admission standards to bolster recruitment and fees. This will include reviews of:

foundation programmes for international and domestic students
the agent quality framework, which provides tools and best practice guidance for when universities use agents to help recruit international students
the admissions code of practice, which sets out expectations for university processes

There’s an analysis of responses to the levelling up approach including a reference to a report by Lord Willetts from October 2023 which set out four groups of benefits that higher education can offer individuals and society.

It should be an interesting debate, and a useful reminder of the value of higher education. Just don’t expect any policy changes as a result.

Universities UK manifesto

The UUK manifesto sets out a wish list for the sector. It all looks very expensive and so while ambitious, unlikely to be replicated in anyone’s actual manifesto. We can expect to see more of these over the next few months. Research Professional have the story here.

Future of apprenticeships:

An article in the FT by Alison Wolf calls for the percentage of the apprenticeship levy to be reduced, for it to be extended to smaller businesses and for limits what it can be used for.

Regional inequalities

In the meantime, the Education Policy Institute, along with a range of partners, have published a report Comparing policies, participation and inequalities across UK post-16 education and training landscapes. This is an interim report and compares contexts, choices and outcomes across the 4 nations. It’s a weighty piece and mostly about 16-18 education, but some highlights relevant to HE include:

The level of policy churn experienced within UK E&T is enormous and potentially damaging for all the individuals and institutions involved. Constant policy churn emphasises the view that the E&T system is at best flawed and at worst failing. This has the potential to harm the morale of staff and stakeholders involved in the system as well as negatively shaping the aspirations of young people and their families and their perceptions of different E&T pathways. ….[they may be talking about FE mostly here but this applies to HE too, and the impact of this washes through to post-18 education]
When we were able to look at socio-economic inequalities in access and outcomes, we observed gaping differences in educational outcomes from choices. Those from more disadvantaged backgrounds were less likely to achieve A level or equivalent qualifications, and less likely to achieve degree-level qualifications. As a result, they are then less likely to be in employment, will have lower earnings and less likely to be in professional occupations when they do enter the labour market. These inequalities are of similar size across all four nations, with just slightly higher university attendance amongst the most disadvantaged students in England.
Outcomes are particularly concerning in Wales, including “Welsh boys having the lowest levels of higher education participation”

Recommendations are mostly about schools and FE not HE, but we would agree with this:

A new stable settlement is needed. In the short run, a new vision and policy approach for post-16 E&T may be needed. This will require political consensus within each nation on goals and ambitions that can be realised, well-funded institutions and structures, and a stable set of qualifications

In the section about funding it notes the divide between FE and HE (from p24):

Historically, the four nations have maintained a divided system that rests on a categorical distinction between academic and vocational knowledge and skills. This is rooted in entrenched class division and a perception of HE as a gateway to privilege, contributing to an esteem deficit for FE and negatively influencing young people’s choices (and their families’ perceptions of the sector) when considering available pathways to a good future. Arguably this restricts access and progression and emphasises differentiation and social selection at the expense of social inclusion and the needs of individual learners. …
However, the relationship between FE and HE has become increasingly blurred over the last decade. Universities have been increasingly encroaching on FE spaces through a variety of sub-degree level provision, including, but not limited to, foundation degrees while degree level qualifications are offered by some FE colleges, with degree apprenticeships sitting in a hybrid vocational-academic space….
As each attempts to operate in the others’ space, competitive behaviours are increased and colonisation, rather than quality or diversity of provision, becomes the de facto driver. ….

Research and knowledge exchange: Spinouts

You will recall that the government published alongside the Autumn Statement its response to the Independent Review of University Spin-out Companies. The government said that it accepted all the recommendations of the review and would implement them all. These were:

Government will work with universities to improve deal terms, data and transparency in the sector. This includes reporting on which universities have implemented the policies recommended by the review, creating a database of spin-out companies and supporting the sector to develop a full set of deal terms guidance for different sectors, including template term sheets….
We are providing £20 million for a new cross-disciplinary proof-of-concept research programme. Research England will review the Higher Education Innovation Fund (HEIF) to ensure commercialisation functions in universities are appropriately funded and incentivised. We will set up a pilot of shared technology transfer functions for universities….
Government will map and publish support services available to founders and develop proposals to fill gaps or improve support. UK Research and Innovation (UKRI) will ensure that all PhD students it funds have the option to attend high quality entrepreneurship training and increased opportunities to undertake internships in local spin-outs, venture capital firms or technology transfer offices. ….
Government will continue its work to support access to finance through the Long-term Investment for Technology and Science (LIFTS) scheme, establishing a new Growth Fund within the British Business Bank, delivering a new generation of British Business Bank Nations and Regions Investment Funds and extending British Patient Capital to 2033-34 with £3 billion of funding. The government will also continue to deliver the Mansion House reforms, including improvements to our capital markets. …
To support our ambition to make the UK’s Research, Development and Innovation landscape more open and navigable, the government will work with UKRI and the National Academies to develop opportunities to improve their fellowship offer for commercialisation, including the option of ‘academic returner’ fellows. ….

Research England have now set out how they are going to do all this. There is a blog here.

They want universities to let them know if they have adopted the best practice policies ahead of a stock take at the end of 2024. The set of best practice policies will be published later in the Spring. They don’t think this is relevant to very many providers.
HESA is going to consult in April 2023 on collecting additional data
Reviewing HEIF: not doing anything now as they have enough data for review, approach will be published in the Spring
Pilot of technology transfer arrangements: more to come in the Spring

And this: Our Connecting Capability Fund (CCF)-RED programme is our main approach to developing university commercialisation capability, through collaboration. We are shortly to publish our priority commercialisation themes for CCF-RED including a first opportunity to bid

Education: Subcontracted provision

In late January there was a National Audit Office report that triggered press interest into allegedly fraudulent outsourced providers of HE. It doesn’t name providers. As a result there is a hearing at the Public Accounts Committee on 26^th Feb. More here from Wonkhe.

We already knew that subcontracted provision is one of the OfS priorities for quality assurance reviews this year but those quality assurance reviews are not usually announced in advance and we don’t believe that they have been kicked off for this year yet.

This week the OfS have announced a formal investigation into one university in relation to its subcontracted provision, looking at whether:

the courses delivered by sub contractual partners are high quality
the lead provider has effective management and governance in place for sub contractual partners
the lead provider has complied with the requirements relating to provision of information to the OfS

A Wonkhe article on the formal investigation: 22^nd Feb 24 highlights the large proportion of subcontracted students at this provider.

Context from the NAO report:

Universities ….may create partnerships, also known as franchises, with other institutions to provide courses on their behalf. The … lead provider.. registers those students studying at their franchise partners, which allows them to apply for funding administered by the Student Loans Company (SLC).
Students may apply for loans covering tuition fees … and maintenance support …. Students normally repay these loans, including accrued interest, once they have finished studying and are earning above a certain amount. These loans represent a long-term liability to taxpayers if not repaid. …. during the 2022/23 academic year SLC made £1.2 billion of loans for tuition fees and maintenance for these [franchised] students.
Lead providers must be registered with the …OfS…, for their franchised provider’s students to be eligible for student funding. Franchised providers do not need to register. Lead providers retain responsibility for protecting all students’ interests, including teaching quality at franchised providers. They also confirm to SLC that students at their franchised providers are, and remain, eligible for student funding….

Summary findings:

…The number of students enrolled at franchised providers more than doubled from 50,440 in 2018/19 to 108,600 in 2021/22. Much of this expansion has been in a relatively small number of providers, with eight of the 114 lead providers responsible for 91% of the growth. Despite this increase, in 2021/22 those studying at franchised providers represented a small proportion, 4.7%, of the total student population…

….Government intended the Higher Education and Research Act 2017 (HERA) to encourage providers to join the sector and improve innovation, diversity and productivity. DfE considers that franchising helps widen access to higher education. In 2021/22, 57,470 out of 97,000 (59%) students from England studying at franchised providers were from neighbourhoods classed as high deprivation, compared with 40% of students at all providers…
…As a lead provider retains responsibility for a franchised provider’s compliance with these standards for their students, there is no statutory or regulatory obligation on franchised providers to register with OfS. In 2021/22, 229 (65%) of the 355 franchised providers were not registered…
…Lead providers share fees with their franchised providers, the amount varying according to their contractual arrangements. OfS does not have detailed knowledge of these arrangements but, where it has, told us that some lead providers retained between 12.5% and 30% of tuition fee payments…
…We have seen that some providers use agents or offer financial incentives to recruit students, activities which government does not prohibit or regulate. Government does not know how many providers use these practices, but those we have seen are used by franchised providers. One scheme offered students rewards for referring other people to the provider, with no limit on the number of referrals. There are no regulations to prohibit or regulate these practices, which may present risks to taxpayers’ and students’ interests. Students who sign up in response to incentives may be vulnerable to mis-sold loans, while also being potentially less likely to make repayments…

…Over the past five years trend data show that, at franchised providers, detected fraud cases have increased faster than the proportion of SLC-funded students. In 2022/23, 53% of the £4.1 million fraud detected by SLC by value was at franchised providers…

…Routine analysis by SLC detected suspicious patterns of activity involving franchised provider students across four lead providers. Further investigation by SLC raised concerns across a total of 10 lead providers. Following a request from SLC, DfE instructed SLC to suspend payment of tuition fees while cases under suspicion were investigated. This led to SLC identifying and challenging 3,563 suspicious applications associated with £59.8 million of student funding, with 25% of this money still withheld as at January 2023…
…In May 2022 a lead provider disclosed to OfS, as required by its registration conditions, that it suspected widespread academic misconduct at one of its franchised providers and was undertaking investigations. Following investigation the lead provider withdrew the majority of the then 1,389 students enrolled at the franchised provider. SLC has recovered £6.1 million in respect of the tuition funding provided to withdrawn students. OfS has clawed back £172,600 of its grant funding paid to the provider in respect of these students. To date, DfE and OfS have not imposed other sanctions on providers…
…There is insufficient evidence that students are attending and engaging with their courses. In determining a student’s eligibility for loan payments, and before making payments, SLC uses lead providers’ data to confirm students’ attendance. Lead providers self-assure their own data, also having responsibility for the accuracy of their franchised providers’ information. There is no effective standard against which to measure student engagement, which attendance helps demonstrate, and there is no legal or generally accepted definition of attendance…
…Given SLC’s concerns about potentially fraudulent student loan claims, OfS required several lead providers to commission independent audits of their franchised provider controls and data submissions. This identified controls weaknesses. In October 2023, OfS announced that, for the first time, it would consider whether registered providers had franchise arrangements when deciding where to focus its work assessing student outcomes…
… DfE is consulting stakeholders on potential changes to how providers are regulated. SLC has undertaken a ‘lessons learned’ exercise which proposed recommendations that need to be taken forward by other bodies, including OfS and DfE. …. DfE told us there had been discussions on potential policy options with representative bodies and universities with a large proportion of franchised provision…

There are some interesting articles from the last year here:

A Wonkhe article from June 2023 that chillingly refers to “legal threats aimed at silencing the discussion”
A Wonkhe article on what better regulation might look like: June 2023
Wonkhe on the OfS priorities for quality reviews: October 23
Wonkhe piece on the NAO report: Jan 2024
A comment piece on Wonkhe on law regulation: January 2024

A HEPI paper from this week suggested some ways forward, describing what one provider (Buckinghamshire New University) already does and concluding: “We believe the solution is a strong sector-wide and sector-owned code of practice that requires higher education institutions to work together in the wider interests of students and stakeholders, including government and regulators. This would see higher education institutions establish effective consortia for each franchisee, simplifying and coordinating the multiple demands they place on franchisees, and strengthening the requirements to enhance quality and promote stability”.

Duty of care

There has been a long running campaign by bereaved parents, politicians and others to impose a “duty of care” on universities in relation to students with mental health issues, sometimes described as similar to universities being “in loco parentis” for students. The stories are always terribly sad and this is a difficult area, especially as students are adults and sometimes do not want to engage with university services or staff on these issues, and sometimes don’t want to involve their parents either. A little bit of clarity is emerging as a result of two recent cases. There is no legal duty of care (whatever that means) yet, but there is discussion about a responsibility on staff to “notice” and also about a duty to ensure that process and procedures don’t get in the way of reasonable adjustments.

This debate will continue: the government is pushing all universities to sign up to the University Mental Health Charter (BU has) and the OfS is also undertaking work on this. The government have a taskforce led by Professor Edward Peck, and I reported on their first stage report in the last policy update: you can find that report here and the policy update from 5^th Feb here. It is a complex area but one where there will certainly be a lot more changes in approach to come: including potentially OfS licence conditions in the future.

I noted last time the recent coroner’s report into a student death at the University of Southampton. This Wonkhe article from January covers the story.

Like so many students [Matthew Wickes] was diagnosed after he began on his course, and did not disclose his condition to the university – and so formal codified reasonable adjustments were not able to be put in place.
… But despite the lack of disclosure, [the Coroner] does raise concerns about the “level of awareness, understanding and curiosity” of academic staff around the mental health of students – particularly in the post-pandemic climate – where “interruptions to their study and dysregulated student life have had a significant impact on their mental health”. The message seems to be – it was likely that there would be significant, long lasting mental health impacts from Covid and its lockdowns, which ought to have generated a strategic response in terms of staff capacity to recognise them.
… There is a thread in this and similar cases that is about capacity to “notice”. [The Coroner] noted the university’s processes for “raising a concern” by academic staff through student hubs, and the university talked in the inquest about a new “early warning system” involving triggers around academic absence or changes in study or support behaviours. But [the Coroner]’s worry was more basic: I am concerned that in not ensuring that academic staff are at least armed with the ability to spot or to know when to make initial enquiries of students or are clearly guided on how best to do so (particularly with regard to an understanding of the needs and skills required to liaise with students with neurodiversity), there is a risk that an over-focus on academic policies and procedures will endure and that those students who are struggling to adhere to them will be missed or overlooked.
For example, during the inquest the university had said that all staff were offered training on mental health management and provided with guidance on how to support students. But [the Coroner] said: I am concerned that aspects of this are not made compulsory for academic staff … It remains unclear as to who or how many staff have actually viewed or undertaken the online training around student mental health.
…But while the coroner isn’t saying that all staff or all personal tutors should be counsellors or mental health experts, he is effectively saying that all students ought to be able to expect that the staff that teach and support them have a basic level of awareness and competency over student mental health.
Even if an issue is identified, Wilkinson identified concerns with the interventions in place (particularly for neurodiverse students given an apparent focus on group based interventions) and also discussed concerns over the existence, frequency and accuracy of the recording and minuting of academic meetings with students: It was of concern to me that the university was unable to locate or provide clear minutes of supervisory catch ups, progress checks or agreed guidance or actions for Matthew. It was of further concern that the academic staff supporting and mentoring him in his third year had not provided written evidence of his progress or agreed minutes of actions etc to him.

The next case relates to the University of Bristol. Again, Wonkhe have the story.

Natasha’s father, Robert Abrahart, brought a legal action against the university alleging it had contributed to his daughter’s death by discriminating against her on the grounds of Disability contrary to the Equality Act 2010, and by breaching a duty of care owed her under the law of negligence.
In May 2022, a senior County Court Judge, Alex Ralton, ruled that the university discriminated against Natasha and that this contributed to her death. Ralton found that the university had breached its duty to make reasonable adjustments to the way it assessed Natasha, engaged in indirect Disability discrimination against Natasha, and treated Natasha unfavourably because of the consequences of her Disability.
But Ralton did not find that the university owed Natasha a common law duty of care. The High Court has now considered both an appeal from the university, and a cross-appeal on the duty of care issue.
The university’s appeal challenged the court’s finding that the university breached the duty to make reasonable adjustments, and challenged the court’s finding that the university breached section 15 of the Equality Act 2010 (discrimination arising from Disability). Both areas failed.
…the university … failed in its argument that…the assessment of a student’s ability to explain laboratory work orally, to defend it and to answer questions on it was “a core competency of a professional scientist” and so not subject to the duty to make reasonable adjustments.
…The appeal judge …overall found that the County Court’s judgement – that the university’s reliance on due process and medical evidence before making adjustments did not outweigh its duty under the Equality Act 2010 to make reasonable adjustments – was sound, particularly given its awareness of Natasha’s challenges and the impact on her ability to participate in oral assessments.
Crucially, [the appeal judge] didn’t disagree with the County Court in rejecting the university’s arguments that it lacked sufficient knowledge or expertise as a defence for its inaction – and found that the university’s internal regulations and policies, while important, “must yield” to the legal requirements to accommodate students with disabilities. In fact, the procedures, in practice, became another barrier to making necessary adjustments.
….The university had argued that “legitimate aims” were rigorous assessment and fairness among all students and that that hadn’t been properly considered. That wasn’t washing with [the appeal judge]. Finding the original judgment’s findings to be permissible, he concluded that if complying with the duty to make reasonable adjustments would have resulted in Natasha attending and potentially performing better, then the marks and penalty points ascribed to her (which were, after all, based on her non-attendance or performance in the unmodified assessments) could not be deemed proportionate.

The response from the University of Bristol is here.

Harassment and sexual misconduct

A year since the OfS launched their consultation on their new approach to this, we are still waiting for the outcome: the consultation closed in May 2023. There’s an anniversary HEPI blog on the issues, which are complex and contested: perhaps why it is taking the OfS so long to reach a conclusion.

International

Recent updates have talked about the conflicting rhetoric on international students: Lord Jo Johnson has written in the FT with a plan to sort out the problem. Nice try; but the first two seem unlikely to catch on:

First, Westminster must fix the funding crisis. With domestic fees frozen for all but one of the last 10 years, universities lose money teaching home undergraduates. The government must inflation-proof fees, ideally by linking increased funding to outcomes and aligning interests of universities, taxpayers and students. Such a mechanism exists in the Higher Education and Research Act and was used in 2017 to lift fees to £9,250. Institutions that deliver great outcomes, as assessed by the Teaching Excellence Framework, should once again be allowed to raise fees in line with inflation.
Second, the government should ensure the Office for National Statistics only counts international students as net migration when they stay on post-study. In this framework, they would be included in migration figures when they transfer from the student visa to a graduate route or work visa. Otherwise, they would be treated as temporary residents or tourists.
Third, universities would commit to ensuring that entry requirements for international students are comparable to those for domestic ones. This can be measured using the actual grades held by those who have accepted offers. And it should, in theory, be a low-cost commitment, as universities claim to be doing it already.
Fourth, universities would commit to transparency on effective entry requirements. This means publishing the distribution of actual grades held by those accepted, broken down by course and domicile, as opposed to just the advertised entry requirements. There is often a wide difference between the two. This would, additionally, be a game-changer for widening access for disadvantaged domestic students, who will see that they have a chance of admission to many institutions with lower grades than advertised. [this is part of the UUK fair admissions code anyway]
Finally, the government should require every institution recruiting international students to provide an annual statement to the Office for Students. This should detail plans for the international student body, broken down by domicile and programme. Greater visibility into institutional recruitment is needed to reassure domestic stakeholders that international students are not crowding out domestic ones.

Student numbers and admissions

There has been concern about falling numbers taking up healthcare courses, recently. This story on Research Professional notes the fall in nursing applications.

Research Professional noted that some of the mission groups have written to the Secretaries of State for Education and Health calling for a cross government taskforce. You can read the letter via the University Alliance website here.

The mission groups argue the taskforce would:

bring together representatives from the Department for Education and the Department for Health and Social Care to meet alongside representatives from NHS England, health regulators, local government and higher education providers.
effectively co-ordinate activity to bolster student recruitment, work to find ways of increasing the capacity of clinical placements and medical school places, and develop strategies to ensure the recruitment and retention of staff.
help realise the Long-Term Plan’s ambitious targets for degree apprenticeships, and to tackle the low funding and high regulatory burden associated with delivering them.

Universities UK have issued a report on why students may not go ahead, based on a survey.

The future for student funding under a possible Labour government: the Welsh model?

As we have described before, we know very little about what a potential Labour government would do about HE funding: they want to make it both fairer and more affordable, they are not keen on capping ambition and reducing numbers, but there is no more money. The only thing we do know is that they are interested in what is happening in Wales on post-16 regulation. And it seems likely that they would improve maintenance funding, at least a bit.

So in that context this HEPI blog is interesting. HEPI are doing a tour and holding events this Spring to talk about how funding works across the UK and how it could be changed: I will report the outcomes.

And the Scottish model?

The IfS have published a report on the Scottish budget for higher Education Spending.

…. Unlike in the rest of the UK (where students are charged tuition fees), the Scottish Government meets the whole costs of teaching, and has controlled these costs in recent years by controlling the number of places for Scottish students and freezing per-student resources. Funding per student per year of study has fallen by 19% in real terms since 2013–14 and, as a result, Scottish universities are increasingly reliant on international student fees.
A cut to higher education resource funding … was announced at the Scottish Budget for 2024–25. This is a cash-terms cut of 6.0…. This implies that funding for home students will fall, with the Scottish Funding Council (which allocates funding to universities) trading off a further squeeze on per-student resources with potential cuts to the number of funded places.
Around £600 million is provided in the form of living cost support to students each year, the vast majority in the form of living cost loans (£500 million), alongside non-repayable bursaries of up to £2,000 per year for the poorest students. Living cost support has become less generous over time, with total support for the poorest students declining in real terms by 16% (£1,600 per year) between 2013–14 and 2022–23…..
A £900 cash increase in loan entitlements this academic year, in response to cost of living pressures, was the first real-terms increase in support since at least 2013–14. A much bigger increase of £2,400 per year is planned for next academic year. This delivers the Scottish Government’s commitment to provide a total package of student support ‘the equivalent of the Living Wage’ by 2024–25. The earnings threshold above which Scottish borrowers make student loan repayments is also set to increase in April 2024…. If there was full take-up of living cost support, these changes would increase average lifetime loan repayments in real terms by around £5,000, and increase average loan write-offs by around £3,400 per student.
Importantly, the costs of issuing loans to Scottish students, and of any eventual loan write-offs, are currently met by the UK government. Increases in generosity of support or in repayment terms for Scottish borrowers of the type planned for 2024–25 come at no cost to the Scottish Government’s main budget so long as this funding arrangement continues.
This system costs the Scottish Government around £850 million more per cohort (£28,700 more per student) than the English system would. From this spending, Scottish graduates on average gain £23,800 (largely through lower borrowing and loan repayments), and the UK taxpayer gains £4,900 per student in the form of lower loan write-offs.

Research Professional have the story here.

Freedom of speech

The implementation of the new legislation on freedom of speech continues. A new blog on the OfS website reminds us of where we are and of what is to come.

A reminder that we are currently consulting on our new free complaints scheme that we expect to launch on 1 August 2024. Students, staff and visiting speakers will be able to complain to us about restrictions on free speech at a university, college or relevant students’ union where they claim to have suffered adverse consequences. Under our proposals, if we find the complaint justified, we may make recommendations such as changes to policies or processes or payments to the complainant. Our consultation is open until 10 March 2024.
We have also been developing our proposed approach to the regulation of students’ unions in relation to their new free speech duties. This will be the first time the OfS directly regulates students’ unions and we expect our new role to take effect from 1 August 2024. We’re consulting on our proposals and this consultation is open until 17 March 2024.
In the coming weeks we expect to launch a further freedom of speech consultation. This will cover proposed guidance for universities, colleges and relevant students’ unions on securing free speech within the law and on publishing and maintaining a freedom of speech code of practice. At the same time, we will also consult on proposed revisions to the OfS’s regulatory framework to make reference to our new free speech functions. Finally, we will consult on our proposed approach to the recovery of costs in connection with our regulation in this area.

June 28, 2023

HE policy update 28th June 2023

EU, innovation, international, parliament, policy, Research assessment, Research news jforster

Some major areas covered in this policy update. We summarise all the latest parliamentary action on duty of care and consider what’s next for the sector more generally. Lots if research news, including the House of Lords being grumpy about the UK’s plans (and progress) to become a science and technology superpower. Horizon Europe guarantees have been extended (again). There’s the latest on free speech and the CMA requirements relating to course changes. Finally, an in-depth look at the future of international students from two authoritative figures in the sector.

The outlook for the sector

In a speech at an event hosted by the Higher Education Policy Institute, the Secretary of State outlined his 3 priorities for the sector, to meet skills needs, advance social justice and deliver high quality qualifications. He talked extensively about apprenticeships and wanting the sector to do more in this are, as these programmes not only help with skills needs but also support disadvantaged students to earn while they learn, enhancing his social justice agenda too. He also made reference to mental health and wellbeing and the importance of student support.

The government has yet to provide the outcome to the Department for Education consultation on minimum entry requirements and student number caps – these have been outstanding since last year. In his speech the Secretary of State for Education, Robert Halfon said that he hoped we would get them soon.
Here is a Wonkhe blog covering Halfon’s speech.

Shadow Secretary of State for Education Matt Western also spoke at the event. He wouldn’t be drawn on detailed plans ahead of the work that Labour have to do on their manifesto. Labour have already indicated they want to replace the current system with something “fairer and more progressive,” including reversing the changes being implemented this year which will increase the payment term and lower the threshold for student loan repayments, meaning that some lower paid graduates will pay more (because of interest and the longer term) than higher paid ones who pay it back earlier. It does sound increasingly like a graduate tax arrangement. He noted that the sector needed to be financially sustainable, but there are no promises about increased income under the new government. The Shadow Minister was also supportive of the LLE.

The Shadow Minister noted the cost of living issues impacting students, criticised the negative rhetoric about the value of a degree, and talked about social and educational inequality. He was highly critical of the regulatory burden in the sector, with multiple and overlapping regulators. He expressed admiration for what is happening in Wales, where the Welsh government are in the course of setting up a new combined regulator and funding body for tertiary education, which includes FE and HE, apprenticeships and skills training. Note that in Wales there are means-tested grants available for maintenance costs. The Welsh have also not extended the student loan repayment term to 40 years.
Research Professional have a piece Muddied red water which argues the fit with the wider UK isn’t clear, particularly because the Welsh arrangements do not address the issue of financial sustainability as the value of the tuition fee falls.
Iain Mansfield (ex- SpAd to Michelle Donelan and Director of Research and Head of Education and Science at Policy Exchange) writes for Wonkhe stating that while a return to real interest rates would be more progressive and seem intuitively fair he’s not sure the claims and the numbers stack up. Mansfield has his own political agenda and if you read the full blog you’ll spot he favours this argument pattern: stating ‘this looks nice…but it won’t work because…’
- On public perception of fee fairness and the tax system Mansfield states: A system where interest rates are no higher than inflation, so that no-one will pay back more, in real terms, than they paid in is intuitively felt to be fair. Tony Blair, arguably the most canny political operator of our time, understood this, and it was a fundamental concept that underpinned the system of student loans in the New Labour era. Introducing swingeing rates of interest in 2013 toxified the system – and it is no coincidence that fees have only been raised once since then… If you want to deliver more progressive taxation, changing income tax rates is far better targeted than introducing arbitrarily high rates of interest into your higher education funding system – not least because you can target the whole population, rather than the minority who are graduates.
- On the numbers: There’s a second big problem, and it’s that you can’t use a future asset – the additional money you will hypothetically receive from graduates in 30-40 years’ time – to directly pay for a current expense, such as reduced repayments or new maintenance grants… additional cash now requires additional borrowing. I’m going to go out on a limb, therefore, and say that the claim that reducing monthly payments can be done without additional borrowing will end up being incorrect.
- On grants Mansfield foresees consequences for universities: …it seems that the poorest students may get a maintenance grant… Restoring maintenance grants is a very reasonable thing to want to do – but it has consequences… For universities rightly worried about their finances it means that maintenance grants and lower repayments look likely to be prioritised over any increase in the funding per student…it shows where Labour’s priorities lie: and that is with graduates and low-income students, not with universities.
- Mansfield also reminds that Labour’s tax cut messaging didn’t work out for Theresa May when she raised the repayment threshold from £21k to £25k – graduates saved £360 per year but it cost the Treasure £2.3 Billion and had no impact on political gain in the polls
Following Labour’s announcements that they will not abolish tuition fees NUS Scotland campaigned Scottish Labour who have confirmed they continue to support free tuition in Scotland.

To note: All together now: An independent report into tertiary education in Scotland (the Withers report) – Fit for the Future: developing a post-school learning system to fuel economic transformation – advocates for a single organisation to provide the funding, strategy (and presumably operationalisation) of all tertiary education in Scotland. This in an interesting one to watch how it plays out because while Westminster haven’t been bold enough to suggest this for England’s tertiary education it fits well with the Government’s ideals of a rationalised and coherent post-compulsory sector where the different routes through education have a parity of esteem. Also, FE and HE Minister Halfon is on a crusade to tackle the systemic underfunding of FE provision. Such a change in England would require a major upheaval, however, it’s an interesting one to watch for the medium to long term. That is, if Scotland even decides to adopt it (Scottish HE Minister Graeme Day has made encouraging noises but stopped short of committed support). If you’re interest in the topic Wonkhe have a blog but the detail is here.

Susan Lapworth, Chief Executive of the OfS also spoke at the HEPI event and talked about the two priorities of the OfS: quality and standards and equality of opportunity, alongside the enabling and underpinning matters such as governance and financial sustainability. The OfS recently published its annual report and accounts.

Student Experience

Ahead of the NSS, which it has now been confirmed will be published on 10^th August, the annual HEPI/Advance HE Student Academic Experience Survey was published in June.

76% of students feel that the cost of living crisis has affected their studies. 50% state that their studies were impacted “a little” and over a quarter (26%) state that their studies were affected “a lot”.
There has been a major increase in the number of students in paid employment, from 45% to 55%.
The proportion of students whose experience exceeded expectations increased from 17% to 19%.
37% of students said they received good or very good value for money.

The reasons for these perceptions are interesting as are the relative changes – generally, the % for each reason has fallen for each category, both in the positives and negatives, even below the 2020 cohort (generally completing pre-covid). The industrial action category was new this year after being highlighted in the open text replies previously. Note:

A fall in positive responses linked to course organisation (11 ppts) although a drop in negative comments too
A fall in positive responses to teaching quality but negative comments have also fallen
A fall in positive responses to level of challenge
Positive change in relation to quality of feedback
A fall in the positive and a rise in the negative from 2020 and 2021 on accessibility of teaching staff

As usual, there is a lot more content including analysis by characteristic, and the report is worth reading in full.

Here’s the Wonkhe blog on the survey.

Horizon Europe Guarantee – extended

Following on from the not-new-news Viscount Camrose set out above the Government has announced the extension of support for UK Horizon Europe applicants until the end of September 2023. The extension continues to guaranteed funding for successful UK Horizon applicants. End May figures note that £1.1 billion of grant offers have been made.

The guarantee will be in place to cover all Horizon Europe calls that close on or before 30 September 2023. Eligible, successful applicants to Horizon Europe will receive the full value of their funding at their UK host institution for the lifetime of their grant.
Successful awardees do not need to leave the UK to receive this funding, which will provide reassurance for future collaborations, and support UK researchers whether association is confirmed, or otherwise.

Full information on the Government announcement here. Operational detail on the UKRI website.

UK as Science and Technology Superpower

The Lords met to discuss Science and Technology Superpower, following the publication of the Science and Technology committee report. Leading the debate Baroness Brown of Cambridge was disdainful about aspects of the Government’s performance including:

the “science superpower by 2030” slogan was vague;
that numerous sectoral strategies existed across government, but they did not appear to fit into a clear, prioritised plan, and without international collaboration;
concerns over the scale of investment and that the Government should adopt a new, appropriate, target for R&D investment.

The Baroness called for better definition on the Government’s strategy, for a Science Minister to sit in Cabinet and for the UK to rebuild its reputation as an international pattern, starting with association with Horizon Europe.

Other Peers raised:

that regulation is important to support the sector and where do specific sectoral strategies, such as the AI strategy, fit into an overall coherent approach across all sectors.
questioned how the Government were tracking what other countries did; the importance of researchers from abroad and whether scientific visa applicants were subsidising other functions of the Home Office.
the need to develop global science partnerships, also that many, such as the Wellcome Trust, the ABPI, and the Royal Society, had highlighted that the UK needed to articulate more clearly its policies of global co-operation to attract science talent to the UK. Immigration policy popped up several times during the debate.
that the report could have gone further in articulating how the UK could harness its advantages of agility, expertise and a focus on global impact to overcome disadvantages of scale, such as the Vaccine Taskforce.
That ecology and social innovation were missing from the five critical technologies identified in the science and technology framework.

Lord Rees of Ludlow on HE: there are some worrying trends. The labour involved in grant applications was diminishing chances of success while research was still strongly concentrated in universities the encroachment of audit culture and other pressures are rendering universities less propitious environments for research projects that demand intense and sustained effort. Dedicated, stand-alone labs might become preferable, such as the biomedical science labs which allowed for longer-term research, supplemented by the Wellcome Trust, the cancer charities and a strong pharmaceutical industry. He said we needed this in energy, AI and other crucial technologies.

Viscount Hanworth stated concern over the systematic underestimation of the percentage of GDP that the UK devoted to research and development highlighting that it was still well below the OECD average and far behind that of most research-intensive nations. He added that the UK could not become a scientific superpower if it lacked a basis of scientific and technological industries that were ready to call upon the skills of the research workers.

The Government’s representative, Viscount Camrose, responded that the Department for Science, Innovation and Technology (DSIT) would promote a diverse research and innovation system, connecting discovery science to new companies, growth and jobs. Camrose said the science and technology framework challenges every part of government to put the UK at the forefront of global science and technology. Action will focus on creating the right environment to develop critical technologies; investing in R&D, talent and skills; financing innovative science and tech companies; creating international opportunities; providing access to physical and digital infrastructure; and improving regulation and standards.

Camrose tacked the funding calls by remind of the Government’s committed spend:

£2.5bn over the next decade for quantum tech
£1bn strategy for the UK’s semiconductor sector
Government had recommitted to increasing public expenditure on R&D to £20bn per annum by 2024-25, representing a one-third cash increase and the largest ever increase in public R&D spending over a spending review period.

On Horizon, Camrose stated that the Government continued to be in discussions, in good faith, with their European counterparts on the UK’s involvement in Horizon Europe and hope that their negotiations will be successful. Pioneer will become the default if the Government is not able to secure Horizon association on fair and appropriate terms.

Camrose also updated on ARIA’s progress – it has been established and is still in its early stage of development. ARIA is recruiting its first cohort of programme directors, who will help to shape and inform the agency’s first set of research programmes. None the less, funding transformative research with long-term benefits will require patience, as prepared for in the agency’s design.

On the risks of precarity for research careers, Camrose said the Government is looking at how to support through a new deal for PGRs and mentioned UKRI’s sector consultation as a first phase of this long-term programme of work, and the results would be published soon, in 2023.

Quick Research News

REF changes: Nature have a lovely gentle editorial into the changes to REF2028. While the ‘how’ detail isn’t known yet we do know that the weighting will be changed:

Output (now named contribution to knowledge and understanding) weighting is reduced from 60% to 50% of the overall score.
The environment weighting (now known as people, culture and environment) increases from 15% to 25%.
Everyone’s favourite – Impact – (now renamed engagement and impact) will remain at 25% of the overall score

Read the article for more on intentions for change around equality and diversity, quality PhD mentorship, and the expansion of the definition of excellence.

Wonkhe also have blogs on REF2028 and more background delving including the FRAP (Future Research Assessment Programme) is in this blog, and there’s a guest blog by the University of Liverpool – REF 2028: A Quiet Transformation.

Research infrastructure: Wonkhe report that – UKRI has announced £72m of investment into research infrastructure, including funding for wind tunnels and digital infrastructure for biomedicine. An independent report into progress with UKRI’s infrastructure programme has also been published, finding the programme has generally delivered its intended outputs and outcomes. However, the report observes that business case development and approval processes are still “overly complicated, duplicative and lengthy,” while noting that these processes sit outside the Infrastructure Fund’s remit and involve decision makers beyond UKRI.

Moonshots: Wonkhe highlight that UKRI and the Department for Science, Innovation and Technology (DSIT) have opened a call for submissions for “moonshots” – “bold, ambitious, and transformative ideas” across the research and innovation landscape. The call for ideas will be followed by discussion events and shortlisting, with chosen proposals set to receive funding through the government’s Horizon Europe alternative Pioneer – or possibly through alternative sources of funding if the UK does associate to Horizon.

Defence innovation: Wales has committed £5 million funding for Defence and Security acceleration across several streams. More detail here.

AI mitigation: Rishi announced the UK will host the first major global summit on AI safety (following polling show public concern over the safety of AI). Also announced were:

The Government will increase the number of scholarships the UK Government funds for students undertaking post-graduate study and research at UK and US universities, enhancing our shared expertise in STEM subjects. Under the scholarship uplift announced today, the number of Marshall scholarships will increase by 25%, to 50 places a year. The Marshall scheme was established 70 years ago to give high potential Americans the opportunity to study in the UK for two years.
The UK will also fund five new Fulbright scholarships a year – up from the 25 currently funded. The Fulbright programme is predominantly funded by the United States to sponsor international students to study in the US and vice versa. These new scholarships will focus on STEM-related subjects, boosting the UK and US’ shared expertise in the technologies of the future.

Research Security: Wonkhe – Scientists at least 11 British universities have helped the Iranian regime develop technology that can be used in its drone programme and fighter jets, the Jewish Chronicle reported yesterday. Politicians expressed “deep concern” over the findings, with the government saying that Britain would “not accept collaborations which compromise our national security.” The story is picked up in the Telegraph.

Canadian Cooperation: Wonkhe – Science minister George Freeman has announced a range of agreements covering collaboration on science and innovation issues with Canada. These include £20m for a joint programme on biomanufacturing, deeper collaboration on quantum and climate change research, and Canada becoming a partner to the International Science Partnership Fund.

NERC: NERC interim executive chair has been confirmed as Peter Liss (of University of East Anglia).

Research culture: Wonkhe blog – A recent parliamentary committee report called for the REF to incentivise reproducibility – but more fundamentally the issue is about promoting openness and transparency. Grace Gottlieb explains.

Life Science: Jeremy Hunt announced £650 million package to drive growth and innovation in the Life Sciences sector. The government is committed to making the UK the most attractive destination for life sciences companies and has developed a comprehensive package of policies spanning regulation, research and development (R&D), infrastructure, skills and planning which is aimed at driving investment, growth and innovation. Full details here.

Innovation economy: The Campaign for Science and Engineering (CaSE) published The Skills Opportunity: Building a more innovative UK (summary here) it covers the challenges for education and skills provision in the UK, with recommendations for building a more research and innovation-intensive economy.

AI research: The Government announced (UKRI funded) research investments to develop trustworthy artificial intelligence (AI) research with £13 million going to 13 universities for developing AI technologies to have more sustainable land management, accelerate energy efficient CO2 capture, and improve resilience for natural hazards and extreme events. Also £31 million to create a UK and international research and innovation ecosystem for responsible and trustworthy AI. The consortium led by the University of Southampton will fund multi-disciplinary research and work across academia, business, and the public sector. Plus £2 million for 42 projects’ feasibility studies in businesses as part of the BridgeAI programme. These projects will look at developing a range of tools to facilitate assessment of AI technologies through governance, fairness, accountability, transparency, and privacy, and security. And, finally, £8 million for 2 Turing AI Researcher Fellowships, funding ground-breaking research on some of artificial intelligence’s biggest challenges including its application across drug and food design, and healthcare imaging.

Diversity in STEM: Dods summarise – The Science, Innovation and Technology Committee has published the government response to their report on diversity and inclusion in STEM, which it describes as “disappointing” and has urged the Government to adopt a more purposeful strategy. In its response the Government said it is preparing a cross-Government action plan, led by the Department for Education, to “drive wider participation in STEM” and see “a more diverse range of people enter the science and technology workforce by 2030”. The Chair of the Committee, Greg Clark MP, has said that “without any specific commitments or timings this amounts to a plan to have a plan.”

Duty of Care

Dominating parliamentary time on HE matters recently has been the call for universities to hold a specific duty of care for the wellbeing of students. The impetus for change has been driven by a group of parents who tragically lost a child to suicide whilst at university. Their campaign has been mentioned in Prime Minster’s Questions and formally entered parliamentary business through a petition which reached the required threshold for the matter to be debated (see here for the volume of individuals that signed the petition in the constituencies surrounding BU). The Petitions Committee also ran an evidence session on the statutory duty of care (our shorter summary of the evidence session is here).

Ahead of the Westminster Hall Debate the Petitions Committee ran an online survey on the proposal for a statutory duty of care for HE students to gauge public opinion on the matter. The survey revealed:

27% of students who experienced poor mental health said their university was supportive/very supportive of their mental health.
40% said the university was unsupportive/very unsupportive.
86% of current students said they had suffered with poor mental health at university.
77% of parents or guardians of a current student said that their child was suffering or had suffered with poor mental health whilst at university. Of those, 91% had not been contacted by the university about their child’s mental health
More statistics here.

Outside of the headline statistics are a number of quotes the Committee has included in the survey report.

University staff member: “The university I work at has implemented some measures, but they are not ‘joined up’ and most staff don’t know what they are. There is no clear guidance on who should do what.”
University student: “with the ‘trusted contact,’ I have had the opportunity to put someone down which I did when I started at university. However, when I experienced a mental health crisis and told the student wellbeing team I was suicidal, they did not contact my ‘trusted contact’ or ask if they could. They also did not offer me any support other than telling me to go to A&E if I hurt myself. So while it’s good for a university to have the ‘trusted contact’ option it’s also important that they use it
Parent: “Although University has various contacts, like student support, counselling, there is no way to actually speak to someone as a parent when you have concerns about a student…In an urgent situation as a parent you need to know there is a way of escalating your concerns.”

At the Westminster Hall Debate Nick Fletcher, member of both the Education Committee and the Petitions Committee, and chair of the Issues Affecting Men and Boys APPG, opened the session by noting between 2017 and 2020 that 202 male students and 117 female students had died by suicide. Here are some of the main contributions made by Members during the debate:

Hilary Benn stated that where a student attempted suicide, it was inexplicable that the university would not contact the parents and questioned whether the UUK suicide prevention guidelines should be made compulsory.
Nick Fletcher stated that many universities cited GDPR issues regarding contacting parents but that, in his view safeguarding always overrides GDPR. He also questioned why universities were still to sign up to the UUK guidelines or the university mental health charter [Helen Grant MP later stated only 61 universities have signed the Charter, only 5 had achieved Charter status and no universities had reached the higher merit and distinction levels of accreditation].
Nick Fletcher also stated that the witnesses they’d heard from in the committee’s evidence session – such as PAPYRUS and the student services organisation, AMOSSHE – had agreed that a duty of care would not be the best approach.
Nick Fletcher: questioned why universities were still carrying out bad practice such as telling students they must leave by email, without any thought of the inevitable emotional and mental impact. He asked why institutions weren’t coming together to find common themes in coroners’ reports of the 319 students.
Nick Fletcher: urged the Government: a statutory duty of care would ensure that all parties knew where they stood, but until we have one, please use the levers you have to make the universities do better at helping our young people. If they do not, do what the petitioners ask and legislate so that they must.
Paul Blomfield, Chair of the Students APPG: noted UCAS estimates that over 70,000 students entered higher education every year with a mental health condition, but around half of them told UCAS in a survey that they had not shared that information prior to entry. Also that universities could not be the only post of call for students who were struggling – students should be able to access NHS services, but were struggling to do so.
Paul Blomfield: stated he was not convinced that a duty of care would do the job those advocating it wanted, and could have unintended consequences. However, he said there still needed to be clear expectations on universities to up their game across the sector. He urged the Minister to acknowledge the other factors contributing to the mental health crisis, and asked what he would do, along with DHSC colleagues, to make support available to those working alongside universities.
Helen Grant: a statutory duty of care would set the bar to level up… a standard that required all higher education providers to do what might reasonably be expected, while maintaining their autonomy in deciding exactly how that would be achieved.
Shadow Minister for Higher Education, Matt Western, had met many families from the LEARN network and stated their diversity and number were a painful reminder that no family was immune from the consequences of the mental health crisis that affected many students on campuses. He stated he appreciated the time and money that many universities gave to providing mental health support for students and staff but said the gap between the expectations of students and parents and the reality of mental health provision in universities was far too great. He acknowledged that demand for services and support was clearly rising, with one in four student respondents to one survey reporting a diagnosed mental health issue. Many of those issues were also starting earlier in students’ lives. He also expressed disappointment that so few universities were signatories to the University Mental Health Charter.
Matt Western highlighted that in Wales, the Commission must ensure it’s satisfied with the effectiveness of registered education providers’ arrangements for supporting and promoting the welfare of their students and staff. Western noted Wales was the first country in the UK to introduce such a requirement for FE & HE providers and asked if the Minister would consider something similar in England.

Minister for Skills, Apprenticeships and Higher Education, Robert Halfon, responded on behalf of the Government to the debate. He stated:

he owed it to the memories of the young people to collectively take strong and effective action that prevented further tragedies.
the Government’s approach would rely on funding services, spreading best practice and having clear responsibilities for providers and protection for students.
the suicide-safer universities framework provided guidance on suicide prevention for university leaders. There was also now postvention best practice on providing compassionate and timely support after a suspected suicide. The associated charter programme was not a panacea but a process which enabled continuous improvement.
if the response is not satisfactory from universities then the Department would ask the Office for Students to look at the merits of a new registration condition on mental health.
Professor Edward Peck was appointed as the first ever student support champion in 2022 and is chairing a new higher education mental health implementation taskforce, with its outputs reporting directly to Ministers. By the end of this year, the taskforce would be asked to put in place an interim plan for better early identification of students at risk and for delivering the university student commitment as well as clear targets for improvements by providers. By May 2024, it should follow with a final report outlining the next steps, including how the sector will publicly report on the progress measures over the coming years.

Halfon declined to introduce legislation to create a statutory duty of care: I absolutely get the arguments and hope I have demonstrated that I share the petitioners’ fundamental aims, which are to protect those who study at university and to prevent future tragedies. If creating a duty for higher education providers towards their students was the right way to achieve that, it would absolutely have the Government’s backing. There are reasons why we believe that it may not be the most effective intervention.

Halfon stated there was already a sufficient general duty of care in common law as part of the law of negligence, plus further protections for students within the Equality Act 2010 to protect students with disabilities, including mental health conditions. He expressed concern that if a framework was too overbearing people will recoil even further and avoid any natural intervention that they would ordinarily make.

Halfon:

setting aside the legal position, we do not believe that the most effective way to improve student mental health is to introduce new legislative requirements when the sector is making progress on a voluntary basis. Although the sector absolutely could and should do more…providers are still innovating and improving, and there is not yet consensus on which interventions are most effective…It is no excuse for not doing anything or for inaction, but it does mean that the one-size-fits-all approach may not achieve the best results and support for students suffering from mental health difficulties, which is what we all want to see…
I expect universities, as organisations with an obligation to do the right thing for their students, to rise to the challenge that we have set for them today…if we do not see the expected improvements I will not hesitate to ask the Office for Students to introduce a new registration condition on mental health. It is vital that the whole sector takes this call to action seriously.
I hope that I have been clear that we are not standing by and letting things continue as they are. I am determined that all universities will sign up to the mental health charter

In conclusion, Nick Fletcher said it was disappointing that progress was not being made faster but if there was not an improvement after 2024 when all universities had signed up to the mental health charter then he would be back to ask for the issue to be looked at again.

For more coverage here are some media sources:

The BBC covered Halfon’s decision: Universities told to step up to prevent suicides
In response to Halfon’s decision not to legislate Wonkhe writes: Campaigners, including parents of children who have died by suicide, are bitterly disappointed in the outcome and have a blog by Campaigner Robert Abrahart – Robert expresses his disappointment in the government’s decision not to pursue a statutory duty of care for universities.
Wonkhe: Government rejection of legislation will not be the last word on universities’ duty of care
Wonkhe: Duty of care is not just about suicide prevention
Guardian: Universities accused of hiding student suicide attempts behind GDPR
Pinsent Masons: Case for university statutory duty of care towards students raised in parliament
House of Commons Library research briefing: Student mental health in England: Statistics, policy, and guidance

So what’s next?

While the Minister has turned down the request for a statutory duty of care the matter is very much of national interest and the parent group’s campaign has brought greater focus and national coordination from the previous reporting of isolated student suicides that occurred across various institutions.

Halfon has remained true to his word and aims for the sector to provide consistent support with improvements where necessary. His expectation is that matters will progress and he is serious about intervening with licence or other conditions if action isn’t sufficient or fast enough. Halfon immediately wrote to universities setting out a range of actions (below). Of course, we have to mention the potential disruptive factor – the impending general election. Halfon has set a timeline to 2024, however the general election must take place by 28 January 2025. Even if the current Government wins Halfon isn’t certain to remain as Universities Minister and the policy focus changes as Minister’s change. That said, this is a matter of interest to all major parties and the media and while the specifics may alter with electoral changes the thrust of the matter will remain (and presumably so will the OfS).

Halfon’s Letter: Halfon tweeted the contents of his letter stating I am not closing the door on future legislation if that is what is required but I am confident the sector will rise to the challenge of the action plan I have set out below. The message is clear do it voluntarily, with some flexibility to apply it within own institutional context or be dictated to by the regulator/legislation.

Also important to mention is that there is a new NSS question on access to mental health support. It’ll be closely watched and if results are low the OfS may act (even though their regulatory remit does not apply to student welfare or support systems).

There is also a Duty of Care Bill introduced by Tim Farron (Lib Dem, Westmorland and Lonsdale). As expected, it’s a PMB (Presentation Bill), it’s nothing but a title – no Bill text, no explanatory notes. A Bill to provide that higher education institutions have a duty of care for their students; and for connected purposes. It was presented for First Reading on Wed 21 June and will (may!) receive Second Reading on Fri 24 November. Of course, there are LOADS of them scheduled for Second Reading, and being a Presentation Bill it’s at the bottom of the pile.

Mental Health debate

There was also a recent debate on mental health treatment and support.
Aaron Bell MP:

Aaron highlighted that many universities have a professional counselling and mental health team to support its students.
He spoke of HESA data: In 2021-22 19% (416,000) of UK students declared a disability—and within that, 119,500 said they had a mental health condition (5.5% of all UK students). He stressed the growth in number – That number is three and a half times higher than it was in 2014-15 and noted higher rates are found among women, undergraduates, full-time students and those in their second or later years. He stated: there is an issue here that we have to address
He believes the pandemic is partly to blame.

Layla Moran also focussed on students withing the debate:

It will come as no surprise that the Mental Health Foundation found that 40% of students are not coping well with their anxiety.
In Oxfordshire…82% of students at Oxford Brookes University had self-medicated with drugs or alcohol to cope with mental health issues.
Where students know that they cannot rely on the NHS, an added burden is put on university staff. Tutors increasingly find themselves acting as therapists or counsellors for their overburdened, ill or anxious students.
…the students I have spoken to have made it clear that “University wellbeing services are not and cannot be a substitute for adequate mental health care”
On the duty of care Layla stated: It is just common sense. It already exists between employers and employees. All we are asking is for the same duty of care to apply to students.
we all know, the problems in young people’s mental health services are not restricted to those at university. So many people tell me the system is broken: parents, teachers, educational psychologists and clinical psychologists all identify the same failings. One parent wrote to me:
- I am breaking my heart listening to my son saying horrible things about himself, threatening to take his life, and struggling with his mental health in general. Next year we would have been on the waiting list for four years and nothing will probably happen.
We know how to fix this; it is about more funding. A senior healthcare professional in Oxfordshire told me that “every pound spent on a child’s mental health saves thousands in the future.”

Regulatory

Wonkhe report that the OfS will publish a review highlighting concerns about some assessment and awarding practices in higher education providers. We’re also waiting for consultations on freedom of speech and the lifelong learning entitlement.

If you fancy some light relief read Research Professional’s irreverent take down of the OfS under the banner of commenting on the OfS annual report.

Excerpts: As a bureaucracy, the OfS, now in its fifth year, seems to exist to defend the act of regulation rather than to actually represent the interests of students.. Questions are being asked about the OfS, such as why it cannot complete a single investigation… The regulator’s inquiry into the graduate outcomes of university business schools has been going on—shrouded in secrecy—for a year. An investigation into grade inflation in English higher education began in September 2022 and is yet to report. There is a lot of regulation going on but precious little regulatory outcomes. In March of this year, the OfS announced plans to bill universities found guilty in an investigation for the cost of their investigation. To date, no one has been sent an invoice. The investigations continue.
… the OfS has become an inertial and litigious organisation, but one oddly enough prone to legal mishap. The regulator lost its legal fight against the Bloomsbury Institute and as a result embarked on an odyssey of consultation and reform that has resulted in ever-greater monitoring and reporting for universities.

The article reminds that the fees universities pay to OfS be registered HE providers are being increased substantially. Yet the OfS currently has reserves of £6.2 million—more than some universities. Although overall for the OfS reserves are down which is mostly due to the decline in the value of direct grants from central government. Research Professional (RP) question Does that mean regulatory fees are increasing for providers to make up for cuts in funding from the DfE? RP also provide a nice comparison: The OfS does seem to cost an awful lot to run. The staff bill for the regulator last year was £25.9m. If the OfS were a university, it would be roughly the size of the University of Chichester.

Lifelong Learning (HE Fee Limits) Bill

The Lifelong Learning (HE Fee Limits) Bill had an airing in Parliament. It was debated in the House of Lords at Second Reading stage and has progressed to Committee Stage where rigorous scrutiny will commence. The Bill is the legislative support for the Government’s lifelong loan entitlement (LLE) which will introduce a credit-based method to calculate maximum tuition fee limits based on the delivery of modules, short and full courses across a ‘course year’ rather than an ‘academic year.’ It only applies to England and provides a personal post-18 funding pot which students can chose to spend in flexible ways across their lifetime.

The Government intends to set the detail of the fees and credit information through secondary legislation so that each time changes are required it does not need to go through the full legislative process again. The downside of this is it hands greater power to the Government and reduces parliamentary scrutiny and intervention. Concerns over the lack of detail in the current Bill on these important aspects was raised by Baroness Wilcox of Newport, the Shadow Education Spokesperson. She stressed that Labour broadly supported the introduction of the LLE and the credit-based method to determine fees, but called for a definition of credits and what the yearly minimum and maximum credits would be. She also questioned if different per-credit limits would be set based on the intensity and duration or based on the subject (topic) and level of study, and whether all 2025 students would automatically fall under the LLE or if it would be a gradual transition. She also raised the current part time student premium and wanted this flexibility to be retained, and for distance learning maintenance support to be introduced for access purposes.

Baroness Garden of Frognal (Liberal Democrat) wanted to know the criteria by which modules would be determined to be eligible, spoke up on the uncertainties for disabled students, and suggested that if high-cost modules did not attract pro-rata teaching grants it would disincentivise modularisation in disciplines where there were particular skill shortages.

Lord Stevens of Birmingham highlighted the DfE short course trial hadn’t attracted much interest and suggested that the LLE fee support may not be attractive, Baroness Garden agreed with this stating she felt the debt was unlikely to be attractive to mature learners. Lord Stevens also raised maintenance support for distance learners.

Lord Willetts (Conservative) called for more detail on how the new third category of OfS registration, which would enable new providers to supplement existing provision from established universities, would work. Highlighting policy inconsistencies he also asked the Minister to reconcile that the policy encouraged learners to dip in and out of courses whereas the OfS’ monitor and criticise universities with high drop-out rates.

Lord Rees of Ludlow (emeritus professor at Cambridge University) argued that post-18 education needed to be much more flexible and open and offer everyone the opportunity to enter or re-enter, maybe part-time or online, at any stage in their lives.

Lord Johnson of Marylebone (Conservative, previous Universities and Science Minister) stated the Bill addressed an important problem with the current funding system for HE (i.e. the impact it had on lifelong and adult learning) which Johnson believes has been in crisis for a decade. He also noted another problem was that the system had not allowed tuition fees to rise with inflation stating this has led to the progressive defunding of universities. And the consequential increased dependence of universities on international student income to cross-subsidise domestic tuition and research was an issue. Johnson declared disappointment that the Bill did not address the problems he noted and that modular degree wouldn’t commence until 2027-28 (almost a decade since the Augar report was commissioned). He also called on the Government to make modular funding available for level 7 provision.

Baroness Barran, Minister for the School System, speaking on behalf of the Government, said that the Government would not impose credit transfer arrangements and would facilitate credit transfer through other methods, including through the introduction of the requirement for providers to produce a standardised transcript on the completion of individual modules. She also confirmed the number of learning hours in a credit would remain as now, unless standards in the sector changed.

On rollout the Baroness explained 2025-26 would roll out higher technical qualifications and modules at levels 4 and 5. And that maintenance loans would be available for part-time study below level 6.

You can read the full cut and thrust of the debate here.

Free Speech

King’s College London (KCL) announced that UUK will reconvene a previous advisory group for free speech and academic freedom, with KCL’s President and Principal, Shitij Kapur, Charing the group. KCL state:

The primary role of the Advisory Group will be to shape the implementation of the Freedom of Speech Act and provide advice and recommendations to the UUK Board, which will include shaping UUK’s engagement with the OfS in relation to free speech and academic freedom.
Alongside responding to the immediate policy environment, the Advisory Group will also play an important role in providing guidance on the approach UUK should be taking to the wider free speech and academic freedom debate, including how the sector should respond over the medium-to-long-term and where UUK can further support members to meet their new duties.

Student news

Course changes

Wonkhe have a blog on the updated CMA (Competition and Market Authority) guidance which strengthens students’ rights when teaching is significantly changed. Wonkhe say: The guidance warns providers over giving a “misleading impression” about whether a course is accredited, who is involved in its delivery, and how many optional modules are available – it advises that students’ express agreement must be obtained for deviations from the pre-contract information which informs their decision-making, including information about teaching. The CMA also cautions that contractual clauses excusing providers from liability due to industrial action may not be regarded as fair, as this is something which “could be within [an institution’s] control.” Here’s the blog: Making major changes to courses just got a lot harder.

There’s some good detail with clear interpretation on the legal requirements in this Pinsent Masons blog: Updated CMA guidance adds to universities’ obligations and enhances students’ consumer rights.

And, most recently, the OfS has published an Insight Brief setting out the scope of consumer protection law and how OfS regulation protects consumer (student) rights.

Loan rates:

Plan 1 (pre-2012) student loans have increased to 5.5%.

Admissions | Personal statements

HEPI published a policy note – How do Admissions Professionals use the UCAS personal statement? Context: UCAS plans to reform the personal statement to short questions covering the six themes of motivation; preparedness for course; preparedness through other experiences; extenuating circumstances; preparedness for study; and learning styles. HEPI surveyed admissions professionals to explore how they use undergraduate person statements and what implications this has for UCAS’ plans. Here are the key stats:

While the majority of personal statements are read, the average time spent on each statement is two minutes. 39% are read for one minute or less.
Personal statements are mainly used to assess applicants’ interest in a course (88%), or to gather contextual information (65%), assess academic potential (40%) and assess work experience (29%).
The majority of admissions professionals feel that decisions are primarily made on the basis of grades
The personal statement is considered to be important for vocational or highly selective courses.

HEPI says the results have implications for UCAS’ proposed changes:

There is little evidence that ‘preparedness for study’ and ‘preferred learning styles’ are used in admissions – therefore, these themes should be removed from UCAS’s proposals.
There should be space within the UCAS form for applicants to discuss extenuating circumstances, as admissions professionals do consider this information.
There is little evidence to support the division of ‘preparedness for the course’ and ‘preparedness through other experiences’ into two separate questions – only 6% of personal statements for non-vocational subjects were used to assess applicants’ transferable skills.

Caring – life chances

Parliament has launched its first APPG ‘inquiry’ (investigation) into the impact of caring responsibilities on the life chances of young adult carers. UCL research shows young carers and young adult carers were 38% less likely to get a degree than others their age. Carers aged 23 or over were also less likely to get a job. Those caring for 35 hours or more a week are 46% less likely to enter employment than non-carers. And a Carers Trust survey finds greater demands on their time than previously – 56% of young and young adult carers are spending more time caring than the year before, while 47% are looking after more people than they used to. The inquiry will look into include access to education among other caring issues. It will also focus on how caring affects young people into adulthood such as the impact on further education and employment prospects. A report is expected in November 2023 and may contain recommendations for HE providers on supporting carers.

Free school meals – educational outcomes comparison between providers

HEPI published a paper on educational outcomes across different universities for students formerly eligible for Free School Meals: The disconnect between quality and inequality: An analysis of the gaps in educational outcomes achieved by free school meal-eligible students in English higher education. Quick points:

Institutions with a TEF Gold Award recruit significantly fewer Free School Meal pupils as a proportion of their overall intake compared to Bronze and Silver universities.
Universities that recruit a smaller number of Free School Meal students have a higher entry tariff and are disproportionally more likely to receive a Gold award under the TEF. Not a single provider with more than 30% of their students having been eligible for Free School Meals was awarded a Gold in the TEF.
There are no significant correlations between the proportion of Free School meal pupils and the size of any outcome gaps (Continuation, Completion, Attainment or Progression). Gold providers, despite having far fewer Free School Meal students, do not achieve comparatively better Continuation, Completion, Attainment or Progression for these students compared to Silver and Bronze providers.

Ethnicity Degree Awarding Gap

TASO (Transforming Access and Student Outcomes in Higher Education) published the report Approaches to addressing the ethnicity degree awarding gap – Contextualising the landscape and developing a typology. The project:

Reviewed APPs (Access and Participation Plans) to produce a typology of approaches.
Interviewed sector stakeholders on institutional infrastructure, attitudes, barriers, and enablers.
Established an Expert Reference Group.

The analysis of APPs found 16 different types of approaches to addressing the ethnicity degree awarding gap (EDAG) – see pages 18-19 for the list and explanations of the types and this chart shows how frequently they’re found:

Key findings:

Despite the sector being broadly aware of the EDAG, they lack confidence about how to address the gap.
While the report shows a real commitment to addressing the gap, HE providers need to do more to consider approaches based on contextual factors – such as institutional student data – to bring about meaningful change.
One-of-a-kind individuals were hailed as catalysts for effective progress when addressing the EDAG therefore there is concern that meaningful work may stagnate or cease if these individuals were to move roles.
The sector has a good awareness of the need for evidence-informed practice, and the need to evaluate approaches to addressing the EDAG. However, capacity and capability for evaluation vary greatly between HE providers.
Working with students is central to addressing the EDAG, therefore there is a need for HE providers to consider how they work with students to ensure their voices are sought and valued.

In response to the findings, TASO recommends HE providers:

Develop Theories of Change (ToCs) and associated evaluation plans which make clear links between proposed activities and desired outcomes. This will allow providers to consider the barriers and facilitators to carrying out an approach successfully.
Consider the different elements of approaches and how these would work at their organisation so they are better placed to develop interventions that are tailored to their organisational context.
Reflect on organisational structures and allocate accountability and responsibility for addressing this gap so providers can best determine what systemic changes can be implemented to support these challenges.
Use data to inform action taken to address this gap. By including data analysis as a stage in their ToC, providers can highlight the importance of this and use findings to inform later stages of the approach.
Include students in their work to address this gap and develop models for student co-creation, moving away from a model that only consults students on plans to address these inequalities.

TASO are now tendering for providers to receiving evaluation support to develop Theories of Change for interventions aimed at addressing the ethnicity degree awarding gap.

International

The future of international students in the UK

Lord Jo Johnson, former Universities, Science, Research and Innovation Minister (2016-19), gave the keynote address on the Future of International Students at the Westminster Higher Education Forum. Johnson is a supporter of international students and the economic and wider benefits they bring to the UK and our education system. He was instrumental in establishing the graduate work visa during his time in office.

Johnson spoke of the gradual weakening of the political consensus for the graduate work route and the growth of international student numbers. He highlighted three key concerns that the HE sector should resolve to satisfy and reverse the Government’s cooling of support for international students. Johnson urged the HE sector to engage with these concerns rationally and make visible changes where needed.

Address the false narrative that international students are displacing domestic student and/or taking ‘their’ graduate jobs. Emphasise that international and domestic students are symbiotic and reliant on each other. Ensure the cross-subsidy from international fees is seen as a positive as they increase choice and broaden the range of courses available to domestic students making what would otherwise be loss m7aking courses viable.
The Government’s concern that some institutions are seen to be selling immigration into the UK rather than education is genuine and one of the factors behind the changes to the dependants visa policy. Johnson intimidated that these institutions are ruining it for the majority and that the practice needs to be immediately and publicly curtailed to address the Government’s concerns. Johnson stated he supports the cessation within visas for international students to switch to work mid-stream (and felt it never should have been an option). The second element within the immigration concerns that Johnson felt strongly about is that universal systems need to be in place to check and ensure that international students really have the funds needed and declared to gain their visas. Johnson highlighted examples of a London food bank which is providing for 1,000 international students per week and overcrowded housing where up to 15 students are sharing a small flat. Johnson stated that these issues were exacerbated by the pandemic as students were not able to access sufficient work. Johnson called on the sector to address these concerns to achieve a sustainable international student model.
Johnson’s third concern focused on (lack of) diversity within the international student body. The overreliance on certain nations of international students leaves universities vulnerable to geopolitical changes and Johnson argues limits the experience for other students. For example, the reliance on China within post graduate courses and India for masters students (particularly in a specific set of post-92 universities) was a concern for Johnson. Johnson highlighted that the Government has stated it wants diversity in the international student body but the dominance of certain countries is creating difficulties. In addition, to head off Government concerns, Johnson urged universities to raise the quality of students entering the system.

Johnson gently sang the praises of the DfE and their work representing the value of international students to the Home Office stating if not for their efforts the package of measures introducing restrictions for international students and their dependants could have been much worse. Johnson felt the DfE intervention protected the international graduate route architecture. However, he believed the days of government support for rapid international growth are over and cited technicalities in the wording of the Government’s current policy documents to demonstrate this. Johnson felt this position was inescapable because of the abuses creeping in at the edges – and believes that if these been dealt with at the time today’s restrictions could have been avoided. To this end Johnson recommended four reforms which we set out below.

It’s worth a mention at this point of how influential Johnson remains within Parliament. You’d be wrong to assume his influence is diminished because he now sits as a Peer, not an MP, and because his brother, Boris, has resigned his position under a recent cloud. Jo, as a previous long-standing education minister has established authority, is well connected, and he joins a powerful group of other ex-Ministers and education sector experts within the House of Lords that have demonstrated (e.g. during the Freedom of Speech Act’s passage and the recent Lords select committee inquiry into the OfS) that they’re willing to show their teeth and fully engage with their role to bring scrutiny to bear on the Government and operate the checks and balance functions within Parliament.

Back to Johnson’s four recommendations/reforms for the university sector:

Regulatory – universities are tightly regulated for domestic students but not international. Johnson believe the B3 conditions should be applied (and regulated) to international students too. Johnson suggested universities take not of the work which highlights the drop-out rates from certain countries – because the Government is taking note of this, and action may follow.
Universities should publish their international student recruitment plans as an annual counterpart to their domestic APP (Access and Participation Plan). This would allow the regulator (the OfS) to gain insight into the risks relating to international students and provide projections forecasting the national picture for international students across the HE sector. It felt it would also provide reassurance that the widening of international participation does not limit (or push out) domestic students.
Institutions and sector bodies should do more, through collection action, to weed out poor quality and fraudulent applications. Johnson felt universities need to urgently address this across the sector. He believes universities should raise the quality of applications by
1. charging an application fee for international students (Johnson stated the evidence is that higher fees result in higher enrolment rates and successfully counter the loss of time/money/staff resource tied up in processing applications for those that don’t ultimately enrol/turn up
2. that international fees should be paid up front
3. that international students should place their maintenance money into a specific type of account and draw it down across the year. Johnson believes this would address the fraud and lack of diversification in the system. Johnson also spoke of the low risk countries on the register and overcoming the issue of losing visa awarding powers due to number of refusals.
Finally, Johnson wants to see greater accountability for recruitment agents, to weed out the unscrupulous factions. Johnson suggests using VI data and requiring universities to publish non-continuation route and visa refusals by recruitment agent to identify, across the sector, the agents with concerning practices and performance. He felt this would allow institutions to gravitate towards agents supporting the UK university reputation. As Johnson spoke on this topic there was an undercurrent of expectation and onus on the university to be required to do this and a hint that it may be an area for future regulation/OfS scrutiny.

Throughout Johnson demonstrated that he was aware that universities may be reluctant because they don’t want to suffer a ‘first to move’ disadvantage. However, in his opinion the sector needs to urgently address his points and recommendations to stave off less favourable international student reforms in the future.

Baroness Diana Warwick who chaired the session stated she supported the international fee subsidisation of the teaching and how it enables a wider range of courses for domestic students without which institutions wouldn’t be able to support.

A second presentation at the conference by Matt Robb, from EY Parthenon, on Financial Sustainability was equally compelling. He highlighted that across the world there is a once-in-a-lifetime expansion in tertiary enrolment and, therefore, a strategic imperative to capture a significant enough proportion of the market share for international students before the expansion matures. Robb felt the UK needed to establish itself as a leading provider during this growth as the UK would not be able to regain its share once the maturation slow down begins.

highlighted that multiple countries are facing these issues. Alongside this he recognised the significant costs of transitioning to digital materials, which the UK was less prepared for. He highlighted how universities tend to respond when facing cost pressures, e.g. trimming the course portfolio, which is fine for a small financial squeeze but Robb suggested that over sustained time it led to underinvestment leading to weaker offers and poorer performance. He also highlighted how providers adapt e.g. strategic distinctiveness.

Robb made two key points for student planning. First, The medium to long term growth for the sector is in international students because the UK tertiary enrolment isn’t as high (or growing as much) as other countries – so there will be surplus demand in certain countries internationally. Robb reinforced the need to debunk the myth that international students are displacing domestic students to ensure policies remain favourable for international recruitment.

Second, the concentration of international students from particular countries will be really difficult for the sector to address. Robb gave the example of how affordable international education is within China currently (the Chinese economy is growing and limitations on the number of children mean two generations of a family’s income are available to support the one child to study abroad). Robb also address the elephant in the room – that outside of China one of the reasons why international students come to the UK is to secure work after graduation, and part time work to fund themselves while they are studying. He highlighted that those who are financially affluent already have access to their own very high quality domestic education – so few would want to study overseas. Robb stated that universities often limit recruitment to strong economies which further compounds the diversification issue and isn’t an access friendly policy. Robb felt a solution would be to use more agents to work into further and newer markets. However, he noted that the further flung the agent network the harder it would be to ensure receiving genuine and quality applications – so running counter to Johnson’s maintaining quality objective. Robb also acknowledged that Brexit continues to exacerbate the concentration (lack of diversity) issue.

Quick International News:

Minister Halfon commits via a Parliamentary Question (PQ) to ensure the visa changes relating to international students and their dependants will be watched to ensure the UK remains competitive in the international market for students. Halfon stated: The Department for Education will work closely with the Home Office, the Department for Business and Trade, and across other government departments, to assess the impact of these changes on research, science and arts in the UK.

Plus two more PQs confirm an equality impact assessment was carried out for the reform package, and that the Government cannot confirm the [overall] value of the immigration health surcharge fee,

Inquiries and Consultations

Click here to view the updated inquiries and consultation tracker. Email us on policy@bournemouth.ac.uk if you’d like to contribute to any of the current consultations.

New consultations and inquiries this week: Generative artificial intelligence in education.

Other news

Universities had a letter from the Department for Levelling Up, Housing and Communities about the Economic Activity of Public Bodies (Overseas Matters) Bill. Newly introduced, this is intended to fulfil “an important manifesto commitment to “ban public bodies from imposing their own direct or indirect boycotts, disinvestment or sanctions campaigns against foreign countries”.”

Student Loans: Martin Lewis, from Moneysavingexpert.com, has published a new blog: New student loans to cost many 50% more: 6 need-to-knows about ‘Plan 5’ English student finance running through the changes for English students commencing in September 2023 in his usual what-it-means-in-practice style.

HTQs: The DfE announced the second round of the Higher Technical Education Skills Injection Fund committing £48 million for higher technical qualifications (HTQs) across areas such as digital, engineering and manufacturing, and protective services in the 2024-25 and 2025-26 academic years. An additional 66 qualifications have also been approved as HTQs. Government press release here.

Short course trial: An update from Wonkhe – The Department for Education has updated its list of courses included in the higher education short courses trial, with two new courses added and two no longer running removed.

Policy campus: The DfE, Cabinet Office, Home Office and DWP are all cooperating to establish a Civil Service Policy Campus based in Sheffield. All the details are here, but in short it’ll pilot a regional fast stream, provide policy apprenticeships at level 4, offer policy internships and research projects for regional students, and work with Sheffield universities on policy research.

Creative: The Government published its creative industries sector vision. It plans to grow the creative industries by £50bn and support a million more jobs by 2030.

Graduate outcomes: HESA released the outcomes data for 2020-2021’s graduates.

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VC’s Policy Advisor Policy & Public Affairs Officer

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June 5, 2023

HE policy update for the w/e 2nd June 2023

international, NHS, policy, Research news, Student Engagement jforster

This is your half term catch up policy update.

Regulatory

OfS: Freedom of Speech

Following the passage of the new law, the OfS has announced the appointment of Professor Arif Ahmed as the first Director for Freedom of Speech and Academic Freedom. Professor Ahmed chose the Times to write about his appointment, so we turn to Wonkhe for a perspective. For Wonkhe, Jim Dickinson focuses on the potential conflicts and challenges with balancing free speech and academic freedom with equality rights, and as an example, highlights Professor Ahmed’s previously stated position on the IHRA definition of antisemitism, which conflicts with the government’s position (and specifically the position of the current Secretary of State for Education). You will recall Michelle Donelan getting herself in a muddle over this issue too. It’s going to be interesting to watch this unfold. As Jane learned a long time ago, hard cases make bad law…and it seems a lot of the cases are going to be hard.

The work of the OfS: Minister Halfon examined

The Lords Industry and Regulators Committee conducted it’s final session examining the work of the OfS by interviewing FE and HE Minister Robert Halfon alongside Anne Spinali, Director of Higher Education Reform and Funding at the DfE. Alongside the probe into the OfS the session is useful to highlight the latest ministerial thinking on the key issues facing the sector today.

HE Financial health

The Chair opened the session by highlighting the concerns the HE sector had reported over financial sustainability, loss of Horizon funding, dependency on international students and how these combine to create other vulnerabilities. Halfon listed the various income sources of HE institutions (e.g. tuition fees, other income, research grants, funding body grants, investment, donations and endowment) highlighting that universities get up to just under £40 billion…among 400 registered institutions. That is not a small sum of money…We also know that 75% of universities are in good financial condition. The question I would ask…is why the vast majority of universities are able to be in good financial health while a few are not… Later in the session he implied this is due to the management and leadership of these particular institutions.

Nevertheless, despite the challenges of Covid, the cost of living, energy bills and so on, on the whole, given the current context that we are in, HE—higher education—is not doing too badly financially. If you…look at the funding that HE has got compared to the funding that further education has got over the last few years, there is no comparison. Halfon also confirmed he thinks the OfS’ risk based approach to monitoring is the right approach and he continued his predecessor’s party line that The priority of the Government when it comes to financial difficulties at universities must be to look after the students. That is where I believe a government intervention would be, if there was severe financial difficulty for a particular higher education institution, to make sure that they had a provider to go to. Halfon also reminded the Committee that during Covid there was precedent through the HE restructuring fund. However, he also implied he didn’t subscribe to the concept that some universities were too big to fail and that he, personally, preferred mobile, agile universities.

Anne Spinali noted that some universities with financial concerns approached the DfE before they took the matter up with the OfS.

Financial sustainability came up time and again throughout the session, however, Halfon held firm that he thinks the sector is in a good position, even if time lags may be masking how many will become unsustainable in the medium term:

Given the current circumstances, given that universities get £40 billion from a variety of sources, given that 75% of them have a surplus and given everything else that is going on in the economy and the public sector, HE is in a fairly strong position compared with other parts of the public sector.
I will always welcome and champion more resources for HE and FE, of course, but I want more funding for skills… I want to ask, “What’s the best way to ensure that we have more qualified people who get good, skilled jobs at the end of their education?” That is the way I look at it. I look at it not as “university, university, university” but as “skills, skills, skills”.

On the freezing of tuition fees (and real terms decrease in their value): …if the economy improves, we get back into surplus again, we get rid of our deficit, we get down the £2 trillion debt and we pay back the £400 billion that we spent during Covid, maybe…we will have more money and will be able to increase tuition fees. However, I am not an advocate of increasing tuition fees. It would hit the student, importantly, at a time when things are very difficult. That does not mean that they are never going to go up but the approach of the Government has been the right one.

International Students – a conflicting view?

Halfon stated he is very supportive of international students. I think that they are a good thing…my wife was an international student. Halfon spoke of the benefits international students bring aside from finance they are examples of soft power as well as being worth 25 billion quid to our economy…I do not see having too many international students as a risk.

Halfon also stated he does not believe there is a dependency on international students and that their numbers will not decline:

Given that 76% of students are domestic, I do not necessarily think that it is the problem that some people view it as…I do not see this as a problem in the way that may be felt by yourself. It is a good thing, especially given the current financial context we are in.. It is worth £25 billion; the ambition is that it will be worth £35 billion by 2030. That is very significant. If you look at the cost benefit of those international students, it outweighs the issues you may raise, such as that we have an unsustainable model.
We also have a cost of living crisis. The last thing I can do is go and tell students that we are going to raise their tuition fees. I feel a lot of pressure in the House of Commons from Members on all sides about why we did not raise the maintenance grant or maintenance loan higher than we did… Nevertheless, you have to be fair to students and to the taxpayer.
Given the financial situation that we are in, if universities are getting cross-subsidisation from international students, that is not a bad thing. I agree with you that it is dangerous to rely on one or two countries. We are doing a lot of work on diversification there… I worry about dependency on one or two countries. A lot more work needs to be done.

Halfon reveals his preferred vision for future HE institutions

The underlying part of your question is perhaps not even about the loan system but about whether the funding of universities and their business model should be done differently. That may be right. It requires a lot of thinking and work to see whether the current system is sustainable…
…my dream university of the future is the Dyson Institute. The reason for that is that it has a business on-site. It does research. It does vocational degree apprenticeships. The people who complete them get jobs in Dyson afterwards. It is very agile; I would like to see a lot more of that. That is a sustainable model for the future. I also want to do more to encourage degree apprenticeships because, again, you then avoid the whole issue of tuition fees.
…my dream would be to have 50% of our students doing degree apprenticeships one day. They help the disadvantaged. They build our skills base. They guarantee jobs for people who complete them. Now, we have Russell group universities as well as traditional vocational universities doing them.
It is not just for STEM, by the way. You could have one easily in the creative industries. You could have the British Museum doing the same thing, for example, where people can study archaeology or curating or whatever it may be. If I was thinking of universities in the 21st century, it would be more on that model.
…the [Halfon’s] vision is clear: it is jobs, skills and social justice. It does what it says on the tin. In my view, apart from the stuff that it does brilliantly already—research, et cetera—the engine of HE should be geared towards those purposes. That is the strategy of the Government.

Regulatory burden

Anne Spinali: There is a difference between institutional autonomy being impinged and regulatory burden…Both the OfS and the department are absolutely clear that institutional autonomy is paramount. Whether the regulatory burden is proportionate is a question for the OfS. It has recognised that it could do more to tackle this and is actively looking at areas where it could reduce its regulatory activity by taking a more risk-based approach. Halfon felt the OfS regulatory requirements were not onerous for a university, but, that universities also fall under the regulation of a range of institutions are regulated by a range of organisations (page 16) whereas Halfon would prefer a more streamlined model. However, Halfon did express disapproval at the OfS digital uploading system: I definitely think that that has to go. On minimising regulatory burden we also heard that the Government are considering a third category of registration for the lifelong loan entitlement which draws on existing material to reduce the regulatory burden.

Halfon: In my view, it [OfS] should be there partially to protect the autonomy of universities. The Government do not always get their way. They [OfS] are perfectly able to refuse to adopt the guidance that we suggest.

Sector relations with OfS: In response to Lord Reay’s question of whether the OfS was distant and often combative and the HE relationship characterised by a lack of trust Halfon stated: there needs to be much more informal engagement between the OfS and HE because, in my six months in the job, that has come up time and again. That would be beneficial. To be fair to the OfS, it does a lot of round tables and a lot of events with universities. It is not perfect but, inevitably, you are going to have some difficulties because of what the OfS is tasked to do.

Value for money: Halfon – I have a really firm view: in terms of HE and value for money, it must be about outcomes and jobs with good skills and progression. Otherwise, if you do not achieve what you should afterwards, what is the point of spending all that time at university and taking out the loan? Halfon also mentioned transparency with fees and ensuring students understand what they are getting for their money on application, including in person teaching.

OfS fees: Halfon refused to be drawn on the 13% OfS fee increase. He stated OfS reduced their fees in 2021-22 but they are inevitably going to have to go up because of the QAA coming in but we are consulting with government and the OfS… We will make an announcement on it in the very near future.

The announcement came shortly after the session – we’ve covered it here.

Robert Halfon has also written to the House of Lords Industry and Regulators Committee giving further background and justification for Tuesday’s announcement of a sizable increase to OfS registration fees for 2023–24.

We also learnt, from Anne Spinali, that the DfE has quarterly discussions with the OfS on its efficiency, its spend and how it is discharging its responsibilities with regard to the spend. The economy, efficiency and effectiveness of the way in which it discharges its responsibilities, and what it does with its £26 million of fees, are monitored really actively. It is robustly challenged on resources associated with activities. It is a difficult challenge and discussion sometimes in terms of the level of resources needed to carry out the whole breadth of activities that the OfS has to carry out.

For more detail see the – Transcript, watch the session on Parliament TV or review the inquiry information.

Financial sustainability (OfS)

The OfS published their annual financial sustainability report updating on the financial health of the HE sector. If finds that university finances are generally in good order but that there are growing risks to the sector’s finances such as the over-reliance on international student recruitment, sustainability of pension schemes, investment in facilities and environmental policies and inflationary pressures. Belying this headline statement, however, is a more mixed picture of the financial performance of different universities. The OfS also wrote to 23 HEIs who have high student recruitment from China urging them to have contingency plans in place in case recruitment patterns change and there is a sudden drop in income from overseas students.

Income – sector growth across the next three years (£40.8 billion in 2021-22 to £50.1 billion forecast in 2025-26).
Improved cash flow and surplus, but the sector is forecasting a decline in financial performance and strength in 2022-23, with costs increasing at a faster rate than income and a significant dip in the income and expenditure surplus.
In 2021-22 total HE course fees and education contracts were reported at £22.5 billion (+8.8%). Fee income is forecast to increase to £29.3 billion by 2025-26, with a 17.5% forecast rise in student numbers between 2021-22 and 2025-26 across all levels of study. However, this trend varies significantly between different universities and colleges.
Total non-EU (overseas) tuition fee income was reported at £7.8 billion in 2021-22 (+25%). This is consistent with strong growth in overseas fees in recent years. Non-EU fee income as a proportion of total income is forecast to increase from 19.3% in 2021-22 to 24% in 2025-26, which the report states highlights the sector’s increasing reliance on fees income from non-EU students to sustain their activities.
Overall cash flow and short-term investments are reported as £16.6 billion for 2021-22 (+10% on 2020-21).

The key risks are:

impact of inflation on costs and challenges in growing income to meet increasing costs
increasing reliance on fees from overseas students in some higher education provider’s business plans, especially students from China or any individual country
challenges in meeting investment needs for facilities and environmental policies.

And it’s not all about China, the OfS says:

… Teaching-intensive providers can be particularly reliant on tuition fees from students. In recent years, many have successfully increased their recruitment of overseas students, particularly from India and Nigeria, onto postgraduate and undergraduate courses. These providers also face significant staff and pensions costs. In the event of a reduction in the total numbers of students coming to the UK from China, it may be that research-intensive providers are able to attract UK and international students away from teaching-intensive providers

In response to these risks and financial pressures the OfS says they anticipate providers may adopt certain behaviours (which they’ll be keeping an eye on if the impact on student choice and experience):

closing courses which are less financially sustainable
rebalancing recruitment from UK students to overseas students
reducing research activity where funding may not cover the full cost of research
pursuing strategic mergers and/or collaborations or sharing resources and centralising costs
changes to course delivery models – including standardisation in academic subjects, more online and distance learning
increases in specialisation – we may see a concentration of more providers with academic specialisms or niches, with the aim of reducing competition risks.
Seeking to diversify commercial income streams – from activity that is not teaching or research
reducing the size and complexity of estates

Susan Lapworth, OfS chief executive, said: Universities and colleges have weathered storms over recent years, and most remain in good financial health. This new analysis shows that they are confident that income and student numbers will continue to grow. However, cost pressures are having a substantial impact, with an expected reduction in financial performance across the sector in the short-term…‘For a small number of institutions the financial picture is of particular concern and we will continue to focus our attention on those cases. But all institutions will continue to face financial challenges, with a number of risks present at the same time for many.

…we continue to have concerns that some universities have become too reliant on fee income from international students, with students from one country sometimes a significant part of the financial model.

You may also be interested in this Research Professional article: A fine balance.

More coverage in: The Guardian, i News, and Wonkhe.

OfS Registration Fee hike

The Government has supported (and legislated for) an 18%[1] fee hike that universities will pay the OfS to maintain their registration as a provider of HE. Many institutions will now pay £170,344 each year and the largest universities will pay £214,485. Across all providers it will generate £4.96 million for the OfS. Universities Minister wrote to the House of Lords Industry and Regulators Committee (who are running an inquiry into the work of the OfS) to justify the increase. His justifications stated the OfS will be undertaking significant and important new work, including:

The implementation of the Higher Education (Freedom of Speech) Act 2023, to ensure that freedom of speech is protected and promoted within higher education (guidance, consultation on complaints scheme, developing new registration conditions and making changes to the regulatory framework)
Following the de-designation of the Quality Assurance Agency for Higher Education (QAA) as the designated quality body under HERA, the OfS has taken on functions relating to the assessment of quality and standards. his fee increase will enable the OfS to fund the infrastructure costs associated with the performance of these assessment functions
Preparing for the implementation of the Lifelong Loan Entitlement

Halfon stated: I want to assure you that the government has not taken this decision lightly. I understand the financial pressure the sector is currently facing. As a result, my Department will be providing £1.5 million of additional funding to the OfS this year, to help cover its costs and prevent these from being passed on to the sector in full. Earlier he reminded that the OfS has not had a registration fee increase since 2018, when it was set up, and delivered a 3% reduction in 2021.

Wonkhe say:

For a sector facing a real terms freeze in fee income it does feel a little tone deaf to be seeking an increase substantially above the rate of inflation.
To a sector struggling with soaring inflation, rising costs, and income streams that are at best stable this will be a difficult pill to swallow.
There were always limitations to farming the cost of regulation to providers that receive large amounts of their funding from the public purse – it is an inefficient model and one that has never met the running costs of the OfS. Announcing this in the current financial climate pours petrol onto the already flammable state of relations between the regulator and the sector it manages.

Once it’s published we’ll scour the Lords Committee report to see what their reaction to the fee hike is.

[1] Percentage rise in fees: Wonkhe modelling shows 18%, Halfon’s letter states 0-12% per provider

Graduate outcomes

HESA have published the Graduate Outcomes data for students who graduated in 2020/21. The headline is positive on full time employment (up 4%).

Of course, as we know, the OfS metric is “highly skilled employment and further study” – we will have to wait a bit longer for that analysis. Wonkhe have an article on why comparability of data on employment outcomes is a real issue.

International

International Students: Economic benefits

HEPI and partners published the third iteration of The benefits and costs of international higher education students to the UK economy. The research sought to quantify the economic benefits – less any costs – of international students and family members living and studying in the UK. The report demonstrates growth in the financial worth of international students.

The modelling includes tuition fee income, living expenditure, and indirect income from family and friends visiting the UK – tax revenue, longer-term investment, soft power, and cultural value are not included in the analysis.

4 in 10 first year students in London are international
Some areas benefit more financially from international students, outside of London this includes Glasgow, Nottingham and Newcastle.
On average, each parliamentary constituency in the UK is £58 million better off because of international students – equivalent to approximately £560 per citizen.
Even when accounting for dependants and other costs, international students are a huge net contributor to the UK economy. Every 11 non-EU students generates £1 million worth of net economic impact for the UK economy.
The estimated total benefit to the UK economy from 2021/22 first-year international students over the duration of their studies was approximately £41.9bn, while the estimated total costs were £4.4bn. This implies a benefit-to-cost ratio of 9.4.
The net economic impact per student was estimated to be £125,000 per EU domiciled student, and £96,000 per non-EU student. In other words, every 9 EU students and every 11 non-EU students generate £1m worth of net economic impact for the UK economy over the duration of their studies.
Reflecting the 40% increase in the number of international students between 2018/19 and 2021/22, the net economic impact has increased from £28.2bn for the 2018/19 cohort to £37.4bn for the 2021/22 cohort (a 33% increase in real terms). The impact has also increased by 58% in real terms since 2015/16 (from £23.6bn in 2015/16 to £37.4bn in 2021/22).

The Russell Group published their response to the report.

HEPI also have some short commentary setting out the policy position on each of the areas of contention for international students.

Growth in international student recruitment:

The UK is an attractive destination for international students because of the global recognition of UK qualifications, teaching in English, and our one-year Masters courses are particularly popular.
Between 2010 and 2016, there was no growth in international student numbers, as Home Office policies worked to limit incoming students.
In 2019, the Government launched the International Education Strategy with a national target to increase the number of international students in the UK. The target was exceed well ahead of the deadline.

Post-study work visas: Post-study work rights were introduced in Scotland in 2005, adopted UK-wide in 2008, abolished in 2012, reintroduced in 2021, and the certainty of their future is…well…uncertain. HEPI write: post-study work rights affect the pipeline of talent flowing into the UK as well as the ability of employers to find and recruit the high-level and niche skills they so desperately need.

Diversifying student cohorts: institutions have been expected to widen their geographical base beyond China and East Asia…institutions have sought to broaden their intakes by recruiting more international students from other parts of the world, especially India and Nigeria. Yet the response of policymakers to this shift has not always been positive, for example because students from these regions are typically older and have a higher likelihood of bringing dependants with them.

International Students: Dependants’ visas

It was been trailed for weeks and finally we’ve had the official announcement that taught postgraduate students will not be permitted to bring their dependants into the country. This decision is part of Home Secretary, Suella Braverman’s, measures to reduce net migration. Here are all the measure in brief:

Removing the right for international students to bring dependants unless they are on postgraduate courses currently designated as research programmes.
Removing the ability for international students to switch out of the student route into work routes before their studies have been completed.
Reviewing the maintenance requirements for students and dependants.
Steps to clamp down on unscrupulous education agents who may be supporting inappropriate applications to sell immigration not education.
Better communicating immigration rules to the higher education sector and to international students.
Improved and more targeted enforcement activity.

The restrictions commence in January 2024, impacting the January starters in the 2023/24 academic year.

Braverman stated:

Around 136,000 visas were granted to dependants of sponsored students in the year ending December 2022, a more than eight-fold increase from 16,000 in 2019, when the Government’s commitment to lower net migration was made
We are committed to attracting the brightest and the best to the UK. Therefore, our intention is to work with universities over the course of the next year to design an alternative approach that ensures that the best and the brightest students can bring dependants to our world leading universities, while continuing to reduce net migration. We will bring in this system as soon as possible, after thorough consultation with the sector and key stakeholders.
This package strikes the right balance between acting decisively on tackling net migration and protecting the economic benefits that students can bring to the UK. Now is the time for us to make these changes to ensure an impact on net migration as soon as possible. We expect this package to have a tangible impact on net migration. Taken together with the easing of temporary factors, we expect net migration to fall to pre-pandemic levels in the medium term.
…The Government will seek to continue to strike the balance between reducing overall net migration with ensuring that businesses have the skills they need and we continue to support economic growth. Those affected by this package will predominantly be dependants of students who make a more limited contribution to the economy than students…

Read more: The BBC have coverage of the announcement, Wonkhe have a blog: everything we know about the new plans, i News has an opinion piece and there’s are parliamentary questions – Overseas student visas and adequacy of support for families moving on a student visa.

Research Professional cover the latest Transparent Approach to Costing (Trac) statistics which they state reveal just how reliant higher education institutions are on fees from overseas students in Deficits grow for research and teaching home students. Wonkhe cover the same topic with a different take: David Kernohan is depressed by how little we know about how much it costs universities to provide higher education. Also, an interesting exchange on the topic during Urgent Questions in the House of Commons on Wednesday. Do give it a read if you’re interested in this area.

More broadly on international student benefits is this Wonkhe blog: International and transnational education bring cultural, economic, and reputational benefits to the UK. University of London vice chancellor Wendy Thomson asks why the government isn’t over the moon.

Finally, the Government has now published the latest migration figures for the year ending March 2023. Total long-term immigration to the UK was around 1.2 million in 2022, and emigration was 557,000, so net migration settled at 606,000 (source). There is quite a lot of information of interest relating to students spread across multiple sources so we’ve popped it into this separate document. It covers the facts on study visas, extensions of temporary stay, and the migrant journey (who arrives, how long they stay, and when they leave). Enjoy!

International: Confucius Institutes

If you followed Rishi’s leadership campaign with an avid eye you’ll have spotted he committed to closing the 30 Chinese state-sponsored Confucius Institutes across the UK. However, the Government have U-turned stating it would be “disproportionate” to ban the institutes. Some Conservative Members have been outspoken in their disapproval of the U turn.

Dods report that Chair of the Foreign Affairs Committee, Alicia Kearns hit out in response to the news arguing that powers established recently under the new Higher Education (Freedom of Speech) Act 2023 “must be deployed if evidence of free speech stifled by CCP indoctrinators on our campuses.”

The BBC have a write up, including this from the Government:

We recognise concerns about overseas interference in our higher education sector, including through Confucius Institutes, and regularly assess the risks facing academia.
We are taking action to remove any government funding from Confucius Institutes in the UK, but currently judge that it would be disproportionate to ban them.
Like any international body operating in the UK, Confucius Institutes need to operate transparently and within the law, and with a full commitment to our values of openness and freedom of expression.

As we mentioned earlier, this week the OfS wrote to 30 UK HE providers regarding their high recruitment levels of Chinese students. The letter advised contingency planning should a drop in income occur suddenly. Also, the OfS published their annual financial sustainability report (we’ve explored it here.)

Research

Health Security: The UK Health Security Agency (UKHSA) published a 10-year strategy detailing how science can save more lives and contribute to the UK’s ambition to be a global science superpower. It highlights how UKHSA’s scientific capabilities (including genomics, vaccine evaluation, surveillance, data science, diagnostics and toxicology) will be deployed to prepare for future health security hazards, respond to current threats, protect livelihoods and build the UK’s health security capacity. More here. UKHSA have stated they are actively seeking partners across government, industry and academia in pursuit of the ambitions in this Strategy.

Concordats: The second phase of the (UUK, UKRI & Wellcome Trust) Concordats and Agreements Review has reported, much shorter info here.

Net zero: The National Audit Office published Support for innovation to deliver net zero. The report addresses the approach in the £4.2 billion investment in research and innovation to deliver net zero. It argues that further action is needed to strengthen governance and delivery mechanisms to achieve value for money.

UKRI: UKRI launched a stakeholder perceptions survey which they state will act as a benchmark for the funding body to understand how their stakeholders perceive UKRI and its role within the system. The survey is here.

Research infrastructure: DSIT and UKRI announced details of the £103 million investment to expand and upgrade the UK’s research infrastructure. It’s not all new money, the funding divides as:

£79.3m as part of the £150m announcement, to address the impacts of the ongoing delay in UK association to the EU’s Horizon Europe programme
£23.7m as part of the £370m announcement to forge a better Britain through investment in science and technology

The 13 universities who will receive the equipment/lab investment have already been chosen. More on the funding here.

Windsor Framework: Responsibility for the delivery of the Windsor Framework will be transferred from the Foreign, Commonwealth and Development Office to sit alongside the existing Northern Ireland Unit in the Cabinet Office. The Foreign Secretary remains responsible for UK/EU relations and will continue as co-chair of the Trade and Cooperation Agreement Partnership Council and Withdrawal Agreement Joint Committee – the body that oversees the UK and EU implementation of the Withdrawal Agreement.

Parliamentary question on research infrastructure: increasing public expenditure on R&D to £20 billion per annum by 2024/2025. The total allocation for UK Research and Innovation over the period 2022-2025 is £25.1 billion. This includes £3 billion of investment in infrastructure projects, including £481 million for the new UKRI Infrastructure Fund. This will finance cutting-edge research infrastructure, delivering a step-change in the capabilities available to the next generation of researchers and innovators whilst supporting scientific breakthroughs.

Statutory duty of care for HE students

The House of Commons Petitions Committee held three sessions on the proposed statutory duty of care for HE students. Witnesses included Lee Fryatt, the petition creator, people with lived experience, representatives from Student Minds, NUS, PAPYRUS, AMOSSHE and UUK among others.

The Committee sessions explored whether universities should have a statutory duty of care to protect students at risk of suicide or other serious mental health problems. The sessions included advocacy for the duty of care; the reason for student suicide and views on the proposed statutory duty of care; and questioned sector representatives on their views plus the efficacy and future trajectory of existing suicide prevention and mental health frameworks. We have a summary of all three sessions here.

In advance of the session the House of Commons Library provided a briefing on student mental health.

Also on mental health from Wonkhe: The proportion of higher education providers with a mental health or wellbeing strategy increased from 52 per cent in 2019 to 66 per cent in 2022, according to a report from IFF Research for the Department for Education. 66 per cent of higher education institutions had a policy on student suicide prevention, alongside 54 per cent of FE colleges and just 42 per cent of private providers. On the site today I consider the report in light of calls for a statutory duty of care.

Student loan cap – 7.1%

Following the market rate fluctuation the Government has announced the student loan interest rate cap will now be 7.1% for all plan 2 (undergraduate) and plan 3 (postgraduate) loans, and plan 5 (undergraduate) loans. This applies until 31 August 2023 (or until future market changes prompt an announcement on a new cap level). You can see how 7.1% compares to previous in the written ministerial statement. The student loan interest rates from September 2023 will be announced closer to the time.

Access & Participation

TASO published the summary report Evaluating multi-intervention outreach and mentoring programmes with the aim of advancing the evidence base and improving practice across the sector. Recommendations:

Universities should adopt TASO’s Mapping Outcomes and Activities Tool (MOAT),
Multi-intervention outreach incorporates multiple elements. To rigorously evaluate the impact of these programmes, HEPs should identify the value of each element by using TASO’s Enhanced Theory of Change tool to map how it is anticipated that individual activities will influence outcomes.
Also multi-intervention outreach programmes may be reaching students who are already highly likely to enter HE and highly selective universities. They further suggest that the true value of the programmes may lie in informing student choice about where and what to study, rather than whether to attend. Better pre-entry preparation may also result in higher rates of continuation and success once on the course. HEPs should scrutinise the rationale and assumptions behind their programmes to ensure that evaluation outcomes are well-matched to the activities they run
Use behavioural and survey outcomes to mitigate for low response rates/small samples
To improve response rates, HEPs should offer appropriate compensation to thank students for their time, such as entry into a prize draw or a small value voucher
HEIs should use local evaluations as a blueprint to explore randomised controlled trials and quasi-experimental designs as part of their evaluation approach for multi-intervention outreach

And there’s another report: Understanding online mentoring delivered as part of multi-intervention outreach programmes

Wonkhe summarise both reports: Three randomised controlled trials at universities in England found that the programmes did not have an effect on student enrolment into higher education, though a final evaluation is still forthcoming. A separate study of online mentoring as part of outreach found that engagement with such programmes should not only be measured by the number of messages participants send – number of days engaged was a more robust measure.

Increasing access to HE

The OfS has published two reports on increasing access to HE covering collaborative partnerships and an evaluation of Uni Connect phase 3. You can read a summary of both here.

Labour’s Policy Programme

After the clearest indication yet from Keir Starmer a few weeks ago that the Labour policy on abolishing fees was going to be dropped, when he announced a “review” with the aim of finding an arrangement that would be fairer, the party have now made an interim announcement that they would reverse the latest changes, which will apply to students who start university in September – the bigger review of policy is still ongoing.

The Guardian piece quotes from a Times story that is behind a paywall:

Labour has promised to reverse changes to the student loan system being plannedby the Conservative government in a way that could reduce monthly repayments for graduates.
Bridget Phillipson, the shadow education secretary, said on Friday the tuition fees system was “broken”, but repeated the insistence by her party leader, Keir Starmer, that Labourwould not be able to afford to scrap fees altogether.
Starmer’s decision to drop the promise to end feessparked anger among students and on the Labour left. But Phillipson’s comments in the Times give the first sense of how the party may seek to win those voters back. Phillipson said: “The Conservative tuition fees system has long been broken, and their latest set of reforms will make it worse.”
She added: “Plenty of proposals have been put forward for how the government could make the system fairer and more progressive, including modelling showing that the government could reduce the monthly repayments for every single new graduate without adding a penny to government borrowing or general taxation – Labour will not be increasing government spending on this.”
Under the plans announced by the Treasury last year, graduates will have to start repaying their loans when they earn £25,000, rather than £27,295, and will have to continue repaying for a maximum of 40 years rather than 30. Interest rates will be cut for new borrowers and tuition fees capped at £9,250 for another two years.
The measures are predicted to double the number of graduates who pay off their loans in full, and save the government tens of billions of pounds. But lower earners will have to pay significantly more, thanks to the reduction in the lower repayment threshold.

Labour published their draft policy programme. It’s best thought of as a pre-manifesto but two steps removed. Within it, of interest to HE, is:

Give genuine choice of further and higher education

Ensure all learners have a genuine choice of first class further and higher education
Encourage a thriving college and independent training sector that can provide high quality vocational courses, including apprenticeships, fosters a love of learning, links students with exciting job opportunities through excellent careers advice, and works with businesses to meet local skills needs.
Reform broken tuition fees system for university funding, ensuring that people from every background and all parts of our country have the opportunity to study at Britain’s world-class universities

Work with businesses, workers, and universities to grow the high-tech, competitive industries of the future:

Ensure our world-class researchers and businesses have the data and computing infrastructure they need to compete internationally
Ensure our intellectual property system is fit for the digital age
Look at ways to close the digital divide. Improve digital education in schools and upskill the workforce

Introduce an industrial strategy and support firms

Introduce an industrial strategy based on a genuine partnership with businesses, workers, unions and universities, with four central goals: delivering clean power by 2030, caring for the future, harnessing data for the public good and building a resilient economy
Aim for at least 3% of GDP across the public and private sectors to be invested in research and development
Ensure the funding system can act with the agility, speed and predictability required to win the race for the industries of the future

Deliver landmark shift in skills provision

Deliver a landmark shift in skills provision and give people the tools they need in the workplaces of the future
Devolve adult education and skills budgets; reform the apprenticeships levy into a ‘growth and skills levy’ across all nations
Establish a new expert body – Skills England – to oversee the English national skills effort of the coming decade, which will pull together the expertise of trade associations, employers from large and small companies, representatives of trade unions, central and local government and further and higher education

Tackle NHS staffing issues

Double the number of medical school places to 15,000 a year
Train 10,000 new nurses and midwives each year
Double the number of district nurses qualifying every year
Train 5,000 new health visitors a year

Also Labour favours economic devolution, voting for 16 and 17 year olds, and abolishing the House of Lords.

There’s also a relevant Wonkhe blog: A Labour government may not mean the sector relationship reset that many are hoping for. Public First associate director Jess Lister cautions against raising expectations.

Inquiries and Consultations

Click here to view the updated inquiries and consultation tracker. Email us on policy@bournemouth.ac.uk if you’d like to contribute to any of the current consultations.

Other news

Campus fatigue: The QAA published Student experience and expectations of teaching and learning relating to post-pandemic students and trends. Wonkhe have a neat synopsis on part of the report: The pandemic appears to have created a “fatigue” amongst students to proactively engage with enrichment activities traditionally linked to campus life, student halls or SUs. It has also caused many students to feel isolated and to miss out on developing peer group friendships and relationships with academics, triggering an increased demand for mental health and well-being support… half of survey respondents found it not at all or only slightly important to spend time at university outside of timetabled hours – students most commonly were on campus two or three times a week, with 15.1 per cent having a commute of between one and two hours, and 4.4 per cent more than two hours.

Student rentals: Wonkhe – A renter’s reform bill has been published – and given the good news for tenants, some fear landlords will sell up. Jim Dickinson weighs up their case.

Apprenticeships: Wonkhe – The total number of apprenticeship starts has fallen significantly since the introduction of the Apprenticeship Levy, according to new analysis published by think tank Policy Exchange. Since 2015, the number of apprenticeship starts for 16-18 year-olds has fallen by 41 per cent, for 19-24 year-olds by 31 per cent, and 26 per cent for those over 25 years old. The sharpest falls recorded were for those from economically disadvantaged backgrounds… The authors do not believe that the sharp decline in starts is due to a lack of demand… Instead they point to a lack of supply, and a lack of transparency and poor understanding of the levy’s purposes – leading to a significant amount of the Levy returning to the Treasury rather than being spent on apprenticeships. They argue that for businesses to make better use of the levy system, there needs to be more flexibility, shorter courses, and less bureaucracy.

Working conditions: HEPI published a new report benchmarking the pay and benefits of academics and exploring whether academics have better or worse working conditions than other professionals.

Free Speech: Research Professional – News is out on the “chilling effect” of university failures to support free speech on campus. The Office for Students released yesterday its update on institutions’ compliance with the Prevent duty to monitor potential radicalisation on campus. And this includes figures on the number of speakers and events cancelled over the past year. See this Research Professional article: Fewer than 1% of English university speakers ‘cancelled’.

The latest OfS data show that during 2021-22, some 31,545 speakers or events were approved in English universities and colleges, and 260 planned events did not go ahead—just under one per cent of the total. Another 475 went ahead with some mitigation.

Most [of the events that did not go ahead] were rejected for procedural reasons, such as failing to submit a request on time. David Smy, director of monitoring and intervention at the OfS, said: “While this data suggests that the overwhelming majority of events with external speakers went ahead as planned—which is welcome—the data may not provide the full picture. The data does not capture decisions not to invite speakers in the first place or voluntary withdrawal of requests for approval. We recognise that this could be masking cases where event organisers or speakers feel unable to proceed with the event they had planned.” Surely the OfS is not about to make use of new advances in artificial intelligence that make mind-reading a possibility?

Transnational education: OfS published an insight brief on Transnational Education. In 2021-22, 146 English universities and colleges taught 455,000 students outside the UK. 69% were undergraduates, 31% were postgraduates.

27% were taught by overseas partner organisations
25% were taught by distance, flexible or distributed learning
6% studied at English universities’ overseas branch campuses
42% were covered by other arrangements, including collaborative provision.

52% lived in Asia – 61,505 (14% overall) were based in China. Malaysia (9%) and Sri Lanka (8%) had the second highest proportion of students.

Lots more interesting content in the full insight brief.

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May 2, 2023

HE policy update for the w/e 28th April 2023

EU, Industry collaboration, innovation, international, parliament, policy, research governance, Research news, Student Engagement jforster

Tuition fees – here to stay?

Sir Keir Starmer has announced that Labour are reviewing what to do about tuition fees if they win the general election next year (widely expected in autumn 2024, latest it can be is January 2025) giving a clear indication in an interview on BBC Radio 4 that the previous policy of abolishing fees will not survive because of costs concern. The narrative was all about replacing it with something fairer – does that mean a graduate tax is the most likely outcome (which is, arguably what we already nearly have). He also acknowledged that the current system is not working for universities, although a blanket freedom to raise fees, or even an increased cap, might not be what he meant. They will be doing a review ahead of publishing their manifesto – so more news to follow.

Nurse Review: RDI organisational landscape report

The Government published Sir Paul Nurse’s final report on his Research, development and innovation (RDI) organisational landscape: an independent review. It’s a 163 page behemoth that was commissioned in 2021 to identify strengths and weaknesses, and to make recommendations for improvement of the RDI landscape, with a primary focus on researchers and RDI funded by the public purse. It also comments on how the various RDI organisations interact with and support industry, commerce, and society more generally.

It speaks of a patchwork of funders and sometimes short-term public policy priorities and initiatives. These are part of the significant problems that the Nurse Review identifies and Sir Paul calls for the governance to step away from further piecemeal changes and urges Government to consider the Review as a whole rather than a pick and mix assortment to be selected from. Government has a very important long-term role to play in bringing this about. It will require increased investment, reduced policy volatility, a clear focus on optimising and implementing change, good data collection, and a long-lasting, consistent, systematic approach to policy development and safeguarding of the RDI landscape.

Concerns include

underinvestment in R&D (confirmation of R&D spend figures due late 2023).
ensuring the pursuit of research is the pursuit of truth. Recommendations aim to strengthen: high research quality; agility and flexibility in approach; permeability between sectors, disciplines and organisations; transparency and navigability for those seeking to engage with R&D; a skilled workforce; inspirational leadership; a good research culture embracing ethical behaviour; strong international collaboration; and financial sustainability.
political interest can have the unintended consequence of driving policy volatility and short-term policymaking, and recent years have seen an increasing turnover of new initiatives, schemes and programmes which are not always properly integrated with one another. This undermines development of RDI, particularly within the application part of the research spectrum, which can have a negative effect on private investment.
The UK RDI landscape is hard to navigate – defects in permeability and inter-sectoral collaboration may be contributing to the UK’s present weak productivity.
the financial sustainability of public research funding – The future success of UK RDI is explicitly contingent upon the Government’s commitment to grow investment in RDI. There is a pressing need for more complete ‘end-to-end’ funding of research activities beyond Independent Review of the Research, Development and Innovation Organisational Landscape 8 direct research costs, including adequate support for administrative services, sophisticated technical cores and facilities, and for ‘well-found’ laboratories
university research has been sustained partly through increasing reliance on cross-subsidy from commercial sources – The excellent UK universities should receive increased support for the outstanding research they can deliver, to ensure that they are competitive with universities in other countries
Excessive bureaucracy – Checks and balances on organisations using public research funding are important, but the operations of research funders and RPOs are hindered by excessive bureaucracy, with too much emphasis on audit-oriented reviewing and reporting rather than the quality of the research being produced…Much of this bureaucracy has its origin in Government controls and rules, particularly from the Treasury…These ways of working, combined with deficiencies in ‘end-to-end’ research funding have led to long-standing inefficiencies, wasting both money and researchers’ time. The problem of excessive bureaucracy has also been independently verified by the 2021 Review of Research Bureaucracy, led by Professor Adam Tickell, and the 2022 Review of UK Research and Innovation (UKRI), led by Sir David Grant.

The report concludes:

The financial sustainability of the public research funding for universities needs to be urgently addressed. ‘End-to-end’ research support has four components: direct research costs; administrative services; technical facilities; and laboratory facilities. The present funding arrangements do not provide adequate support for all these components, and need to be overhauled to ensure that they do so. Proper ‘end-to end’ funding is required in universities to fully support research activities with mechanisms that do not have perverse incentives or outcomes, and that better consider the quality and not just the quantity of research delivered. There needs to be a detailed review of response-mode and competitive grants, full Economic Costing (fEC) and Quality-related Research Funding (QR), and where necessary, these funding mechanisms should be reformed or replaced. The present underpinning of UK university research by other commercial income sources, notably fees paid by international students, is valuable, but care is needed as such sources are not always reliable and sustainable.

Government response

Michelle Donelan wrote to Sir Paul to warmly welcome the report:

the importance of this Review cannot be understated. You have eloquently demonstrated the potential that science, innovation and technology have to change our world and improve all of our lives. To maximise these benefits you make a strong case for the vital role of effective leadership and co-ordination. I strongly agree, and this is why the Prime Minister has recently established a new department in the Department for Science, Innovation and Technology. I am delighted to have the privilege of leading the department to deliver on the UK’s mission to become the most innovative economy in the world and a Science and Technology Superpower. I am confident that this Review will play a foundational role in shaping and delivering that vision. I look forward to working with you to ensure the UK can be at the forefront of critical and emerging fields of science and technology.
My department will swiftly respond with a package of measures that take account of your advice and I hope to publish that shortly. I am confident that the report’s recommendations offer important ways to further support the world-leading research organisations based in the UK, future-proofing the existing system and helping to support important societal goals around net zero and improving the nation’s health.

The Government also confirm here that they will respond to the [Nurse] Review’s recommendations in the coming months.

Recommendations – full list

Government should take account of the true cost of ‘end-to-end’ research activity to generate a sustainable RDI endeavour.Government, working with UKRI and the UK higher education funding bodies, should review and when necessary reform competitive and response-mode grant funding, QR (and Devolved Administration equivalents), and full economic costings (fEC), and replace them with improved mechanisms. Overall objectives should be to optimise research delivery, remove perverse incentives and outcomes, and ensure the longer-term sustainability of the research system.
Universities should develop plans to optimise their operationsin support of research, to empower researchers and reduce their administrative loads, and to improve the quality of support services, core technical facilities, and well-found laboratory buildings and infrastructures. Government, working with UKRI, the UK higher education funding bodies and the wider sector, should consider more transparent mechanisms to provide assurance and accountability on QR funding.
Government departments should clarify the missions of their individual public sector research establishments (PRSEs), allow them greater freedom of action, and ensure their effectiveness.Departments should improve internal awareness of PSREs’ capabilities, and use PSREs to inform RDI strategy and policy making, working within and across departments. Permeability and agility would be further improved by increasing the visibility, interactions and partnerships between PSREs, and between PSREs and the rest of the RDI landscape, including commercial organisations. Funding streams for PSREs need to be protected and reformed to ensure long-term sustainability. Constraints, which appear to have their origins in the Treasury, over funding, pay and other conditions of working should be reduced. The reforms of funding proposed for the universities should also be applied to PSREs. PSREs should be stringently reviewed, and those that have outlived their purpose or are not working effectively should be reformed, reduced or closed, and any savings generated recycled into Government R&D budgets.
Institutes and units need sustained financial support, including un-hypothecated funding, to ensure ‘end-to-end’ research support.The funding arrangements of recently established institutes and units, particularly the ‘hub and spoke’ models, must be reviewed to make sure that they are fit for purpose. The reforms of funding proposed for the universities should also take account of the needs of institutes and units. Institutes and units need a well-defined mission and purpose, and should be given the autonomy and funding necessary to achieve their objectives, which may be time limited. There need to be clear and agreed mechanisms by which institutes and units can be adapted, reduced or closed when necessary.
Institutes and units must have high quality administrative as well as scientific leadership.They generally benefit from being co-located with other research performing organisations (RPOs), but if their overall administration is the responsibility of another co-located or funding organisation, rigorous contractual arrangements must be in place to ensure independence of operation and quality of service.
New research institutes and units should be considered when strategic RDI priorities best supported by focused research missions are identifiedby Government, UKRI and other funders. Possible examples include enhanced activities in climate change and its mitigation, antimicrobial resistance, synthetic biology, and artificial intelligence. Themes should be identified through mapping and reviewing, taking account of emerging technologies, scientific areas, and Government priorities. Pre-existing institutes and units could be merged and expanded to create new institutes, and consideration should be given to co-location and co-funding with other RPOs. Establishment of new institutes and units should follow the principles outlined in the Review.
Government and the charitable sector should work togetherto ensure that ‘end-to-end’ funding is provided for research supported by philanthropy.
Support for research undertaken by galleries, libraries, archives, museums, and the heritage and cultural sectors should be increased, and support for long-neglected collections-based research put in place.
Coherence between translational research organisations, including those embedded within other RPOs, and the rest of the landscape should be increased.Government is advised to optimise translational research organisations by increasing their number, widening access and promoting the benefits of translational research capability, including regionally. Government should explore routes by which RPOs across the RDI landscape, including PSREs, can contribute to translational activities.
Government should use its convening power to create a favourable environment for business to invest in RDI, tackling causes identified by this Review as holding back further business investment, and where expedient, providing financial support. Examples of such support are funding which leverages private investment or promotes collaboration between industry and the rest of the RDI landscape.
To understand the benefits of RDI for commercial activities and the economy, a culture change promoting openness, mutual respect, closer interaction, collaboration, and permeability of ideas, technologies and people has to occurin both business and academia. Government has a role in conveying the benefits of RDI investment to businesses, shareholders and academia, embracing practices from countries with high business RDI investment rates. Mechanisms to deliver this should be explored and implemented.
Government should take particular responsibility for driving RDI that provides societal benefit as well as economic growth.Examples are health care delivery, equitable regional economic growth throughout the UK, and the delivery of net zero. Where appropriate, public-private partnerships should be encouraged.
Government and RPOs should partner with local communities to support RDI relevant to their needs, to bring about more equitable regional economic growth based on local expertise and demands and driven by community benefit as well as academic criteria. Universities and other RPOs should support their local community and economy by enhancing their role as an information nexus and by helping local industries link to research capabilities wherever they are in the UK.
There is an urgent problem with the current mechanisms for clinician scientists to effectively develop and undertake their research careers.The Government, taking into account devolved competencies, must rectify this to both improve the ability of the NHS to deliver more effective health care and to help the UK economy.
Government must work with UKRI and the wider RDI community toconsider more stable and properly costed funding structures, aimed at ensuring the quality of the existing landscape and its sustainability.
Government must increase its long-term commitment to invest more in RDI.In addition to reviewing incentives in public funding for university research, Government should review the balance of funding across the landscape, and explore how planned increases in RDI public funding can provide more un-hypothecated core funding for RPOs to allow them to deliver their mission more effectively, to promote collaboration and interaction across RDI sectors, and to empower local RPO leadership and researchers.
Government should ensure that international collaboration is protected and encouraged, and should resolve problems damaging the UK RDI landscape’s international links. This is particularly relevant to our close scientific collaborators in the EU, and it is essential that the UK associates with Horizon Europe. Government should take action, including consultation with devolved administrations, if its broader policy objectives on areas such as immigration, ODA and education are hindering wider objectives for long-term RDI policy. The UK should consider opportunities to hostnew intergovernmental multinationally funded institutes and international research infrastructures.
DSIT should define the overall architecture and governance for cross-Government RDI policy, setting out accountabilities from Cabinet and below. This should include the National Science and Technology Council (NSTC), as well as other key RDI spending departments, UKRI and other funders, to ensure roles are complementary, and to improve alignment on policies.
From Cabinet level downwards, all interested parties in Government must take responsibility for the high level and effective safeguarding of the future success of the UK RDI landscape.This oversight should include an authoritative working group set up by DSIT, operating across Government, the RPOs and the funding organisations, which will take long-term responsibility for implementation of the recommendations of this Review.
Government should establish a research vision and strategy including long-term programmatic, infrastructure and technological initiatives, which is especially relevant at the applied end of the research spectrum. This will give RPOs, investors and global companies the confidence to invest, operate and interact with the UK RDI landscape.
Government needs to develop effective mapping of UK RDI, covering the missions, financial investment in different sectors, research capabilities, and locations of RPOs, and also monitor international RDI activities to identify successful features and models. DSIT, working with UKRI and other interests across Government, could carry out this function. An agreed shared picture of the RDI landscape should be produced, together with a commitment to regularly update it.
Government should increase efforts to link the different elements of the UK RDI landscape together with the commercial, industrial and societal components that benefit from research.To spread the benefits of research through communities across the UK, partnerships, collaborations and interactions must be built so that all components are mutually aware, and permeable with respect to ideas, information, technologies and people.
Government must replace frequent, repetitive, and multi-layered reporting and audit by Government departments and UKRI with a culture of confidence and earned trust, as also referenced by the Independent Review of Research Bureaucracy. Reporting and reviewing of RPOs should focus on the quality and appropriateness of the research being carried out. The framework by which ARIA will operate should be applied to other components of the RDI landscape.
Public sector controls which reduce the agility and performance of RPOs need to be reformed.Salaries must be internationally competitive. Where Government-imposed pay limitations are damaging the mission of an RPO, they must be revised, and the decision-making mechanisms made more flexible.
Government should ensure that there is a well-trained RDI workforce available at all levels, and long-term educational planning to ensure a future pipeline of researchers and technicians.Career pathways for those roles that underpin effective research delivery, including technicians and project and programme managers, should be strengthened so the importance of these roles is better recognised. Training and career structures for early career researchers, including PhD students, post-doctoral researchers and starting faculty, need to be reviewed and reformed. Career path diversity and permeability between different RPOs should be encouraged.

Blogs:

The independent Nurse review of the research, development, and innovation landscape recommends that everything makes sense. Debbie McVitty wonders if that’s too much to ask.
The new Department for Science, Innovation, and Technology is proposing another in a series of grand government statements on research and innovation. James Coe finds what is newand also reflects on the Nurse review and how it might impact on research culture.
The Russell Group’s Sarah Stevens takes a look at the Nurse reviewin the context of Horizon Europe and sustainable research funding.

Parliamentary News

Ministerial Change: Michelle Donelan has temporarily stepped away from her role as Secretary of State for Science, Innovation and Technology for her maternity leave. On leaving Donelan tweeted a series of items to highlight the achievements she and colleagues have accomplished whilst she has been in role. It’s a quick reminder on the latest Government policies within science and tech.

Donelan’s SoS role is being covered by Chloe Smith (former work and pensions secretary). Chloe is the daughter of a teacher (mum) and furniture designer (dad). She is a graduate of York University and has held school governance roles. Chloe worked as a Business Consultant for Deloitte UK. She sees herself as a progressive Conservative and is a member of the Tory Reform Group (more on the Left of the Party), voted to Remain in the EU and has announced she will not seek re-election as a MP at the next general election.

Free Speech – imminent: The Free Speech Bill will return to the Commons following the latest Lords amendments on Tuesday 2 May. At a Westminster event last Wednesday a Parliamentarian indicated that this could be it and the Bill may well soon become an Act. There is still widespread concern about the Bill within the sector, primarily because it is unclear how the different provisions within the Bill, such as academic freedom, will play out in practice. The Westminster event highlighted that even Parliamentary Members, expert sector and legal bodies, and University representatives do not interpret aspects of the Bill in the same way. The Bill adds to a complex legislative background where many other Acts influence the ‘ins’ and ‘outs’ should the Free Speech Bill be enacted in its current form. The first few cases brought under the legislation will be crucial in determining how the potential Act will change behaviour in the sector.

As a recap the final stages (ping pong) of the Bill centred on the argument over the inclusion of the statutory tort allowing those who think their free speech rights have been infringed to bring a legal claim for damages against a university or a students’ union. The Lords removed it, the Commons added it back in. Currently a compromise has been reached with the tort as a watered down backstop – included in the Bill as a means of last recourse after complaints processes have been exhausted.

Education Committee: Mohammad Yasin has joined the Education Select Committee. Mohammad is a Labour MP who has demonstrated a keen interest in securing better funding for education, social services and healthcare provision. Chair of the Commons Education Committee Robin Walker has announced his decision to stand down from Parliament at the next General Election. New Chairs of select committees are elected after each general election so this isn’t big news. We simply know there won’t be any continuity between the Chairs and therefore the focus of the business will likely change to a greater degree as a new Chair with new priorities will be selected.

DSIT is being beefed up with three additional ministers:

Julia Lopez Minister of State for Data and Digital Infrastructure, she also retains her role in DCMS (media, tourism and creative industries). Her responsibilities include Digital infrastructure/ telecoms; data, including Data Protection and Digital Information Bill; data security; Information Commissioner’s Office (ICO); Ofcom. However, she is about to go on maternity leave, so her role will be covered by John Whittingdale. Whittingdale was a DCMS Minister during 2021.
Viscount Camrose (Jonathan Berry) appointed as Parliamentary Under-Secretary of State for AI and Intellectual Property and Government Spokesperson in the Lords. This is his first ministerial position. He has sat in the Lords since his by-election win in March 2022.
Stuart Andrew MP appointed Parliamentary Under-Secretary of State for Sport, Gambling and Civil Society; Minister for Equalities covering: sport; gambling and lotteries; civil society and youth; ceremonials, including Coronation; major events, including Eurovision and City of Culture.

Select Committees will reform (from 26 April) to model the new Government departmental structure:

The International Trade Committee will be dissolved – its scrutiny function will transfer to the BEIS Committee.
The Business, Energy and Industrial Strategy (BEIS) Committee will become the Business and Trade Committee, and will scrutinise the work of DBT.
The Science and Technology Committee (not currently a departmental select committee) will now be renamed the Science, Innovation and Technology Committee, and will now scrutinise the work of DSI (i.e. now be a departmental select committee).
The Digital, Culture, Media and Sport Committee will become the Culture, Media and Sport Committee, and will scrutinise the work of DCMS. Which makes one wonder why DCMS is retaining its former name. Incidentally if you’re interested in the forthcoming policy priorities check out their newly published ARI.
A new Energy Security and Net Zero Committee will be established as the Trade Committee is being abolished the SNP will Chair this new committee.

Financial health of HE sector: Wonkhe report on the House of Lords debate on financial pressures in higher education. Lord Knight of Weymouth opening proceedings with the observation that “it appears that the university business model is teetering.” For the government, Baroness Barran argued that “we know that the finances of HE providers are sound when we look at this at a sector level,” though recognised the uneven impact of cost pressures. She drew attention to OfS’ forthcoming report on the financial health of the sector, due next month. You can read the report on Hansard.

Lifelong Learning (HE Fee Limits) Bill

It’s a busy time for HE in Westminster because the Lifelong Learning Bill will proceed through the final legislative Commons stages shortly. We wrote about this Bill extensively in this policy update in March and this is the one that is intended to fundamentally change how the HE sector delivers or packages their provision.

Upon completion the Bill will move to the House of Lords for their scrutiny. Two key amendments have been tabled for the final Commons stages. One seeks to prevent variable fees being changed based on course or subject. The second proposes that one credit equates to 10 learning hours.

For a catch up on the Bill this Library briefing is useful. The briefing also sets out a timeline for the next steps for implementation:

The roll-out of the LLE will include:
- From 2025, full courses formerly funded by the higher education student finance system and full courses formerly funded through Advanced Learner Loans that can demonstrate learner demand and employer endorsement.
- From 2025, modules of some “job-specific” technical qualifications at levels 4 and 5, including Higher Technical Qualifications.
- From 2027, modular student finance will be extended to levels 4 to 6where the Government “can be confident of positive student outcomes”.
In autumn 2023, the Government will publish details on the courses eligible for additional entitlement under the LLE, and the principles for calculating the residual entitlement for returning eligible learners.
In December 2023, the Government will review qualifications currently funded by Advanced Learner Loans (ALLs) to determine which ones should be included within the scope of the LLE.
By “late 2023”, the Government will provide an update on Sharia-compliant student finance.
The Office for Students (OfS) will consult “in due course” on the development and introduction of a new third registration category for providers offering LLE-funded course and modules.

Source

The sector reaction to the Bill has been cautiously positive. The Library reports:

The planned removal of ELQ restrictions and the expansion of maintenance support for living costs to level 4 and 5 subjects was welcomed by many across the education and employment sectors as an important way to ensure learners could access funding to retrain, develop their careers, and fill skills gaps in the economy.
The Chief Executive of the Association of Colleges (AoC), David Hughes, welcomed the LLE as a potential “game changer”. However, he argued modular learning needs to become more mainstream, and the LLE alone would not change the behaviours and priorities of the vast majority of learners focussed on achieving a traditional undergraduate degree above all else.
The decision to cap eligibility for the LLE at age 60 has also been described as an “ageist strategy”, while the general secretary of the University and College Union (UCU), Jo Grady, has said more funding was neededso learners could stay in their studies and not leave because of financial reasons, and to ensure providers can adapt courses for modular learning.

For more on the full ‘ins’ and ‘outs’ at each stage of parliamentary consideration of the Bill see this separate briefing.

Wonkhe Blog: Including postgraduate study in the LLE could be expensive, but leaving it out carries risk. Mark Bennett weighs up the potential options and outcomes.

Research

The Department for Science, Innovation and Technology (DSIT) published making Innovation Matter: How the UK can benefit from spreading and using innovative ideas. It aims to bring together insights and analyse innovation enablers and barriers. Here are the most relevant key points:

Innovation diffusion and adoption (IDA) takes place within a fragmented, complex and poorly intra-connected ecosystem. There are many different stakeholders, organisations and structures influencing IDA. Funding, praise, status and incentives are often centred around having and owning an idea as opposed to its successful application at scale.
A lack of incentive is compounded by the different skillsets required to support an idea through the early majority stage of innovation. Academic know-how must be combined with entrepreneurial vision, appetite for risk, investment, marketing, sales, logistics and customer service. Taken together otherwise successful innovations fail to make it beyond early adoption because stakeholders are not properly incentivised to go to market and/or do not have the skills to do so.
Government and Business have already acted to address this issue with a wide range of institutions, accelerators, funds and initiatives to support innovation. Whatever the merits of existing and planned initiatives it is clear from both international experience and domestic data that more can be done, particularly around identifying priorities and challenges, setting out roadmaps with clear direction, using its buying power as anchor customers, and creating the right funding and regulatory environment to enable innovation to thrive.

Opportunities to better understand and improve IDA include:

Inspire stakeholders and communities to address key innovation challengesin an open and inclusive way, giving them freedom to experiment, with Government taking more of the lead by setting concrete direction.
Invest in skills(both innovation skills and specialist skills such as in STEM, business, research and professional expertise) and drive collaboration at all levels, including leadership and skills development.
Broaden the diversityof participation and perspectives and build trust.
Develop a more joined-up ‘supply chain’ approach, with cross-sector fertilisation of ideas and technologies, and place-based specialisms, creating ‘hubs’.
Increase funding for diffusion and adoption activitiessuch as improving public sector procurement with multi-year grants for innovations that ensure emphasis on IDA.
Target supportfor IDA activities, including better metrics.

Science and Technology Framework (and friends)

Recent weeks have seen the publication of a melting pot of various Government strategies, funding initiatives and policy declarations. We try to bring them all together (relatively) simply under the banner of the new Science and Technology Framework.

Published a couple weeks ago the Government’s Science and Technology Framework for the UK sets out the vision for the UK to be a science superpower by 2030. It seeks to identify critical technologies, invest in R&D, develop talent, build international relationships, and do better in communicating the UK’s R&D strengths. The new measures sitting alongside the framework are backed by £500 million of funding.

The Framework is owned by DSIT but will be a coordinated cross-government approach. Here are the 10 key actions:

identifying, pursuing and achieving strategic advantage in the technologies that are most critical to achieving UK objectives
showcasing the UK’s science and technology strengths and ambitions at home and abroad to attract talent, investment and boost our global influence
boosting private and public investment in research and development for economic growth and better productivity
building on the UK’s already enviable talent and skills base
financing innovative science and technology start-ups and companies
capitalising on the UK government’s buying power to boost innovation and growth through public sector procurement
shaping the global science and tech landscape through strategic international engagement, diplomacy and partnerships
ensuring researchers have access to the best physical and digital infrastructure for R&D that attracts talent, investment and discoveries
leveraging post-Brexit freedoms to create world-leading pro-innovation regulation and influence global technical standards
creating a pro-innovation culture throughout the UK’s public sector to improve the way our public services run

Here’s the funding and policy breakdown:

£250 million in 3 transformational technologies (AI, quantum technologies and engineering biology) to support industry to tackle the biggest global challenges
(e.g. climate change and health care). Also part of the framework are semiconductors and future telecoms. More detail on these priorities can be found within the related International Technology Strategy.
The Nurse Independent Review of the Research, Development and Innovation Organisational Landscapeand implementing the recommendations to make the most of the UK’s research organisations, ensuring they are effective, sustainable and responsive to global challenges.
Testing different models of funding science, to support a range of innovative institutional models, such as Focused Research Organisations (known as FROs), working with industry and philanthropic partners to open up new funding for UK research. For example, this could include working with a range of partners to increase investment in the world leading UK Biobank, to support the continued revolution in genetic science
£50 million co-investment in science from the private sector to drive the discoveries of the future.
£117 million of existing funding to create new PhDs for AI researchers and £8 million to find the next generation of AI leaders around the world to do their research in the UK.
£50 million uplift to World Class Labs funding to help research institutes and universities to improve facilities so UK researchers have access to the best labs and equipment they need to keep producing world-class science, opening up entirely new avenues for economic growth and job creation.
£10 million uplift to the UK Innovation and Science Seed Fund, totalling £50 million, to boost the UK’s next tech and science start-ups.
Set up an Exascale supercomputer facility – the most powerful compute capability which could solve problems as complex as nuclear fusion – as well as a programme to provide dedicated compute capacity for important AI research, as part of the response to the Future of Compute Review.
£9 million to support the establishment of a quantum computing research centre by PsiQuantum in Daresbury in the North-West.
Also within this overall policy context is the UKRI’s International Science Partnerships Fund which will support close working with international partners to address global challenges, build knowledge and develop the technologies of tomorrow. More info here; the four themes: resilient planet; transformative technologies; healthy people, animals and plants; tomorrow’s talent. Also the Japan-UK research collaboration in neuroscience, neurodegenerative diseases and dementia; clean energy and climate change with Australia, Canada and the US; and partnership with South Korea for digital health, clean energy, advanced manufacturing and materials, future mobility and smart cities.
Horizon Europe doesn’t get a mention in the framework – and the Opposition asks why in this parliamentary question.
Here is Donelan’s Written Ministerial Statement providing a Science and Technology update. It covers the framework and wider policy matters.
Finally, Sir Patrick Vallance’s Pro-innovation Regulation of Technologies Review: life sciences – while currently at interim findings stage the Government committed to supporting all of Patrick’s recommendations in the March 2023 budget, including providing clarity on the Intellectual Property rules. If you need a refresher browse through our write up in this policy update.

Not particularly insightful, but nonetheless entertaining, was the Opposition’s response to the publication of the Science and Technology Framework. Chi Onwurah, Shadow Minister for Science, Research and Innovation, highlighted the turnover of nine science ministers in the last five years and stated the country deserved a science framework “with a longer shelf-life than a lettuce”.

Horizon

Always in the news but no real movement is the latest on Horizon association. The Windsor Framework resuscitated hope in what had become a Horizon dead duck. The rhetoric from the research associated Government departments continues to indicate progress and the assumption that association is still on the table and desired by both sides.

Here’s the short version of all the recent noise:

The Government announced another extension (until 30 June 2023) to the financial guarantee to the UK’s Horizon Europe scheme so that eligible and successful bids for calls closing by the deadline will continue to be guaranteed funding. (The particulars are on the UKRI website.) It’s a short extension so speculation (and hope) abounds about what might happen afterwards – June isn’t far off on the horizon.
Greg Clark (Chair of Science and Tech Committee, and ex-BEIS long standing Secretary of State) is feeling impatient and spoke out urging the Government to accelerate negotiations leading to Horizon Europe association (after the Committee received a dreary letter from DSIT SoS Michelle Donelan following the clawback of £1.65 billion of research funds to the central Government pot in February).
Following the funding clawback Clark challenged Donelan during the Science and Technology Framework announcements. He called on Donelan to confirm when fresh negotiations for Horizon association would begin and how long until the Government throws in the towel and falls back on Plan B. Finally, he questioned what mechanisms were in place to ensure that, in areas such as batteries, that there was a united and coherent approach across Government, so investors know what the policy is and who to get deal with. Donelan responded to confirm the same level of funding would be available to researchers if Horizon association isn’t achieved: …funding remains available to finalise association with EU programmes. In the event that we do not associate, UK researchers and businesses will receive at least as much as they would have through Horizon over the spending review period. (Hansard.)
Wonkhe tell us that (then) Scottish Minister for HE & FE Jamie Hepburn made some good point in his letterto Michelle Donelan urging for Horizon Europe association to be secured. He expresses concern that the UK government “appears to be working on the assumption that if we succeed in associating to the Horizon Europe programme, participation will be costed from the point of re-entry,” arguing that this has never been guaranteed. A good point!
For completeness here are the transitional measures the Government put in place during July 2022 to stop UK research falling into the lack of Horizon abyss.
Finally, Horizon featured in the first ever DSIT oral questions. Discouraging, but not unexpected, was confirmation that the government’s position was unchanged, and discussions are ongoing.

Parliamentary Questions:

Quick Research News

UKRI has publishedits EDI strategy, setting out four strategic objectives to achieve its aim of fostering a research and innovation system “by everyone, for everyone”. (Wonkhe)
(Not) Levelling up: The R&D funding ecosystem just isn’t designed to level up the country. James Coe investigates where R&D funding is spent and what that means for levelling up. (Wonkhe Blog.)
Recognition: Wonkhe report that Science Europe, which represents research organisations around Europe including UKRI, has released recommendations on recognition systems in research and case studies of good practice. It has also become a signatory of the San Francisco Declaration on Research Assessment (DORA).
India cooperation: Wonkhe report that the UK signed a memorandum of understanding with India at yesterday’s UK-India Science Innovation Council meeting in Parliament. The agreement is intended to “remove red tape” to enable more efficient and effective joint research projects into major issues such as climate change, decarbonisation, pandemic preparedness, and artificial intelligence – among other programmes. Science Minister George Freeman believes this move will create skilled jobs and drive economic growth. India was also named as a partner for the UK’s International Science Partnerships Fund which will see £5 million UK funding – to be matched by India – for research into Farmed Animal Diseases and Health, and £3.3 million UK funding – also to be matched by India – towards a technology and skills partnership programme.
AI: The Government has announced the creation of a new Foundation Model Taskforce which will be responsible for accelerating the UK’s capability in a rapidly emerging type of artificial intelligence (AI). The Taskforce will be backed by £100m in funding, and modelled on the success of the COVID-19 Vaccines Taskforce – its main aim will be to develop the safe and reliable use of these AI systems across the economy to ensure the UK is globally competitive in this technology. Foundation models – including large language models such as ChatGPT and Google Bard – are a category of AI trained on huge volumes of data such as text, images, video or audio to gain broad and sophisticated capabilities across many tasks. The Government say that, in areas such as healthcare, this technology has potential to speed up diagnoses, drug discovery and development, and that in education it could transform teachers’ day-to-day work by freeing up more time. The Taskforce, announced as part of the Integrated Review Refresh last month, will bring together government and industry experts and report directly to the Prime Minister and Technology Secretary. The Taskforce’s expert Chair is yet to be appointed (announcement due summer 2023).
Horizon Europe related parliamentary questions: UK funding share; the costs of Pioneer (the alternative programme); where the Pioneer funding is coming from; the negotiating position for UK contributions to Horizon Europe. On this last question Minister George Freeman stated: The Government are discussing association to Horizon Europe with the EU and hope our negotiations will be successful. That is our preference. We will not be providing a running commentary on these discussions. Association would need to be on the basis of a good deal for the UK’s researchers, businesses and taxpayers. If we are not able to secure association on fair and appropriate terms, we will implement Pioneer – our bold, ambitious alternative.
George Freeman’s (Minister for Science, Research, and Innovation) responsibilities have been confirmed. They include:
- international science and research
- domestic science and research ecosystem, including university research and public sector research establishments (PSREs)
- Horizon Europe
- R&D People and Culture Strategy
- Innovation Strategy
- space sector
- life sciences
- quantum
- engineering biology
- place and levelling up
- regulation of innovation, including the Regulatory Horizon Council
Research Professional has a quick read on the links between universities, place and inward investment (particularly in light of the Budget’s Investment Zones announcements).
REF: The Research Excellence Framework (REF) encourages “higher quantity and lower quality” of academic output, according to a study from a group of researchers led by Queen Mary, University of London’s Moqi Groen-Xu. The research found that papers published in the run-up to REF deadlines generally received fewer citations and were more likely to be retracted than those published after REF assessments. The authors call for better support for long-term exploratory research. (Wonkhe.)
The House of Commons Science and Technology Committee has published a report on diversity in science, technology, engineering and maths (STEM). In the report Dods tell us that MPs highlight the underrepresentation of people from Black Caribbean backgrounds, and others, across all STEM subjects throughout education and work. A low uptake of physics and computer science in girls at school as well as persistent issues with women’s career progression in STEM also stand out. MPs say it is “sadly notable” that many of the conclusions from a predecessor Committee’s 2014 report on women in science could still apply today. The Committee recommends a series of changes to education policy, following the Prime Minister’s commitment to grow STEM pupil numbers. MPs call on the new Department for Science, Innovation and Technology to make improving diversity and inclusion in STEM part of its mission, and to set out how it intends to achieve this.
Michelle Donelan introduced the Data Protection and Digital Information Bill
AI & Data Science Scholarships: The OfS confirmed £8.1 million new funding from DSIT and the Office for Artificial Intelligence for universities to deliver AI and data science scholarships to underrepresented groups. The funding runs from April 2023 for one year, with a possible additional one year extension. The programme has run before and the interim report found the scholarships attracted a diverse student profile. However, the in the previous iteration more scholarships were awarded to international students as the scheme progressed and recently UK students received less than half of scholarships. On outcomes most students quickly secured jobs that specialise in or use data and/or AI. DSIT also published an AI regulation white paper. Secretary of State, Michelle Donelan, made a ministerial statement here.

Parliamentary Questions:

University research programmes to incorporate DSIT innovations
UK Innovation Strategy: George Freeman (Science Minister) – The UK Innovation Strategy sets out the Government’s vision to make the UK a global hub for innovation by 2035, placing innovation at the heart of the UK and economic research strategies. It aims to boost private sector investment, creating the right conditions for businesses to innovate and grow. We are working closely with partners across the innovation ecosystem to deliver that vision. Innovate UK’s online innovation hub, for example, will support businesses to search for the wide variety of government support, including investment, across the innovation landscape. We are also mapping the UK innovation clusters to highlight the opportunities across the UK.
University research and innovation
Scotland – lab space and facilities for university life science spinouts
The policy offer for Investment Zones was published in response to a parliamentary question.
International research collaboration
Research excellence in Wales
Science spending announcements in the Budget
Research funding models
Integration between DSIT and university research
Innovation clusters

Students

Sharia Compliant Finance

Previously DLUHC appointed an Independent Faith Engagement Adviser to review how the Government should engage with faith groups in England. The Adviser, Colin Bloom, recently published the review report. The report includes a recommendation for Sharia compliant finance and places a firm timescale on the Government:

Government should accelerate proposals to introduce Sharia-compliant student loanson equalities grounds. Faith-sensitive student finance should be made available from the beginning of academic year 2024-25.

Sharia compliant finance feels like one of the slowest progress policy priorities within HE. The Government first proposed a student finance product consistent with Muslim beliefs regarding interest-bearing loans in 2013. The Higher Education Research Act, passed in 2017, allows the Government to introduce such a product in England, but it has yet to do so. The issue has been raised in Parliament a number of times, with the delay described as “shameful” by Lord Sharkey.

Following the Lifelong Learning Entitlement (LLE) Consultation the Government announced Sharia compliant finance would not be ready as part of the LLE launch in 2025 but that the Government remained committed to delivering such a product “as soon as possible after 2025”. A parliamentary Library briefing on the topic informs that findings from the Muslim Census study suggest over 12,000 students per year are affected (deterred from taking out loans which acts as a barrier to entering HE or causes financial hardship).

It remains to be seen whether Bloom’s timescale will be met by the Government – it seems unlikely given the Government have already ruled out including Sharia compliant finance within LLE in 2025.

On other student finance matters Wonkhe have a new blog – As the state reduces its support for students in real terms, Jim Dickinson considers the role of institutional student finance measures in addressing the cost of living crisis.

Spiking

The Labour party intend to make spiking a specific offence if they are elected to government. It would form part of several measures aiming to tackle violence against women and girls (VAWG) and broaden the Labour party’s “tough on crime” credentials. Dods report that the Home Affairs Committee previously recommended the creation of a new standalone offence, however the Government’s response to the inquiry’s findings suggested this wasn’t necessary as there were already measures and guidance in place to improve reporting, data collection and police response to incidents. The Committee’s inquiry focused heavily on night-time venues, and heard from many in the university sector about the prevalence and nature of spiking on campuses. UUK also published a practice note for HEIs to support their response to spiking.

Student Accommodation

Wonkhe – Over half of students living in the private rented sector have experienced damp or mould on walls or ceilings, and half say their accommodation is poorly insulated, according to a new report from SOS-UK in partnership with Universities UK. Homes Fit for Study 2023. Universities UK has published a note on how universities can support students facing fuel poverty. ITV news has some experiences from students up on YouTube.

Duty of Care

The petition to Parliament for universities to have a legal duty of care for students (started by the families of student’s who took their own lives) has reached a significant threshold and the matter will be debated on Monday 5 June. Previously the Government responded to this petition:

Higher Education providers do have a general duty of care to deliver educational and pastoral services to the standard of an ordinarily competent institution and, in carrying out these services, they are expected to act reasonably to protect the health, safety and welfare of their students. This can be summed up as providers owing a duty of care to not cause harm to their students through the university’s own actions.
Over the last decade, higher education providers have devoted considerable resources to their student support services, and a good deal of support is now widely provided to students who struggle with their mental health. However, tragically suicides do still occur in higher education, and investigations into the circumstances of such deaths have sometimes shown the support offered by the university was not all it might have been. We have encouraged universities to learn from such cases and redouble their prevention efforts.

We’ll bring you the outcome of the debate after it takes place.

Cost of living

The APPG for Students published their Report of the Inquiry into the impact of the cost-of-living crisis on students. They conclude that most students are facing significant financial pressures, with some groups particularly hard hit, risking academic outcomes and participation in the extra-curricular activities that are so valuable for future careers. We are concerned that this is unfair on a generation of students already affected by the pandemic, and risks widening inequality.

… Alongside reports of students cutting back on meals and other essentials, as many other people, we were struck by evidence of the additional hours many students were working to cover their costs and the development of a ‘grab and go’ approach to their qualifications, as they can no longer invest time and energy in participating in all the other aspects of student life that prepare them for employment, having an impact not just on the tertiary education sector, but on a generation of working adults.

The inadequacies of relying on current hardship measures are acknowledged:

…we must not only provide students with the necessary immediate financial assistance – through increased hardship funding and restoring maintenance loan entitlements – but also to address issues in the student funding system which have seen student support incrementally reduced in real terms over several years and reduced resilience as inflation has risen sharply over the last two years. We have noted the increase in university support and believe that there is more that could be done to ensure all students are helped but recognise that current services are designed to help small numbers of students in emergencies, and not hardship experienced by a large proportion of the student body.

The APPG calls on the Government to provide a financial solution:

… We recognise the demands and pressures across every area of government spending but feel that our recommendations for both an immediate spending commitment to support students who have been placed in significant financial hardship, as well as longer-term changes are needed for both current and prospective students.

The OfS published an insight brief – Studying during rises in the cost of living. They conclude: Universities, colleges and students’ unions have worked innovatively and at speed to help alleviate these pressures, with additional help from government for their hardship funds. These responses have been diverse, and the support available has varied from university to university. The mitigating activities…may not all be sustainable over a long period. It’s worth a scan through to read the box sections covering actions by universities (financial needs, warm spaces, food needs).

Part time work dramas: 30% of students are unsuccessful in finding part-time work because of their scheduled classes.
72% report that their timetable stopped them securing more hours at work.
76% found it challenging to attend scheduled teaching on time – due to classes scheduled at inconvenient times of the day, not having enough time to get from one class to another, not being able to find the lecture room or seminar location.
Asked why they had a job, 52% of student said it was to fund their basic lifestyle (pay for rent, utilities, food, etc.), 49% blamed the rising cost of living, 33% wanted to fund a comfortable lifestyle (pay for night outs, clothes, holidays, etc) – given the percentages don’t tall presumably students could select multiple categories for the reason to work.
53% of students have a part time job alongside their studies. 32% do not have a job but would like one and 5% full time.
Source – FE News

Cost of living blogs:

Russell Group: students are living on average just £2 per week over the destitution line in the UK.
Russell Group research: Students facing poverty as cost of living crisis hits studies
Research Professional: PhD student impact – 60% of postgraduate research students say the cost of living crisis is causing their academic performance to suffer—a higher share than among students at other study levels.
Sutton Trust cost of living research
A new survey suggests that students’ incomes cannot meet their basic needs for food, warmth, and study time. Lee Elliot Major outlines the consequences for social mobility.
Sunday Blake argues that universities must approach part-time student work with candour, however unpalatable the work is.
More insight but little regulation over cost of living– Jim Dickinson reviews new polling from OfS on student costs and wonders where the regulation is to accompany it.

Students: Quick links

PQ: The impact on students of industrial action in universities.
PQ: UCAS data on reasons for student withdrawal
Paid internships: In the Scottish Government’s public sector pay strategy public bodies will be required to pay the real Living Wage at £10.90 per hour, including for internships and Modern Apprentices.
Research Professional: the number of students over-repaying their student loans—and the total amount that they overpaid—rocketed between 2019-20 and 2021-22, with borrowers overpaying by £20 million, according to official statistics.

Wonkhe content:

Plans to extend the availability of free childcare exclude full time students. Kate Bowen-Viner asks why.
Nearly one in three people aged 18 to 24 are not registered to vote. Bess Mayhew urges universities to play their part in turning that figure around.
On University Mental Health Day, Student Minds’ Rosie Tressler calls on universities and governments to offer students the support they need.
The University Mental Health Advisors Network has publishedguidance on clinical governance intended to be used to improve the quality of support for student mental health. UUK has published reflections by Steve West on how university leaders can create a culture of mental wellbeing in their institutions.
What have feelings of belonging and community got to do with assessment fairness? Quite a bit, discovers Jim Dickinson as we launch a major new student research project with partners at Cibyl.
Lurking in the Office for Students’ consultation on harassment and sexual misconduct is a dramatic step up of support given to students involved in all angles of an allegation. Jim digs into the details.
The Office for Students is consulting on fees for investigations. Smita Jamdar has issues with what is on offer.
Cracking down on grade inflation looks to have reversed progress on awarding gaps.

Parliamentary Questions

Student tenancies and notice periods (we’re waiting for a proper answer on this one).
Support for student wellbeing and mental health
Whether DfE would publish a response to the APPG for Students’ report on the cost of living.
The closure of accredited providers – student impact (no new news)
Whether the Turing Scheme will be funded past 2024-25.
Degree apprenticeship uptakeand diversity

Admissions

Wonkhe report on the House of Commons Education Committee’s latest report – The future of post-16 qualifications which calls on the government to pause the withdrawal of funding for existing level 3 technical qualifications (such as BTECs) until evidence is available that T Levels are more effective at meeting student and employer needs and promoting social mobility. The report notes that universities are often requiring applicants to offer A levels alongside T levels (the latter being nominally equivalent to three A levels), and calls on DfE to work with universities to avoid “unreasonable” entry requirements. The report is covered on BBC News.

Wonkhe: Fewer significantly disadvantaged and economically precarious students are entering higher education in England – and they are less likely to complete their degree and progress to skilled employment or further study than their peers, new data from the Office for Students (OfS) shows. CEED, one of its new and updated key performance measures, shows that 53.6 per cent of the most significantly disadvantaged students progress to further study or skilled jobs, compared with 68.4 per cent of students who are neither “significantly disadvantaged” nor “economically precarious”. 49,600 students categorised as significantly disadvantaged entered in 2021/22, a decrease from 51,100 in the previous year. KPM 8, which measures the proportion of subjects taught and the number of higher education providers (relative to population) in each English region, shows that the North East has the lowest level of subject diversity in the country for full time students, and KPM 7 on Degree attainment by ethnicity shows that students receiving first class degrees in 2021-22 was 15 percentage points lower than the proportion for all students.

Access & Participation

Advance HE has published the Disabled Student Commitment which was developed by the OfS funded independent strategy group the Disabled Students’ Commission. The Commitment draws on three years of consultation with disabled students and sets out a framework of 43 recommendations for HEIs, Government, funders, agencies, regulators and professional, statutory and regulatory bodies. It highlights expectations for information sharing and consent and offers guidance on key touchpoints of the HE journey, outlining the commitments that HEIs and others should make to give disabled students confidence their needs and expectations will be met.

Professor Geoff Layer, chair of the Disabled Students’ Commission, said: We have developed this Commitment because disabled students have told us they want communication, consistency, certainty and choice. The Commitment is a call to the sector and sector bodies to make the step-change required to create a more inclusive environment. We need to create a sense of belonging in which students are able to focus on what they went into higher education for, and not spend untold hours fighting their way through the system.

Professor Layer said the Commission was asking providers to work in partnership with their disabled students on a statement of commitment which should be updated annually and published on their website, alongside a logo of the Disabled Student Commitment so that disabled students and applicants have confidence in the system, allowing them to get on with their education.

New data dashboard and risks plan for A&P

OfS published new data on HE access and participation. The completion rates data highlight:

6% of students from the most deprived backgrounds completed their course (92% from the most advantaged group)
5% of students eligible for free school meals completed their course (91% non-free school meals)
7% of black students completed their course (88.5% of white students)

There is lots more to explore in the data dashboard.

OfS also published their new Equality of Opportunity Risk Register (EORR) and expect universities to consider the listed range of equality risks when planning. It includes risks relating to the perception that HE might not be right for people from disadvantaged backgrounds, or concerns about academic and personal support for those at university, students’ mental health, the continuing impact of the pandemic on education opportunities, and pressures on living costs.

OfS has also published the outcome and analysis of responses to their consultation on a new approach to regulating equality of opportunity plus a commentary from OfS Fair Access and Participation Director.

Impact of online teaching on student outcomes

TASO published online teaching and learning – lessons from the pandemic. Executive summary here; rapid evidence review here.

Here are their key findings:

Existing evidence is mixed; there are a small number of studies which suggest online teaching and learning can maintain or improve outcomes for some groups, but overall, the move to online learning appears associated with worse student outcomes.
Pre-pandemic literature (compared to purely online learning) suggests ‘blended’ learning (e.g., a combination of face-to-face and online learning) is more likely to improve student attainment. Whereas the literature produced during the pandemic demonstrates that the rapid shift to an online format had a negative impact on student outcomes.
In the post-pandemic literature, there is some evidence that, prior to applying any type of ‘no detriment’ control in an attempt to account for the impact of the pandemic on students’ performance, learners from low-income backgrounds and academically at-risk students may be most likely to be negatively impacted by the shift online. However, this was not universal in the case studies they reviewed.
Course design is an important factor to consider when planning online learning, as its efficacy is highly dependent on a number of design choices. However, this planning was not possible with the emergency switch to remote learning, where the priority was to adapt promptly to unforeseen crisis circumstances.
Design features – the existing evidence suggests that courses which encourage active engagement through planned student-student interactions and opportunities for feedback between teaching staff and students increase student attainment.
Digital poverty is thought to be the largest barrier to the success of online teaching and learning and will most likely disproportionately impact disadvantaged groups. Students from more privileged backgrounds may have better access to the internet and more sophisticated devices.

Recommendations:

The design of online courses is important: A concerted effort should be made to design online courses rather than simply moving face-to-face materials into the online environment. Effective design features include:
1. Coordinated student-to-student interaction via discussion boards and chat rooms.
2. Feedback between teaching staff and students.
3. Appropriate frequency and timing of online teaching and assessment to avoid student fatigue.
HEIs should make use of their institutional data and differing pedagogical approaches to design and conduct evaluations that allow us to draw strong conclusions about what works in the UK context. Our data analysis provides a foundation and blueprint for future work of this sort.
As students from disadvantaged backgrounds may be more likely to be adversely impacted by the shift to online teaching, learning and assessment, future research should focus on their experiences and outcomes.

A & P Blogs:

Fiona Ellison explains why universities must help care leavers and estranged students from being shut out of rental accommodation.
Rebecca Sanderson and Amy Zile call on universitiesto harness the skills, experiences, commitment, and motivation of student carers and parents.
Angela Halston argues that underfunding smaller institutions disrupts widening participation and collaboration efforts.
The Independent coversthe launch of Unite Foundation’s campaign for universities to act as guarantors for estranged and care experienced students (Wonkhe).
Wonkhe: Neurodiverse accommodation – Unite Students has publisheda report on the experiences and needs of neurodivergent students in the transition to university and while living in student accommodation. The report draws on survey data from last year – which found that neurodiverse students reported mental health conditions such as depression and anxiety at higher levels – as well as qualitative data from a focus group with members of the Bristol University Neurodiverse Society. Recommendations include clear communication, early move-in options, and a badging scheme for neurodivergent-friendly student accommodation. Related blogs:
- Sunday Blake dives into a new report on neurodiverse students’ experiences in accommodation, and asks what further support is needed.
- Edward Mills reflects on his own autism diagnosis, and how he uses it to help his neurodiverse students.
Wonkhe – I go searching for an update on proposed procurement reforms for Disabled students – and end up very worried about what could be coming.

Graduate Careers

Wonkhe report on the Institute of Student Employers’ annual report on development programmes for graduates and apprentices. 54% of employers surveyed agreed that graduates were “career ready” at the point of hire (31% unsure). The report covered 162 responses from student employers who collectively hired over 26,000 graduates in 2021–22.

HESA published National Careers Week: Career trends of graduates from the class of 2019/20.

Careers: Wonkhe blog – The idea that a postdoc is a route to an academic career downplays other career possibilities. Lucy Williams and James Howard have been helping postdocs prosper with tailored advice and support.

International

Wonkhe report that: there has been a 65% increase in the number of international students at English higher education providers over the past four years, with growth of over 100,000 in the past year alone. The figures come from the delayed Office for Students’ Higher Education Students Early Statistics survey (HESES), which provides an early indication of the number of higher education students studying in 2022-23.

They also show that the home v international split for postgraduates in the English system is now roughly 50:50, and that providers are forecasting that circa 320k students will not complete by the end of the year, up from 300k a year ago.

Blog: New English student numbers figures show how rapidly universities are changing size and shape. David Kernohan and Jim Dickinson consider if the regulation can keep up

Scottish Minister for Higher Education and Further Education, Youth Employment and Training Jamie Hepburn answered questions on international students and accommodation.

Wonkhe: Home Office proposals to limit the number of international student dependant visas are receiving a “major pushback” from the Treasury, i News reports. It says Chancellor Jeremy Hunt is resisting Home Secretary Suella Braverman’s proposals, arguing they would inflict “major damage” on the British economy.

HEPI

The Higher Education Policy Institute has published a range of interesting blogs and briefings recently. You may be interested in:

The Humanities in the UK Today: What’s Going On? It warns against pitching humanities against STEM and points out the heavy lifting humanities graduates provide for the systemic problems the world faces alongside the attractiveness of their transferrable skills to industry.
The role of universities in driving overseas investment into UK Research and Development. How universities and government can work together to attract international investment across the country (and, although the Government have gone quiet on it since Boris’ departure, the contribution to levelling up that universities can provide).
Public attitudes to higher education – what does the evidence tell us?
Innovation in student unions
The latest developments in student accommodation

Degree Apprenticeships

The OfS confirmed £16m of recurrent fundingto expand the development and delivery of HE qualifications, of which £8m will support the development of Level 6 degree apprenticeship training programmes and £8m to increase the provision of Level 4 and 5 qualifications. Minister for Skills, Apprenticeships and Higher Education Robert Halfon said: Degree apprenticeships offer people of all backgrounds an alternative route to achieving their career goals than doing a traditional three-year degree. They enable students to earn while they learn the skills needed to build a successful career. I’m delighted that the OfS is continuing to support and encourage HE providers to expand their degree and degree level apprenticeship offer…This investment will help us continue to build a skills and apprenticeship nation and extend the ladder of opportunity to even more people.
Wonkhe report that the Independent has been investigatinghow some universities are still using the apprenticeship levy to part-fund MBAs.
The Science Industry Partnership published a manifesto for skills in the science industries. The report outlines four priorities for technical education and workplace learning. It includes making the apprenticeship levy work for employers and increasing equity through diverse career pathways.
The UCL Centre for Education Policy and Equalising Opportunities published their evidence-led policy priority calls which they believe are essential to equalising opportunities in society. They call for:
- reform to apprenticeship rules to ringfence a proportion of the levy for young people with lower qualification levels, they also entertain that if other changes were made levy funds could be entirely ringfenced for school leavers. This to reduce the number of apprenticeships going to existing employees instead of other internal training.
- Expand accountability to all providers of post-16 education to help reduce NEET rates. To make these metrics meaningful and minimise ‘gaming’, providers should be compared against other providers offering similar courses, in areas with similar socio-economic characteristics.
- Introduce an annual “Social Mobility Scorecard” for universities, showing the proportion of students from disadvantaged backgrounds attending each university, and the earnings associated with each degree. This should be released by the government to confer official status…There is wide variation in earnings across different degrees, and disadvantaged students are less likely to attend those with high labour market returns, even when they have the qualifications to get in. If we judge universities and courses based only on their outcomes, rather than their intake, their contribution to social mobility will be limited.
- Introduce a post-qualification applications (PQA) system for post-18 education (including further education) so that students would make applications after they sit exams and receive the results. A PQA system could be achieved with minimal disruption to the school year (or college/university start date), by condensing the exam period to four weeks (as was planned during the pandemic), and accelerating marking to 7-8 weeks. Examinations would take place in early May. Students would then return to school, receiving results in mid-July, in time for an in-school ‘applications week’. Universities and colleges would have over a month to process and make offers at the end of August, and students would then have time to accept their favoured choice… allowing students to make these life changing applications based on full information.
Finally, UCAS stated they’re collaborating with the Institute for Apprenticeships and Technical Education (IfATE) to enable apprenticeships to qualify for UCAS points. They anticipate UCAS points may be attached to apprenticeships by the end of 2023. Dods report: The plans represent another step on UCAS’ bid to give parity between apprenticeships and other post-16 study routes, however it is not yet clear how many points apprenticeships may be eligible for, or whether they will secure as many as other level 3 routes. The Department for Education said that offering the ability to apply for apprenticeships through UCAS from 2024 is part of a wider ambition to develop a “one-stop-shop” for education and training options that it hopes will eventually include apprenticeships, T Levels, skills bootcamps, higher technical qualifications and degree apprenticeships.

Other news

The DfE published a policy paper on the use of generative artificial intelligence (AI), including large language models (LLMs) like ChatGPT or Google Bard, within the education sector. Snippets:

Although generative AI is not new, recent advances and public access to the technology mean that the general public can now use this technology to produce AI-generated content. This poses opportunities and challenges for the education sector.
When used appropriately, technology (including generative AI), has the potential to reduce workload across the education sector, and free up time, allowing a focus on delivering excellent teaching.
Schools, colleges and universities, as well as awarding organisations need to continue to take reasonable steps where applicable to prevent malpractice, including malpractice involving use of generative AI and other emerging technologies.
The education sector must continue to protect its data, resources, staff and students, in particular:
- Personal and sensitive data must be protected and therefore must not be entered into generative AI tools.
- Education institutions should review and strengthen their cyber security, particularly as generative AI could increase the sophistication and credibility of attacks.
- Education institutions must continue to protect their students from harmful content online, including that which might be produced by generative AI.

Strategic Skills planning: The DfE Unit for Future Skills published the UK labour market projections up to 2035 (national, regional and local). You can display the data by LEP or other choices and it provides information to support local skills plans, careers guidance, and provides a projected picture of the type of jobs in the UK labour market (and the skills needed) up to 2035. Data here.

Carbon capture curriculum: The Scottish Affairs Committee has published a report on hydrogen and carbon capture in Scotland. It warns that the UK will fail to meet its net zero targets, and transition away from fossil fuels, unless carbon capture is rolled out at scale. The report calls for the UK and Scottish Governments should jointly set out work they are undertaking to ensure that colleges, training providers and businesses within the hydrogen and CCUS sectors are able to offer appropriate routes into employment and training, and providing this information should be viewed as a priority.

President UUK: UUK announced that Professor Dame Sally Mapstone FRSE, Principal and Vice-Chancellor of University of St Andrews, has been elected as its next President. The role runs for two academic years from 1 August 2023 and is elected through a ballot of UUK’s 140 members. Dame Sally will succeed current President, Professor Steve West CBE, Vice-Chancellor of UWE Bristol. Before her appointment as Principal and Vice-Chancellor of the University of St Andrews in 2016, Dame Sally lectured and held several leadership roles at the University of Oxford, including Pro-Vice-Chancellor for Personnel and Equality and Pro-Vice-Chancellor for Education. She has served as a Board Member of UUK since 2016 including currently as Vice-President for Scotland, by virtue of being Convener of Universities Scotland.

Late retirement: The Times reports that graduates could work longer under plans to allow people in manual jobs to claim their state pensions earlier (Wonkhe).

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