Submission to the National Committee of Inquiry Into Higher Education (1996)

Bolton Institute

Submission to the National Committee of Inquiry into Higher Education (1996)

INTRODUCTION

In this submission we have sought to concentrate on issues affecting the participation rate, the local and regional role of major HE institutions and the crucial matter of scholarship in relation to the quality and effectiveness of teaching. Those issues are of particular interest and relevance to Bolton Institute and its future as the University of Bolton.

The major theme of the submission is that the expansion of higher education is highly desirable, feasible, and essential if Britain is to keep up with the leading nations in the international economy. This is informed by the strongly held view that more learning opportunities should be created and made available to greater numbers of the population, with particular emphasis on under-represented or deprived categories and ideally in locations readily accessible to all local communities.

Given that our response consists primarily of a combination of facts, predictions, opinions and prescriptions it may be appropriate to start with what could be described as a broad statement of faith with regard to the primary learning function of HE institutions.

Learning

Fundamentally, we hold to the view that learning is a major force for good, intrinsically valuable as well as instrumental in gaining other benefits and rewards. The drive to learn, in all its manifestations, is a powerful motivating force strongly influencing human behaviour. It is, or can be, a highly pleasurable, challenging, and profoundly satisfying activity.

Learning does of course take place outside formal education processes, systems or institutions. The evolution of such systems is essentially a response to the need and demand for learning, organised to make the process more effective.

The HE sector represents a key part of that response. In whatever way it classifies its offering (subjects, disciplines, processes, or programmes) it exists to serve, promote, and guide learning needs or drives at a particularly challenging and demanding level of intellectual rigour, requiring high standards of performance and commitment from its students and teachers. As such it is a stage, if not the pinnacle, in the progress of the learner, building on the outcomes of earlier stages, and making provision for a wide variety of different subjects, anticipated outcomes and desired benefits.

This approach to learning guides Bolton Institute in the creation and development of learning opportunities for all those with the will and the ability to benefit from them, whether these be in Technology, Business, Education, Sciences or Arts. It applies to job specific courses, general vocational preparation, or simply to programmes of study taken for personal fulfilment. In this manner the Institute makes its contribution to the economy, the employment market, the fulfilment of individual aspirations, and society in general.

It does this by means of various modes of operation, identified later, but with particular emphasis on the principle of lifelong learning and cultivation of a learning culture in its local sphere of influence.

Q 13WHAT SHOULD BE THE PARTICIPATION RATE FOR HIGHER EDUCATION IN THE CONTEXT OF CHANGES IN SOCIETY, THE ECONOMY AND THE LABOUR MARKET OVER THE NEXT 20 YEARS?

The Institute is strongly committed to higher participation rates, a general expansion of numbers in higher education, and the improvement of access for a range of student categories currently under-represented in the sector, and particularly so in the North West Region. It firmly believes that improved access will be a major factor in the projected expansion of student numbers.

Special attention has been devoted by the Institute to the following categories with reasonable success:

• mature students with other than conventional academic qualifications;

• collaborative arrangements with employers and other institutions, including FE colleges;

• women into technology, with Civil Engineering being particularly successful in this;

• post-graduate qualifications;

• flexible part-time arrangements, already 40% of the total enrolments;

• variable attendance facilitated through a twelve hours a day modular programme with provision for sabbaticals;

• short courses, with particular reference to small and medium sized firms;

• distance learning;

• provision for those wishing to pursue continuing professional development (CPD);

• links with external access courses.

This is not a comprehensive list, but it does refer to areas of provision which could and should be greatly expanded locally and nationally along with the general expansion in numbers of conventional entrants to higher education, given appropriate government policies.

The expectations and aspirations of the Institute along expansionist lines are entirely consistent with evidence from national and regional as well as local sources. There is a compelling volume of evidence indicating that in terms of demand and need there are strong pressures in operation which will significantly increase the participation rate over the next two decades.

Indeed it could be argued that were it not for the financial constraints imposed on the sector in recent years the rate would be considerably higher than is currently the case. Similarly it may be safely asserted that the primary factor in determining future rates will be funding constraints rather than the level of demand, identification of need, the intellectual capacity to benefit from higher education provision or, indeed, the needs of the national economy. In terms of the latter factors current trends and pressures suggest that there could be a considerable expansion of total numbers in HE over the period in question.

Perhaps some examples of these trends and of the evidence referred to earlier, will confirm the economic and educational case for expansion. They will also be used to support the conclusion that higher education should be expanded to cope with a participation rate in advance of 45% and an increase in total numbers (full-time and part-time) substantially above the figure of over 1.6 million in 1995-96 (THES statistics, September, 1996). The timescale for the realisation of this aim will be determined primarily by funding decisions at national level.

• The age participation rate in the UK has risen from about 18% in 1989 to just over 30% in 1995 (HESA statistics 1996). This may be contrasted with a rate of 43% in Scotland (John Sizer, SHEFC 1996). During the same period part-time numbers increased from approximately 850,000 to 1,100,000.

• Significantly, during these years many thousands of appropriately qualified students either did not gain or did not seek entry to HE, supporting the view that there is a rapidly expanding reservoir of individuals qualified and capable of benefiting from HE provision, should they wish to do so.

• In 1995 57% of undergraduates were aged 21 or over on entry (HESA statistics 1996). This confirms the view (THES, September 27, 1996) that more and more school leavers are taking up the option of deferred entrance into HE. This trend may be accelerated by information from the same source showing that mature students achieve a greater percentage of firsts and upper seconds in their degree results than traditional school leavers.

• Government departments and other agencies as well as HE Institutions are strongly promoting the goal of a learning society in which the culture of learning is much more pronounced than has previously been the case. For example in a recent document (Lifetime Learning 1996) the DfEE asserts that “Lifetime learning matters to the economy, to business, to communities and to individuals. It is important socially, culturally, and economically”. In laying out the elements of a policy framework it aims to contribute to “establishing a society in which learning throughout life becomes a way of life”. A five year campaign for learning was also launched by the Royal Society of Arts in April 1996 with similar aims. It is reasonable to assume that such initiatives will further stimulate the demand for learning opportunities, including those offered in HE.

• Brian Fender, Chief Executive of the HEFCE, recently argued that there is still considerable scope for growth in HE numbers (London University Conference, May, 1996), identifying three particular factors at work: continuing disproportionate under-representation of lower socio-economic groups in HE; regional variations dependent on participation of 16-19 year olds; and opportunities for life-long learning. These factors particularly apply to Bolton and the North West Region.

• With further reference to the regional dimension a document produced for the European Commission on behalf of Greater Manchester, Lancashire and Cheshire, the Single Programming Document (1994) has established that the North West Region has: lower than average staying-on rates at school; a disproportionate number of school leavers with few, if any, academic or vocational qualifications; a lower percentage of the workforce with degrees or above compared with the national averages. Significantly, the document also noted that most firms, particularly SME’s, were simply not aware of what research, consultancy and training support local universities had to offer, asserting later that Higher Education Institutions “have a key role to play in reversing the economic decline of the Region”.

Although the above points and statistics do not lead to a precise quantification of future participation rates they are nevertheless submitted in support of the claim that a substantial expansion in numbers entering HE is highly desirable, probable and perhaps even inevitable.

Q 14WHAT FACTORS SHOULD DETERMINE THE APPROPRIATE LEVEL OF PARTICIPATION IN HIGHER EDUCATION?

a)Needs of the Labour market

It is clear that Government, employers, educational institutions and individuals see the needs of the labour market as a critical factor (but not the only one) in determining the shape, size, curricula, modes of learning, and outcomes of higher education. Most advocates of this view assume a close relationship between investment in higher education and economic success. The Institute fully endorses this view, with all that it implies in terms of establishing fruitful working relationships and dialogue with the various manifestations of that market when designing its course provision. Indeed one of its avowed goals (Strategic Plan 1995-2000) is to be an integral part of the wealth creating and economic regeneration activities of the North West. To this end it seeks to establish strong collaborative links with local, national, and international communities and organisations.

Less clear is how we are to answer the questions: What are the needs of the labour market? How can they be identified? A simple response might be to say; ask various groups of employers, professional bodies, students, graduates, or other interest groups. Fortunately many agencies are currently engaged in the exercise, perhaps more systematically than was the case in the past. Unfortunately their findings are often at variance, and frequently employ terminology which is not always clear or helpful, eg, note the widespread use of the concept of ‘skills’ of many varieties; ‘core’, ‘ancillary’, ‘general’ and ‘transferable’. This term is now often used to encompass what previously might have been described as aptitudes, qualities, capacities, dispositions, understanding, knowledge, values, etc, giving the misleading impression that the object of study is primarily to develop a range of conditioned or mechanical responses to specific stimuli or situations.

Despite this problem much helpful work is presently available, as exemplified in a number of contemporary documents: Skills for Graduates in the 21st Century, a report produced for the Association of Graduate Recruiters (1995) which extensively surveyed the views of universities, graduates, support bodies, funding agents, large employers, small and medium sized organisations, CBI, and government departments; What are Graduates? A discussion paper published by the Higher Education Quality Council Quality Enhancement Group (1996); plus the Single Programming Document referred to in the earlier section.

Space precludes an extensive listing of the findings in those documents, but it is useful to identify in broad terms some of the main features of the contemporary labour market.

These are:

• the increasing pace of scientific and technological change particularly in information technology;

• the rapid proliferation of knowledge (and its equally speedy obsolescence) which is readily accessible at national and international levels;

• the increasing need for mobility and flexibility in employment and learning;

• fierce international competition for industry and commerce - and to some extent education;

• changes in the nature of work with a greater emphasis on professionalism and human resource development;

• the absence of permanence and security in jobs, emphasising the need for re-training or re-learning opportunities;

• greater attention being given to the training and educational needs of small and medium sized enterprises.

This list is relatively non-controversial though certainly incomplete. What is more difficult is achieving a consensus on a definitive list of the desirable outcomes of the graduate and post graduate learning process.

In this respect somewhat different perspectives are offered by various contributors to the debate. For example the Skills for Graduates in the 21st Century document recommends the inclusion of a considerable list of what it describes as Self-Reliance Skills in the HE curriculum (eg, self-promotion, self-awareness, action planning, networking, negotiation, political awareness, self-confidence, etc). There are probably sound arguments for the acquisition of these attributes, but the list does demonstrate the problem of categorising items such as self-confidence and political awareness as ‘skills’.

By contrast the HEQC discussion paper referred to above warns of the dangers of reducing general attributes such as knowledge, understanding, dispositions, attitudes and values to the more confining notion of ‘skills’.

Without entering into the debate it is sufficient for the purpose of this response to conclude that insofar as students are being prepared for the labour market, the curriculum and the intended learning outcomes should take account of the current features of that market. The debate is therefore highly desirable and should involve the wholehearted participation of the academic community in a spirit of co-operation with all the other interested parties in the learning process. Open-mindedness needs to be practised as well as taught.

b)Wider benefits of higher education

Though the traditional dividing line between ‘vocational’ and ‘non-vocational’ or ‘specialist’ and ‘general’ education has rightly become blurred and questioned, it is still possible to identify a range of benefits which are not strictly labour market related. This perhaps should be qualified by asserting that even those courses categorised as essentially ‘vocational’, for example medicine, engineering, law, nursing, may produce personal qualities and social benefits much wider than those required by the chosen profession.

In this respect Bolton Institute aims to be a significant contributor to the cultural and social life of the local community, with particular reference to the provision of learning opportunities to meet a range of educational objectives. Among these are:

• satisfaction of intellectual curiosity;

• stimulation of intellectual growth and general powers of the mind;

• individual fulfilment and enrichment;

• promotion of a culture of learning, which will have intrinsic as well as instrumental value;

• enhancement of self-confidence, self-respect and self-esteem (vital for many mature age students);

• raising of academic aspirations;

• development of enterprise, creativity and independence of thought;

• pleasure of being involved in an academic community;

• recognition and understanding of the problems and needs of society as a whole.

The list could be considerably extended (or amended) but it is contended that the fostering of such attributes through the academic process has immense (though difficult to quantify) value in terms of personal and social development, ability to cope with social change, promotion of social mobility, and the capacity to become involved in community activity in a democratic society.

In summary the provision of such opportunities should add support and impetus to the drive to change the tradition of low educational expectations and underachievement which is perceived to be hampering the UK in its economic, social and cultural development.

c)The demand from students

There is not much merit in offering learning opportunities which potential students find unattractive, do not want, cannot afford, or find practically inaccessible. Higher education therefore needs to be perceptive in establishing the requirements of students and in identifying the barriers which constrain their participation. There is an urgent need to listen more closely to the views of potential, intending, present, and former students particularly when designing curricula, deciding on modes of study, clarifying course objectives, and creating the environment in which learning takes place.

Not that these views should absolutely determine the nature of provision. It is simply that opinions from this source should be taken into account along with the views of government, employers, professional bodies, educational managers, and curriculum designers, when creating or developing that provision. Techniques are available for the purpose, and are occasionally used, but there perhaps needs to be a greater strength of will to ensure that practice is consistent with the frequently expressed principle of consultation.

d)The nature of higher education provided

Given the factors of flexibility, accessibility, diversity of demand, receptivity to differing modes, and the rapidity of change, it is evident that the balance in the levels of learning and modes of delivery is changing and will continue to do so, with consequences for the overall numbers in HE.

National trends are exemplified in the experience of this Institute, perhaps to a greater extent than elsewhere in some categories. Generalising from this experience it can be argued that:

• the demand and need for post-graduate qualifications of a wide range will expand;

• the percentage of mature age students taking initial HE degrees will continue to increase;

• there will be more foundation and access courses on offer, particularly for entry to higher qualifications in Technology;

• the relatively small but very successful recruitment of women into technology courses will gather momentum;

• part-time, mixed-mode, short course and other flexible learning arrangements will steadily grow;

• work-based and distance learning programmes will be further developed;

• collaborative provision with the world of work will expand.

Assuming that government agencies continue to encourage some of these developments, perhaps even with the necessary resource backing, this changing pattern of provision should transform the level of participation in HE, as well as the nature of the sector, to the benefit of the economy and to society in general.