Tag Archives: part-time students

Disadvantage, inequality and social mobility: It’s not just about schools

‘Our society is stuck in a rut on social mobility,’ writes Institute of Education Director Becky Francis in a blog post published this week. Despite the efforts of successive governments, she writes, ‘the gap between young people from disadvantaged backgrounds and their peers … in education, income, housing, health … continues to yawn’.

Professor Francis cites a wealth of recent evidence to prove her point, including a report from the Education Policy Institute which shows that the most disadvantaged pupils in England are on average more than two full years of learning behind their better-off counterparts by the time they leave secondary school; and statistics from the Department for Education which indicate no improvement in the gap in university entry between those who received free school meals and those who did not in the seven years between 2008-09 and 2014-15. An estimated 24 per cent of pupils who were in receipt of free school meals at 15 had entered higher education by age 19 by 2015-15, compared to 41 per cent of the rest.

This makes for depressing reading, but it is not particularly surprising. While social mobility has been near the top of the political agenda in the UK for some time, efforts to tackle it have been half-hearted, at best, often loading pressure on the education system to turn around problems which are much wider and much more fundamental. This isn’t to say that the problems are insoluble or difficult to comprehend – just that solving them will take a much bigger effort and a much profounder change to the organization of our society than politicians like to pretend. In many cases, I am sorry to say, politicians have offered ‘solutions’, talked about ‘magic bullets’, in the full knowledge that they are nothing the sort. In fact, as they probably well know, the assumptions they accept about the limits of what it is possible to do make meaningful change to social mobility at best highly unlikely, at worst quite impossible. Despite years of overheated rhetoric, rather than narrowing, disparities in income, education and health look set to rise as we enter a further period of needless and self-inflicted austerity.

Professor Francis makes an eloquent case that, from a schools perspective, the key policy change should be ‘to find ways to support and incentivise the quality of teaching in socially disadvantaged neighbourhoods’. This is important. I have direct experience of the difference a really talented, committed teacher can make to students’ lives and aspirations, albeit in a further education context, and I have seen the difference poor teachers can make, from school to higher education. It is clear that successfully incentivizing the best teachers to work in the most deprived schools, by whatever means, will make an important difference to outcomes. And it is evident, as Professor Francis also argues, that early-years interventions are often the most effective and best sustained.

But it is clear too that these, as isolated interventions, will have limited impact. Making a deep and lasting impact requires that we turn around the social and political trends that arrest and make more difficult social progress of this sort. The most obvious of these is the entrenched inequality that has come to characterise our society in past decades. There is a clear correlation between inequality and social mobility: the more unequal a society is the less socially mobile it is. And the UK is among the most unequal societies in the industrialised world. Part of the problem is that the rungs of the ladder have become too distant from one another and the cost of failing and falling down a rung becomes greater and greater. This partly explains why education has become such a high-pressure, high-stakes game, one which middle-class families have become adept at playing, further squeezing the life chances of the children of the less well off. It also helps explain why working-class students are happy to take on heavy debts to access higher education: in the high-stakes, anxiety-ridden education system we have created, the enormous costs of failing make the payment of exorbitant fees – the highest anywhere in the world – appear reasonable. The combination of such profound inequality with a gameable system and the pervasive myth of meritocracy – cultivated by politicians including Prime Minister Theresa May – is incredibly toxic.

Its impact can be readily recognised in the failure of elite universities to widen access to their institutions. A report from the Reform think tank, published this week, showed that England’s leading universities had made ‘incredibly slow’ progress in widening access to students from disadvantaged backgrounds, despite spending hundreds of millions of pounds on interventions which, I suspect, have ,in some cases, had more to do with satisfying the Office for Fair Access than making a genuine difference to their student profile. While, overall, English universities have increased access for students from disadvantaged backgrounds, the progress, predictably enough, has been skewed towards ‘lower- and middle-tier universities’, while the elite institutions live down to their reputation (hugely alienating from the perspective of prospective working-class students) as finishing schools for the already-privileged. The most dramatic gap obtains between private school students and those from state schools. In 2014-15, 65 per cent of independent school students entered a highly selective HEI by age 19, compared to 23 per cent of state school students, a gap of 42 percentage points (the gap was 39 percentage points in 2008-09). The tremendous loss of talent this represents is evidently thought a price worth paying for preserving the privileges of the fortunate few.

The fees regime, introduced by the Conservative-Liberal Democrat coalition in 2010, frequently vaunted as being an agent of fairer access (a myth that can only be maintained by ignoring huge swathes of evidence in favour of the bits you like), has, in fact, been a pretty much unmitigated and indefensible disaster in terms of widening access, not only creating what is effectively a two-tier university system but resulting in a 56 per cent collapse in part-time (mostly mature) student numbers and obliging the Open University, once a genuine agent of progressive social change, to massively inflate its fees, shutting yet further doors in the faces of working-class students. Its overall impact has been to make higher education more expensive for poorer students than for their richer counterparts while making the prospects of an ‘elite’ higher education seem yet more remote for working-class students who, despite the resistance of these institutions to admitting them, generally outperform more privileged counterparts with comparable grades.

It isn’t just mature and part-time higher study that has fallen into steep decline since 2010. Successive governments have made swingeing cuts to further education, and to adult skills, in particular, leading some experts to predict the imminent death of publicly funding adult FE. Only the activism of unions and representative groups, alongside the belated recognition that maybe training our homegrown talent wouldn’t be a bad idea in a post-Brexit, post-free movement Britain, have prevented adult education in FE from disappearing altogether. At the same time, as John Holford noted in a recent article, the narrowing of further education’s mission to a Gradgrind-like economic utilitarianism has made it increasingly difficult for colleges to fulfil their wider remit in their communities. The message to working-class students and prospective students from working-class backgrounds, wherever they study, could not be clearer: stick to what you know and keep your aspirations low. Aspire to a job and leave the joys of a broader, liberal education to those who can afford it. Hardly the stuff of an aspirational, learning society.

This constriction in opportunities for young people and adults has a major impact on the aspirations and achievements of children. As I have argued before, the role of the family is absolutely critical in breaking the intergenerational cycle of poverty. Family learning has a frequently neglected but hugely important role to play in motivating children and adults to learn, creating learning environments within the home and setting an example that can prove infectious. The restoration of funding for adult education should be part of a wider national effort to promote social mobility and combat inequality. This should also include a general increase in levels of investment in education, including in early years and high-level vocational and technical education (which has never been accorded due respect by UK policy-makers), bringing the UK to the level of comparable nations such as France and Germany, and the scrapping of the costly and dysfunctional fees system in higher education. Crucially, theses interventions should be part of a wider national conversation about how we reduce inequality, improve productivity and boost wages while redistributing wealth more fairly. We also need honest politicians who tell us the truth about the challenges we face and don’t spin us yarns about meritocracy and how education alone can overturn entrenched inequality. I don’t think any of this is rocket science. It just suits some of those who like things the way they are to pretend that it is.

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Education in an age of anxiety

We live in worrying times, don’t we? We test our children remorselessly and from an inappropriately early age because we are worried their performance is falling behind international standards. We send them to school earlier and press them harder than do most comparable countries; we also invest significantly less than most of them, citing our worries about money and the escalating debt. We continually reform our national skills strategy because we worry our skills system is less than ‘world class’ and our economy is becoming uncompetitive, putting huge pressure on further education to adapt and deliver on reduced budgets and under constant threat of a clobbering from our oppressive accountability system. And young people accept the reality of huge post-graduation debts because they fear the even greater costs of failing and slipping down the ladder. Wealthy parents spend a fortune gaming the system because they too are beset by the fear of downward social mobility – a grave risk indeed in our appallingly unequal society.

For very many of us, anxiety is the governing principle of our lives. Young people are wracked with anxiety about how they will ever be in a position to buy a house while those who do own their own homes are often weighed down by huge debts, unable to save or to think about retirement and forced, in many cases, to take on multiple jobs just to stay afloat. In some ways, I think Theresa May, in the brief honeymoon period of her dismal premiership, was right to highlight the plight of those ‘just struggling’ to get by. There are very many people out there who are stretching themselves to breaking point to do no more than simply exist. Where Mrs May was wrong, of course, was in thinking that she and her party were the solution to the problem rather than one of its foremost drivers.

It was, after all, her predecessor in power (another child of privilege so unacquainted with failure he couldn’t imagine it happening to him) who so successfully closed down debate about how much we should spend on public services by promoting the idea that overspending on things like health and education caused the financial crisis (and that another was looming – you know, like Greece – should we even think about spending as much on our children’s education as the Germans or the French spend on theirs). And it is her party that has ratcheted up the testing regime in schools, introduced more selection into schools (bad news and another cause of anxiety unless you can afford to rig the system and of course it is a system designed to be rigged), and made education dizzyingly expensive in a way that we are encouraged to think is financially necessary but which, in fact, is out of kilter with the cost of education in all comparable countries.

And somehow, in the midst all of this, we have voted repeatedly to be governed by those with least comprehension of the day-to-day toll of our anxiety-laden lives; a party of privilege and inherited wealth many senior members of which actively despise those at the bottom of the pile and have never experienced the worry of not knowing where the next meal is coming from or how they will afford a new pair of shoes or school uniform for their kids. Theirs is a different world of trust funds, debt-free liberal education, expensive internships, closed networks, risk-free investment and endless opportunities.

Doubtless they believe these opportunities should be available for them and their children – who wouldn’t – but it is equally clear that they do not want them to be available to us or our children. This is clearer nowhere else than in education. Building on the work of the last Labour government, which introduced and increased tuition fees, narrowed the further education curriculum and limited funding for part-time higher education, the governments of Cameron and May have overseen an enhanced vocationalism in FE and skills, cultivated a greater focus on selection (‘choice’) while reducing the overall budget for state-maintained schools, and created a hugely expensive two-tier system of higher education with elite universities, which offer a traditional liberal arts curriculum, dominated by young people who attended expensive private schools, while the rest, driven in part by anxiety about the career risks of non-vocational study, largely go to less prestigious institutions which offer more practical courses related to a job or vocation.

At the same time as countries such as China and Singapore began investing heavily in lifelong learning, recognizing the critical importance of skills renewal among the adult population and the need for education to prepare people not just for a job but for a life, the UK government, set on reducing the size of the state by any means and at any cost, took a wrecking ball to its own once enviably advanced lifelong learning system. The number of part-time students in higher education has fallen for seven consecutive years; last year alone by eight per cent – an overall decline of 61 per cent since 2010, when the coalition government introduced its funding reforms. The vast majority of part-time students, of course, are mature, adults who are already in the workforce who are combining higher study with a job, a family and other financial commitments.

Unsurprisingly, in this era of escalating anxiety, it is those with the most commitments, financial and otherwise, who have found themselves most excluded by the fees hike and the introduction of loans (this seems to have come as a surprise to the architects of the scheme though it was highlighted as a likely consequence, by NIACE and others, as early as 2010). As most part-time mature students tend also to come from less well-off, non-traditional backgrounds, this decline has also had a – largely unreported – impact on the social mix of our universities and on efforts to widen participation. As Claire Callender writes, the fall ‘has been greatest among older students, those wanting to do “bite size” courses, and those with low-level entry qualifications – all typically “widening participation” candidates.’

This shocking decline has caused barely a wrinkle in the brows of successive universities ministers. The present one, Jo Johnson (another politician who has had to claw his way to the top) has done little to suggest he considers the collapse of part-time higher education to be anything more than a minor inconvenience; regrettable, for sure, but a price worth paying to maintain the integrity of our costly and evidently failing higher education funding system. The line seems to be to stress the system’s relative success in increasing the numbers of young people from less-advantaged backgrounds (though the ‘top’ universities remain stubbornly resistant to change, continuing to act as finishing schools for the children of the very wealthy). Of course, this would look like less like success if part-time students were included in the same calculation – and it starts to look like serious failure if we also consider the institutions to which ‘widening participation’ candidates tend to gravitate.

The picture is no rosier in further education, where the government has savagely reduced the adult education budget to the point where usually conservative commentators were warning of its complete disappearance by 2020. Since then the government has attempted to restore some stability to the budget, but the cuts have been eye-watering, limiting the breadth and quantity of opportunity for older learners. In 2016-16 alone 24 per cent of the budget was cut, on top of year-on-year cuts amounting to 35 per cent of the total adult skills budget between 2009 and 2015. The range of provision on offer has narrowed too, reflecting largely discredited government choices about the skills that are economically useful, but also, I suspect, the tendency of people, driven by anxiety, to opt for courses they think will have a direct economic pay-off. Of course, this approach neglected – and continues to neglect – the importance of a range of other crucial skills, which are important in the workplace and in life more generally, such as resilience, creativity, problem-solving and, perhaps most importantly of all, a love of learning. As this year’s OECD Skills Outlook report suggested, the neglect of such skills makes little economic sense and is almost certainly harmful to productivity, where the UK traditionally performs extremely poorly.

Of course, the anxiety which drives people away from education and into compromised choices which do little justice to their real talents and aspirations, is part of a wider anxiety, fed by cuts to public services, rising household debt, growing inequality, pay restraint, insecure work and rising costs of living. For too long, the question of how much we should spend and on what has been off the agenda, as though we were too impoverished a nation to make serious choices about the kind of society we want to belong to. This year’s general election appears to have opened debate a little wider, though it takes place in the face of bitter resistance from the mainstream media and those who control it (who, by and large, whatever their populist pretentions, are rather happy with a status quo that privileges them and stifles the vast majority). My hope is that we can have a serious national conversation about tax and public spending in spite of this.

An Oxfam inequality index ranked the UK 109th in the world for the proportion of its budget it spends on education – behind the likes of Kazakhstan and Cambodia (no disrespect intended to those nations but the UK is evidently a significantly wealthier country with very well-established education institutions and a well-documented need to increase both its productivity and the basic skills of its population). Oxfam’s report also noted that tuition fees in the UK are the highest in the industrialised world, with the burden of student debt disproportionally borne by poorer students. It noted too that UK corporation tax has been cut further and faster than in most other rich countries, ranking the UK’s tax system 96th in terms of commitment to reduce inequality.

The government has approached Brexit without a plan – even for the Brexit negotiations themselves. Sabre-rattling and political posturing are, it turns out, no preparation for lengthy, complex and highly detailed negotiations across a huge array of topics. Little wonder EU counterparts are privately talking with thinly veiled contempt about David Davis and his team. But the government has let us down in a more profound way. It has purposefully stifled debate about the sort of society we can be, while effecting to have no choice about deliberate and ideologically driven decisions about funding which have had a calamitous impact on people’s lives. In doing so, it has denied hope of change or a better life to many thousands of people.

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Lifelong learning – an idea whose time has finally come?

Political interest in adult education is experiencing one of its periodic spikes. Time will tell whether the interest is sustained or whether, as has so often been the case, it amounts to little more than a rhetorical flourish, a knowing half-nod to the changing zeitgeist rather than an attempt to capture it. Brexit, of course, is the unknown quantity with the potential to change the game and make lifelong learning a genuinely pivotal component of mainstream political thinking in the UK. A dawning (and, frankly, rather belated) appreciation of its far-reaching implications is the likely driver of this latest shift in perception.

The government’s green paper on the development of a new industrial strategy makes much of the role of adult skills in post-Brexit economic renewal and demonstrates a rare awareness of the need to ensure better articulation between the demand for skills and their supply. This has been a niggling issue with UK skills policy for decades, with successive skills strategies seemingly concocted in a sealed civil service laboratory, some distance from the stubborn and not always particularly agreeable realities of British economic life. The result, too often, was training for training’s sake and a pretty shoddy return on public investment. Fortunately for the dozens of journeyman politicians who have passed through this territory, tolerance of failure in this neglected area of policy has tended to be high. Only a handful – John Hayes and Vince Cable notable among them – have offered any vision or sense of a wider role for FE and skills, and that in spite of a largely uncomprehending civil service (one short-sighted civil servant famously suggested to Cable that all public funding for FE be withdrawn to meet the department’s budget reduction target).

The new industrial strategy is an opportunity to change all this. It includes skills as one of 10 ‘pillars’ which will drive growth and raise productivity. The green paper highlights a number of ‘key issues’ concerning skills which, it says, we need, as a country, to address. These are: poor levels of basic skills, particularly among younger adults; a shortage of high-skilled technicians below graduate level; skills shortages in sectors that depend on science, technology, engineering and maths (STEM); skills shortages specific to certain sectors, which force some employers to look overseas to fill certain vacancies; the poor quality of careers advice; and ‘the accelerating pace of technological change’ which ‘means there is a growing challenge with lifelong learning: supporting people to up-skill and re-skill across their working lives’. People, the green paper continues, are ‘living and working longer’ at the same time as ‘training across working life is going down’, particularly among older workers and low to medium-skilled groups (those, it notes, whose jobs are most likely to be replaced by technology in the next two decades).

To meet these challenges, the green paper proposes a number of actions to improve basic skills (including by reviewing current policy and supporting further education colleges in becoming ‘centres of excellence’ in maths and English), build a new system of technical education (with clearer routes, better teaching and institutes of technology in every region), boost STEM skills, and raise skills levels in other poor-performing areas. It also undertakes to publish a ‘comprehensive careers strategy’ and to ‘explore ambitious new approaches to encouraging lifelong learning, which could include assessing changes to the costs people face to make them less daunting; improving outreach to people where industries are changing; and providing better information’.

There are some good ideas here, as well as some welcome notes of realism. The government’s willingness to review the effectiveness of current policy on lifelong learning and skills is encouraging and should act as a prompt to membership and advocacy groups to make their strongest case. However, we should not allow ministers to play down the scale of the task or to obscure the role played by government policy in creating the problems the green paper describes. Putting skills at the heart of the UK’s industrial strategy will require more than a review of policy effectiveness and a willingness to embrace new approaches. It will mean the effective reversal of decades of political neglect and under-funding of adult education, with substantial investment to restore the huge gaps in our lifelong learning infrastructure that have emerged as a result of austerity politics (a catastrophic and costly failure which is being quietly swept under the carpet – not unlike the equally calamitous political career of its chief architect, David Cameron). The latest figures in both further education and higher education confirm the damage done.

In further education, there is some good news for the government, in that it is on target to meet its target of three million new apprenticeship starts by the end of this parliament (with almost 900,000 new apprenticeships in 2015-16). However, the latest data also show that participation in learning other than apprenticeships in England is in sharp decline. There are 800,000 fewer adults in FE (excluding apprenticeships) than there were in 2011-12, with some 300,000 fewer adults on English or maths courses. The proportion of unemployed adults taking part in learning had also fallen sharply. This trend in participation is the direct result of cuts to funding for adult skills, with the government, in 2015 alone, cutting as much as 24 per cent from the adult further education budget. At the same time, funding for ESOL provision has been savagely cut – by 60 per cent since 2009 – again, denying opportunities to learn to adults who are desperate to do so. As if this were not bad enough, the sector has been given little chance to adapt to straitened circumstances, with funding cuts accompanied by near constant reform, experimentation and ministerial churn. There is limited policy memory in further education and little scope for leaders, struggling to adapt to curriculum and funding changes while meeting the requirements of an overbearing accountability system, to think about how to respond creatively to the challenges they face.

In higher education in England, the numbers are just as dramatic, and the challenge equally stark. The latest figures confirm the ongoing decline in part-time higher education. According to a House of Commons Library Briefing, total part-time entrants to HE have fallen by 45 per cent since 2009-10, with mature learners combining study with work forming the vast majority. This is the result, principally, of the introduction of loans and the rise in tuition fees. New data on student nursing enrolments confirm the lack of enthusiasm for loans (or debt) among older learners, with applications falling by 23 per cent (29 per cent for those aged over 21) since grants were converted into loans to support the provision of more places. Moreover, applications to full-time undergraduate courses by over-25s fell by 18 per cent in the last year, confirming a general trend of dwindling participation in HE among adults. Overall, the higher education system is becoming less diverse, less accessible to older adults and less relevant to the challenges of modern society. All of this, it should be added, has been an entirely predictable result of the policies adopted by the government.

These are all trends which must be not only halted but thrown decisively into reverse if the government is to achieve its ambitions and lifelong learning is really to help deliver the step change in growth and productivity the green paper sets out as its objective. A cohesive industrial strategy, with an ‘ambitious new approach to encouraging lifelong learning’ at its heart, is a big step in the right direction. But it will require a major shift in culture to deliver it, with ministers and civil servants looking beyond schools and elite universities, recognising that education is for adults too, and making a long-term commitment to supporting it. As Ruth Spellman, Chief Executive of the Workers’ Educational Association, has argued this week, a national strategy for lifelong learning would not be a bad place to start.

 

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Adult education must rediscover its radical roots

Adult education has changed dramatically over the two decades I have worked in it. Increased levels of policy attention, beginning with the wonderfully optimistic note struck by Helena Kennedy’s 1997 Learning Works report and David Blunkett’s 1998 green paper, The Learning Age, and for a short while attended also by increased funding and some bright ideas for implementation, have not led us to the promised land of wider participation and political acknowledgement of the wider purposes of education. Instead, like the train Woody Allen finds himself on at the start of Stardust Memories, they have brought us to a vast scrap yard of thwarted and abandoned ambitions in which only courses offering basic or vocational skills, mostly to younger adults, remain pristine, carefully maintained by a succession of journeyman ministers indifferent to the wider value of education. If things continue as they are – and there is no reason to suppose they will not, given the feebleness of the opposition – we will soon reach the point where the aspirations of ‘lifelong learning’ live on only in the dismal and increasingly empty rhetoric of politicians.

The current situation is, of course, in large part the result of cuts in funding, which began under Labour, and have been remorselessly deepened by the current Conservative government and its Conservative-led predecessor. The sharks of austerity have cut back on great swathes of provision, savaged the public library service, hollowed out local democracy, and attacked vital public institutions, such as the BBC, making short-term savings but creating an impoverished legacy for succeeding generations. In further education, where the majority of adults in education learn, the adult skills budget was reduced by 35 per cent between 2009 and 2015. In 2015-16 alone, the government slashed an unprecedented 24 per cent from the budget. As a result of these cuts, there are more than one million fewer adults learning in further education than there were in 2010, with the Association of Colleges estimating that 190,000 adult learning places would disappear in 2015-16 alone. The characteristically measured AoC was moved to predict that, on the current course, adult further education would be a thing of the past by 2020. What a terrible legacy for a government which believes improving UK productivity to be the challenge of our time!

While the sector has been granted some respite from the grind of year-on-year funding cuts, the post-16 area review process is likely to result in still less choice for adult learners and, for providers, a considerable distraction from what should be their core business: teaching and learning. It remains to be seen what impact the devolution of the adult skills budget (along with the absorption of the previously ring-fenced community learning budget) will have, but, with local resources tight, there is clearly a danger that learners whose employability needs cannot be addressed straightforwardly through a narrow focus on training for employment will again lose out, as might providers in the third sector, whose role is less well understood and who are largely absent from the area review process. Skills devolution represents a huge challenge to voluntary sector providers, who play a crucial role in getting adults who lack the confidence or motivation to engage with formal learning to re-engage through less formal routes, but whose voice tends to be drowned out by the bigger players.

In higher education, the Office for Fair Access (OFFA) this month reported that the number of part-time students, the vast majority of whom are adults combining work and study, has fallen by 60 per cent over the past decade. This represents a dreadful act of vandalism about which even the specialist education press has been remarkably quiet. The overall number of mature students in HE has also fallen substantially, by 50 per cent over the same period, according to the report, with universities struggling to tackle the collapse in mature and part-time student numbers. And while progress has been made in attracting students from less advantaged backgrounds, the report found that universities in the elite Russell Group were failing to make adequate progress on access and progression. At the universities with the highest entrance requirements, said OFFA director Les Ebdon, ‘the participation gap between the most and least advantaged remains large and wholly unacceptable’.

The growing lack of diversity, in terms of student age and background, as well as mode of study, in elite institutions is a major concern, at least for those who cling to the old-fashioned belief that higher education should promote social mobility and challenge disadvantage rather than preserve patterns of privilege. We won’t achieve this with a one-size-fits-all system. Ensuring a more diverse, flexible and widely accessible sector is critical to efforts to widen participation. More than a third of the students entering HE last year who count towards widening participation targets were mature students. As Professor Ebdon noted in his report, ‘In order to strengthen the economy and ensure HE truly is open to everyone with the talent to benefit, urgent action must be taken to reverse the long-term decline in part-time and mature students.’ Thus far, we have seen little.

The growing prominence of adult education in policy debate over the past two decades is perhaps unsurprising, given its potential role – and proven benefits – in promoting economic productivity and reducing unemployment, improving health and wellbeing, and fostering social cohesion and active citizenship. Yet the curiosity of politicians has not resulted in increased investment, a more coherent approach to the education of adults or a more stable sector with a clearer sense of its wider role. Just the opposite, in fact, seems to be the case. I fear that in its willingness to adapt, to support and implement government plans and take them at face value, and to talk the language of ministers (albeit, often, through gritted teeth), the sector may, inadvertently, have contributed to its own decline.

As budgets have shrunk, so too has the focus of education policy, to the point where only provision related to employment skills and economic improvement is seen to matter and the education of older adults, in the past the driver of progressive reform across the system, has been neglected in favour of those at or near the start of their career journey. The focus of the sector has, in some ways understandably, followed the funding, resulting in the further marginalization of the wider benefits of learning in public discourse. While the case for genuinely lifelong and lifewide learning continues to be made in some quarters, the calls often seem a little hollow, an afterthought thrown out to placate supporters rather than to influence ministers. This is perhaps because, in the current climate, such calls are unlikely to get much of a hearing and no-one, in a competitive market for contracts, wants to be on the wrong side of the argument when policy is made. For the first time in my two decades working in the sector, adult education lacks a clear, distinct and dedicated voice in its corner.

It seems to me that adult education now has two choices. It can shuffle off quietly into history, acknowledging that its time has passed, or it can look back to its own history as a social movement to rediscover a sense of purpose and redefine a role for itself. I hope it chooses the latter route. If it is to survive in any meaningful form as a movement, adult education must reinvent itself as something more than a vehicle by which adults can become more employable or move on at work. Important though these things are, they are not everything. Increasing equality of opportunity, promoting active, critical citizenship, making people happier, healthier and more fulfilled, making society more socially just, cohesive and democratic; all these things matter too. Adult education should be about the development of the full range of capabilities necessary for human beings both to flourish in modern society and to help shape it. There are still many excellent examples of this sort of practice, in the WEA, the third sector, local authorities, unions and employers, though all face challenges. There remains huge potential across the sector that should be better utilized and better invested in. It should be part of a coherent system of post-16 education, working collaboratively with the rest of the sector rather than scrambling about, competing with potential partners for a diminishing pot of cash. But I don’t think that will happen if we continue to adapt our language and thinking to the latest political wheeze.

Instead, we should be thinking about how we can rebuild adult education as a social movement aimed at giving people and communities the most radical thing any teacher can give their student: the ability to think for themselves, to be critical and to play a full part in society, as a citizen, a parent, a partner, a member of a community, and not just as an employee. Adult education can either continue to dwindle as part of a system in which it has, at best, a restricted place, or it can play a part in creating something better, that can truly address the needs of the present and future. Adult education needs its own distinct, uncompromising mission, grounded in its social purpose, community education roots. It must continue to be about working with those who are most disadvantaged and disenfranchised, not just to give them a leg up into the labour market but, in Freire’s words, to help them ‘deal critically and creatively with reality’ and to ‘participate in the transformation of their world’. Changing calcified patterns of privilege and opportunities skewed in favour of the youngest and richest in society demands nothing less. There are major challenges ahead and adult education will have a huge role to play, if we are to address them adequately. When that truth is, finally, widely acknowledged, we will owe a huge debt of gratitude to those who have kept the flame of this work alive, in spite of it all.

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Learning Through Life: a missed opportunity but a live agenda nonetheless

Five years ago this autumn, the two-year Inquiry into the Future for Lifelong Learning, sponsored by NIACE and led by a group of expert commissioners, published its final report, Learning Through Life. The report posed a challenge to policymakers to create a framework for lifelong learning which was fit for the early twenty-first century, and the unprecedented technological, demographic and economic changes we face. It is a challenge which, to put it mildly, is some way still from being met.

That is not to say that the report has not had influence. Its argument for access to lifelong learning as a human right, related to personal growth and emancipation, prosperity and community solidarity, is widely cited and influential, particularly internationally; and some of the more practical ideas it formulated have grabbed the attention of policymakers and sector organisations, for example its argument for mid-life career review, which has been developed by Stephen McNair and successfully piloted, with further roll-out likely.

But, beyond this, and more substantively, the news is less good. At the heart of the inquiry’s approach was a proposed shift to a new model of the educational life course – comprising four key stages: up to 25, 25-50, 50-75 and 75-plus – with learning resources ‘fairly and sensibly’ rebalanced to reflect the changing social and economic context. Regrettably, despite much rhetoric to the contrary and one or two positive interventions, we are no closer to such a settlement. In fact, in a number of key respects, we seem set on undoing previous hard-won gains, leaving us, if anything, further away from what is, after all, a fairly modest and very well-evidenced proposal.

The allocation of learning resources across the four life stages reported by the inquiry has changed little since 2009 when it was split, approximately, as follows: 86; 11; 2.5; 0.5. The report proposed a rebalancing in all public and private spending on education, by 2020, to: 80; 15; 4; 1. The costs of this adjustment, it said, would be significantly reduced by the projected reduction in the number of young people in the population over the next decade. At the same time, within each age group, ‘specific attention should be given to the fair and equitable distribution of resources’, including consideration of which groups benefit the most and which are excluded. This, the report argued, was essential to ensuring ‘a continuing commitment to equalising opportunity’, covering ‘equity both between sectors (HE, FE, community etc) and within them’.

The rationale for this reallocation of resources was, then as it is now, perfectly clear. The 18-24 population was predicted to decline by nine per cent by 2020, while the third and fourth stage populations were projected to rise by 18 per cent and 28 per cent respectively over the same period. With people both living longer and spending longer in the workplace, the educational challenges – in terms both of up-skilling and re-skilling, and remaining active and engaged in society later in life – were obvious. Yet the big story (in England, at least) in the funding of post-compulsory education in the last five years has not been a shift in the distribution of resources across the age groups but the move from a system of state funding to one of state financing through loans – a very high-stakes gambit justified on the (it turns out, spurious) grounds that it would save the taxpayer money. This began in higher education and has been extended into further education. In both cases the impact on adult participation has been dramatic.

The story in higher education is familiar. While enrolments among younger students held up, despite the trebling of tuition fees, there was a dramatic decline among mature students, and among part-time students in particular, with a drop of 46 per cent in part-time undergraduate entrants (the vast majority of whom are mature) between 2010-11 and 2013-14. These students – people attempting to develop new skills or improve existing ones while juggling family, work and other commitments – are precisely those we need to engage in learning if we are to respond to the challenges of an ageing and, increasingly, low-wage, low-skill, low-productivity economy. Their loss in such numbers suggests we are some way from the coherence of approach looked for in Learning Through Life.

Strong part-time recruitment has been one of the big, if unsung, success stories of UK higher education. It has taken a long time and a great deal of effort and inspiration to build up. Now it seems in irreversible freefall, abetted by the longer-term decline in university lifelong learning. This was accelerated when the previous administration introduced the notorious ELQ rule, denying state support to any student studying for a qualification at a level lower than or equivalent to one they already possess. And while the extension of loans to part-timers brought welcome (if partial) parity with full-time students, the majority of part-timers remained ineligible (largely because of the ELQ rule), priced out by a system which is becoming ever more polarised, unequal and unfair.

It is telling that it is the high-tariff, elite institutions – those which do least well in terms of widening participation – that have gained the most under the new system, while the lower-tariff institutions – those which do the heavy lifting when it comes to ensuring fair access – are doing the worst. This hardly demonstrates the commitment to ‘equalising opportunity’ the report was seeking. I suppose though it is unsurprising that a society so committed to putting everyone in their proper place should develop a higher education system which so heavily qualifies the success of so many of its graduates. This might suit the already privileged (which is why it is so hard to challenge) but it is hardly what we need if we are, as a society and an economy, to get the most from the talents and creativity of every citizen.

A similar high-risk strategy has been pursued in further education in the form of FE loans for students aged 24-plus studying at Level 3 or 4 – with similar, highly predictable (but, perhaps just as predictably, largely ignored) consequences. In 2012-13, more than 400,000 people aged 24 or over took part in learning at Levels 3 and 4. Government figures for 2013-14, when funding was withdrawn for a range of courses for over-24s and the loan scheme introduced, show that only 57,000 students aged 24-plus took up loans at this level. The latest figures show that only 43,830 applications for the loans have been made between April 2014 and September 2014. This suggests both that there has been a very substantial drop in participation among older adults at this level and that recruitment is showing no signs of recovery. This bodes ill indeed for a future in which the development of a high-skill economy will depend on adults’ capacity to retrain and up-skill.

But perhaps a high-skill economy is not where we are headed. As Learning Through Life argued, the debate on skills has been too dominated by an emphasis on increasing the volume of skills, with too little focus on how skills are actually used. Since the report’s publication the conviction that there is something wrong in the way in which we approach skills has taken stronger hold. We have seen a welcome increase in jobs, but they are, very largely, jobs characterised by low wages, low skills and job insecurity. Despite numerous skills strategies and near-incessant reform in the sector, the UK economy compares poorly to its neighbours in terms of productivity. Wage inequality continues to act as a drag on growth. Making better use of skills and creating the workplace conditions in which innovation and creativity can flourish are becoming increasingly significant policy concerns. A sustained, resilient, inclusive and long-term recovery depends on it. And, of course, the equity issue identified in the report, that access to training diminishes the further down the status ladder you go, remains as pressing a concern today. Far too few workplaces offer the kind of expansive learning environment the inquiry recommended. Those that do, as last month’s Smith Institute report on good work suggests, can expect to reap rewards in terms of enhanced staff commitment and productivity. But there remain far more for whom such a step would involve an almost unthinkable shift in culture.

Skills remains an area in which the pace of reform (and the turnover of ministers) is frenetic. One of the biggest equity issues in post-compulsory education concerns the relative esteem in which the further education and skills sector and higher education are held. Incessant reform in FE is a symptom of this. So is the comparative lack of autonomy enjoyed by further education colleges, though there has been greater recognition of this since Learning Through Life appeared. Still, there is an evident lack of trust and confidence in the sector and its workforce, as well as an impulse to cut further education resources, almost unthinkingly, whenever budgets are tight. In a way, this is unsurprising. Few in the Treasury have any direct experience of further education, and most senior politicians these days seem to have followed the gilded path from public school to Oxbridge before walking straight into a political career for which they have merely academic qualifications. No wonder a coherent national strategy, in which all parts of the tertiary sector are recognised as essential and important, remains elusive. It may be that it will continue to elude us, unless we can find a way to widen the political gene pool.

Despite the failure of the current generation of politicians to engage adequately with – or, for the most part, even to acknowledge – the challenge of an ageing and increasingly unequal society, the agenda set out in Learning Through Life remains relevant – a pertinent invitation to any political party prepared to think seriously about the challenges of demographic, technological and economic change. It has important things to say about credit transfer, localism, learning entitlements and improving the capacity of the lifelong learning workforce. And it has good ideas about making the system more intelligent and more coherent. As the report argued, national frameworks matter. Governments have a responsibility here, in creating the conditions in which lifelong learning can flourish, as they do in describing the values and vision which inform the sector’s work. They have a role too in ensuring the resources are there to deliver what is needed, though, as Learning Through Life makes clear, it is not expected that all these resources come from the public purse. We need a sensible, rational approach that balances personal, state and employer contributions. There may be an increased cost to developing a system fit for the twenty-first century but, as the report shows, it is one we can bear. The cost of doing nothing is much greater. Given the scale of the challenge we really must do better than hide behind the cloak of austerity, affecting to have no choice but to implement reforms which have little to do with saving money and everything to do with ideology.

The next issue of NIACE’s journal Adults Learning – due out later this month – will assess the legacy of Learning Through Life, with contributions from its authors, David Watson and Tom Schuller, as well as from David Hughes, Karen Evans, Stephen McNair, Tom Wilson, Claire Callender, Ewart Keep, Ruth Spellman, Jim Crawley, Keith Wakefield, John Field, Mark Ravenhall and Alan Tuckett.

Learning Through Life was published by NIACE in 2009. Many of the inquiry’s papers are still available to download from: http://www.niace.org.uk/lifelonglearninginquiry/.

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1963 and all that: What Robbins thought about mature students

When Lionel Robbins published the report of his committee on higher education in the United Kingdom in October 1963, higher education in the UK was an elite system, run by and for a small proportion (less than five per cent, predominantly male) of the population, many of whom were fiercely resistant to the thought that expansion might be either feasible or desirable, for reasons which appear now to amount to little more than a combination of class spite, snobbery and chauvinism.

While that was already beginning to change, thanks to a range of social and economic pressures that were slowly teasing open the doors of the academy (there were 31 universities at time of publication, including seven which had been founded within the previous five years), the Robbins report provided a compelling rationale for the rapid expansion of the system, arguing that higher education courses ‘should be available to all who are qualified by ability and attainment to pursue them and who wish to do so’ (the ‘Robbins principle’). Its main recommendations, including the proposal that ‘colleges of advanced technology’ be awarded university status, were accepted by the Conservative government of the day within 24 hours of publication and the further expansion of the university system began almost immediately.

As Lord Moser, one of the few surviving members of Lord Robbins’ team, recalls, the report ‘changed the whole tone of public discussion on higher education’. Critically, it demolished the contention that there was a strictly limited ‘pool of ability’ at the level of higher study, arguing instead that there was a large pool of untapped talent which the country could not afford to ignore. Robbins recognised that this was an economic issue, of course, but his view of the purposes and potential benefits of higher education was much broader than that. He set out four objectives for a ‘properly balanced system’: ‘instruction in skills’; the promotion of ‘the general powers of the mind’ so as to produce ‘not mere specialists but rather cultivated men and women’; to maintain research in balance with teaching so that teaching is not separate from ‘the search for truth’; and to transmit ‘a common culture and common standards of citizenship’. The return on education, he argued, was ‘not something that can be estimated completely in terms of the return to individuals and of differential earnings’. Higher education was an important public good which should be supported largely through the public purse.

Robbins also recognised the importance of ‘second chance’ education and saw that the prevailing model of full-time residential education would not suit everyone. He urged that greater provision be made for mature students, recommending the ‘rapid development’ of courses for adults, and encouraging universities to admit ‘non-standard’ students. Higher education, the report said, ‘is not a once-for-all process. As the pace of discovery quickens it will become increasingly important for practitioners in many fields to take courses at intervals to bring them up to date … there are far too few students taking refresher courses and courses of further training’. It was particularly important, it continued, that such courses were made available for women returning to work after raising children and that these women were financially supported in their studies. He appreciated that full-time study would not necessarily be the right mode for delivery for this group.

The report also gave recognition to the important role of liberal adult education in giving students without advanced qualifications an opportunity to engage in higher study. It called for the further development of full-time courses for adults in residential colleges, such as Coleg Harlech and Ruskin College, and recommended that ‘consideration should be given to assisting them in the immediate future by capital grants and also by enabling suitable entrants to obtain adequate financial support for their studies’. Highlighting the activities of extra-mural departments, the Workers’ Educational Association and local authorities in providing adult education, the report noted that demand existed ‘on a large scale’ and that there was ‘clearly much scope for further development, in conjunction with the television services, for example, and other new media of communication. We hope that the universities and their partners will cooperate in this task. If this country is to maintain its proud record [in contributing to ‘the general education of the community’], further support for this kind of study will be needed in the future’.

Robbins didn’t see mature study merely as a nice-to-have but, rather, as an essential part of a university system within which everyone with the ability to study has the opportunity to do so. It is also clear that Robbins is not arguing for new types of institution to cater for these ‘non-standard’ students. The needs of the future, the report says, ‘should be met by developing present types of institution’ in such a way that ‘irrational distinctions’ and ‘rigid barriers between institutions’ are not perpetuated. While ‘it is inevitable that some institutions will be more eminent than others’, it says, ‘[t]here should be no freezing of institutions into established hierarchies; on the contrary there should be recognition and encouragement of excellence wherever it exists and wherever it appears’. Robbins’ vision allows for difference in function, where difference rests on ‘excellence in the discharge of functions’, but not for rigid differences in status. Equally, he did not look to different kinds of institution to cater for different kinds of student but, rather, expected that, as the system expanded, mature and other ‘non-standard’ students would become part of the institutional life of every university.

So, what has been the long-term impact of the Robbins report on widening participation, particularly for mature students? The Robbins principle that higher education should be available to all who are qualified and wish to study has underpinned developments in widening participation and lifelong learning, including the expansion of higher education opportunities to students who do not fit the traditional profile of 18 or 19 year old school leavers. There has been a huge expansion in total student numbers. There are now around 2.5 million students in the UK compared to a quarter of a million when Robbins published his report. By 2009 mature students (those aged 21 or over) represented almost a third of the first-year undergraduate population. At the same time there was a comparable growth in the numbers of part-time students, the vast majority of whom are classed as mature. Robbins was a catalyst for much of this change.

Yet, in some respects, I suspect the nature of the change would have disappointed Robbins and his committee. Although most institutions now welcome mature and part-time students it is clear that they are more welcome in some than in others. Much of the growth in numbers has been thanks to ‘new’ universities, including the former polytechnics whose foundation, in the mid-sixties, introduced into the system the sort of binary division Robbins argued against. The division survived the merging of polytechnics into the university sector in 1992 (we now have ‘pre-’ and ‘post-92’ institutions). Although these institutions have done much of the heavy lifting in terms of widening participation and opening up opportunities, for mature and part-time students in particular, there remains, in the eyes of the media, at least, and perhaps the public too, an impression that these institutions offer second-class higher education. At the same time, the innovation shown in these institutions has obscured the fact that many ‘elite’ institutions have remained stubbornly resistant to change, with a corresponding failure to widen participation to the extent of newer institutions, in which mature students (and other under-represented groups) have remained concentrated. For many of these older institutions more has not necessarily meant different, and they remain more or less rooted in the notion of universities as residential finishing schools for already privileged youngsters.

After 50 years, Robbins’ vision remains compelling. Universities minister David Willetts has made much of the continuity between the Robbins report and his own government’s vision for higher education. Certainly, the loans system devised and introduced by the coalition makes serious efforts to ensure that higher education remains accessible to all who have the talent, irrespective of ability to pay, despite the huge escalation in fees. The extension of loans to part-time students for the first time would also have pleased Robbins, particularly given his concern about women’s access to higher education. However, while there is some continuity, there are also large differences, which are more fundamental. Critically, Robbins thought very differently about the purposes and benefits of higher education. The coalition view of the benefits of university has narrowed beyond recognition to a truly grim utilitarian calculation based on individual earnings. Robbins, on the other hand, takes a much broader view, acknowledging the role of universities in creating rounded, cultivated individuals capable of promoting ‘common standards of citizenship’.

Mr Willetts notes that the Robbins committee considered the introduction of loans and that, in later life, Robbins came to regret the decision not to do so. This suggests common ground but, again, the differences are profound, and instructive. While the committee considered loans it also raised concerns that fear of debt would be a significant disincentive to students from non-traditional groups. And while Robbins may have come to think differently about loans in some respects, it is clear that he was never entertaining the possibility of loans to cover the full cost of a degree. This is because Robbins explicitly rejects the idea that the benefits of education ‘can be estimated completely in terms of the return to individuals and of differential earnings’. The wider benefits to society are of much greater importance; a recognition that underpins Robbins’ notion of higher education as an important public good, deserving of public support. He saw that the whole of society benefits from an educated citizenry capable not only of contributing to the economy but of playing a full part in civic life. It was likely that the ‘social advantages’ of investing in education greatly out-weighed the commercial ones, he argued.

A difference in approach is reflected also in the dramatic decline in part-time and mature student numbers – something which would have greatly dismayed Robbins who was acutely aware of the importance of this sort of provision both to the economy and to efforts to widen participation (particularly to women seeking to return to education after having children). Full-time mature student applications have fallen by more than 18,000 (a 14 per cent decline) since the trebling of tuition fees and the introduction of the new loans system. At the same time, part-time student numbers have collapsed, by 40 per cent, according to HEFCE figures. These shocking numbers would, I think, have appalled Robbins, but they may not have surprised him. In the section of his report on adult education, he highlights the need for ‘adequate financial support’ for mature students. Later, in considering the possible impact of a system of loans, he recognises that fear of debt can produce ‘undesirable disincentive effects’. He also observes that any drop in recruitment to higher education by those with the talent for it (but not the resources to fund it) is not only a private loss to the individual but a ‘social loss’.

It is clear, though we seem curiously reluctant to say so, that higher fees are having a significant negative impact on the recruitment of mature students, particularly those who would prefer to study part-time. There is a strong case, I think, bearing in mind the important public and economic good part-time study represents, for government to provide some sort of subsidy to enable institutions to lower costs for part-time courses, which are typically more expensive and time-consuming to run. Getting rid of the ‘ELQ rule’, which denies access to loans to students studying for a second degree (and played a big part in decimating university lifelong learning under the last government), would also be a positive move, opening up more opportunities to the kinds of adult student Robbins was particularly concerned about and lending meaningful support to his conviction that education is not a ‘once-for-all process’. Despite government efforts to ameliorate some of these problems (such as the very welcome partial relaxation of the ELQ rule), the continuing decline in mature and part-time student numbers is extremely bad news for social mobility and there remains a serious risk that the loans system will ultimately result in a two-tier system, with less-advantaged ‘non-standard’ students obliged to opt for the low-cost, ‘second-class’ model, while the elite institutions remain the preserve of the already privileged. This, I imagine, would be just about the last thing Robbins would have wanted.

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A critical moment for part-time and mature higher education

Few will be surprised at the continuing decline in part-time higher education, highlighted in The power of part-time, the Universities UK review of part-time and mature higher education, which was commissioned by the government in response to falling student numbers and was published this week.

The report had been eagerly anticipated by those in the sector who appreciate the value of part-time higher study – and many have embraced its fairly broad statement of the critical importance of part-time. Its publication is undoubtedly an important moment in the campaign to revive the fortunes of part-time and higher education. But if is not followed by concerted, long-term action, underscored by the commitment of institutions and government, there is a danger that it will change little.

This is one of the problems with what is, in many ways, an excellent and valuable report – and one of the reasons it has disappointed some. Its recommendations are long on commitment but are rather short on specific policy interventions. Many, while agreeing that government, institutions and funding councils should ‘consider the needs of part-time and mature student as an intrinsic part of their thinking, not as an add-on’, will feel that the time for such injunctions has passed and that action is what is now needed. Others will be disappointed that the review did not feel able to make a bolder statement on the equivalent or lower-level (ELQ) rule, which denies funding to students looking to take a second degree and which has played a significant part in the late devastation of university continuing education. More, I fear, is needed if we are to galvanise the sort of immediate action we will need if part-time and mature learning is to have a future.

It is difficult to overstate the urgency of the situation. The review reports that the numbers of students recruited to undergraduate part-time courses in England fell by 40 per cent between 2010-11 and 2012-13 – equivalent to 105,000 fewer students – a dramatic drop which follows a decade of steady decline in part-time student numbers. The vast majority of part-time students are mature, most of them combining work with study and taking vocational courses. Full-time mature student numbers have also declined sharply since the increase in tuition fees in 2010. At a time when the need for a flexible, resilient workforce, capable of re-skilling throughout their adult lives, has never been clearer, this is depressing news indeed.

The report identifies a number of potential causes for the decline, including the current economic climate, pressures on employer support for further study, the changing pathways into higher education and shifts in demographics, and the effects of the 2012–13 changes to the funding system in England and associated increase in fees – a ‘perfect storm’ of factors, the report says. It also points out that information on courses and finances can be patchy and that employers and potential students are often not fully aware of the value of part-time higher study.

In response, the review recommends that part-time and mature higher education should form an intrinsic part of the plans of higher education providers, government and funding councils and calls for an ‘urgent push at all levels to help potential students and employers to understand the value of part-time higher education’. It also recommends that universities ‘take bold steps’ to meet the needs of potential part-time students and to improve the part-time experience, and calls for a boost to employer-focused part-time higher education.

This is all laudable stuff, and well worth saying. But the report stops short of saying what the government and institutions need to do to make this happen. This is a missed opportunity, I think, particularly in an area in which there is a lack of clarity about where responsibility lies. The government is looking to institutions to set out their stall more clearly in attracting part-time and mature students, while institutions would like the government to do more to incentivise and support them to engage with part-time and adult students. Despite government rhetoric about a diverse system characterised by a variety of modes of learning and types of learners, most institutions see little reason to change their focus on full-time residential degrees for school leavers. In a sense this is understandable: part-time students are harder to recruit and support, and more likely to drop out. To make a difference here will require a thoughtful, holistic approach taking in issues such as cost (both to students and institutions) and affordability, course design, credit transfer, employer engagement and attitudes to debt. And all of this must be supported and nourished by a genuine vision for a true learning society, which offers accessible, affordable opportunities for adults to learn at every stage of their lives.

I think it is important to note also that the decline in part-time and mature higher education is not only extremely bad news for the economy and for prospects of growth and the development of a knowledge economy worthy of the name, but also for democracy, social mobility, culture and active citizenship. The focus of provision should not just be on employment and economic benefit but should reflect the wider motives, interests and ambitions of adults (while giving them affordable opportunities to pursue them). The UUK report, while recognising the wider benefits to society, overwhelmingly (and, perhaps, understandably) focuses on the contribution of part-time higher education to economic growth. This is important, of course, but if we are serious about the role of universities in creating an engaged, knowledgeable and aspirational citizenry we need to ensure these are not the only kinds of opportunity available. Self-realisation should not be the sole preserve of the already privileged. The revival of university lifelong learning should be at the heart of an enhanced community engagement mission for institutions.

Reading the report sent me back to Jonathan Rose’s landmark study, The Intellectual Life of the British Working Classes, and his account of the motivations for study of continuing education students in the 1930s. A survey of WEA/Ruskin College students found them concerned both with the ‘fullest expression of the faculties of the individual’ and with ensuring ‘the maximum co-operation of the individual towards the happiness of the group of which he is a part’. One student described the object of study as:

First, to equip the student with adequate knowledge in order that he or she may make a more adequate and effective response to his or her social obligations. Secondly, to enable one to appreciate and cultivate a desire for the best in art, literature, music, etc., to more readily understand the significance of science and generally to raise the level of intelligence in order that the student may enjoy a fuller and more harmonious existence, freer from the trammels of prejudice, superstition and dogmatism.

Engaging potential part-time students needs to be about more than information and guidance, important though those things are. It needs to recognise the diverse motives and ambitions of adults, as well as taking seriously the issue of cost and the clear negative impact of the new loans system on this group of learners. The removal of the ELQ rule would be a constructive start.

As I said at the outset, the UUK report represents an important moment in the campaign for part-time higher education. It should help give this critical issue the attention it deserves. But it remains to be seen whether it will mark a sea change in attitude and approach or become yet another landmark on the long road of decline. My fear is that we are still some way from genuinely integrating part-time and mature higher education into the mission of institutions, and that the kind of commitment needed to make up the ground already lost will be very difficult to secure.

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Reinventing the extra-mural tradition

A number of trends have, of late, put community engagement – the so-called ‘third’ mission of higher education institutions (HEIs) – closer to the heart of what universities do. Of course, many institutions have strong civic traditions, rooted in the commitments of their founders and encompassing, in many cases, recognition of the value of university extension and extra-mural activity – so much a part of the stories of some institutions (including a number which have lately closed down their old extra-mural departments). There can be no doubt, however, that in recent decades, this ‘third-stream’ work has taken place at the margins of institutional activity – usually some distance from the ‘core’ business of teaching and research. Ironically, as universities came to receive a greater proportion of their funding from national government, they became more detached from their communities and seemingly less conscious of their civic responsibilities.

There are signs that this has begun to change, with a number of universities, recognising the value of a range of potential partnerships with wider society, beginning to embed public and community engagement throughout their teaching and research activity, to reflect it in their mission statements and strategies, and to create space for it through their formal structures and in their systems of reward and recognition. Several factors are driving the change, among them: the introduction by the Higher Education Funding Council for England of social and economic ‘impact’ as part of its criteria for funding research (giving research-intensive universities a reason to think differently about community engagement); the widening participation agenda, and, in particular, the requirement on HEIs charging higher fees to submit Access Agreements, setting out what they are doing to attract under-represented groups into higher education; and the localism agenda, which has brought with it an expectation that university leaders will contribute to ‘leadership of place’ and local economic and civic renewal by helping join up a range of national policies and programmes at a local level.

The context of economic recession is another significant factor. On the one hand, it has prompted universities to think harder about their potential role in wider society and the value of collaborative working with local, national and global partners; while, on the other, it has prompted government and other stakeholders to actively question the purpose of universities. This is reflected in the government’s ambition, set out in its 2010 HE White Paper, Students at the Heart of the System, to ‘deliver a better student experience; improving teaching, assessment, feedback and preparation for the world of work’ and in the government’s encouragement to universities to develop mutually beneficial links with their local and regional economies.

Behind these developments is a growing appreciation – in government, in wider society and within some institutions – that HEIs in receipt of large amounts of public funding have, consequently, a civic duty to engage with wider society, and that, by and large, they have been failing in that duty. The decline in university adult education has been a significant contributor to this failure. Historically, continuing education has been one of the main ways in which ‘civic universities’ have engaged with their wider communities, connecting the global with the local, giving people from ‘non-traditional’ backgrounds an opportunity to benefit from higher study, and stimulating innovative approaches to teaching and research.

The university extension movement began in the nineteenth century and was developed through the involvement of the Workers’ Educational Association, which, for much of the twentieth century, offered university adult education to working-class people in their own communities. The gradual decline of the extra-mural tradition was accelerated, almost fatally, by the introduction, under Labour, of the ‘ELQ’ policy, which denied state funding to students studying at a level equivalent to or lower than a qualification they already possessed. Many HEIs have since closed down – or dramatically scaled back – their centres of continuing education, a process which coincided with the growing marginalisation of the so-called ‘third mission’ of universities to engage with their communities.

The revival of interest in community engagement is an opportunity to think again, and think radically, about the extra-mural tradition. The past few years have seen a number of serious, if not always intentional, attempts to reinvigorate this tradition. I wrote about some of these last year in Adults Learning . Occupy London’s Tent City University, while not self-consciously attempting to offer an alternative to mainstream higher education (at least not to begin with), nevertheless represented a recognition that there is a pressing need to create new spaces in which people who might be reluctant to incur substantial debts in return for their education can come together to exchange ideas, learn new things and challenge political and educational conventions. It is one example of a wider movement which is attempting both to resist the marketisation of higher education and to reinvigorate the spirit of the public university as a place, first and foremost, in which people are free to think, to debate issues that matter in their lives and to shape the future. ‘Alternative universities’ have sprung up in London, Liverpool, Leeds and Lincoln, creating new spaces in which to learn, usually for free, in an atmosphere characterised by mutual support, shared learning and a commitment to education as a democratic project, a collaboration between student and teacher.

One of the most striking examples is the Social Science Centre in Lincoln, a ‘cooperative education centre’ with no fees and no formal distinction between students and staff. When I interviewed Mike Neary, one of the organisers of the centre, last year, he made a direct connection between the alternative university movement and some of the milestone interventions of the adult education movement – university settlements, extension classes, free libraries, Ruskin College and the Workers’ Educational Association – in short, ‘the history of how those excluded from higher education have organised their own intellectual lives and learning in collaboration with university academics’. Free or alternative universities are ‘absolutely embedded in the history of adult education,’ Mike told me. They are also usually based in real, public spaces in local communities, while, at the same time, engaging with the world and attempting to change it. In the same way, the university extension movement attempted to create spaces in people’s communities in which it was possible to look beyond them.

There is evidently an appetite for less formal, less expensive and more inclusive higher education spaces, offering what the university extension movement sought to provide: affordable opportunities for people unable or unwilling to access mainstream higher education to benefit from higher study and, just as significantly, to shape it to their own concerns and interests. The growing interest in social impact and university community engagement represents an opportunity to think about how universities might begin to reclaim this space, and re-imagine it for a different time. There are significant benefits – for universities and their communities – to be had from doing so, and these go beyond the extra income to be drawn down in fees. Too often, in recent times, universities have thought about lifelong learning purely in financial terms, and neglected both their duties to their wider communities and the considerable rewards – academic, economic and cultural – which university lifelong learning offered. Continuing education not only supported adults in finding ways to re-skill and re-imagine themselves, it gave critical support to the local economy, strengthened links to the wider community and supported the development of innovative approaches to teaching and research. When this began to whither, so too did the sense of institutions rooted in a community. Among other things, universities lost a remarkable resource of pedagogical expertise in working with adult learners; something that will take many years to rebuild.

Faced with the challenge of an ageing and increasinly diverse population population – a reality with which politicians remain reluctant to engage or even talk about in frank terms – it is absolutely critical that universities provide more and better opportunities for adults to study part-time, in ways that fit around their other commitments. This isn’t just about skills for work. In times like these, universities have a responsibility to support people in thinking differently about the world, and in connecting their learning to action (it is to be hoped than proposed exemptions to the ELQ policy reflect this).

The university extension movement may have passed quietly into history, but there is still much to be learned from it and there remains much innovative practice in the sector, though it is, in the main, marginal to institutional priorities and often not recognised as either community engagement or lifelong learning. Universities must do more to connect teaching and research with the lives of their communities and government should support and encourage them. Yet mature and part-time student numbers continue to decline steeply. Reversing that trend will take a serious commitment to making part-time study and continuing education a core part of what higher education institutions do – something which, for many, will entail a major rethink of priorities. The government can help by reversing the previous government’s ELQ policy and by giving institutions more of an incentive to offer part-time education to adults, for example, by reinstating the part-time premium. But nothing short of a fundamental shift in the way higher education thinks about its community and civic role is required if institutions are to fully realise their duties to wider society and make community engagement a guiding principle of university activity. Revisiting the notion of the civic university and the extra-mural tradition would not be a bad place to start.

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Are mature students an endangered species?

Last week, UCAS published its final end-of-cycle data on full-time higher education applications and acceptances for 2012. They showed, as expected, that there was a significant drop in the number of full-time students going to British universities in 2012. Beyond this, there was little agreement among commentators and in the media as to what the figures showed or how alarmed we should be by them.

Overall, there was a fall of 27,210 – or 5.5 per cent – in the number of people accepted for places at UK institutions, a fall largely attributable to the rise in the tuition fee cap at English universities from £3,375 to £9,000 (and to the spike this caused in the previous year’s figures). In England, acceptances fell from 415,069 in 2011 to 388,796 in 2012 – a 6.3 per cent drop – while in Wales numbers fell from 26,249 to 24,128 (an 8.1 per cent drop). Both reductions were driven by a decrease in acceptances for students domiciled in England. Scotland and Northern Ireland both saw increases in acceptances, by 1.9 per cent and 5.2 per cent, respectively.

Some coverage of the UCAS figures quoted a 13 per cent (51,000) fall in acceptances in England (and, less frequently, a 12 per cent drop in Wales). This figure is for acceptances by academic year of entry rather than for acceptances by UCAS cycle, which includes students who are accepted but who chose to defer entry. There was a large reduction in deferred acceptances in the 2011 cycle – with students reluctant to enter in 2012 under the new fees regime – with a return to more typical levels of deferral in 2012. The result of this was to produce a spike in numbers for 2011 and to deepen the fall in acceptances for the 2012-13 academic cycle, producing the apparent discrepancy with UCAS’s figure of a 6.3 per cent drop for England. Compared to the 2010-11 academic year, 2012-13 acceptances were eight per cent lower for England and seven per cent lower for Wales.

UCAS provides a breakdown of applicants by age group, showing that, in the UK, there has been a 4.7 per cent fall in accepted applicants aged 25 and over since 2011, compared to a 5.4 per cent drop for people aged 20 and under and a 7.1 per cent drop for people aged between 21 and 24. These figures give no special cause for concern with regard to numbers of mature students, previously reported to be in particular decline. But they do not tell the whole story and it is worth digging a little deeper to get a sense of some of the real trends here – trends which suggest that while numbers of younger students are holding up pretty well (there is, in fact, quite a bit of good news here for ministers) there is a sharp and ongoing dip in the numbers of mature students in the HE system.

In comparing 2012 figures with those for the previous year we need to bear in mind the considerable spike in applications among young people we saw in 2011, as students hurried to avoid the near tripling of tuition fees. This spike helped disguise what was a fairly hefty drop in mature student acceptances last year. In England, accepted applications for people aged 20 and under increased by 10,205, from 314,049 in 2010 to 324,254 in 2011. This represented a 3.2 per cent increase over a period when figures for 21 to 24 year olds, 25 to 39 year olds, and people aged 40 and above all declined (by 4.0, 6.6 and 8.2 per cent, respectively). The number of acceptances for people aged 20 and under fell to 304,277 in 2012, a 6.2 per cent drop on 2011. However, if we compare the numbers with 2010 we see a more modest fall of 9,772, or 3.1 per cent.

Compare this to figures for older students. Between 2010 and 2012 the number of people aged between 21 and 24 accepted into an HEI fell by 12.1 per cent, with similarly significant falls of 12.3 per cent for people aged between 21 and 39 and 10.2 per cent for people aged 40 and above. This is a worrying fall, a sign that it is older students who are faring the worst in terms of falling intake. The latest figures for all applicants for autumn 2013 show a further overall fall of 6.3 per cent, suggesting the decline may be more than the inevitable fluctuation caused by the introduction of a new system. The reduction is likely to be compounded by a perhaps steeper decline in part-time student numbers. Institutions have been reporting significant declines in the number of people wishing to study part-time since the introduction of tuition fee loans for part-time students in 2012.

Given these figures it is not surprising to see the biggest hit being taken by some of the UK’s newest universities, which typically take a more innovative approach to widening participation and tend to include more mature and locally based students among their populations. UCAS’s figures show that London Metropolitan University fared the worst, accepting 3,100 fewer students, a drop of 43 per cent compared to 2011. Numbers fell by between a quarter and a fifth at Bolton, East London, Greenwich, Leeds Metropolitan and University Campus Suffolk, while 10 of the 24 members of the Russell Group also saw a decline in acceptances.

There is little sign that numbers are recovering, with mature students continuing to lose out. Does it matter that mature student numbers are in decline, when recruitment of younger students is holding up? I think it does, for a number of reasons. First of all, as many tutors and vice-chancellors will confirm, mature students make a really significant contribution to the intellectual lives of their institutions. They bring a commitment and determination to their studies, born of the sacrifices full-time study usually implies for older people, together with often rich life experience and freshness of perspective.

Second, mature students are often from non-traditional backgrounds and their recruitment contributes to efforts to promote social mobility and combat social exclusion. Never too late to learn, a report on mature students in HE, published by Million+ and the NUS, found that, compared to young students, mature students are more likely to have non-traditional qualifications, to be from black and minority ethnic groups and to have known disabilities. A failure to reverse the decline in mature student admissions would be a significant blow to government efforts to widen access to higher education. And third, the skills mature students gain are economically useful, something we cannot afford to overlook in a society that is ageing. Creating opportunities for people to access education at the key points of transition in their lives is going to be increasingly important.

There was positive, if overdue, recognition of the need ‘to understand better the HE experience of part-time and mature students’, in the Department for Business, Innovation and Skills’ grant letter to the Higher Education Funding Council for England earlier this month. However, as this analysis shows, the decline in mature and part-time student numbers needs to be addressed as a priority. It is disappointing to see this issue – so critical in terms of both social mobility and economic growth (both picked out as priorities in the letter) – left on the sidelines once again. The letter confirms that widening access to higher education remains a strategic priority for government and calls for an injection of ‘pace and rigour’ in progress in widening access. This is certainly welcome, but little will come of these good intentions if the crisis in recruitment of mature and part-time students continues to be overlooked.

This post was originally published here

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Where are we now? The coalition’s midterm review

The coalition’s midterm ‘renewal of vows’ was an opportunity for the Prime Minister and Deputy Prime Minister to reaffirm their commitment to the government’s ongoing programme of reform. The 52-page review document dedicated a page and a half to ‘further education and universities’ and, while there was little new in policy terms, there was a firm undertaking to continue the direction of travel and focus on implementing reforms already in train.

The big society was dutifully name-checked but it is clear that the concept, a usefully obscure peg on which far too much hope has been pinned and too much creative thought expended, will no longer provide a guiding narrative for policy. Despite this, much of the rhetoric of the coalition continues to be framed in terms of decentralising power away from Westminster to ‘counties, cities, towns, villages, neighbourhoods and citizens’. The emphasis is firmly on finding local, as opposed to centrally driven, solutions to local economic and social problems, and to getting the right blend of planning and funding arrangements to achieve this. As the report notes:

It is not the grand plans of politicians and bureaucrats that will ultimately deliver social progress and build social capital, but the ingenuity, innovation and entrepreneurial spirit of the British people – the Big Society.

The report talks up the coalition’s ‘sweeping reforms to increase local authority freedom’ and its abolition of regional government, pledging to ‘continue to devolve responsibility to local government’ and to take forward Lord Heseltine’s recommendation that local areas should have single funding pots. It also affirms its commitment to giving neighbourhoods ‘greater powers to do things for themselves’ – citing its Social Action Fund to provide opportunities for people to get involved in volunteering and its plan to train community organisers in the most deprived communities – though many in the voluntary sector, faced with ‘crippling cuts’ to charity funding, may find the suggestion that the coalition has ‘offered support to all those who want to improve their communities and their local services’ a little difficult to take.

The section on universities and further education asserts the coalition’s commitment to rectify what it describes as Britain’s historic tendency to undervalue ‘both the academic and technical skills a modern economy needs’. It promises to ‘take the tough decisions needed to ensure that our universities thrive’, adding:

We value them for their intrinsic, as well as their economic, worth: as seats of learning and research dedicated to increasing the sum of human knowledge and understanding, and as centres of innovation and invention, the driving force behind our increasingly high-tech, knowledge-based economy.

It is disappointing that the role of higher education institutions in engaging their communities and contributing to local economic growth is overlooked here. The government’s utilitarian vision, as expressed here and elsewhere, falls some way short of that set out in the Dearing report, which recognised that higher education has a critical role to play in building and sustaining a learning society, as well as in securing economic growth. As the Inquiry into the Future for Lifelong Learning argued, ‘universities contribute across the full range of desirable forms of capital – human, social, identity, creative and mental’. It is worth reasserting that higher education is an important public good, as much about cultural enrichment as it is about skills, as much about helping people grow intellectually and achieve fulfillment as it is about equipping them for work.

Engaging adults in higher education, and opening up more opportunities for them to study part-time, in ways that fit around their work and family circumstances, is important both in achieving economic growth and in addressing the needs of adults who do not currently participate in any learning at all. The government has taken important steps ‘to provide more financial support to students from low-income families’ and to extend income-contingent loans to part-time students. However, its good intentions are being undermined by the unintended consequences of some of its other reforms, as can be seen in the sharp drop in the numbers of mature students applying to study full-time in higher education. There are indications that there has also been a sharp drop in part-time admissions and concerns about the impact this will have on institutions which traditionally attract large numbers of part-time students. It is perhaps too soon to claim, as the report does in recapping the coalition’s changes to higher education funding, that it has ‘put universities on a secure and sustainable financial footing’. The government and the sector will need to think carefully about how to ensure part-time higher education study makes its full contribution both to the country’s future economic wellbeing and to widening access and improving social mobility.

The ‘different but equally important’ role ascribed to further education colleges is similarly narrow: ‘equipping our people with the basic, applied and specialist skills they need in the world of work, either at the beginning of their careers, or when they need re-skilling.’ Ahead of the government’s response to the Richard review, there is the laudable, and long overdue, ambition to see a ‘system of apprenticeships to rival those out countries such as Germany’ and a commitment to raising standards in line with Richard’s recommendations. The report undertakes to simplify and increase the rigour of FE qualifications, to make skill provision more responsive to employer demand and to introduce traineeships to support young people at work. It also reiterates the coalition’s commitment to introduce, from August, Advanced Learning Loans for people aged 24 and over. The impact of the latter reform on adult participation remains very much an unknown quantity, despite welcome moves to mitigate some of the potential negative impact of the policy. One of the lessons of the decline in participation among mature students in HE is that the government needs to do more to ensure funding changes do not deter mature applications. A good place to start would be to think about how it communicates with them.

Nobody, of course, will be surprised that, in a short summary document such as this, there is no mention of adult education more broadly conceived or acknowledgement of its wider benefits to a range of other policy agendas, but some recognition would have suggested a better grasp of the interconnectedness of these agendas and of the wider post-16 education landscape, in particular. The pace of reform during the first two years of coalition government has been rapid, and there is much to be said for slowing down the pace a little, while current changes bed down and their impacts become clearer. Ministers tend still to think of the different parts of the post-16 system as discrete and isolated rather than as part of a wider framework of lifelong learning. Achieving a better articulation of the way in which the different parts of the system relate to each other will be a critical test of the government’s reforms during the remainder of this parliament.

This article originally appeared here.

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