Higher Education (Freedom of Speech) Bill (Ninth sitting)

John Hayes Excerpts

Monday 20th September 2021 Public Bill Committees

[Matt Western]

I will address those points in due course. It is the possibility of students going through different bodies that is quite alarming and that will cause even more complication and complexity.

To go back to the point I was making about the processes, the then Secretary of State for Education himself said during the Second Reading debate that although

“this legal route is an important backstop, we do not want all cases going to court where they could otherwise be resolved by other means.”—[Official Report, 12 July 2021; Vol. 699, c. 50.]

I think that is what we all want, but it is certainly not clear to any of us how that is going to work in practice, particularly given the several bodies that can advise and take cases from students. The Bill as it stands does not ensure that the legal route is a backstop. During the evidence sessions, we heard from Smita Jamdar of Shakespeare Martineau—the only lawyer—who was called on by the Opposition. She gave striking and clear evidence and advice. She said:

“Built into certain types of court proceedings—judicial review, for example—is the expectation that you will first exhaust all alternative remedies, and that would include any internal remedies available under the complaints process. However, that is not the case in statutory torts; you could bring a claim outside the processes”––[Official Report, Higher Education (Freedom of Speech) Public Bill Committee, 7 September 2021; c. 50, Q93.]

That must be a real concern: the simple fact that you can bypass all the processes and go straight to court. The clause should therefore be removed or at least amended to reflect the Government’s own views on how they wish the tort to operate.

My second point is on facing the prospect of “lawfare”. We have wider concerns that the Bill will create a culture of lawfare against universities. Clause 3 does not restrict the tort to those who personally feel that their speech has been restricted or those who have been directly affected. It therefore risks opening up vexatious claims against universities from those who seek to do them harm. As Dr David Renton and Professor Alison Scott-Baumann said in their written evidence, the Bill means that,

“any lecture, seminar or guest speech could lead to a lawsuit.”

They pointed out that the statutory tort element of the Bill will open the floodgates to civil litigation and forms of lawfare, most likely from well-funded American groups on the hard right, or perhaps groups such as the Chinese state Communist party.

[Sir John Hayes (South Holland and The Deepings) (Con)]

I find the hon. Gentleman’s argument—I am being polite—paradoxical, or perhaps even contradictory, if I am being slightly less polite. On one hand, he and other critics of the Bill say that there is not a problem and that the Bill is not necessary, because these matters are not as numerous or severe as some suggest, despite our witnesses claiming that there is a culture of fear and a climate of silence. If there is not a problem, where does he imagine this welter of complaints will spring from? If there is not a problem and universities are dealing with these matters satisfactorily internally and settling people’s concerns, it will be hard to imagine the effects he set out in his remarks.

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[Matt Western]

Costly and burdensome, is what we were told on Thursday.

Institutions and student unions would therefore become risk averse and avoid inviting speakers, for fear of financial repercussions if they are subsequently cancelled. As a result, there would be fewer speakers, fewer debates and, we believe—not just us, but the whole sector believes—an overall reduction in free speech.

Let me give some examples and come back to the point put to me by the right hon. Member for South Holland and The Deepings about what that might mean. I was reading about the former Home Secretary, the former right hon. Member for Hastings and Rye—I never had the opportunity to speak to her in the Chamber, although I spoke to her outside it, and I had time for her. She was due to speak at the UN Women Oxford UK society in March 2020, and I remember her response when she was barred from speaking, following a vote in the UN Women Oxford UK committee on her role in the Windrush scandal. The invitation was withdrawn an hour before she was due to speak. Those sorts of things have happened through the decades on campuses and across our universities. It was the society’s decision. Would I have done it? I would not have done that; I would have seen it through. I would much prefer to hear from someone and to put the point to them face to face. Sadly, that was the society’s decision.

What would happen with the tort in the Bill? What would Ms Rudd, the former right hon. Member, do? Would she take the society through some legal process, or threaten to do so, or would she just walk away? Rather than getting involved in some sort of complex legal process, which might have damaged her reputationally and made everyone look stupid, I imagine she would have walked away. Certainly, that is what I would have done. What happened, however, which I think is telling, is that the University of Oxford deregistered UN Women Oxford UK from its affiliated societies and asked it to apologise to Amber Rudd. The university concluded:

“We have determined that the cancellation of this event was not carried out in accordance with university procedures, codes of practice and policies, in particular that of the freedom of speech.”

I believe that was handled very well by the university and perhaps not so well by the society itself.

What damage was caused to Ms Rudd, other than in terms of her time and her train fare or whatever it was? Was her reputation damaged? I do not think that it was. In fact, even her daughter tweeted:

“Can not believe mum was ‘no-platformed’ at my old Uni yesterday. Mum doesn’t need the platform and travelled to talk for FREE”—

good for Ms Rudd, travelling to talk for free. It is a shame that the society did not allow her to speak on campus—though of course that was their prerogative.

Let me speak next to the case of the academic Selena Todd, who was dropped from the Oxford International Women’s Festival hosted by Exeter College for her views on transgender rights issues. That decision prompted the OfS to warn that there is a legal requirement on universities to take steps that are reasonably practicable. Again, I think it was a shame that she was dropped—these sorts of debates should be had—but it was the organisers’ decision. I believe, as I think do most of us, that there is good practice out there; we keep citing it. We heard about the work of Professor Jonathan Grant of King’s College London, who has created a collaborative, co-operative process between the students’ union and the university to ensure that all the steps are gone through before the invitation goes out, so that there is no subsequent problem and the person can be heard.

The third example that I want to raise—

[Sir John Hayes]

Before the hon. Gentleman gets into his third example, I would like to go back to his second example; otherwise, I shall lose count of his examples. The point about the former Home Secretary, Amber Rudd, is not the inconvenience to her. Of course, one regrets the fact that it might have wasted her time and cost her her train fare, but that really is not the point. The point is that her opinions, which, broadly speaking, we take to be mainstream, were, in effect, prohibited. That is not compatible with a university environment that is, one would hope, there to stimulate debate, discussion, challenge and argument. It is not compatible with a free and open society.

[Matt Western]

We have tabled amendments proposing how universities and student unions should find their way through that, and we will come to some of them later.

To finish, I want to raise the much-cited case of David Irving, who was uninvited from speaking to the Oxford union as long ago as 2001 because of pressure from academics and members of the student union, who were furious that he was being given a platform for his views on the holocaust. A High Court judge had previously described him as “racist” and “antisemitic” during a libel trial. During the evidence sessions, one of the witnesses hypothesised:

“If I am disinvited because I am David Irving—I have published a book and then I was disinvited because people read the High Court judgment—what is the material loss to David Irving? I suspect that it is quite small, but we do not know. That is the level of detail that the legislation does not take us to.”––[Official Report, Higher Education (Freedom of Speech) Public Bill Committee, 13 September 2021; c. 102, Q211.]

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See explanatory statement to Amendment 5.

[Sir John Hayes]

I beg to move amendment 73, in clause 4, page 6, line 8, at end insert—

‘(2A) The OfS will compile an annual review of registered higher education providers, ranking their compliance with their duties under sections A1 to A3; to be made publicly available by such means as the OfS considers appropriate.”

In moving the amendment, I draw attention to my entry in the Register of Members’ Financial Interests, which details my role as an academic at Bolton University.

I was speaking at the weekend at a dinner with a group of friends who are academics. We addressed in conversation how we could ensure that universities will comply with the terms of the Bill, should it become an Act, as I expect it to do. I talked about the amendment we debated earlier––I will not seek to do so again, Mrs Cummins, because you would not let me––in which I recommended a periodical report. I suggested quarterly, but I am open-minded about what that period might be and its precise terms.

There is an alternative that I now suggest in the form of an amendment to this clause, which is for the OfS and, in particular, the new director, to provide information annually about compliance with the duties in new sections A1 to A3 and to make that publicly available. It would be less onerous, so it would pass the test that the Minister set of not being excessively bureaucratic, which was the argument that she used—in my view rather surprisingly—in resisting my first amendment, although she said that she would give it further consideration, for which I am grateful. It would certainly pass that test, but also give reassurance that universities will be expected to respond, and respond consistently.

My doubt about the legislation is not about its principles––I agree with them entirely. It is not about the practice, which I expect to be effective. It is more about the universities and how they respond. I suspect that, if we are not careful, it will be a variable response. Some will feel that they can comply with these duties more straightforwardly than others and some may even be reticent to do so. I am very keen to avoid creating what might be described as a littered landscape of all kinds of universities acting in all kinds of different ways.

[Emma Hardy]

I recognise the point that the right hon. Gentleman is making about how when a list is compiled, it can be influential on students choosing a university. They often look at rankings. My concern about the amendment is with the resource implication. I have mentioned before about higher education provided by FE. How much resource would student unions have to comply with this duty by putting on these kinds of events? Could smaller universities or colleges be downgraded in the ranking he referred to because they do not have the resources to offer the greater breadth that, for example, Oxford or Cambridge would be able to offer?

[Sir John Hayes]

It was at Cambridge that I had the discussion with the academics that I mentioned, by the way. I am involved with some postgraduate work there, which is not registered in the Register of Members’ Financial Interests because it provides no financial reward, so it is not a pecuniary interest, but I mention it in passing for the benefit of the Committee and others.

The hon. Lady is right that there is a challenge in respect of smaller providers, and I accept that. A good point was made in the earlier part of our consideration about FE colleges and about thresholds. There does seem to me to be an argument around thresholds. I would hope that that would become clear in the guidance. The hon. Member for Warwick and Leamington made a good point about that. Good practice will necessitate the new director establishing some protocols that do not allow the free for all that he suggested might be the consequence of not being clear about the sort of things that would stimulate his interest and lead to further steps. To be honest, I think that the good practice detailed in the Bill would include the director making clear his expectations of universities. The Minister will no doubt confirm this when she speaks, but I find it inconceivable that the director will not set those expectations out in guidance. He is missioned, after all, to provide advice, and it is inconceivable that that advice will not include some mention of the kind of circumstances in which universities might want to draw matters to his attention.

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[Matt Western]

I thank my hon. Friend for that suggestion.

What the amendment proposes is impractical. In evidence, we heard about the undefinable nature of the chilling effect. One of the Bill’s stated aims is to erode that effect, but how can the OfS be expected to rank universities on how they do that? As my right hon. Friend the Member for North Durham put it:

“Getting your head around the idea of self-censorship is like having blancmange in your hands.”––[Official Report, Higher Education (Freedom of Speech) Public Bill Committee, 13 September 2021; c. 95, Q194.]

How is it substantive? How is it made quantifiable and therefore a true measure?

[Sir John Hayes]

On that point, I want to get to the bottom of this issue of good practice. As the hon. Gentleman knows, clause 4 already states:

“The OfS may…identify good practice relating to the promotion of freedom of speech and academic freedom”.

As well as giving advice—dealt with in the next paragraph—the identification of good practice will end up ranking universities, because where good practice is identified it will be clear, and where it is absent it will be equally clear.

[Matt Western]

I thank the right hon. Gentleman for that point of clarification, but even where good practice is identified, that is a qualitative judgment being made, in this case, by an individual or perhaps a small team of people; and while that is accepted and understood, and most people recognise good practice when they see or hear it, how it is quantified into some measure is a concern. Is it a matter of giving five points for this and three points for that? How is a genuinely substantive and transparent ranking system that people can understand to be arrived at? I understand the right hon. Gentleman’s intention, but I believe there are better ways of under-standing where there is good or bad practice. One of the witnesses, Sunder Katwala, said:

“self-censorship and chilling effects are cultural points”.––[Official Report, Higher Education (Freedom of Speech) Public Bill Committee, 13 September 2021; c. 103, Q214.]

When you need to do some quantitative analysis, how do you quantify what is essentially a cultural phenomenon?

The point made by the chief executive of the OfS was that

“Regulatory burden is not necessarily a bad thing,”

unless “it is disproportionate.” She added:

“The way through this is to ensure that our response is proportionate and risk-based”.––[Official Report, Higher Education (Freedom of Speech) Public Bill Committee, 13 September 2021; c. 113, Q245.]

I would say that what is coming from the OfS is some direction. They might want some sort of reporting, but it has to be proportionate to identifying risk, rather than some sort of beauty parade showing how different universities are performing.

In their impact assessment, the Government claimed that non-legislative work, including the OfS-led review and guidance is not sufficient to solve the problems identified. Non-legislative proposals would not have the desired effect because they are based on a voluntary approach. The amendment is fundamentally illiberal, putting the OfS in the position of an ombudsman that sits above the sector. Dr Greg Walker, the former chief executive officer of MillionPlus, was concerned about the OfS becoming an arbiter. He described it as being much like the British Board of Film Classification. How would that work? The Association of Colleges reminded me in our meeting that the OfS is provider-blind. How, then, can it be expected to rank institutions? The former Secretary of State, the right hon. Member for South Staffordshire (Gavin Williamson), said on Second Reading:

“The OFS will also play an important role in identifying best practice and providing advice in relation to the promotion of these rights.”—[Official Report, 12 July 2021; Vol. 699, c. 50.]

Why have not the Government put that in place more, rather than potentially wasting thousands of pounds on implementing this legislation?

The amendment goes beyond identifying best practice and advice and into intrusive review and value-based judgments on a university’s attempts to navigate freedom of speech issues.

[Sir John Hayes]

The hon. Gentleman is being generous in giving way. What he describes is not uncommon when we look at universities. We heard earlier that student satisfaction is measured. Student satisfaction is, by its nature, a subjective judgment: students gauging their view of their university—the teaching, care and stewardship. Of course those judgments are subjective, but they are none the less valuable.

[Matt Western]

I understand that. My understanding of that student survey is that they complete it and assign a score, on different categories and measures, to how the university has met their expectations, to try to quantify that experience. It covers teaching, accommodation and how the curriculum has been delivered compared with their expectations. That is a positive thing.

The Opposition do not believe that there is a need for ranking. It is a qualitative measure and I think it is a stick to beat and bully those the Government may not like. I have real fears about the Bill. Increasingly, I sense that it is the work of the McCarthyite tendency, and the amendment would simply aid them in their subjective assault on the sector.

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[Michelle Donelan]

As discussed, the amendment seeks to introduce a requirement on the Office for Students to publish an annual report that would assess and rank higher education providers on their compliance with their freedom of speech duties. Schedule 1 to the Higher Education and Research Act 2017 sets out existing reporting requirements placed on the OfS. Paragraph 13 of that schedule requires it to prepare a report on the performance of its functions during each financial year. That annual report already summarises the regulatory activity of the OfS as undertaken in that year. Following the Bill, that report will be able to include the regulatory work that the OfS has undertaken in relation to the new registration condition on freedom of speech and academic freedom, as well as information on the operation of the new complaints scheme.

In that context, proposed new section 69A in clause 4(2) of the Bill also provides that the Secretary of State may, by direction, require the OfS to report on specific freedom of speech and academic freedom matters in its annual report, or in a special report. Both those reports must be laid before Parliament, so they will be subject to scrutiny and can be considered by the sector itself. Members should be aware that another provision of the Bill—paragraph 12 of proposed new schedule 6A in clause 7(2)—requires the OfS to conduct a review of the complaints scheme or its operation and to report the results to the Secretary of State at the Secretary of State’s request. To impose further reporting, as required by the amendment, could be overly bureaucratic. However, as previously discussed, I am happy to reconsider the reporting requirements. I hope that that will satisfy my right hon. Friend the Member for South Holland and The Deepings. I will take the matter away and continue to consider it.

[Sir John Hayes]

The Minister is becoming increasingly characterised by her willingness to listen, and that is the mark of any good member of the Government. All people who have been Ministers know that Bills improve through scrutiny—I am thinking of the right hon. Member for North Durham, and I am looking around for others. The right hon. Member for Hayes and Harlington was an aspirant Minister—an aspirant Chancellor, indeed. Governments that listen usually end up with better legislation, so it is of great credit to the Minister that she is listening to the scrutiny and responding with the tone that she is.

The hon. Member for Warwick and Leamington said that freedom is hard to quantify and that the measures in the Bill will be hard to measure. Freedom is like happiness. Neither is absolute, both are hard to define, but the pain of the absence of either is keenly felt and better cured. That is what the Bill tries to begin to do. I am anxious that it has the effect that the Government desire, and keen that we produce some means by which we measure that effect. The amendment may not be the ideal way of doing so, but I am grateful for the comments that have been made from across the Committee recognising that my attempt is to make the Bill as consistent in its application as possible, and as clear to those who will have to work with it.

On the basis of the Minister’s welcome willingness to listen and respond subsequently, and with one final caveat, I am minded to withdraw the amendment. The caveat is on my point about universities being obliged to report to the new director in those instances where there are matters of contention, such as changes to the curriculum, courses that are not run, or events that are stopped in some way. I have no doubt that that might form an amendment when this matter comes to the other place. I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Ordered, That further consideration be now adjourned. —(Michael Tomlinson.)