Higher Education and Research Bill

Baroness O'Neill of Bengarve Excerpts

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

Quality ratings must absolutely not be used to determine whether a provider may enrol non-EU international students. The purpose of the TEF should be to ensure quality, not to restrict the number of tier 4 visas authorised by the Home Office. Our higher education sector is flourishing, much of it due to the contribution of overseas students and staff, and the benefits to our country are enormous. The Government are deeply exercised by immigration numbers, but their concerns must not be allowed to contaminate higher education policy and practice.

[Baroness O'Neill of Bengarve (CB)]

My Lords, as a long-term university teacher, often rated by my students, both in this country and overseas, I have a sense of some metrics that are less gameable than others. That is surely what any attempt to measure things must look like. Student satisfaction about the beer is, obviously, not the best place to look. There are some well-known ways of looking at teaching which, if one can get the measurements, are quite useful. One might be how much a student has actually attended the required instruction. Statistics have been collected on this by the Higher Education Policy Institute, but if it was known that they were a metric I fear that they would be gamed. It is remarkable—and I think that I mentioned this at Second Reading—that the average for UK students a few years ago, when I last looked, was 13 hours per week of non-required work, above lecture and lab hours. That is not huge, but it varied from a number that I dare not even state to 51 hours of private study a week. That was for medics at some of our leading universities. That is one metric that cannot be gamed, but there are a few others. The number of pages written in a term or semester is quite instructive, and the number of those pages that receive feedback or commentary is another instructive metric. All those things are unglamorous—but you have to take extreme care in using them. Simple online tests of mastery of first language, second language and relevant mathematics might be worth looking at, but I do not think that student satisfaction is going to give us an accurate view of what is really going on.

[Lord Norton of Louth (Con)]

My Lords, I have two amendments in this grouping, and I declare my interest as a serving academic. I share the views of the noble Lord, Lord Desai, who I gather is a fellow graduate of the University of Pennsylvania, on the NSS, and to some extent those of my noble friend Lord Willetts. The survey provides valuable feedback and is a useful form of intelligence, but I am not sure that it can bear the weight that it has been given in this proposal for the TEF.

I commend the Government for recognising the importance of teaching and their acknowledgement of the complementarity of teaching and research. I commend them also for seeking to enhance teaching excellence. Ensuring that more information, and comparable information, is made available to prospective students, and encouraging the dissemination of best practice within HE, are wholly commendable goals. My amendments would protect the provision of information. I have no problem with introducing incentives to HE institutions to enhance teaching quality, but where we need to stress test this part of the Bill is in creating a statutory link between teaching quality and the level of fees being charged for that teaching.

There are three problems with the link stipulated in the Bill. The first is defining what is meant by teaching excellence. The proposed metrics for the TEF are too blunt to meet the assessment criteria and, in some respects, too narrow. The Explanatory Notes to the Bill state:

“The Teaching Excellence Framework is intended to provide clear, understandable information to students about where teaching quality is outstanding and to establish a robust”—


I always worry the moment I see the word “robust”—

“framework for gathering information to measure teaching in its broadest sense”.

I have no problem with the first part of the statement. It is the second part that is problematic. What is meant by teaching “in its broadest sense”? For me, it encompasses the capacity to develop not only intellectual but also personal skills that will enable students to fulfil their full potential as individuals in wider society. This may not be confined to career goals but may extend to being worthwhile members of society—in effect, good citizens. How does one measure that added value? It goes beyond the assessment criteria. I have serious concern with some of the metrics, because I fear that they may privilege status rather than teaching excellence.

The second concern is that, in so far as one can assess teaching excellence, quality is at department or course level, as the noble Lord, Lord Kerslake, and others have stressed. One has only to look at the National Student Survey to see variations between the aggregate at institutional level and the performance at subject and course levels. Yet the intention is to enable an institution to charge a higher fee level, which may apply to all courses, even those which deliver less quality than courses at other institutions which are not able to increase their fees.

The third concern, as we have heard already from the noble Lord, Lord Watson, is that there is no clear link between fees and teaching excellence. Higher fees will not necessarily serve to drive up teaching quality, but rather enable HE providers to spend more on marketing and ensuring brand recognition. More money may be spent on providing services to students, but not necessarily on their teaching.

In short, the proposal before us is based on a concept that is not clearly defined, cannot fairly be applied at institutional level and asserts a link that has not been proven. I look forward to my noble friend the Minister assuaging my concerns.