English Higher Education 2019 – the Office for Students Annual Review

This publication is available under the Open Government Licence 3.0 except where it indicates that the copyright for images or text is owned elsewhere. www.nationalarchives.gov.uk/doc/open-government-licence/version/3/

The photographs on pages 50 and 62 were taken at Weston College by Liam Mercer. Contents

Foreword ...... 3 1: Commentary ...... 5 The registration process: Issues and concerns...... 7 Access and participation ...... 7 The experience of students in higher education ...... 8 Value for money ...... 9 Working with students...... 9 Graduate outcomes and employers’ perspectives...... 10 Working with higher education providers ...... 11 The year ahead ...... 11 2. Regulating in the interests of students...... 17 The changed regulatory landscape ...... 17 The OfS’s approach to regulation...... 17 The registration process 2018-19 ...... 20 The financial state of English higher education ...... 22 Conclusion ...... 24 3. A new approach to fair access, participation and success...... 27 Access and participation before the OfS ...... 27 Stagnation and change in access...... 28 The innovative regulation of the OfS...... 33 Working towards fairer admissions...... 35 Evaluating success...... 36 Conclusion ...... 37 4. A high-quality student experience...... 43 Improving the quality of teaching...... 43 The role of the OfS...... 43 Mental health...... 45 Hate crime and sexual misconduct...... 46 Conclusion ...... 47

1 5. Beyond higher education: Ensuring successful outcomes...... 51 The degree dividend to graduates, the economy and society...... 51 The OfS’s role: Local graduates and uneven opportunities...... 52 Divergent outcomes...... 55 Conclusion ...... 58 6. Value for money...... 63 What is value for money?...... 63 Value for money of the OfS ...... 65 Conclusion ...... 66 List of abbreviations...... 69

2 Foreword

Foreword

revealed a sector that is in good and in many cases excellent health but nonetheless with clear room for improvement .

The area where, above all, the OfS wants to see the most rapid and radical improvement is in securing greater equity in the access and participation of students . We have seen in this year’s access and participation plans a welcome shift in ambition and commitment . But this laudable commitment will need to translate quickly into results . The challenge now is to change the facts on the ground . Sir Michael Barber, OfS chair We have established a new approach with longer-term plans, provided targeted funding Our students benefit from a higher education as well as establishing a ‘what works’ centre system that is globally recognised for its to help universities and colleges meet the contribution, as much as are our theatre and challenging targets that they have set and we arts, science and medicine, museums and have approved . The OfS will now be monitoring historic buildings, the BBC and the Premier closely to highlight great achievement and League . This reputation is to be cherished in challenge wherever progress is not as fast or as the context of fierce competition and volatility . far-reaching as it needs to be . But this is not just a global imperative: we must equally recognise the transformative impact Over the last year the OfS has also intervened of our universities and colleges on the lives of in a range of areas where we hope the higher individual students and their local and regional education sector will take decisive action itself, communities . And we must make efforts in order to avoid further regulatory intervention . continually to improve them . Neither unexplained grade inflation nor the injudicious use of unconditional offers serve the Over the last 18 months the Office for Students interest of current, future or recent students . (OfS) has established itself to do just that for Furthermore, these are the kinds of issues English higher education . This annual review that threaten to undermine the high levels sets out the work that has been delivered as of credibility and public confidence that our well as the work that lies ahead if the OfS and universities and colleges enjoy . This is why the the universities and colleges it regulates are OfS will not hesitate to act where there is clear to ensure that every student, whatever their evidence of practices that fail to serve the background, has a fulfilling experience of higher student or the public interest . education that enriches their lives and careers . The challenges for both the OfS and English The preeminent task of the last year for the OfS higher education in the coming years are clear . has been to register universities and colleges . In addition to some of the issues already set out, This has been a significant undertaking and, as these challenges extend to securing financial the analysis of the registration process in this sustainability, improving the quality of teaching, review demonstrates, a salutary experience for ensuring positive student outcomes and more . both the regulator and many regulated higher But there is every reason to be optimistic . education providers . While most providers have We have a world-class system . With strong been able to meet our conditions of registration, leadership at every level and unflinching resolve, we have also imposed regulatory interventions there is every reason to believe this can continue on the majority of providers at the point of to be the case . registration . Our registration process has

Sir Michael Barber

1: Commentary

English universities and colleges offer an impressive range of courses and ways to study 6. That diversity enriches the choices available to students and enables innovative provision to suit different students’ aspirations and needs . Universities and colleges make a strong contribution to regional and national economic development, underlining their broader role as drivers of economic prosperity, social mobility and cultural enrichment . Nicola Dandridge CBE, OfS chief executive In this first 18 months of the OfS’s existence, Higher education in England is outstanding I have seen many examples of this by many measures . outstanding higher education provision . I have read ambitious and credible access Overall student satisfaction is high: and participation plans, and seen at first according to the 2019 National Student hand the commitment of universities and Survey (NSS), 83 per cent of students were colleges to tackle entrenched disadvantage, satisfied with their courses 1. Teaching quality not least the unacceptable gaps in is impressive, with 71 universities holding attainment for students from minority Gold ratings following the latest round of the ethnic backgrounds . Teaching Excellence and Student Outcomes 2 Framework (TEF) . Between 2006 and 2016, This is an impressive and inspiring record students’ satisfaction with their teaching of achievement and commitment . However, feedback increased by 15 percentage the sector’s reputation cannot be taken for 3 points . Graduate outcomes demonstrate granted . Nor should its reputation prevent the long-term benefits of a university us from recognising and addressing serious education: going to university transforms issues and concerns where they exist . lives, and the average salary for a graduate aged 21 to 30 is, on average, £4,500 a year Despite progress in recent years, stubborn 4 higher than for non-graduates . gaps in access and participation remain . Young people from disadvantaged Excellent teaching and learning often backgrounds are still far less likely than their reinforce, and are reinforced by, dynamic better-off peers to go to university, far more research focusing on innovation and social likely to drop out when they get there, and and economic benefit . Graduates contribute less likely to get a good job when they leave . essential skills to our communities as doctors, nurses, teachers and in many Admissions practices do not always work in other roles, while universities and colleges the interests of students, and prospective themselves account for 1 2. per cent of the students too often lack the information they 5 UK’s gross domestic product . need to make an informed choice about the content, quality and cost of their courses . Teaching quality can be variable, campuses

5 English higher education 2019

are not always safe and welcoming places, elsewhere . Whether justified or not, this and many students are concerned about the risks tarnishing their reputation, and raises value for money of their studies . questions about their purpose and value .

The OfS was established to address these All these issues threaten not only the and other issues . We regulate universities, enviable reputation of higher education in colleges and other higher education England, but also the trust and confidence providers in the interests of all students – of students and the public in our higher past, present and future . We want every education system . This is a matter of serious student, whatever their background, to have concern for a sector of profound importance a fulfilling experience of higher education to our country and our future . that enriches their lives and careers . Across the sector, we aim to incentivise and enable It is simply wrong to suggest that criticism the conditions which allow a diversity of of poor-quality provision and poor institutions to thrive, compete and improve outcomes for students, when appropriate for the benefit of students . We liaise with and evidenced, amounts to disloyalty that our colleagues in Scotland, Wales and will damage the reputation of English higher Northern Ireland, where it is in the interests education . Indeed the reality is exactly the of students to do so . We regulate to ensure opposite: saying that everything is perfect that students can be sure their university or in every university and college, when it college meets minimum quality thresholds, plainly is not, is dishonest and corrosive, and has the money to deliver what it has and ultimately will do more damage by promised . In so doing, we respect the undermining trust and confidence . principles of institutional autonomy and academic freedom – two ingredients crucial More to the point, it is not in the interests of to the sector’s continuing success . students . The OfS seeks to be honest about the experience students receive, however Over the past year the OfS has highlighted uncomfortable that may be . That is our job . unexplained cases of grade inflation and In this, we take our cue from the principles inappropriate use of unconditional offers . that underpin the institutions we regulate: We have intervened, when necessary, to universities are places of intellectual address both issues . We have required exploration and, above all, honest enquiry . providers to take better account of a By drawing attention to the evidence, and student’s background when making to areas of concern as well as outstanding admissions decisions, and put pressure on strength, we aim to offer challenge, support, governing bodies to rein in excessive pay and opportunity for improvement that for vice chancellors . We have intervened will make our exceptionally strong higher decisively in cases where university education sector even stronger . governance has not been good enough . We have refused to register a number of This annual review sets out our assessment providers where students’ educational of the current state of English higher outcomes or the providers’ financial stability education, and reflects on the OfS’s progress fell short . to date in implementing a new regulatory approach which places students at its heart . These are challenging times, for higher education and for the country . Universities and colleges are navigating a complex policy, political and economic environment . Over the past few years they have also faced sustained criticism in the media and

6 1: Commentary

The registration process: Issues the process for a significant number of and concerns providers, but was important for the robustness of our regulation . The OfS’s approach to regulation reflects the diversity of the sector . It is designed We imposed some form of regulatory to ensure a common quality threshold for intervention on the vast majority of every university and college offering higher universities and colleges that we have education in England, while respecting the registered . This includes highlighting sector’s diversity . concerns we want to see addressed, setting out actions to be taken, signalling The OfS’s regulatory framework sets our intention to undertake more frequent out 24 conditions relating to access and or intensive checks, and imposing specific participation, quality and standards, conditions where we consider there to be a student protection, financial sustainability significantly increased risk of a future breach and governance, all of which providers of a condition . The implementation of an must satisfy if they wish to be registered efficient and effective monitoring system will with us . Over the past year and a half, be a major task for us in the coming year . we have assessed over 500 applications and registered a total of 387 providers . In We have already intervened on a number so doing, we have gathered a wealth of of occasions where providers have been at information and data that will help us, and increased risk of breaching a registration the sector, to highlight and address issues condition . Our monitoring has revealed areas of common concern and identify areas where we are concerned about governance for improvement . oversight and accountability .

Some providers submitted strong and We also want to continue closely monitoring credible applications for registration . the financial sustainability of universities and However, most were incomplete, and a colleges . Demonstrating ongoing financial large number contained insufficient or viability and sustainability is a condition inadequate evidence . Many demonstrated a of registration, and universities and lack of understanding of the new regulatory colleges will need to reassess their financial requirements . Some seemed to show little assumptions and forecasts in a period of recognition that the regulatory environment considerable volatility and uncertainty . The had changed, and that the OfS is a regulator registration process exposed the extent to not a funder . We have recently published a which some are being over-optimistic in report on the registration process to date their planning, and in particular their student and its outcomes for 2019-20, identifying number forecasts . We expect realistic key themes and issues that have emerged 7. evidence-based forecasting and, where appropriate, early warning systems and We did not register providers where we effective mitigations . were not confident that they had satisfied the initial conditions of registration . Many of Access and participation the weaknesses we identified related to how the evidence was presented and explained, Our objectives for access and participation rather than to substantive issues with are unashamedly ambitious . Our aim is satisfying the conditions . To assure ourselves to ensure equality of opportunity for all that this was the case, we undertook often students . This ambition applies across the extensive follow-up enquiries and requested student lifecycle: we want students from information and clarification . This prolonged all backgrounds to be able not just to enter higher education, but to thrive when they

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get there, and to go on to have fulfilling to make the right choice of what and where careers . We believe that it is not possible to to study, and given the support that they have excellence in higher education without need during their time in higher education, equality of opportunity . they can end up performing just as well as, if not better than, their more privileged We are acutely aware of the scale and peers 8. Poverty of income should not be an complexity of the issues: the interplay of excuse for poverty of ambition . We must not social and economic factors, the role of condone poor outcomes for students from place and region, the impact of policy and of disadvantaged backgrounds . a student’s prior attainment . We recognise that there has been a gradual improvement We are still a long way from equality of in the proportions of underrepresented opportunity in higher education, but we groups going into higher education in have a great opportunity to make a real recent decades . The latest round of access difference that will deliver immeasurable and participation plans – submitted to the dividends not just to students but also to OfS earlier this year – is testament to the universities and colleges, and beyond them genuine commitment of universities and to communities and society . colleges, including those with the most selective intakes, to equality of opportunity . The experience of students in higher education What we have seen in the past is ‘slow but steady’ improvement . The trouble is The OfS’s regulatory powers and objectives that slow and steady is too slow when are designed to ensure that students people’s livelihoods and opportunities have a high-quality experience of higher are at stake . That is why we are now education and are supported to succeed in, looking for a radical improvement in and achieve positive outcomes from, their progress . During the registration process time there . only 12 providers received no regulatory intervention in relation to the access and Students tell us that the quality of their participation condition . teaching is the most important issue for them in determining whether they receive We will monitor these plans carefully, and value for money, and the TEF addresses robustly challenge underperformance . precisely this issue . Gold, Silver and Bronze At sector level, recognising the need awards are issued to providers based not for more and better evidence of ‘what only on teaching quality but also excellence works’, we will continue to support the in the learning environment, and the dissemination of effective practice, and educational and professional outcomes encourage rigorous evaluation to ensure the achieved by students . focus is on impact, not just activity . Where providers are at risk of financial There is also work to do to dispel wider, insolvency, we will intervene to ensure that persistent myths and misperceptions about the interests of students are protected and access and participation: that universities students are enabled, whenever possible, and colleges cannot be expected to to transfer to other courses at other compensate for poor schooling and universities or colleges that are suitable wider social inequalities; that contextual for them . admissions are unfair; that disadvantaged students will always do less well in their We are also acutely aware of the growing degrees . Research shows that if students concerns about the mental health of from disadvantaged backgrounds are helped students . The OfS and its partners have

8 1: Commentary

invested £14 .5 million in a number of our performance by asking students and major projects dedicated to exploring new graduates about their views on value approaches and solutions, in collaboration for money 14. with universities and colleges, the NHS and mental health charities 9. Building on the One of our regulatory expectations is that outcomes of these projects, we will work providers make effective arrangements with students, the NHS and providers to for transparency about value for money tackle this issue effectively . Over the next for students and, where grant funding is year, we intend to focus on the mental concerned, for taxpayers . We have found health of not just UK undergraduates, but that students’ perspectives on value for postgraduates and international students . money may differ significantly from those held by universities and colleges, and We also plan to particularly prioritise work that information about this is not always that will address harassment on the basis of presented in a way that enables students to race, religion, disability, gender or sexuality, know how their fees are being spent . which has no place in university campuses . We have already funded over 100 projects We will be addressing these and other issues across over 80 universities and colleges to through our student information, advice develop practical responses and resources and guidance strategy . Our focus extends to support students and bring about cultural beyond the provision of information for and attitudinal change 10. We will be going prospective students, to encompass support further than this over the next year by for their consumer rights throughout their setting out our expectations of universities time in higher education . We recognise the and colleges in preventing and dealing importance of clear, effective complaints with incidents of harassment and sexual systems, and we are working with the misconduct . Office of the Independent Adjudicator to look at what more we can do in this Value for money area . We will also be seeking to ensure that student contracts, including their Higher education must deliver value for terms and conditions, are fair, transparent money for students and taxpayers . The and accessible . trebling of tuition fees from 2012 increased expectations in this area, with a particular Working with students focus on teaching quality . Our own research on student perceptions – the first The OfS regulates in the interests of commissioned by the OfS – found that students . We do not provide direct advice value for money meant different things to or support to individual students, nor are we different students, but overall only 38 per in any way a representative body . But we cent of respondents thought their tuition are absolutely clear that the perspectives of fees represented value for money 11. A recent students must inform our work . We need, survey by the Higher Education Policy and want, to be challenged by students . Institute echoes this finding 12. Understanding their experiences and drawing on their expertise helps us to be a Value for money runs like a thread through more effective regulator . all of the OfS’s work . Our value for money strategy, published in October 2019, gives My experience over the last year of meeting more detail of our approach 13. The strategy with students and students’ unions, and prioritises action on the issues that evidence listening to their views, has involved some shows students care about . We will measure of the most stimulating and thoughtful discussions that I have had since starting

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with the OfS . Their views, along with those go to university 16. They are less likely to be of our student panel, have informed my unemployed than non-graduates 17. They thinking and approach to higher education, make a major contribution to the public and and the work of the OfS . I have heard loudly private sectors, to industries and businesses and clearly how important the quality of of crucial importance to the UK economy . teaching and effective assessment and feedback are to students . I have heard how Information, advice and guidance to concerned students are about mental health, students about careers and graduate equality and diversity, and global issues outcomes are now an integral part of higher such as climate change . Our student panel education provision, and employability is members have in particular emphasised how widely integrated into curriculums . However, important meaningful student engagement there are major disparities between levels is for the OfS and for providers, and the of graduate employment across different need for the OfS to be able to demonstrate regions . Graduates who are mobile are change in access and participation for more likely to have successful employment disadvantaged students across the sector . outcomes, yet almost 50 per cent study and go on to their first employment in their The OfS’s student engagement strategy, home region, where opportunities may be to be published in spring 2020 following more limited . And some regions struggle to a period of extensive consultation, will set retain the graduates they need to support out our approach for the period to 2023 . their economies . Its recommendations will seek to reflect the diversity of the student population, our The OfS is working with employers, commitment to listening and learning, and universities and colleges to address these our desire to involve students in shaping the geographical skills gaps, funding innovative direction of the OfS . programmes that address local employer and graduate needs, and knowledge Meantime, the activities described in this exchange activities that benefit students review are testament to the positive and and graduates . We have just co-funded with tangible impact students are already having Research England a programme to identify on our work – through participation in and improve the benefits for students in the TEF, in their responses to our surveys knowledge exchange activities . on value for money and other topics, and through the thoughtful contributions of our The evidence we already have demonstrates student panel . the link between work experience and improved outcomes, so we will We know that the NSS does not capture be encouraging more universities and the views of students who leave before colleges to consider how work experience completing their courses, and we are looking can be incorporated into courses for a at ways of expanding the survey to include wider group of students . We are also their voices . We are also piloting a new encouraging providers to consider survey for postgraduate students . how they can redevelop and redesign curriculums to embed the skills which Graduate outcomes and enhance employability . employers’ perspectives

Graduates continue to earn, on average, 35 per cent more than non-graduates, about £10,000 extra a year 15. The vast majority earn more than those who do not

10 1: Commentary

Working with higher education The year ahead providers In the coming year, the OfS will be Over the past 18 months we have been building on the systems that are now in developing relationships and ways of place, ensuring that students can rely working with the universities, colleges and on the quality threshold prescribed by other providers we regulate . We seek open, our regulatory framework . We will want trusting relationships, but relationships that to move from setting up systems, to acknowledge that we are an independent having demonstrable impact . Access and regulator, acting first and foremost in the participation will be a priority, and we know interests of students . This means we will on we must continue working to minimise occasion need to comunicate robustly, and regulatory burden, and engage even more this may on occasion be uncomfortable . effectively with students and providers . However, we understand that by engaging appropriately with providers, and listening We will also continue to use our voice, and to their perspectives, we will be a more the tool of transparency, to promote what is effective regulator . good and innovative, and to challenge poor practice wherever appropriate . Our aim is to act in accordance with our values of ambition, openness, learning and Within this broad agenda, there are three diversity . We seek to explain our decisions areas where we will be paying particular clearly, and to be transparent . We value attention: admissions and recruitment, the wealth of experience and expertise information for students, and improving the university academics and practitioners bring quality of teaching and courses . to bear on issues such as student mental health, widening participation and graduate Fairer admissions and recruitment employability, as part of our work to support We will be conducting a review of effective practice on these and other university admissions,18 which will include issues . We are also consulting on a range of consideration of the merits, or otherwise, of regulatory issues to ensure that providers models of post-qualification applications . have the opportunity to respond to our The government’s supplementary guidance proposed policies . letter to the OfS chair in September 2019 asked us to continue our work in this area 19. Our approach is informed by the principles of the Regulators’ Code, and a clear sense The debate within the sector about of what we are here to do . It is risk-based admissions is longstanding . What has and aims to minimise the burden on changed is the context in which it is taking providers . We have set explicit parameters place . English higher education now for engagement, which are rooted in our operates within a more competitive policy regulatory functions and duties . We remain and regulatory environment in which the committed to reducing regulatory burden, protection of students’ interests takes acknowledging that this will be difficult centre stage . To the extent that the existing particularly in the early stages of the OfS’s system is not serving their needs in a fair, development . We have regard to the need transparent and inclusive way, it must to protect institutional autonomy, while change, and we will consult widely with acknowledging that there can be tension students, schools, providers and others to between autonomy and accountability; understand their views and perspectives . between self-regulation and responsiveness to the priorities of students and society .

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We will also consider ways of addressing Improving teaching and courses increasing concerns about some student As our attention turns to regulating the recruitment practices . Students can be providers we have registered, we now plan offered enticements and inducements which to use our regulatory tools to support are often not in their best interests, at a time improved quality of teaching and courses . when they may be especially vulnerable . We plan to consult on whether our In particular, we will continue closely to requirements for quality are sufficiently monitor the impact of the damaging growth demanding to ensure that all students of ‘conditional unconditional’ offers that receive a good education . We set numerical require students to commit to a particular baselines for indicators such as continuation, course, the subject of an OfS Insight brief in completion and employment as part of our January 2019 20. assessment of the outcomes delivered for students 22. Our view is that a minimum level Better student information of performance should be delivered for all and protection students, regardless of their background Providers registered with the OfS must or what and where they study . We will demonstrate that the information on their consult on raising these baselines so that websites and marketing materials is accurate they are more demanding, and on using our and accessible . At a time when questions regulatory powers to require providers to are being asked, and concerns raised, about improve pockets of weak provision . the value of a higher education degree, it is more important than ever that students We have highlighted over the last year are able to make informed choices about where we have had concerns about the what and where to study based on clear, financial stability of universities and correct information . There can be no place colleges 23. While we believe the sector is in for false and misleading advertising in how sound financial health, there is considerable universities sell themselves to prospective variation between providers . We will ensure students, or a lack of clarity about that our risk-based approach to monitoring their rights . We cannot have a situation allows us to identify early signs of financial where students’ expectations are raised stress in individual providers . It is not in unrealistically before they go to university, the interests of students or taxpayers for a only to be dashed when they get there . provider to tip towards a disorderly market Such marketing is clearly within the scope exit . We want to be confident that we can of consumer protection law, and we will spot worrying financial performance and act swiftly and decisively where we find weaknesses in management and governance evidence of breach . so that these can be addressed . Where this is not possible, we want to ensure that an We will play our part by developing our exit is orderly and managed, with students Discover Uni site (in collaboration with supported to complete their studies . our UK funding partners)21 during its beta phase, taking on board feedback from students, teachers and others; and we will be working to improve the information that providers put on their websites on issues such as hidden course fees, course content and bursaries . We will also work to ensure that all students can benefit from the protections of consumer rights legislation .

12 1: Commentary

Notes

1 Office for Students (OfS), 2019 National 5 2014-15 figures . Universities UK, ‘Higher Student Survey (NSS) summary data, July education in numbers’, (https://www . 2019 (www officeforstudents. org. .uk/advice- universitiesuk .ac .uk/facts-and-stats/Pages/ and-guidance/student-information-and- higher-education-data .aspx) . data/national-student-survey-nss/get-the- nss-data/) . 6 In this review, for the sake of readability, we have used ‘universities and colleges’, 2 If a provider holds a TEF Gold award, or sometimes simply ‘universities’, to refer this means that it delivers consistently to what our regulatory framework and outstanding teaching, learning and outcomes other more formal documents call ‘higher for its students and is of the highest quality education providers’ . found in the UK . A Silver award means that it delivers high-quality teaching, learning and 7 OfS, ‘Registration process and outcomes outcomes, and consistently exceeds rigorous 2019-20: Key themes and analysis’ (OfS national quality requirements . A Bronze 2019 .30), November 2019 (available at award means that it delivers teaching, www officeforstudents. org. .uk/publications/ learning and outcomes for its students that registration-key-themes-and-analysis/) . meet these requirements . 8 Boliver V, Gorard S, and Siddiqui N, ‘Using 3 Based on both the questions ‘I have contextualised admissions to widen access received detailed comments on my work’ to higher education: A guide to the evidence and ‘Feedback on my work has helped base’, 2019 (available at https://www dur. . me clarify things I did not understand’ ac .uk/dece/themes/participation/) . (Higher Education Funding Council for England, ‘Higher education survey reveals 9 OfS, ‘Innovation, partnership and data continued student satisfaction’ (available can help improve student mental health at https://webarchive .nationalarchives . in new £14 million drive’, July 2019 (www . gov .uk/20100303172000/http://www . officeforstudents org. .uk/news-blog-and- hefce .ac .uk/news/hefce/2007/nss .htm); events/press-and-media/innovation- OfS, 2016 NSS summary data (available at partnership-and-data-can-help-improve- www officeforstudents. org. .uk/advice-and- student-mental-health-in-new-14m-drive/) . guidance/student-information-and-data/ national-student-survey-nss/get-the-nss- 10 OfS, ‘Catalyst for change: Protecting data/) . Since 2017 these questions have students from hate crime, sexual violence been replaced in the NSS by ‘I have received and online harassment in higher education’ helpful comments on my work’ . (OfS 2019 .24), June 2019 (available at www . officeforstudents org. .uk/publications/ 4 Department for Education (DfE), ‘Graduate catalyst-fund-projects-evaluation/) . labour market statistics 2018’, 25 April 2019 (available at https://www gov. .uk/ government/statistics/graduate-labour- market-statistics-2018), p7 .

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11 Trendence UK, ‘Value for money: The student 20 OfS, ‘Unconditional offers: Serving the perspective’, March 2018 (available at www . interests of students?’ (OfS Insight brief officeforstudents org. .uk/news-blog-and- #1), January 2019 (available at www . events/press-and-media/new-research- officeforstudents org. .uk/publications/ shines-spotlight-on-student-perceptions-of- unconditional-offers-serving-the-interests- value-for-money/) . of-students/) .

12 Higher Education Policy Institute (HEPI), 21 Discover Uni is funded by the Department ‘Student academic experience survey 2019’, for Employment and Learning Northern June 2019 (available at https://www .hepi . Ireland, the Higher Education Funding ac .uk/2019/06/13/second-consecutive-year- Council for Wales and the Scottish Funding of-students-reporting-better-value-for- Council, in partnership with the OfS . money/) . 22 OfS 2019 .30, ‘Condition B3: Baselines for 13 OfS, ‘Office for Students’ Value for money student outcomes indicators’ (available at strategy’ (OfS 2019 .38), October 2019 www officeforstudents. org. .uk/publications/ (available at www officeforstudents. org. .uk/ registration-key-themes-and-analysis/) . publications/value-for-money-strategy/) . 23 OfS, ‘Financial sustainability of higher 14 OfS, ‘Value for money performance education providers in England’ (OfS measures’ (www officeforstudents. org. .uk/ 2019 14),. April 2019 (available at www . about/measures-of-our-success/value-for- officeforstudents org. .uk/publications/ money-performance-measures/) . financial-sustainability-of-higher-education- providers-in-england/) . 15 DfE, ‘Graduate labour market statistics 2018’, p1 .

16 Institute of Fiscal Studies, ‘The relative labour market returns to different degrees’, June 2018 (available at https://www .ifs org. .uk/ publications/13036), p24 .

17 DfE, ‘Graduate labour market statistics 2018’, p1 .

18 OfS, ‘Contextual admissions: Promoting fairness and rethinking merit’ (OfS Insight brief #3), May 2019 (available at www . officeforstudents org. .uk/publications/ contextual-admissions-promoting-fairness- and-rethinking-merit/), p8 .

19 ‘Supplementary strategic guidance to the OfS’, September 2019 (available at www officeforstudents. org. .uk/advice- and-guidance/regulation/guidance-from- government/) .

2. Regulating in the interests of students

The OfS regulates higher Since 1998, university students in England have had to pay tuition fees . Since then, education in England in the these fees have increased: for most interest of students. As part undergraduates, course fees are now subject of that regulatory role, to a maximum of £9,250 . Students can universities, colleges and other apply for government tuition fee loans (and for maintenance loans, which are dependent higher education providers on parental household income), which with students in receipt of they begin to pay back once their income student loans or who require reaches a certain threshold . This means that most students contribute towards the cost visas to study in the UK must of their course through income-contingent register with us. This chapter student loans . Universities and colleges considers recent changes consequently receive a much smaller in the regulatory landscape proportion of their teaching income directly from the government . leading to the establishment of the OfS, the principles and Given this shift in funding, an increasingly objectives underpinning the diverse range of providers, and growing expectations from students and the public, OfS’s regulatory approach, a new approach to regulation was required . and issues emerging from the Within this changed environment, the registration process. OfS uses a range of regulatory tools – including registration requirements, ongoing The changed regulatory monitoring of providers, and the publication landscape of data and information – to ensure quality and drive improvement . Over the last 30 years, English higher education has seen a dramatic increase The OfS’s approach to regulation in the numbers of both students and providers . In 1990, approximately 20 per The OfS’s approach to regulation puts cent of English people went into higher students at its heart . Our mission is to education by the age of 30;24 current ensure that every student, whatever their projections put this figure at slightly more background, has a fulfilling experience of than 50 per cent 25. The number of non‑EU higher education that enriches their lives international students entering the UK and careers . This means making sure that increased from 42,000 in 1992 to a high prospective students have the information of 246,000 in 2011, with 218,000 in 2019 26. they need to find a course that is right As of October 2019, there are 387 higher for them, and can be confident that the education providers on the OfS’s Register 27. provider they choose offers good-quality courses, is financially viable, and well run .

17 English higher education 2019

Our regulatory framework, published in February 2018, sets out the principles OfS regulatory framework: that underpin our approach, and the ways the four primary objectives in which we seek to protect the student 28 interest . It lays out the expectations All students, from all backgrounds, and we have for providers, and explains with the ability and desire to undertake how we will encourage competition and higher education: continuous improvement . It sets out a number of conditions – relating to access 1. Are supported to access, succeed in, and participation, quality and standards, and progress from, higher education. student protection, financial sustainability 2. Receive a high-quality academic and governance – that providers wishing experience, and their interests are to register with the OfS will need to protected while they study or in satisfy . This means that for the first the event of provider, campus or time, higher education providers of all course closure. types are being judged against the same 3. Are able to progress into regulatory requirements . employment or further study, and their qualifications hold their value Our approach is principles-based . The higher over time. education sector is complex: imposing a 4. Receive value for money. narrow rules-based approach would risk creating a compliance culture that would stifle diversity and discourage innovation . requirements across a number of conditions, The framework does not, therefore, set including student outcomes, management rigid numerical performance targets, or list and governance, financial viability and detailed requirements . Instead, it describes sustainability and student protection . the approach the OfS will take as it makes individual judgements on the basis of data Above that baseline, the framework outlines and contextual evidence . how our interventions at sector level will ensure that the higher education sector The OfS is committed to keeping the is able to diversify, innovate and flourish regulatory burden to a minimum, consistent through activities that potentially impact on with our role and our objectives . We apply all universities and colleges . This includes a risk-based approach to our regulatory championing issues, sharing evidence responsibilities . This means that we focus and examples of effective and innovative our attention on those providers we practice, promoting diversity, publishing consider to be at increased risk of breaching information that enables students to make one or more of our regulatory conditions . the right choices for them, and the strategic In these circumstances, we may place the use of funding to drive improvements . provider under a greater level of scrutiny . Providers that continue to comply with our Regulating for equality of opportunity conditions should see less regulation and The framework is also underpinned by a reduced burden, not more . commitment to equality of opportunity . The regulatory framework sets out two Some groups of students, including those levels of regulation . Provider-level regulation from low-income homes, are still far describes the relationship between the OfS less likely to go to university or college and individual universities and colleges, than students from more advantaged the purpose of which is to ensure that backgrounds . If they do go, they are far all registered providers meet baseline more likely to drop out before completing their course, and less likely to get a good

18 2. Regulating in the interests of students

job when they leave higher education . The primary objectives that lie at the heart of The regulatory process our regulatory framework are designed to address these issues and needs . To register with the OfS, providers must satisfy 12 initial conditions. These It is sometimes argued that there is a are framed in terms of outcomes and tension between these objectives: for seek to regulate the things that matter example, that if providers recruit students to students. They include commitment from disadvantaged backgrounds, then it is to closing access and participation inevitable that higher numbers will drop out . gaps, financial viability, quality, good However, access for disadvantaged students, governance and consumer protection. and good outcomes, are not a zero-sum game . Research shows that if students from Once registered, a provider must disadvantaged backgrounds make the right continue to satisfy a set of general choice about what and where to study – ongoing conditions. We assess the and are given the support they need during likelihood that it will breach one or their studies – they can end up performing more of these conditions. Where we just as well as, if not better than, their more identify an increased risk, we may privileged peers 29. decide to impose specific ongoing conditions – requirements it must Achieving these objectives is at the comply with as an aspect of its heart of why we regulate . Students from registration. We may also decide to disadvantaged backgrounds should not monitor it more closely. be inappropriately recruited onto poor- quality courses, and they should get the Where we find a breach of a specific support that they need . Low continuation or general ongoing condition we will rates or poor graduate outcomes are not consider using one or more of a range acceptable just because a student comes of sanctions, potentially culminating from a disadvantaged background . This is in deregistration. a waste of money for student and taxpayer alike . That is why our registration process is designed to ensure that each provider can apply to the research councils for meets all the requirements set out in our funding, to the Home Office for a licence to regulatory framework . recruit international students, and to the OfS for the right to award degrees and call itself The OfS Register a university . To be registered with the OfS a provider must, among other things, deliver The OfS Register is a single, authoritative successful outcomes for all its students, list which assures students and taxpayers and demonstrate financial sustainability and that a particular university or college meets good governance . To charge higher fees, it baseline requirements across a series of must demonstrate that it is working towards measures which, taken together, mean that eliminating access and participation gaps for it offers high-quality teaching, learning and disadvantaged groups of students . support for its students . Providers are then monitored on an ongoing basis according to Once registered, providers and their the level of risk they pose to students . students gain a number of benefits . Students can apply for government-backed tuition fee and maintenance loans, and for Disabled Students’ Allowances . A provider

19 English higher education 2019

The registration process 2018-19 Status of applications, Over the past 18 months, we have assessed assessments and over 500 applications and registered a total registrations as at of 387 providers . Around 90 applications were still in progress by October 2019, 23 October 2019 many from providers that applied after 1 May 2019 . Also by October 2019, we had • Over 500 applications were received refused registration for eight providers from higher education providers to and told a further 13 that we are minded to join the OfS register. refuse registration 30. • A total of 387 providers were registered. The registration process was challenging, • Eight providers were refused for the OfS and for providers . The timetable registration. set for us by the government was tight, • The majority of applications (446) and the timing of the transition from the and registrations (330) were for the old to the new legislative framework set ‘Approved (fee cap)’ category, which the parameters for the process . The OfS allows providers to charge tuition was legally established in January 2018 to fees up to the higher limit. allow for the publication of the regulatory • The majority of providers on the framework and guidance on how to apply Register (373) had been regulated for registration . But we did not commence under the previous higher education operations, and were therefore unable to regulatory systems. 14 providers begin the registration process, until April not regulated under the previous of that year . systems have been registered.

Our internal registration timetable was planned to align with student recruitment We are, rightly, not permitted to register a cycles, so as to cause minimum disruption provider until we are able to confirm that for providers and students . In setting it, each initial condition is satisfied . So, these however, we had assumed that applications incomplete and poor quality applications would be of a good standard and ready necessitated follow-up enquiries and to assess . requests for information . This inevitably extended the process . A number of providers, of all types, made strong applications with credible evidence Regulatory interventions that all of the initial conditions of registration We have imposed some form of regulatory were satisfied . The strongest applications intervention for the vast majority of had engaged with the new regulatory providers that we have registered . requirements and identified where further Interventions are based on our assessment action might be necessary, with plans to of the risk of a future breach of a condition . address this . They vary in scale and significance . They may highlight concerns, set out actions for However, this was not the case for the a provider to take, or signal our intention majority . Well over two-thirds were to undertake more frequent or intensive incomplete when they were submitted . monitoring . In a number of cases, we have In many cases, too, the quality of the imposed one or more ‘specific conditions’, information they contained was poor . the most significant form of intervention, to mitigate increased risk of a future breach of conditions .

20 2. Regulating in the interests of students

The vast majority of registered providers have had some form of regulatory Regulatory interventions intervention imposed . Some have had more than one intervention applied to them . Only The OfS has powers to impose a range 12 providers had no interventions as part of of interventions, including: the registration decision . The total number of interventions applied as of 23 October • formal communication, where we 2019 was 1,109 31. Figure 1 provides inform a provider of issues that a breakdown . might cause us concern if left unchecked Most interventions (615) took the form • enhanced monitoring, where of a formal communication . There were we actively monitor a provider’s 464 requirements for enhanced monitoring, progress against action plans or and 30 specific ongoing conditions targets, for example financial plans were imposed 32. or student recruitment targets • specific conditions of registration, As Table 1 on page 23 shows, interventions where we require a provider to make have been imposed across all of the improvement in particular areas, for conditions of registration . The majority example student outcomes. relate to the first condition, on access and participation plans . This is in large part a reflection of our level of ambition interventions because the outcomes and challenge in relation to access and delivered by some providers for their participation . students were very weak .

Fair access and participation is an important Student protection plans, which set out OfS objective, and there is an expectation the actions a provider will take to ensure of continuous improvement in reducing that students can continue their studies in the gaps between the most and least the event of course, campus, or provider advantaged students in access, student closure, were variable in their quality . Some success and progression into further study were excellent, and demonstrated a real and employment . Many providers not engagement with the requirements, resulting considered to be at increased risk for other in plans that had made a comprehensive conditions of registration were judged assessment of risks and were clear on the to be at increased risk for this condition . protection that was available to students . The greatest number of interventions (229) have been made to improve progress Many more, however, were very poor, and on access and participation by those could not be approved on first or even universities and colleges that wish to charge subsequent submission . It would not higher tuition fees . have been in the interests of students to delay registration in so many cases, so Other areas of concern we have approved a number of plans that Many applications were weak in the are significantly below the standard we following areas . would expect . The providers concerned are required to resubmit improved plans Sector-level data suggests there is strong following the publication of revised guidance performance in student outcomes, and by the OfS . this was reflected in the data of a large number of individual providers . However, we imposed a significant number of

21 English higher education 2019

Figure 1: Number of regulatory interventions to 23 October 2019

120

100

40 Number of providers 20

0 0 1 2 3 4 5 6 7 8 9 Number of regulatory interventions applied

Very few providers demonstrated an against a chosen code . This did not allow understanding of value for money from their the OfS to make judgements about the students’ perspective, and few appeared effectiveness of arrangements and in a to have considered how they could present number of cases we required a review of information about value for money in a way management and governance arrangements that would be accessible to their students . before reaching a registration decision .

We found significant weaknesses in Significant numbers of providers had based providers’ responses to the ‘fit and their financial viability and sustainability proper person’ public interest governance on optimistic forecasts of growth in student principle . Most relied on declarations from numbers without convincing evidence of governing body members . It was unclear how this growth would be achieved 33. whether they had conducted checks to determine whether individuals were fit and The financial state of English proper, and there was limited recognition higher education of the indicators and definitions set out in the regulatory framework . Our own Overall, higher education is in sound investigations uncovered large numbers of financial health, though with considerable discrepancies between the directorships and variation between providers 34. However, in trusteeships held by individuals declared a period of great economic and political on providers’ application forms and those uncertainty, and with the unique nature of listed on Companies House or the Charity the higher education market constraining Commission website . the responses of universities and colleges, it remains to be seen how well the sector will There was a lack of convincing evidence maintain this . about the adequacy and effectiveness of providers’ management and governance Universities’ and colleges’ financial arrangements . A large number of providers commitments to the sector’s various were unable to evidence regular external pension schemes are having a significant input into reviews of their arrangements . impact on their financial sustainability . The There was also a reliance on what appeared 2017 triennial valuation of the Universities to be paper-based compliance exercises Superannuation Scheme (USS) has

22 2. Regulating in the interests of students

Table 1: Regulatory interventions across conditions of registration

Condition Formal Enhanced Specific communication monitoring condition

A1: Access and participation plan 144 77 8

B1: Quality 2 3 0

B2: Quality 30 42 0

B3: Quality (student outcomes) 50 77 20

B4: Standards 1 4 0

B5: Standards 0 2 0

C1: Guidance on consumer protection law 15 6 0

C3: Student protection plan 67 27 0

D: Financial viability and sustainability 74 71 0

E1: Public interest governance 176 70 1

E2: Management and governance 40 72 1

F3: Provision of information 16 13 0

Total 615 464 30*

Note: The number of specific conditions set out in Table 1 is higher than the number currently published on the Register . This reflects the fact that this regulatory intervention was imposed at the point of registration . The requirements of some specific conditions have subsequently been satisfied, and the specific conditions therefore removed . resulted in significantly increased annual Pension Scheme, totalling an estimated £100 cash contributions from both employers million a year or more . Local Government and scheme members, which we estimate Pension Schemes are also due for a will add over £500 million a year to the revaluation, which, if it follows the trend annual pension bill for some universities of other scheme valuations, could lead to and colleges . There is also a significant further costs . accounting adjustment due to the increased deficit in the scheme, which we will take To compensate for the reduction in into account when assessing the underlying capital funding from the government, and financial performance of universities . given relatively cheap interest rates and long‑term loans spread over 30 to 40 years, Some universities and colleges have universities and colleges have also increased also been impacted by requirements for their aggregate borrowing substantially increased contributions to the Teachers’ over the last decade 35. Much of this money

23 English higher education 2019

has been spent on building and improving university estates and infrastructure, such as student accommodation, teaching facilities and libraries . Private halls have been seen as a major investment opportunity, often with institutional support . It remains important that, with rents on the rise in many cities where students live, universities and colleges continue to ensure the availability of high-quality, good‑value and affordable accommodation for their students .

Conclusion

Much of the work the OfS has done in regulation over the last year has been assessing registration applications from providers . We now know more about individual providers, and the sector as a whole, than ever before . This gives us a solid foundation for the implementation of a risk-based system of regulation in which regulatory activity is focused on those providers and those issues that represent the greatest risk to students . Through regular monitoring and intervention where necessary, our regulatory work with providers should ensure that providers continue to meet expectations .

In light of the lessons we have learnt, our focus in the coming year will be on embedding our approach to the ongoing monitoring of registered providers . To this end, we have published additional guidance setting out our processes and expectations,36 and are implementing an online system for the collection of information and data .

24 2. Regulating in the interests of students

Notes

24 ‘The Dearing report: Higher education in 29 Boliver et al, ‘Using contextualised the learning society’, 1997 (available at admissions to widen access to higher www educa. tionengland or. g .uk/documents/ education: A guide to the evidence base’ . dearing1997/dearing1997 .html), p20 . 30 Information on applications that 25 DfE, ‘Participation rates in higher education: have been refused can be found at 2006 to 2018’, 2017, p1 (available at https:// OfS, ‘Refused registration decisions’ wwwv go. .uk/government/statistics/ (www offic. eforstudents or. g .uk/advice-and- participation-rates-in-higher-education- guidance/the-register/refused-registration- 2006-to-2018) . Rather than confirmed decisions/) . Following a decision to refuse university entry, these figures express registration, the OfS liaises with the the likelihood that a young person will provider regarding publication of that participate in higher education by the decision . There can therefore be a delay age of 30 . between the notification of the decision and publication . In some circumstances 26 ONS, ‘How has the student population the OfS might agree that the decision changed?’, 2016; ONS, ‘Provisional should not be published . long-term international migration estimates’ (https://www ons. go. v uk/. 31 OfS 2019 30,. p3 . peoplepopulationandcommunity/ populationandmigration/ 32 OfS 2019 30,. p20 . internationalmigration/datasets/ migrationstatisticsquarterlyreport 33 In April 2019 the OfS wrote to providers provisionallongterminternational about this issue: see OfS 2019 14. . migrationltimestimates) . Note that these figures are not directly comparable as the 34 OfS 2019 14. . method used to derive them has changed 35 since 1992, to a method still designated as OfS 2019 14,. pp13-14 . ‘experimental’ . Additionally, the number for 36 OfS, ‘Regulatory advice 15: Monitoring 2019 is an estimate based on incomplete and intervention’ (OfS 2019 .29), October quarterly figures and may change in future . 2019 (available at www offic. eforstudents . 27 The OfS Register, 2019 (available at www . org .uk/publications/regulatory-advice-15- officeforstudents or. g uk/advice-and-. monitoring-and-intervention/) . guidance/the-register/the-ofs-register/) .

28 OfS 2018 0. 1 (available at www . officeforstudents or. g uk/publications/. securing-student-success-regulatory- framework-for-higher-education-in- england/ ).

3. A new approach to fair access, participation and success

An important part of our There are still higher education ‘cold spots’, including coastal regions in the north of regulatory role is ensuring fair England and rural areas in the South West . access to higher education Some groups have seen only marginal gains for those who are currently from the expansion, such as white men from underrepresented, including deprived backgrounds, while other groups, like mature students, have declined . Certain those from disadvantaged marginalised groups, among them care backgrounds. We are not only leavers and the Gypsy, Roma and Traveller interested in access: just as community, continue to have participation percentage rates in the single figures 38. important is ensuring successful completion of courses and Indeed, many of the widening participation accessing successful careers issues for higher education highlighted in the 1997 Dearing report resurfaced in after graduation. This chapter the 2019 Augar review . Dearing reported looks at our approach to these that men from the least advantaged issues and how we regulate socioeconomic groups were among to improve opportunities the least likely to participate; noted a significant gap in the participation between for all in our universities, those who come from the most and the colleges and other higher least educationally advantaged areas; education providers. and observed that black men remained underrepresented in higher education 39. Access and participation before Augar finds that boys are less likely to the OfS apply to university than girls; that the most advantaged students are much more likely Although there has been a large increase in to go into higher education than the least; the proportion of people going to college and that black students are less likely to 40 or university over the last two decades, apply than other minority ethnic groups . this expansion has not benefited all equally . While there has been improvement in the The number of students from the most proportion of people from underrepresented disadvantaged groups entering professional groups going into higher education, there jobs is lower than it should be, given remain stark access gaps . How exactly their qualifications . Graduates should not to eradicate these gaps has long been have to rely on family networks or unpaid a matter of debate . In the 1980s, much internships to get ahead: there is more that of the focus was directed at alternative universities can do to support valuable work qualifications (such as BTECs and Access experience for undergraduates to address to Higher Education) and diversification this disparity . among providers 41. By 1997, the Dearing report encouraged universities to run more widening participation projects and outreach activity 42. More recent white

27 English higher education 2019

papers and reviews have focused on shifting between them are already entrenched, and expectations (resulting in the establishing that universities cannot and should not be of Aimhigher in 2004, and more recently expected to compensate for this . Thankfully, the National Collaborative Outreach such attitudes are changing, but we still Programme) and encouraging the wider should not underestimate the impact of a use of contextual admissions to increase child’s earlier educational experience . the number of disadvantaged students 43. Universities and colleges committed to Studies have shown that, for example, spend £176 million of their higher education by the age of 11, disadvantaged pupils fee income on outreach activities in 2019-20, are over nine months behind their more but significant access gaps remain 44. advantaged counterparts 45. On average, disadvantaged students are two years The access gaps we are concerned with behind their more advantaged counterparts differ in a number of key ways . They have by the end of secondary school . Only different causes, some being more obviously 4 .9 per cent of children who are eligible due to the cost of higher education while for free school meals receive A-level others relate to wider social inequalities . grades of AAA or better, compared with Many are linked to school exam results and 11 per cent of those who are not eligible . the persistent attainment gap between Only 4 7. per cent of black children get AAA disadvantaged and advantaged children . or better, as opposed to 10 .8 per cent for It is worth unpicking some of their unique white children .46 dynamics before assessing how they might be eliminated . We know that many of these students are less likely to enter higher education . This chapter outlines the most significant Students who received free school meals access gaps, and then moves on to the OfS’s while at secondary school are half as likely role in helping universities and colleges to to enter higher education as those who did close them . It then examines the initiatives not 47. Black students are less likely to gain undertaken in the sector in the last year to entry to high-tariff universities 48. Young eradicate these gaps . Finally, it evaluates the people who live in an area with the lowest success of this ambition and outlines what rates of participation in higher education are we propose to do in the future . nearly six times less likely to go to a high- tariff university than those from areas with Stagnation and change in access the highest .49 If they do go to university or college, they often pay a ‘poverty premium’: Educational attainment and they are more likely to take on debt and to barriers to success have to work to pay for their living costs 50 University is just one link in an educational while in education . chain that stretches back to nursery Many of the higher education reforms school and forward to further training and of the 1980s, 1990s and 2000s were employment . The impact higher education centred around ensuring that relatively can have is in many ways constrained by poor attainment at secondary school the education children receive before it, did not necessarily preclude access to just as university and college education is higher education . This focus on ensuring a key determinant of which jobs are open there could be second chances saw the to graduates . introduction of Access to Higher Education A familiar complaint from some university qualifications and foundation years . Today, leaders has been that by the time children finish compulsory education, the differences

28 3. A new approach to fair access, participation and success

about 40 per cent of people from the UK much as their predecessors 57. These are all attend university and college before the age challenges, of opportunity and quality, for of 20 51. the sector .

But, for instance, while only 6 per cent of Indeed, the education reforms of recent care leavers enrol in higher education by the decades have already opened up higher age of 21, by the age of 23 this figure has education to a wider cross-section of risen to 11 .8 per cent .52 This second chance society . Over that time, more women, has been one of the great strengths of more students from minority ethnic English higher education . groups and more disabled students have attended and succeeded at university 58. However, in recent years, many of these Government loans for postgraduate second chances have been eroded . Since funding mean that more people can afford 2012, when prisoners became ineligible further study 59. The qualifications allowing for student loans for higher education, the entry to higher education have likewise number of them who take courses has fallen proliferated . Longstanding qualifications by 42 per cent .53 Changes in the eligibility like Access to Higher Education and the guidelines for personal independence BTEC have become more common as payments mean that many disabled routes to entry, alongside the increasing students are struggling to continue to provision of foundation years and access higher education 54. Mature student degree apprenticeships 60. numbers have halved since fees were introduced in 2012 55. While most students still study at universities (around 90 per cent of But while poverty may be a barrier to high the total), some 120,000 are studying attainment and expectations, it is no guide higher education in further education to potential . Therefore, it is imperative colleges 61. Specialist institutions, such as that universities and colleges continue theological colleges and conservatoires, to find innovative ways of targeting and often teach small numbers of students . encouraging such disadvantaged students, Over 1,000 prisoners are studying higher whether by developing deep partnerships education courses .62 Over 10,000 learners with local schools or making more started degree apprenticeships in 2017 63. contextual offers . This is not just about New providers have opened to address uplifting the deserving and gifted, but rather specific skills shortages in fields such as giving more students from marginalised and engineering 64. Cold spots persist, however, deprived backgrounds the opportunity to in the geographical distribution of higher study and succeed . This is about educational education, with coastal areas and the far opportunities for all . north of England being particularly poorly served (see Figure 2) . Today’s student The archetypal image of a student who Despite the huge increase in the proportion moves away from home to study at a of young people entering higher education, university after sitting their A-levels is no there remain persistent and significant longer the norm . Today’s student, compared differences in the proportions of students with their counterpart of 20 years ago, from particular backgrounds and is more likely to go to a local college or geographical locations . When we say we university; more likely to report a mental represent ‘all students’, this is the diversity health issue, and more likely to work during and complexity we must take into account . their degree 56. After graduation, they are less likely to find graduate jobs or earn as

29 English higher education 2019

Figure 2: Maps showing the distribution of higher education places in England, 2017-18

30 3. A new approach to fair access, participation and success

Mature students Disabled students As shown in Figure 3, one of the most When figures alone are considered, the dramatic changes since the introduction of numbers of disabled students attending fees at the £9,000 level has been the rapid university appear to be a success story . In decline in the numbers of mature students 2010, 8 per cent of undergraduate students attending university . Since 2012, the number in England (176,000) reported a disability, entering higher education over the age of compared with 13 per cent (276,000) in 25 has halved . With mature students making 2017 67. However, while some of this change up a significant proportion of part-time represents disabled people being more students, these numbers have also fallen 65. likely to attend university or college, some of it reflects the fact that students are more Because mature students are largely likely to declare their disabilities when they concentrated in a small number of subjects, get there . funding changes can have a marked impact on applicant numbers, and even give rise In any case, challenges remain . A 2019 to employment shortages . Nursing, where survey of 1,773 disabled students showed mature students made up over 40 per cent that only 40 per cent were aware of of the applicants between 2010 and 2016, Disabled Student Allowances before starting saw mature applicants fall by 28 per cent their course 68. Disabled students now have after the bursaries available before 2017 to pay the first £200 towards any assistive were discontinued 66. technology they may need, which may be financially challenging for some 69. This suggests that, for mature students, one of the major considerations in whether they The kinds of disability students are reporting choose to access higher education relates have also changed in recent years . In 2010, to the extent of the funding on offer and the cognitive or learning difficulties including magnitude of their debt after graduation .

Figure 3: Number of mature undergraduate entrants to English higher education institutions

400,000 10%

350,000 0% 300,000 -10% 250,000 -20% 200,000 -30% 150,000 -40% 100,000

50,000 -50%

0 -60% 2007-08 2008-09 2009-10 2010-11 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 Academic year

Mature entrants Percentage change relative to 2007-08 entrants

Population: UK-domiciled entrants to undergraduate provision at English higher education institutions who are 21 or over . Source data: Higher Education Statistics Agency (HESA) student records 2007-08 to 2017-18 data (excluding University of Buckingham) .

31 English higher education 2019

dyslexia were the most common reported At a provider level, there is a pronounced group (48 per cent of the total) 70. That gap between black students and those of remained true in 2017, with these difficulties other ethnicities at high-tariff universities . making up 38 per cent of the total . However, In 2018, only 6 .8 per cent of black 18-year- mental health is one of the fastest growing olds entered a high-tariff provider compared reported disabilities, perhaps due to with 8 .9 per cent of white 18-year-olds 76. increased social acceptance of its disclosure . Thus, while black teenagers are increasingly It constitutes 24 .6 per cent of the total, entering higher education, their participation compared with 8 per cent in 2010 71. is patchy and mainly concentrated in low and medium-tariff providers . The increase in disabled student numbers has seen more universities and colleges Socioeconomic background commit to embedding a social model in While there has been significant their teaching 72. For example, a number of improvement over the last decade in them now record all lectures, have licensed the number of people from deprived accessibility software for all computers, or backgrounds going to university and offer a choice of assessment options . The college, the gap between the proportions OfS currently commits £40 million annually of students from poorer and wealthier to help providers to become more inclusive backgrounds remains substantial (see of disabled students . Figure 4) . This disparity is worse among young men than young women 77. Ethnicity and access Since the 1990s, most minority ethnic Indeed, much of the closing of access groups have accessed university at a higher gaps in the 1990s came as a result of proportion than the general population of minority ethnic groups’ improved results 18- to 30-year-olds, thanks in part to the at school and the increasing prosperity success of educational interventions such of second-generation immigrants . Family as the London Challenge in areas with background, type of schooling, relative high proportions of such students . The wealth and cultural capital remain some of exceptions in the 1990s were Bangladeshi the greatest predictors of whether or not women, whose access has since improved, a child will progress onto university 78. This and black men 73. Since 2007, the ethnic fact is illustrated by the experience of those group with the lowest access to higher who have lived in care, only 6 per cent of education, proportionally speaking, has been whom progress into higher education by the white people . More specifically, this access age of 21 79. gap is most evident for white men from economically deprived and educationally In the face of such entrenched disadvantaged areas, closely followed by underrepresentation, despite concerted women from the same areas 74. investment to improve access and despite successive governments’ commitment Some notable disparities, however, exist at to social justice and mobility, radical subject and provider level . In 2017, only 80 changes are needed . If we are to succeed out of 1,670 students of veterinary medicine in establishing truly equal access to higher (5 0. per cent) were from minority ethnic education, we need progress on narrowing groups . Similarly, of the 6,810 students in the gap in schools, and for universities to agriculture or a related subject, only 340 take account of background and potential (4 .9 per cent of those with known ethnicity) in their admissions, while also introducing were from these backgrounds 75. entry routes other than those leading straight from school .

32 3. A new approach to fair access, participation and success

Figure 4: Gap in participation at higher-tariff providers between the most and least represented groups

21pp 7 19.8pp

14pp 5 4.81 Ratio

Difference 7pp 3

0pp 1 2010-11 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 Academic year Ratio Difference

Note: ‘pp’ = ‘percentage point . Population: 18- to 30-year-old home students domiciled in England who have participated in higher education at higher-tariff providers in England . Source data: Individual student data HESA, Individualised Learner Record (ILR), Participation of Local Areas (POLAR4) classification of postcodes .

The innovative regulation of action if not . This scrutiny is underpinned the OfS by reforms to individual provider regulation, through the access and participation In response to these persistent gaps, the plans; by sector-level regulation, through OfS has radically reformed the regulation activities to support and promote effective system . We require every university and practice; and by financial investment, college that wants to charge fees up to the through dedicated OfS access and higher limit to submit a plan that sets out participation funding . how it will improve equality of opportunity for underrepresented groups to access, These reforms differ from the access succeed in and progress from higher agreements administered by our education . These plans must include: predecessor organisation, the Office for Fair Access, in a number of key ways . We require • the provider’s ambition for change more systematic analysis of characteristics • what it intends to do to achieve that among a provider’s student body, including change age and disability, and more honest and • the targets it has set rigorous self-assessment, backed up by • the investment it will make to deliver national data . To support providers we have the plan published the first comprehensive national • how it will evaluate whether its work is dataset on access and participation 80. succeeding . We do not specify the level of investment The OfS monitors access and participation in disadvantaged students that a provider plans to make sure that the providers must make before it can charge fees at honour the commitments they make to the maximum level, as was once the case . students, and we are empowered to take Rather than standardising investment, we

33 English higher education 2019

want universities and colleges to tailor it While we are setting shorter-term targets to align with their plans . We are interested for progress over the next five years, we in effective, efficient, evidence-based have also set long-term ambitions to interventions with proven outcomes . We reflect the generational challenge facing have more powers to draw on if we believe universities and colleges . For instance, we a university or college is failing in its access intend that the gap between Participation and participation measures: not only can we of Local Areas (POLAR4) quintile 1 and 5 lower the maximum amount it can charge students at high-tariff providers (a gap of for fees, we can also require it to take 19 .8 percentage points in 2017) should be specific actions under ongoing conditions of fully closed by 2038 82. The long deadline registration, or report on specific aspects of means that universities and colleges its plans to ensure progress . can focus on delivering and assessing the impact of their plans rather than This aspect of OfS regulation is one where having to concern themselves with short- we are at our most hands-on . For example, term evaluation and administration . We we will review progress annually, including consulted widely to inform these targets, analysing the patterns and trends shown in including with the National Union of the access and participation dashboard . We Students and with academic and support will also publish data on providers’ progress . staff . Providers are required to involve If a provider is at risk of not meeting its students in the development of their plans targets, we may require it to submit an and we will be actively involving them in updated plan, but if it is making sufficient monitoring . In support of this, we have progress, it can keep a plan in place for five developed a ‘How to get involved’ section years . Such flexibility in regulation means on our website, running concurrently with a that we can focus on those with the most YouTube campaign 83. pronounced equality gaps, while intervening less in those with smaller access gaps . For the first time we have published comprehensive data underpinning the For example, the Universities of Oxford analysis for all providers, in the access and Cambridge had specific conditions and participation data dashboard on our placed on them in July 2018 relating website 84. This resource, which represents a to the impact and effectiveness of the significant breakthrough in the availability large amounts they were spending on and comparability of such data, will be financial support for students such as updated annually with the most recent bursaries 81. These conditions were lifted data as it becomes available . At present a year later after they carried out robust it allows specialist users to compare how evaluations of their financial support, and their university or college’s access and our monitoring and engagement are now participation rates measure up . It has proved focused on other aspects of their access and valuable particularly in giving all providers participation plans . the data needed to assess their own performance in this area, and in allowing To assess our own and the sector’s us to challenge providers to set more performance, we have adopted a number of ambitious targets . key performance measures . To encourage innovative approaches and to allow their From 2020 we expect to update the initiatives to bed down, universities and dashboard to improve transparency for colleges have been given an extensive non‑technical users, so that students, staff timescale to achieve these targets . and students’ union officers can use the data to see where their provider excels and where it needs to improve .

34 3. A new approach to fair access, participation and success

We have also published an experimental measure based on the associations Case study: between characteristics for students Eliminating educational and (ABCS) that combines data on a number of characteristics including POLAR, economic disadvantage other area‑based measures, gender, and gaps at St George’s, ethnicity 85. We anticipate that this measure University of London will have the potential to allow universities to better identify particular groups of students St George’s intends to reduce the gap who have different outcomes across the between the proportion of POLAR4 student lifecycle . quintile 1 and 2 students and POLAR4 quintile 5 students among young, In support of all of this, the OfS has full-time undergraduate entrants commissioned the Centre for Transforming who reside outside Greater London, Access and Student Outcomes in Higher from 7.1 per cent in 2017-18 to zero 86 Education (TASO) . This centre is intended in 2024-25. It also aims to increase to generate and collate evidence of ‘what the proportion of Index of Multiple works’ in access and participation, and to Deprivation quintile 1 entrants among equip providers with the tools they need to young, full-time, undergraduate deliver successful outcomes for students . entrants from 17.9 per cent to 22.9 per By evaluating and sharing effective practice, cent in 2024-25. TASO will help to drive reforms in the sector . The university aims to achieve this Working towards fairer by reviewing its long-term outreach, admissions recruitment and admissions strategies, as well as expanding the reach of This year there have been a number of its outreach activities. The plan also developments in the sector in relation includes developing new course to admissions . Many universities have provision, including a foundation year, introduced more radical contextual offer and a more comprehensive approach to schemes . The University of Warwick contextualised admissions. announced plans to reduce its advertised offer by up to four grades for disadvantaged 87 local candidates . York St John University programme and online support for overhauled its admissions system to include students 89. The University of Cambridge is a variety of offers, allowing for a standard opening a similar scheme from 2020 for conditional, an unconditional, or a reduced around 200 disadvantaged young people 90. points offer . Its contextual offer is the most radical thus far published by an English One of the barriers to implementing university: a reduction of up to 40 UCAS widespread and holistic contextual offers tariff points (equivalent to five grades has been the lack of data available to at A-level) 88. admissions officers at the application stage . For example, it is important for universities Other universities have expanded their to use more than just an area‑based use of foundation years for students from measure such as POLAR to decide whether disadvantaged backgrounds . The University or not to make a reduced offer, to recognise of Oxford, for example, announced its more fully the context in which grades have intention to offer a foundation year to been achieved .91 50 students a year from 2021, alongside other measures such as a summer bridging

35 English higher education 2019

We have scrutinised other forms of admissions practices during the past year . How the OfS is supporting The percentage of students receiving the sector to achieve its unconditional offers has ballooned from 1 1. per cent in 2013 to 37 .6 per cent in goals 2019 92. Research from the OfS showed The National Collaborative Outreach that unconditional offers were being made Programme is intended to increase the disproportionately to students from less proportion of disadvantaged young represented areas . We pointed out that the people going into higher education. practice of universities making conditional Launched in 2017, It supports impartial unconditional offers – whereby an applicant and sustained higher education has to make the university their firm choice outreach by a range of institutions, to get the lower offer – had the potential to tailored to the needs of young people put undue pressure on students to accept a in target areas. place at the university in question 93. So far the programme has engaged The OfS has decided to explore whether 100,000 young people across the current admissions practices are best whole of England. Some of the serving the student interest and to propose schools and colleges the projects have ways they might be improved . engaged had not had any interaction Evaluating success with university outreach events since the Aimhigher programme We have challenged providers to commit ended in 2011. The participants have to achieving better outcomes for benefited from mentoring by university students, by reducing the gaps between graduates, attended campus visits, and underrepresented students and their gone to summer schools at universities. peers . We have also challenged them to The aim of these projects is to demonstrate value for money, by improving improve the participants’ knowledge outcomes for students and the evaluation of of, attitude to and aspiration towards 94 their activities . higher education.

All providers have demonstrated greater We are working on a campaign ambition and credibility than in previous to promote the opportunities the access and participation plans, in both their programme gives school students more targets and their practice . Some have been widely, to teachers and parents. particularly ambitious, which should result in better outcomes and improved equality Interventions the OfS has made include of opportunity for underrepresented groups approving plans over a shorter period of students . We have applied more scrutiny (two or three years instead of five), to those providers that have the furthest to requiring engagement with the Director travel to reach this goal . for Fair Access and Participation, and asking for reports on the progress of We have applied risk mitigations to monitor specific interventions and their impact, progress in relation to the targets and and variations to plans, including revising activities set out in the plans, and in some targets . cases to further challenge the level of ambition . A broad range of providers have We have completed the majority of the been subject to regulatory interventions . access and participation plan assessments for 2020-21 . We will publish a fuller analysis

36 3. A new approach to fair access, participation and success

in the new year, once most assessments and discussions with providers have Case study: been completed . Reducing the access and Conclusion participation gap through multiple approaches at the This year we have assessed 224 access and University of Manchester participation plans . The strategies they detail are, in the main, ambitious . To encourage The University of Manchester more effective evaluation and robust data aims to reduce the access gap for collection, we have set up the evidence underrepresented students to a centre TASO and published provider-level ratio of 3:1 (in line with the OfS data on our website . Key Performance Measure), to reduce the degree attainment gap We will: between black and white students by half, and to eliminate the degree • Continue to explore and make attainment gap between disabled and available new ways of identifying non‑disabled students. underrepresented groups in higher education, by, for example, working with The university aims to achieve this by UCAS to make free school meals data reviewing its contextual admissions available to universities at the point of policy, using the newly established prospective students’ application . University of Manchester Institute • Trial our new experimental data, which of Teaching and Learning to review will allow an exploration of the extent of the curriculum and assessment access gaps for students with multiple methods, and collaborating with other characteristics: for example, whether a universities and colleges in Greater black disabled woman has less chance of Manchester, alongside the NHS, to pilot entering higher education than someone the Greater Manchester Student Mental with only one of these characteristics . Health Hub. • Invest in skills to support inclusive growth, for instance by setting up funding to bridge skills gaps in the area of artificial intelligence . • Launch a challenge competition in 2020 aimed at supporting and encouraging greater diversity of provision, including innovation and technological solutions in flexible and part-time learning .

Overall, the sector has already begun to respond to our regulation in innovative ways . This year has been about bedding down our new regulation requirements; the next will be about supporting universities and colleges to fully implement them .

37 English higher education 2019

Notes

38 DfE, ‘Children looked after in England 44 Augar, ‘Post-18 review of education and including adoption: 2017-18’, December 2018 funding’, p76 . (https://www gov. .uk/government/statistics/ children-looked-after-in-england-including- 45 Education Policy Institute, ‘Education in adoption-2017-to-2018); ONS, ‘Widening England: Annual report 2019’, July 2019 participation in higher education, England, (available at https://epi org. .uk/publications- 2016-17 age cohort: Experimental statistics’, and-research/annual-report-2019/), pp10-11 . November 2018 (available at https://www . gov .uk/government/statistics/widening- 46 DfE, ‘A-level attainment characteristics’, participation-in-higher-education-2018) p6 . March 2017 (available at https://www gov. .uk/ government/publications/a-level-attainment- 39 Dearing, ‘Higher education in the learning by-pupil-characteristics), pp5, 7 . society’, 1997, pp103-105 . The report refers to ‘Afro-Caribbean’ students . 47 UCAS, ‘Equality and entry rates data explorers’ (https://www .ucas com/data-and-. 40 The Augar review, ‘Post-18 review of analysis/ucas-undergraduate-releases/ucas- education and funding: Independent panel undergraduate-analysis-reports/equality- report’, May 2019 (available at www gov. .uk/ and-entry-rates-data-explorers) . government/publications/post-18-review-of- education-and-funding-independent-panel- 48 UCAS, ‘End of cycle report 2018: Patterns of report), p24 . equality in England’, May 2019 (available at https://www .ucas com/data-and-analysis/. 41 ‘Higher education: Meeting the challenge’, undergraduate-statistics-and-reports/ucas- 1987 (available at www educationengland. . undergraduate-end-cycle-reports/2018- org .uk/documents/wp1987/1987-higher-ed . end-cycle-report) p5 . UCAS tariff scores are html), pp9-11 . a way of measuring post-16 qualifications . Universities (excluding specialist providers) 42 Dearing, ‘Higher education in the learning are grouped into higher, medium and lower society’, 1997, pp108, 233 . tariffs when ranked by average tariff score of UK-domiciled undergraduate entrants, 43 ‘The future of higher education’, 2003 defined using Higher Education Statistics (www educationengland. org. .uk/documents/ Agency (HESA) data from the academic pdfs/2003-white-paper-higher-ed . years 2012-13 to 2014-15 . pdf [PDF]), pp70-71; ‘Fair admissions to higher education: Recommendations for 49 OfS, ‘Gap in participation at higher-tariff good practice’, 2004 (https://dera ioe. . providers between the most and least ac .uk/5284/1/finalreport pdf. [PDF]), pp5-6; represented groups’ (www officeforstudents. . ‘Higher ambitions: The future of universities org .uk/about/measures-of-our-success/ in a knowledge economy – a summary’, 2009 participation-performance-measures/gap- (available at https://www .advance-he .ac .uk/ in-participation-at-higher-tariff-providers- knowledge-hub/higher-ambitions-future- between-the-most-and-least-represented- universities-knowledge-economy-summary), groups/) . p10 .

38 3. A new approach to fair access, participation and success

50 The Poverty Commission and the National 57 ONS, ‘Graduates in the UK Union of Students (NUS), ‘Class dismissed: labour market: 2017’, November Getting in and getting on in further and 2017 (https://www ons. gov. .uk/ higher education’, April 2018 (available at employmentandlabourmarket/peopleinwork/ https://www .nusconnect org. .uk/resources/ employmentandemployeetypes/articles/ class-dismissed-getting-in-and-getting-on- graduatesintheuklabourmarket/2017), Figure in-further-and-higher-education), pp41, 59 . 8; Institute of Fiscal Studies, ‘The puzzle of graduate wages’ . August 2016 (available at 51 ONS, ‘Participation rates in higher education: https://www .ifs org. .uk/publications/8409), 2006 to 2017’, September 2018 (available at p4 . https://www gov. .uk/government/statistics/ participation-rates-in-higher-education- 58 Dearing, ‘Higher education in the learning 2006-to-2017), p1 . society’; HESA, ‘Who’s studying in HE?’ (available at https://www .hesa ac. uk/. 52 DfE, ‘Children looked after in England data-and-analysis/students/whos-in-he), including adoption: 2017-18’; Harrison Neil, pp101‑106 . ‘Moving on up: Pathways of care leavers and care-experienced students into and through 59 OfS, ‘The effect of postgraduate loans’, May higher education’, November 2017, pp7, 3 . 2018 (www officeforstudents. org. .uk/data- and-analysis/the-effect-of-postgraduate- 53 Coates, Sally, ‘Unlocking Potential: A review loans/) . of education in prison’, May 2016 (available at https://www gov. .uk/government/ 60 Universities UK, ‘Growth and choice in publications/unlocking-potential-a-review- university admissions’, June 2018 (available of-education-in-prison), pp38-39 . at https://www .universitiesuk .ac .uk/policy- and-analysis/reports/Pages/growth-choice- 54 Ryan, Frances, ‘Disabled students fear for university-admissions .aspx), p12 . their future as independence payments cut’, Guardian, 4 April 2017 (https://www . 61 HESA, ‘HE student enrolments at HE, FE theguardian com/education/2017/apr/04/. and designated courses at alternative disabled-students-future-independence- providers by level of study and HE provider payments-cut-benefits); NUS, ‘PIP cuts pose type’ (available at https://www .hesa ac. .uk/ a serious threat to disabled students’, 8 news/14-02-2019/sb254-higher-education- March 2017 (https://www .nusconnect org. uk/. student-statistics-APs/totality) . articles/pip-cuts-pose-a-serious-threat-to- disabled-students) . 62 Coates, ‘Unlocking Potential’, p38 .

55 MillionPlus, ‘Forgotten learners: Building 63 DfE, ‘Apprenticeship and levy statistics: a system that works for mature students’, January 2019’, January 2019 (available 2018 (available at www .millionplus .ac .uk/ https://www gov. .uk/government/statistics/ policy/reports/forgotten-learners-building- apprenticeship-and-levy-statistics- a-system-that-works-for-mature-students), january-2019), p8 . p20 . 64 Department for Business, Energy and 56 Sutton Trust, ‘Home and away: Social, ethnic Industrial Strategy, ‘Industrial Strategy: and spatial inequalities in student mobility’, Building a Britain fit for the future’, February 2018 (available at https://www . November 2017 (available at https://www . suttontrust com/research-paper/home-and-. gov .uk/government/publications/industrial- away-student-mobility/), p4 . strategy-building-a-britain-fit-for-the-future), p101 .

39 English higher education 2019

65 MillionPlus, ‘Forgotten learners’, p20 . Note 74 UCAS, ‘Equality and entry rates data that the OfS defines ‘mature’ students as explorers’ (https://www .ucas com/data-and-. those aged 21 or over at the time of entry analysis/ucas-undergraduate-releases/ucas- into higher education . undergraduate-analysis-reports/equality- and-entry-rates-data-explorers) . 66 Marketwise Strategies, ‘Research on recruitment of mature students to nursing, 75 OfS, ‘Equality and diversity data’ . midwifery and allied health courses’, March 2019 (available at www officeforstudents. org. . 76 UCAS, ‘Equality and entry rates data uk/publications/research-on-recruitment-of- explorers’ . mature-students-to-nursing-midwifery-and- allied-health-courses/), p32 . 77 Crawford Claire, Dearden Lorraine, Micklewright John, and Vignoles Anna, 67 OfS, ‘Equality and diversity data’ (www . ‘Family background and university success: officeforstudents org. .uk/data-and-analysis/ Differences in higher education access and equality-and-diversity/equality-and-diversity- outcomes in England’, 2017, p12 . data/) . 78 Crawford et al, ‘Family background and 68 DfE, ‘Evaluation of Disabled Students’ university success’, 2017, pp1-24 . Allowances’, 2019 (available at https://www . gov .uk/government/publications/evaluation- 79 DfE, ‘Children looked after in England of-disabled-students-allowances-dsas), p9 . including adoption: 2017-18’ .

69 OfS, ‘Beyond the bare minimum: Are 80 OfS, ‘Access and participation data universities and colleges doing enough dashboard’ (www officeforstudents. org. .uk/ for disabled students?’ (OfS Insight brief data-and-analysis/access-and-participation- #4), October 2019 (available at www . data-dashboard/) . officeforstudents org. .uk/publications/ insight-brief-disabled-students/) . 81 Havergal Chris, ‘Oxford and Cambridge singled out on access by new 70 HESA, ‘UK-domiciled HE students by level of regulator’, Times Higher Education, study, mode of study, gender and disability, 19 July 2018 (available at https://www . 1999-2000’ (available at https://www .hesa . timeshighereducation com/news/oxford-. ac .uk/data-and-analysis/publications/ and-cambridge-singled-out-access-new- students-1999-00) . regulator) .

71 OfS, ‘Equality and diversity data’ . 82 OfS, ‘Gap in participation at higher-tariff providers between the most and least 72 The social model of disability holds that represented groups’ (www officeforstudents. . people are disabled by barriers in society, org .uk/about/measures-of-our-success/ not by their impairment or difference . participation-performance-measures/gap- Barriers can be physical, like buildings not in-participation-at-higher-tariff-providers- having accessible toilets, or they can be between-the-most-and-least-represented- caused by people’s attitudes to difference, groups/) . A quintile is a gradation equal to like assuming disabled people can’t do a fifth . In a set of data, ‘Quintile 1’ is the fifth certain things . of the results with the lowest values, while ‘Quintile 5’ is the fifth with the highest values . 73 Dearing, ‘Higher education in the learning society’, 1997, p105 .

40 3. A new approach to fair access, participation and success

83 OfS, ‘Help your university or college tackle 92 UCAS, ‘Unconditional offers: An update inequality’ (www officeforstudents. org. .uk/ for 2019’, July 2019 (available at https:// for-students/help-your-university-or-college- www .ucas com/corporate/news-and-key-. tackle-inequality/) . documents/news/update-unconditional- offer-making-2019) . 84 OfS, ‘Access and participation data dashboard’ . 93 OfS Insight brief #1 .

85 OfS, ‘Associations between characteristics 94 CFE Research et al, ‘NCOP: End of phase one of students’ (OfS 2019 .34), September report for the national formative and impact 2019 (available at www officeforstudents. . evaluations’, October 2019 (available at www . org .uk/publications/associations-between- officeforstudents org. .uk/publications/ncop- characteristics-of-students/) . end-of-phase-one-evaluation-report/) .

86 See https://www taso-he. org/. . TASO is a collaboration of King’s College London, Nottingham Trent University and the Behavioural Insights Team .

87 Richard Adams, ‘Warwick University to lower entry grades for disadvantaged pupils’, Guardian, 14 May 2019 (available at https:// www theguardian. com/education/2019/. may/14/warwick-university-to-lower-entry- grades-for-disadvantaged-local-pupils) .

88 York St John, ‘Our inclusive offers’ (available at https://www yorksj. .ac uk/admissions/. ) .

89 Adams Richard, ‘Oxford aims to attract deprived students with new foundation year’, Guardian, 21 May 2019 (available at https:// www theguardian. com/education/2019/. may/21/oxford-university-aims-attract- deprived-students-foundation-year) .

90 University of Cambridge, ‘Address to the University’, 1 October 2018 (available at https://www v-c. admin. cam. ac. uk/professor-. stephen-j-toope/selected-speeches- professor-stephen-j-toope/address- university-1-october) .

91 OfS, ‘Frequently asked questions about area-based measures’ (available at www . officeforstudents org. .uk/data-and-analysis/ young-participation-by-area/about-the- data/) .

41 English higher education 2019

42 4. A high-quality student experience

4. A high-quality student experience

The experience of students and learning . The Teaching Excellence and Student Outcomes Framework, created is at the heart of the OfS’s to balance the focus on the Research role as a regulator. We are Excellence Framework, has recognised committed to ensuring that all excellence in higher education teaching students from all backgrounds since 2017 . receive a high‑quality academic Overall, student satisfaction is high, with experience. This imperative 83 per cent of students satisfied with encompasses a vast array of their courses in the 2019 NSS .96 Between 2006 and 2016, overall student satisfaction issues, from teaching quality with teaching feedback increased by 15 and curriculum choices percentage points 97. For full-time young to mental health and the undergraduate students, continuation rates remain high, with 92 .2 per cent of 2016- prevalence of hate crime. 17 entrants still in higher education a year Such activities may involve later 98. Since 2017, 71 English universities and regulation with individual colleges have received a Gold TEF award, providers and across the whole signalling the high quality of the teaching in the sector 99. The great majority of students, higher education sector. This therefore, already have a good experience at chapter looks at how the university or college . OfS uses its regulatory role However, NSS satisfaction rates between to improve teaching. It also providers vary by over 20 percentage points examines how we address for teaching 100. Lesbian, gay and bisexual some of the major challenges students report being more anxious than 101 affecting students, with an their straight counterparts . Numbers of students reporting mental health issues have explicit focus on mental risen noticeably in number over the last health and the experience of decade 102. Numbers reporting hate crime marginalised groups. Finally, it and sexual violence have also risen 103. Course closure is a worry for students whose describes what the OfS will do provider may be at risk . in these areas in the future. The role of the OfS Improving the quality of teaching The OfS has a number of ways of ensuring Since the increase in fees in 2012, there has students have a good experience at been a concerted effort by government university or college, but the most important to ensure that teaching at universities is issue to students when judging the value given equal prominence with research . The of their courses is the quality of teaching 104. National Student Survey, introduced in 2005, We measure students’ satisfaction with has been a driver of innovation in teaching

43 English higher education 2019 their courses through the NSS, and student Teaching Excellence and Student experiences and outcomes at universities Outcomes Framework and colleges through the TEF . The TEF has become an increasingly powerful tool for identifying high-quality This year we ran a trial national survey of teaching at universities and colleges . students undertaking postgraduate taught Students tell us that teaching quality degrees . This survey offers the chance to is the most important issue for them in analyse the effect of the new postgraduate determining whether they receive value for loan and get information on the experience money . The TEF is intended to give students of a hitherto overlooked group . Over 14,000 confidence in the teaching they can expect students responded and we will release our from their university or college and allow findings in 2020 . comparison between them . It measures National Student Survey excellence in the learning environment and the educational and professional outcomes We run the National Student Survey, an achieved by students, as well as the quality annual census of most final year students in of teaching . The assessment is based on 105 the UK . This year was the 15th year of the a submission by the provider, alongside NSS, which has now surveyed over 4 million measures of: students . Its aim is to inform prospective students’ choice of what and where to study . • teaching on the course It also offers providers information on where • assessment and feedback and how to improve the student experience . • academic support The survey has 27 questions on a variety • students’ continuation in their courses of aspects of the student experience, from • progress to employment or further study teaching and feedback to the resources in • progress to highly skilled employment or the institution’s library . further study, and earnings in the former .

This is the third year of the new version Some 270 universities and colleges have of the survey . Students continue to received TEF awards, with the most report lower rates of satisfaction with the common award being a Silver (46 .9 per cent assessment and feedback on their courses as of October 2019) . The awards highlight than in other areas covered by the survey . excellence across a diverse range of higher 72 per cent agreed that the criteria used education providers with different methods in marking were clear, and 74 per cent said and styles of teaching . Across the board they received timely feedback on their work . the TEF is incentivising and driving a better This set of questions also had some of the student experience, with some 73 per cent widest ranges of responses at a provider of providers that responded to a Universities level (see Table 2) . All four questions have a UK survey saying it would enhance the percentage point difference of 20 or more profile of teaching and learning . Universities between the providers in the bottom 10 per and colleges also recognise the positive cent and those in the top 90 per cent 106. This impact that a Gold or Silver TEF award in highlights a wide variation in the quality of particular can have on their reputation, and teaching and feedback between providers, tend to promote these awards prominently with a number delivering extremely good in their marketing materials . Current teaching and others falling short . students make up a third of the TEF panel members and are therefore an integral part We are looking at ways to make the NSS of the assessment process . a richer source of information for students making choices about where to study .

44 4. A high-quality student experience

Table 2: Percentages of students at providers agreeing with assessment and feedback statements in the National Student Survey, at specific percentiles

Statement 10th Median 90th Percentage point percentile (50th) percentile difference between percentile 10th and 90th percentiles

8 – The criteria used in marking have been clear in advance . 66 76 86 20

9 – Marking and assessment has been fair . 65 74 88 23

10 – Feedback on my work has been timely . 64 75 86 22

11 – I have received helpful comments on my work . 67 78 90 23

During 2018-19 the government attempt suicide than their peers who do not commissioned an independent review of go to college or university,107 the increase in the TEF, and we piloted ways of rating the mental health issues is worrying . subjects taught by a provider . The pilot explored the importance of understanding There is more that the sector as a whole excellence in teaching and student can do to support students with poor outcomes for individual subjects . It looked at mental health . The OfS has invested £14 .5 how ratings can vary for different subjects million across 10 collaborative projects to within one university or college, and what drive fundamental change . Many involve this means for an overall TEF rating for the collaborations with organisations outside the provider . Following the outcomes of the sector such as the NHS and mental health independent review and our pilot, we will charities 108. Each project explores solutions develop the exercise and continue to be to different challenges to mental health ambitious about what TEF can achieve in and higher education, such as helping first driving excellence in the sector . year undergraduates make the transition from school to university, understanding the Mental health specific needs of international students, and the effectiveness of early intervention with Poor mental health among students in postgraduate students . higher education is a major issue, which students have consistently identified as a There are notable gaps in the data we priority for them . The number of students collect on students’ wellbeing . We are who report mental health issues has risen developing ways of capturing more data and substantially over the last decade . While as a first step have produced experimental students remain significantly less likely to

45 English higher education 2019

statistics on background characteristics Case study: Pause at the including sexuality and gender identity, University of Birmingham which will cover mental health 109.

OfS funding will help Birmingham Hate crime and sexual misconduct establish a ‘hub’ of qualified therapists and volunteers with mental health A significant issue for student wellbeing and experience who will offer brief safeguarding is the prevalence of hate crime, therapeutic interventions for students sexual violence and harassment on and off without the need for appointments or campus . A recent report by the Equality waiting lists. and Human Rights Commission shows that nearly a quarter of ethnic minority students The project, delivered in partnership have been subject to racial harassment on with Birmingham Women’s and campus,110 and a 2018 survey run by the Children’s NHS Foundation Trust and National Union of Students showed that a the Children’s Society, will run 30 hours third of Muslim students experienced a hate per week, 50 weeks per year across crime while at university or college 111. In 2019, the campus, ensuring easy access to in a study of over 6,000 students, 49 per specialist support for students when cent of women said they had been touched they need it. inappropriately 112. There have been several high-profile cases of universities admitting to failings when students have reported sexual abuse or harassment 113. Case study: Standing Together Against Hate at We have distributed £4 7. million to 119 projects to tackle hate crime, across 71 the University of Leicester higher education institutions and 14 further education colleges . This funding has enabled Leicester’s project was run them, for example, to hire specialist staff, collaboratively, led by academics at the implement bystander intervention training Centre for Hate Studies and delivered and create online reporting tools 114. These by the students’ union, student support projects are already having a marked impact services, estates and campus services in improving the protection of students and and the equality, diversity and inclusion allowing them to report incidents of sexual team. violence, hate crime and online harassment . They offer practical steps and resources The project had three aims: developing that universities and colleges can embed to a student-led awareness-raising effect the necessary radical change . campaign, delivering hate crime training to students and staff, and We intend to publish a consultation opening a third-party reporting centre. document laying out our expectations for universities and colleges in terms The university recognises a collective of preventing harassment and sexual responsibility to challenge prejudice misconduct, and dealing appropriately and and hostility in all its forms. These effectively with reports of infringements 115. materials are an example of good practice, and could be more widely adopted, and adapted where necessary.116

46 4. A high-quality student experience

Conclusion

Students are entitled to expect a good overall experience while at university or college . But there remain significant variations between different providers in the quality of teaching, assessment and feedback . We will continue to highlight such differences through the TEF and an enhanced National Student Survey, as such transparency is important to effecting improvements .

At the same time, there is growing concern about how universities and colleges address issues that have a wider impact on students’ lives on campus . More students are reporting poor mental health . There is growing concern about sexual and racial harassment . And this has served to highlight the inadequacy of many of the processes used to address these issues .

We will work to improve the quality of the academic and pastoral experience of students, using our powers of monitoring and intervention where appropriate .

We will:

• Explore expanding the NSS survey to cover all years of a student’s course . • Continue to fund and evaluate priority areas such as mental health . • Set out our expectations of universities and colleges in preventing and dealing with incidents of harassment and sexual misconduct . • Following the outcomes of the independent review of the TEF, develop the scheme to increase its future role in securing high-quality teaching and learning in the sector .

47 English higher education 2019

Notes

96 OfS, ‘2019 NSS summary data’, July 2019 105 The NSS is funded by the Department for (available at www officeforstudents. org. .uk/ Employment and Learning Northern Ireland, advice-and-guidance/student-information- the Higher Education Funding Council for and-data/national-student-survey-nss/get- Wales and the Scottish Funding Council, in the-nss-data/) . partnership with the OfS .

97 See note 3 . 106 OfS, ‘2019 NSS summary data’, Ranges of provider-level results . A ‘percentile’ is a 98 OfS, ‘Continuation and transfer rates’ gradation of a single percentage point . The (www officeforstudents. org. .uk/data-and- 10th percentile in a set of data is the figure analysis/continuation-and-transfer-rates/ below which 10 per cent of the results lie, continuation-non-continuation-and- while the 90th percentile is the figure which transfer-rates/) . has 90 per cent of the results below it .

99 OfS, ‘TEF outcomes’ (available at www . 107 ONS, ‘Estimating suicide among higher officeforstudents org. .uk/advice-and- education students, England and guidance/teaching/tef-outcomes/#/ Wales: Experimental Statistics’, (https:// tefoutcomes/) . www ons. gov. .uk/peoplepopulationand community/birthsdeaths andmarriages/ 100 OfS, ‘2019 NSS summary data’, Ranges of deaths/articles/estimatingsuicideamong provider-level results . highereducationstudentsenglandand walesexperimental statistics/2018-06-25), 101 HEPI, ‘Student academic experience survey Figure 6a . 2019’, p48 . 108 OfS, ‘Innovation, partnership and data can 102 HESA, ‘UK-domiciled HE students by help improve student mental health in new level of study, mode of study, gender and £14 million drive’ . disability, 1999-2000’; HESA, ‘UK domiciled student enrolments by disability and sex, 109 OfS, ‘Equality and diversity: Experimental 2017-18’ (available at https://www .hesa . data’ (www officeforstudents. org. .uk/ ac .uk/data-and-analysis/students/whos-in- data-and-analysis/equality-and-diversity/ he/characteristics) . experimental-data/) .

103 Advance HE, ‘Safeguarding Catalyst Fund 110 Equality and Human Rights Commission, projects evaluation: Summative report’, ‘Tackling racial harassment: Universities June 2019, (www officeforstudents. org. . challenged’, October 2019 (available at uk/publications/catalyst-fund-projects- https://www equalityhumanrights. com/. evaluation/), p7 . en/publication-download/tackling-racial- harassment-universities-challenged) . 104 Trendence UK, ‘Value for money: The student perspective’ . 111 NUS, ‘The experience of Muslim students in 2017-18’, March 2018 (available at https:// www .nusconnect org. .uk/resources/the- experience-of-muslim-students-in-2017-18) .

48 4. A high-quality student experience

112 Brook, ‘Our new research on sexual harassment and violence at UK universities’, 2019 (available at www .brook org. .uk/press- releases/sexual-violence-and-harassment- remains-rife-in-universities-according-to- ne) .

113 BBC, ‘University of Essex “sorry” for sex complaint delays’, 29 May 2019 (https:// www .bbc co. .uk/news/uk-england- essex-48433562); BBC, ‘Warwick University: Vice-chancellor apologises for mistakes over rape chat scandal’, 10 July 2019 (https://www .bbc co. .uk/news/uk- 48930792) .

114 OfS, ‘Student safety and wellbeing; What are we doing?’, (www officeforstudents. org. . uk/advice-and-guidance/student-wellbeing- and-protection/student-safety-and- wellbeing/what-are-we-doing/) .

115 OfS, Tackling incidents of hate, harassment and sexual misconduct in higher education, October 2019 (available at www officeforstudents. org. .uk/news-blog- and-events/our-news-and-blog/tackling- incidents-of-hate-harassment-and-sexual- misconduct-in-higher-education/) .

116 See https://le .ac .uk/hate-studies .

5. Beyond higher education: Ensuring successful outcomes

One of our key regulatory Higher education can be life-changing . Degrees develop higher-level analytical objectives is ensuring that skills, adaptability, critical thinking, and all students, whatever their responsiveness . These qualities are not only background, can progress into in demand in today’s economy, but form a employment, further study and foundation for improved life chances and long-term careers, given the quantity of fulfilling lives. We also have to flex and change demanded over a working ensure that their qualifications life . The employment rate among disabled hold their value over time. people is 71 7. per cent for those with a degree, compared with 45 .6 per cent for This chapter looks at the OfS’s those whose highest qualification is at GCSE role in ensuring that degrees level 120. Prisoners who receive funding to are equitably awarded and how undertake Open University courses have a we are encouraging universities reoffending rate four to eight percentage points lower than similar prisoners and colleges to address who do not 121. skills shortages. It describes our role in addressing the Higher education has a major impact on the UK’s economy . In 2014, universities black attainment gap and accounted for 1 .3 per cent of the jobs in the unexplained increase in the UK and generated £95 billion of gross students receiving first-class output in the economy, 2 .9 per cent of the nation’s entire economic activity 122. degrees. Finally, it outlines what They remain one of our flagship industries, we intend to do and expect bringing large numbers of international providers to do in the future. students into the UK . Universities and colleges are contributing more directly to The degree dividend to economic growth through building projects graduates, the economy and employing support staff . and society Yet not everything is positive . 36 .5 per cent of graduates were in ‘non-graduate’ roles A degree continues to benefit students five years after leaving university, though and graduates . It can have a transformative this includes positions like paramedic, where impact on students’ lives, and offers both degrees are now expected 123. There are monetary and more intangible benefits also significant differences in the earnings to them and to society . The graduate of students from marginalised groups . unemployment rate currently stands at Graduates from more deprived backgrounds 5 1 per. cent, the lowest since 1979 117. By the are less likely to progress into highly skilled age of 29, the vast majority of graduates employment (see Figure 5) . Five years after earn more than those who do not go to leaving university, students from POLAR university 118. Increasing numbers are taking quintile 1 areas earned, on average, 19 per postgraduate degrees 119. cent less than those from quintile 5 . In terms

51 English higher education 2019

Figure 5: Percentage of graduates in highly skilled jobs by index of deprivation, 2012-13 to 2016-17

75.0%

7.1pp

70.0% 8.7pp 8.9pp

65.0% 9.6pp 9.7pp Progression rate Progression

60.0%

2012-13 2013-14 2014-15 2015-16 2016-17 Academic year English indices of deprivation 2015 Quintile 1 (most deprived) Quintile 5 (least deprived)

Note: ‘pp’ = ‘percentage point . Population: English-domiciled full-time undergraduate qualifiers from English higher education providers . Source data: OfS access and participation dataset 2019 . of proportions in highly skilled employment highest take-up rate is in the North East or further study, there is a 4 .2 percentage and North West, where there are multiple point gap between students whose parents higher education cold spots 125. In June 2019, come from the most and least advantaged we were invited to assess apprenticeships standard occupational classification at Levels 6 and 7 delivered by providers not groups 124. registered with the OfS, allowing us to ensure that they are of high quality . We are currently The OfS’s role: Local graduates running a trial at four providers to assess and uneven opportunities how we can best regulate these degrees .

Skills gaps A number of our projects aimed at closing skills gaps have focused on encouraging Certain sectors of British industry and older people to retrain . The OfS has funded business have suffered from a lack of research into how to arrest a decline in qualified workers . One way the government mature students applying to study nursing has sought to close this skills gap is through since the removal of bursaries in 2017 (before the Degree Apprenticeship Development which they made up half of all entrants) . Fund . Set up in 2016 and now run by the The research suggested that universities OfS, it has dispensed over £9 million to could better raise awareness of nursing support the development and delivery careers, and outline more carefully the of degree apprenticeships in areas financial support available to the student 126. including chartered management, digital Such conclusions are not only applicable and technology solutions, engineering, to nursing; they suggest a pathway for construction, and healthcare . providers offering other courses . Degree apprenticeships benefit school leavers from disadvantaged backgrounds, potentially increasing social mobility . The

52 5. Beyond higher education: Ensuring successful outcomes

Research by the Sutton Trust has shown that 55.8 per cent of graduates study within Case study: Employability 55 miles of the area where they grew up, for Life at the University and in 2015 69 per cent took jobs in their home regions.127 Some regions, such as of Law London, retain around four-fifths of their The University of Law has developed students.128 However, opportunities in some an approach to employability which regions are limited because of variations recognises the extra barriers faced by in productivity and labour markets. At students who are underrepresented the same time, areas with the lowest in higher education. Employability productivity and growth are the places that for Life provides practical support for most need to capitalise on graduate talent students before they start, during their to succeed. Universities in these areas offer time as a student, and throughout their industry a ready supply of graduates, many subsequent careers. It also enables staff of whom are currently impelled to move better to understand how professional away (see Figure 6). and personal ambitions, responsibilities Our role in encouraging such innovation and experiences relate to each other, was highlighted in the Industrial strategy helping the design of the programme. white paper. To target current and anticipate The programme is targeted at students future skills shortages we were invited to from less advantaged economic incentivise existing providers to become groups and disabled students. Many more dynamic, and to encourage new disadvantaged students lack the social high‑quality colleges and universities. This capital to engage with employers will allow the OfS to ‘drive improvements and access voluntary opportunities. in productivity and support the wider They also often have more family and economic needs of the country.’129 personal responsibilities. Disabled Despite the huge increase in student students also receive extra mentoring numbers in the last two decades, there support through existing programmes. remain substantial skills shortages in All students will benefit from a certain sectors. In 2017, there were specific Life module embedded in the 42,000 vacancies in the NHS for nurses, curriculum which includes support midwives and allied health professionals. around: employability skills, including Since 2018, we have invested £1 million volunteering and pro bono work; annually to increase the number of personal financial management; students studying therapeutic radiography, emotional well-being including mental podiatry, orthoptics, prosthetics and resilience; and familial relationships. orthotics.130 To help meet the engineering The university works with employers skills shortage, we are supporting the to provide paid internships and work development of innovative provision. We placements, with financial support have also funded the establishment of where required. 41 masters’ level conversion courses in engineering, data science, cybersecurity and computing.131 of employers, when recruiting graduates, One way to ensure that all students have regard this as one of the most important 132 the opportunity to pursue professional factors. However, work experience, often roles is by making work experience an undertaken during university holidays in the intrinsic part of a degree. Some 59 per cent form of unpaid internships, can be harder for more disadvantaged students to manage.

53 English higher education 2019

Figure 6: Relationship between retention and local students, 2012-13 to 2016-17

60% Greater Manchester East Yorkshire and West Yorkshire East Anglia Cumbria Northern Lincolnshire 50% Northumberland and Tyne and Wear West Midlands Herefordshire, Worcestershire and Warwickshire Gloucestershire, Wiltshire and Bath/Bristol area Merseyside Essex Tees Valley and Durham Kent Surrey, East and West Sussex Shropshire and Staffordshire Cornwall and Isles of Scilly Lancashire 40% Bedfordshire and Hertfordshire South Yorkshire Derbyshire and Nottinghamshire Hampshire and Isle of Wight Leicestershire, Rutland and Northamptonshire Linconshire Cheshire Devon Berkshire, Buckinghamshire and Oxfordshire Inner London - West Dorset and Somerset North 30% Yorkshire Inner London - East Outer London - West and North West

Outer London - East and North East 20% Outer London - South Retention rate Retention

10%

0% 0% 10% 20% 30% 40% 50% 60% 70% Share of students originally from the area

Population: UK-domiciled graduates with an employment postcode (distance learners have been excluded) . Source data: HESA student records, HESA alternative provider records, ILR and DLHE, 2012-13 to 2016-17 .

The Universities of Bath, Bedfordshire and opportunities and choices for graduates Warwick, to take just three examples, all to find highly skilled work locally, and its now offer placements for undergraduate outcomes will be used to inform future students who want them . practice across the higher education sector .

With the expansion of government loans These projects address one or more of the to cover £10,000 towards the cost of a following challenges: masters’ degree, the number of students studying these degrees increased from • improving employment rates for 73,880 in 2015 to 96,465 in 2016 . The students, particularly those from proportional increase was largest among marginalised backgrounds, such as students from low participation areas, black students of minority ethnic backgrounds students, and students who declared a and disabled students disability 133. This loan scheme has therefore • improving graduate outcomes for mature allowed more people from underrepresented or part-time students who plan to remain groups to undertake further study, further in their local area for study and post- enhancing their skills and employability . study work • addressing geographical skills gaps by We have also encouraged providers ensuring graduates are well prepared to to innovate through our Challenge succeed in local industries . Competition, which has awarded £5 .6 million to help 15 projects improve local graduates’ This funding will help us and the sector employment opportunities . Through this challenge the persistent divergences fund, we will support the providers to between outcomes for different student furnish students with work-related training groups, especially the most marginalised, and develop links with local employers and help us deliver on our Industrial and infrastructure . This will increase strategy priorities .

54 5. Beyond higher education: Ensuring successful outcomes

Case study: Embedding Case study: Supporting and sustaining inclusive transitions at South Essex STEM practices at the Open College University The college has considerable This project has received £480,050 experience of supporting disabled from the OfS to build inclusive learning learners’ progression from further values and practices in the delivery to higher education, both within the of science, technology, engineering college and to other higher education and maths (STEM) subjects. It is a providers. Students are supported by collaboration between the Open a personal higher education disability University, the University of Leeds and adviser throughout their transition from the University of Plymouth. further to higher education. The adviser provides encouragement, and gives The project aims to: impartial advice about options for accessing support to help them make • embed inclusive resources, module informed decisions about their next and curriculum design practices in educational step. the three universities • create sustained, inclusive module A key element of this support is and curriculum delivery practices through the annual review process • increase awareness of student of education, health and care plans diversity and inclusive design that students have while studying at approaches among staff further education level. Although the and students. plan expires when they enter higher education, it provides evidence for Ultimately, this project will generate their needs assessment. The college recommendations and principles for identifies the aspects within students’ universities, colleges and associated plans that it is able to continue to professional bodies to ensure equality support at higher education level, thus of opportunity for all STEM students. helping to smooth the transition.

Divergent outcomes Degree attainment gaps Women remain more likely to get a good The proportion of students getting a 1st degree than men . 79 per cent of students has been increasing steadily, by around two who began their degree under the age percentage points a year, for over a decade, of 21 gained a 2:1 or 1st, compared with increases that partly reflect grade inflation . 67 per cent of mature students 134. Those Nevertheless, not all students who enter who entered with BTEC qualifications fared with the same A-level results have the same less well than those who entered with chance of coming out with a good degree, A-levels 135. nor of going onto a graduate job . This section looks at these degree results and One of the starkest gaps, however, is attainment gaps and asks how universities, that between white students and their colleges and industry should address them . counterparts from minority ethnic groups (See Figure 7) . For example, while 82 .2 per cent of young white students were awarded

55 English higher education 2019

Figure 7: Gap in degree outcomes (1sts or 2:1s) between white students and black students

30pp

25pp

20pp

15pp

Difference 10pp

5pp

0pp 2010-11 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 Academic year of graduation

Note: ‘pp’ = ‘percentage point’ . Population: UK-domiciled graduates from full-time first-degree provision at English higher education providers . Source data: HESA student records and ILR, 2010-11 to 2017-18 data . a 1st or 2:1 in 2017, only 60 .4 per cent of throughout their careers . Employers are their black and 71 7. per cent of their Asian beginning to use contextual data to ensure counterparts were 136. they have a more diverse workforce . Where many firms previously set hard A-level This year has seen a significant shift in the entry criteria, now many organisations sector’s response to the issue of attainment use contextual data to make offers to for black, Asian and minority ethnic students . disadvantaged candidates who might While there has been evidence since at least otherwise be overlooked . In 2015, Deloitte 1996 that such a gap existed, and student committed to using contextualised data activists have long demanded its closure,137 to offer positions to 1,500 graduates 139. only recently has the issue garnered much This development means that interest from universities and colleges . marginalised students can be supported As the Universities UK and National Union of through the university lifecycle and into Students (NUS) report from May 2019 stated: employment afterwards . ‘the sector now accepts that there is a problem’ 138. The report outlined five changes The increased pressure from government, universities and colleges could make: show the OfS, students and activists means that strong leadership, have conversations about this can be a tipping point for black, Asian race and racism, create racially diverse and and minority ethnic attainment . Now that inclusive environments, collect and analyse the problem has been recognised, the data, and highlight what works . issue of how to tackle it remains . We need to listen to those with lived experience Nor is this problem limited to university and create more diverse ways of teaching, and college attainment . The 2007 targeted mechanisms of support, and more McGregor‑Smith report showed that people inclusive workplaces to close this gap . from black, Asian and other minority ethnicities experience discrimination

56 5. Beyond higher education: Ensuring successful outcomes

Figure 8: Changes in the proportion of classified degrees awarded as 1st and 2:1 from 2010-11 to 2016-17

100%

80%

60%

40%

20%

Proportion of all classified degrees of all classified Proportion 0% 2010-11 2011-12 2012-13 2013-14 2014-15 2015-16 2016-17 2017-18 Academic year

First class Upper second class

Population: UK-domiciled graduates from full-time first degree provision at English higher education providers (with at least 10 graduates in each year) . Source data: HESA student records and ILR, 2010-11 to 2017-18 data .

Numbers of 1sts and 2:1s outcome from their more expensive degrees, either as a recruitment tool to encourage As shown in Figure 8, the percentage of first students to attend a university or to boost and upper second class degrees awarded its position in commercial league tables . has increased from 67 per cent in 2010-11 to Across the sector there is considerable 78 per cent in 2016-17, while the percentage variation in the number of 1sts awarded . of first-class degrees has increased from 16 per cent to 27 per cent . The increase in We recognise that universities and colleges students getting good degree grades is not are beginning to confront this problem new: the number of students receiving 1sts and given the significant public scrutiny of or 2:1 has been increasing steadily since the degree standards we want to understand early 1990s 140. how providers have assured themselves that they continue to apply consistent Many factors could be behind this increase . standards . The UK Standing Committee Our analysis has shown that a proportion for Quality Assessment has stated its own cannot be explained by changes in the intent to protect the value of UK degree graduate population in terms of various standards and increase the transparency of explanatory variables, but it could be degree classifications 141. down to an increased focus on teaching, an encouragement to use the full range The increasing use of a narrow range of of marks, better feedback, schools better degree classifications makes it harder for preparing pupils for higher education, or employers to differentiate between an the increased necessity of a 2:1 for graduate average candidate and an excellent one . jobs . However, another possible explanation There has been growing pressure from is ‘grade inflation’ arising from an increased think tanks to reform the way degrees are pressure on lecturers to give students classified . This ranges from proposing an ‘value for money’ in the form of a desirable American-style Grade Point Average (GPA)

57 English higher education 2019

classification system to a nationwide system We will: of exams and marking undertaken by all students regardless of where they study 142. • Work with universities to ensure that degree results are not being devalued, This topic highlights one of the tensions in that the awarding process is fair the OfS’s work as a regulator . On the one and that it does not disadvantage hand, we want to encourage a broad range particular groups . of students to go into higher education and • Put pressure on providers to close the to succeed . On the other, we need to ensure attainment gap between black and that degrees do not lose their value over white students through access and time, so that graduates can be rewarded for participation plans, and support them to their hard work and employers can compare share good practice in this area . like with like . However, there is no inherent • Continue to work with industry, including contradiction in ensuring all students receive on contextual offers and links with fair degree outcomes . universities and colleges so that the graduate workforce reflects the needs of Conclusion UK industry and the population it serves .

This chapter illustrates the importance of As a regulator, our priorities include both universities and colleges to the UK economy maintaining quality and ensuring fairness . both nationally and regionally . On an We do not accept the argument that poor individual level, a graduate continues to earn outcomes must be tolerated because more, on average, than a non-graduate . students come from poor backgrounds . Over the next year, we will continue to work Students expect that their degrees will lead with universities and colleges to ensure that them to good jobs or the chance to study at all students have equal opportunities to gain a higher level . But there has been increasing a high-quality degree . concern that too many students are not accessing graduate-level employment, and that too many lack the skills required by employers . Universities and colleges have an important role to play as engines of economic growth in their regions, and that extends to ensuring that their graduates have the skills needed by employers .

Equally there has been wider public disquiet about the devaluing of degrees through unexplained grade inflation . At the same time, the proportion of black students gaining a good degree is significantly lower than that of white students . Ensuring that degrees maintain high standards and are awarded fairly is crucial to their continued value .

58 5. Beyond higher education: Ensuring successful outcomes

Notes

117 Luminate, ‘What do graduates do?’, 2018 126 Marketwise Strategy, ‘Research on (available at https://luminate .prospects . recruitment of mature students to nursing, ac .uk/what-do-graduates-do) . midwifery and allied health courses’, March 2019 (available at www o. fficeforstudents . 118 Institute of Fiscal Studies, ‘The relative org .uk/publications/research-on- labour market returns to different degrees’, recruitment-of-mature-students-to-nursing- 2018, p24 . midwifery-and-allied-health-courses/) .

119 OfS, ‘The effect of postgraduate loans’ . 127 Sutton Trust, ‘Home and away’, p4 .

120 House of Commons, ‘People with disabilities 128 HESA, ‘Destinations of Leavers from Higher in employment’, May 2019 (available at Education 2015-16’, July 2017 (available at https://researchbriefings parliament. .uk/ https://www .hesa ac. uk/data-and-analysis/. ResearchBriefing/Summary/CBP-7540), p11 . publications/destinations-2015-16) .

121 Ministry of Justice, ‘Justice Data Lab re- 129 Department for Business, Energy and offending analysis: Prisoners Education Industrial Strategy, ‘Industrial Strategy’, p101 . Trust’, May 2014, (https://www . prisonerseducation org. .uk/resource/justice- 130 OfS, ‘Strategic interventions in data-lab-re-offending-analysis-prisoners- health education disciplines’ (www . education-trust/), p4 . officeforstudents org. .uk/advice-and- guidance/funding-for-providers/health- 122 Universities UK, ‘The economic impact education-funding/strategic-interventions- of UK universities, 2014-15’, October 2017 in-health-education-disciplines/) . (available at https://www .universitiesuk . ac .uk/economic-impact), p1 . 131 Careers Research and Advisory Centre, ‘Evaluation of a scheme to develop pilot 123 DfE, ‘Graduate labour market statistics engineering and computing conversion 2018’, p6 . masters’ courses’, April 2019 (available at www officeforstudents. org. .uk/publications/ 124 OfS, ‘Differences in student outcomes’ evaluation-of-a-scheme-to-develop-pilot- (https://www officeforstudents. org. .uk/ engineering-and-computing-conversion- data-and-analysis/differences-in-student- masters-courses/), p1 . outcomes/educational-disadvantage/) . 132 Universities UK, ‘Solving future skills 125 OfS, ‘Degree apprenticeships: A viable challenges’, August 2018 (available at alternative?’, (OfS Insight brief #2), March https://universitiesuk .ac .uk/policy-and- 2019 (available at www officeforstudents. . analysis/reports/Pages/solving-future-skills- org .uk/publications/degree- challenges .aspx), p15 . apprenticeships-a-viable-alternative/), p4 . 133 OfS, ‘The effect of postgraduate loans’ .

134 OfS, ‘Differences in student outcomes’ .

59 English higher education 2019

135 OfS, ‘Continuation and attainment gaps’ 141 Universities UK, ‘Degree classification: (www officeforstudents. org. .uk/advice-and- Transparent, consistent and fair academic guidance/promoting-equal-opportunities/ standards’, November 2018 (available at evaluation-and-effective-practice/ https://www .universitiesuk ac. uk/policy-. continuation-and-attainment-gaps/) . and-analysis/reports/Pages/degree- classification .aspx); UK Standing Committee 136 OfS, ‘Differences in student outcomes’ . for Quality Assessment, ‘Higher education sector announces new initiatives to protect 137 Department for Education and Skills, ‘Ethnic value of UK degrees’ (https://ukscqa org. . minority graduates: Differences by degrees’, uk/2019/10/10/higher-education-sector- August 1996 (available at https://www . announces-new-initiatives-to-protect-value- employment-studies co. .uk/resource/ethnic- of-uk-degrees/) . minority-graduates-differences-degrees) . 142 UK Standing Committee for Quality 138 Universities UK, ‘Black, Asian and Assessment, ‘Higher education sector minority ethnic student attainment at UK announces new initiatives to protect value universities: #closingthegap’, May 2019 of UK degrees’ . (available at https://www .universitiesuk . ac .uk/policy-and-analysis/reports/Pages/ bame-student-attainment-uk-universities- closing-the-gap .aspx), p ii .

139 Deloitte, ‘Deloitte becomes largest British business to adopt contextualised recruitment’, 2015 (https://www2 deloitte. . com/uk/en/pages/press-releases/ articles/largest-british-business-to-adopt- contextualised-recruitment .html) .

140 Bachan Ray, ‘Grade inflation in UK higher education’, 17 March 2015 (available at https://srhe tandfonline. com/doi/full/10. 1. 080/03075079 .2015 1019450. ); Reform, ‘A degree of uncertainty: an investigation into grade inflation in universities’, June 2018 (available at https://reform .uk/research/ degree-uncertainty-investigation-grade- inflation-universities); Elton Lewis, ‘Are UK degree standards going up, down or sideways?’, 5 August 2006 (available at https://www tandfonline. com/doi/abs/10. 10. 80/03075079812331380472) .

6. Value for money

One of our four primary showed that 54 per cent of respondents agreed that students should contribute to objectives is that all students, the cost of their education 143. from all backgrounds, receive value for money. We secure The understanding of what ‘value’ means among students is neither uniform nor value for money in return unchanging . For many, value is understood for the contributions made in economic terms: they want a degree that by individual students and will confer the skills to get a well-paid job . taxpayers, in terms of student For others, it is measured academically, in getting to study with world-leading experts participation, experience and on a particular topic . And for some, it is outcomes, high continuation meant in terms of the broader experience rates and good degrees which they get at university, for instance by getting involved with their students’ union . hold their value over time. While government policies and legislation This chapter looks at students’ have long situated students as consumers, conceptions of value for money, and indeed many of the mechanisms for how the OfS is responding to protecting them are predicated on this positioning, many students resist this label . its own need to give value for money, and what the sector and The value of a degree, therefore, is a the OfS need to do over the complex mix of academic expertise and excellent teaching, job opportunities and coming year. transferable skills, cultural capital and institutional prestige . Value for money What is value for money? encompasses a vast array of topics and interests . Growing student expectations The tripling of fees in 2012 increased Teaching quality and feedback expectations of value for money . This reform Value for money for students was the was met by widespread student protests subject of the first piece of research and warnings of a fall in student numbers . commissioned by the OfS (see Figure 9) 144. Many of these forecasts have not come to This research surveyed students, to explore pass . For example, the fee change has not value for money from their perspective . It resulted in a fall in the number of 18-year- asked what value for money meant to them, olds from disadvantaged backgrounds whether or not they felt they were receiving 141 entering higher education . Nor has it it, and what could be done to improve it . resulted in a substantial fall in students’ satisfaction with their degrees, which Teaching and feedback quality was 142 remains high at 83 per cent . A 2018 survey highlighted as the most important factor . of 1,505 young people by Universities UK Over 90 per cent of students responding to the OfS survey felt that the quality of teaching, assessment and feedback were

63 English higher education 2019

Figure 9: Students’ views of the value for money they receive

30% 19%

The tuition fees for my course represent/ represented good value for money (university students)

25% 18%

16%

8% 38% Overall my investment in higher education represents/represented good value for money (university students) 13%

25%

Definitely agree Mostly agree Neither agree nor disagree Mostly disagree Definitely disagree

Population: Current higher education students in England (including full-time undergraduates, part-time undergraduate and postgraduate students), recent graduates and school students Source data: Survey carried out as part of the ‘Value for money: The student perspective’ research very important in demonstrating value for for money, and they expect universities and money . 81 per cent of respondents identified colleges to be more upfront about what learning resources, such as library and they can expect . IT services, as very important . The OfS uses a number of mechanisms to In 2017, a large survey of higher education ensure high-quality teaching and feedback . applicants, commissioned by the Higher We only register providers that meet our Education Policy Institute and Unite conditions for quality, as set out in our Students, found that 60 per cent expected regulatory framework 146. Through our to spend more time in lectures than regulation, we are encouraging providers not they did in school lessons . Only 19 per just to meet this baseline but to continually cent of students found that this actually improve on it . happened 145. It is clear that students consider the number of scheduled contact We also run the TEF, which rates universities hours to be important in determining value and colleges as Bronze, Silver or Gold depending on the quality of their teaching . This framework is informed by the feedback

64 6. Value for money

students themselves give in the National Under consumer protection law, providers Student Survey, a census of most of the final must give students clear, accurate and year undergraduate students in the UK . timely information about their course . The Competition and Markets Authority has This information on teaching quality is published guidance for higher education presented in a more user-friendly form providers about how consumer law applies on Discover Uni, the official website for to them 148. This guidance suggests that comparing higher education courses . It they should tell students about the number allows prospective students to identify and type of contact hours and self-study which providers and courses are most likely time that are expected, and inform them to meet their needs . Alongside other online of the total cost of a course, including fees sources like UCAS and the Student Room, and any necessary additional costs . We Discover Uni will give students access to are considering how to strengthen such the best information to decide between guidance in the coming year . potential destinations . Value for money of the OfS The need for better consumer information The OfS has two sources of funding . Prospective students are not always fully aware of what their educational experience Firstly, central government issues us with will involve . They can also be surprised by guidance and supplies the public funding extra costs . Housing and printing costs and that we distribute . This means we need to the need to buy a computer all affect how ensure we are returning value for money students judge the value for money they are for taxpayers (see Figure 10) . We do this getting from their degree . Almost a quarter by enabling the higher education sector to of respondents to the OfS value for money deliver wide social and economic benefits in survey said that they were not informed of exchange for public investment . Providers or prepared for how much everything would that receive public funding from us, such as cost as a student . through our Challenge Competition, must comply with our terms and conditions, The Higher Education Policy Institute’s including a stipulation that they ensure annual Student Academic Experience Survey effective accountability and represent 149 asks students about the value for money value for money . After these projects are of their course, and how their experience complete, we evaluate how cost-effective compares with their expectations 147. The they were . results show that students who feel their academic experience did not meet their Secondly, registered providers fund our expectations are much more likely to feel operations through the registration fees they have not received value for money . they pay . To ensure this money is used wisely, we have systems of governance, risk Universities and colleges therefore need management and internal control . Our Risk to be more transparent . These issues, and and Audit Committee receives reports from others where student expectations are not our auditors and provides assurance that met, may result from a lack of information these process are working satisfactorily . available to students . As noted previously, We publish full details in our annual report 150 informed choice by students is essential in and accounts . prompting providers to improve the value for money that they offer . Good consumer We have an internal plan for improving information should also inform students the organisational value for money of about what they can expect for their fees . the OfS . This means we embed value for

65 English higher education 2019

Figure 10: OfS grant in the academic year 2018-19 (£1,538 million)

National facilities and regulatory initiatives £51 million Knowledge exchange funding* Teaching funding £47 million £1,290 million

Capital funding for teaching £150 million

Source data: OfS grant allocations (*OfS grant distributed by UK Research and Innovation through Research England) . money in our decision-making, measure our For example, we require them to publish performance, procure goods and services information about senior staff pay in a effectively, and make best use of our staff, standard format . In our first audit of senior office space and technology . All this helps staff pay, we found that the proportion of all us to carry out our activities at lower cost, staff paid a basic salary of £100,000 or more or with greater efficiency and effectiveness . in 2017 was 1 .5 per cent, up from 1 .3 per cent We will publish a report each year, separate in 2016 . However, this increase masks more to the OfS annual report, on the value for general variation: 48 providers (36 per cent) money of the OfS 151. reported a decrease in the proportion of staff paid such a salary 153. We have established a Portfolio Management Office . This will assess the While there is evidence that some potential costs and benefits of our planned universities and colleges are exercising pay projects to check that they represent restraint, six universities paid their vice- value for money . We also publish key chancellors more than £500,000 annually in performance measures on our efficiency 2017 154. We publish an analysis of senior staff and effectiveness 152. These will include a remuneration to ensure transparency . measure of our overall performance – we will show the proportion of our full set of key It is vital that universities and colleges are performance targets that we are meeting . more upfront about the additional costs that students will be expected to pay . They Conclusion must also be far more transparent about how much they are paying their senior staff, We have a number of ways to intervene if and what they are spending their students’ we do not think universities and colleges are fees on . To ensure we fully understand being transparent about value for money .

66 6. Value for money

students’ ideas about value for money, and to maintain pressure on universities and colleges to deliver it in the future, we will:

• Consider putting a question in the NSS about value for money . • Encourage universities and colleges to be more transparent in their value for money plans about how student fees are spent • Continue to monitor the pay of senior staff, and consider taking action if it is unjustified .

67 English higher education 2019

Notes

141 OfS, ‘Gap in participation between most 149 OfS, ‘Terms and conditions of funding and least represented groups’ (www . for 2019-20’ (OfS 2019 12),. March 2019 officeforstudents org. .uk/about/measures- (available at www officeforstudents. org. . of-our-success/participation-performance- uk/publications/terms-and-conditions-of- measures/gap-in-participation-between- funding-for-2019-20/) . most-and-least-represented-groups/) . 150 OfS, ‘Annual report and accounts 142 OfS, ‘2019 NSS summary data’ . 2018-19’, July 2019 (available at www . officeforstudents org. .uk/publications/ 143 Universities UK, ‘The financial concerns of annual-report-and-accounts-2018-19/) . students’, June 2018 (available at https:// www .universitiesuk ac. uk/policy-and-. 151 OfS 2019 .38 . analysis/reports/Pages/the-financial- concerns-students aspx. ), p25 . 152 OfS, ‘Efficiency and effectiveness performance measures’ (www . 144 Trendence UK, ‘Value for money: The officeforstudents org. .uk/about/ student perspective’ . measures-of-our-success/efficiency-and- effectiveness-performance-measures/) . 145 HEPI, ‘Reality check: A report on university applicants’ attitudes and perceptions’, 153 OfS, ‘Senior staff remuneration: Analysis July 2017 (available at https://www . of the 2017-18 disclosures’ (OfS 2019 03),. hepi .ac .uk/2017/07/04/reality-check- February 2019 (available at www . report-university-applicants-attitudes- officeforstudents org. .uk/publications/ perceptions/) . senior-staff-remuneration-analysis-of-the- 2017-18-disclosures/), p4 . 146 OfS, ‘The regulatory framework for higher education in England’ 154 OfS 2019 03,. pp10-11 . (www o. fficeforstudents org. .uk/advice- and-guidance/regulation/the-regulatory- framework-for-higher-education-in- england/) .

147 HEPI, ‘Student academic experience survey 2019’ .

148 Competition and Markets Authority, ‘Higher education: consumer law advice for providers’, 15 March 2015 (https:// www gov. .uk/government/publications/ higher-education-consumer-law-advice-for- providers) .

68 List of abbreviations

List of abbreviations

ABCS Associations between characteristics of students

DfE Department for Education

GPA Grade Point Average

HEPI Higher Education Policy Institute

HESA Higher Education Statistics Agency

ILR Individualised learner record

NSS National Student Survey

NUS National Union of Students

OfS Office for Students

ONS Office of National Statistics

POLAR Participation of Local Areas pp Percentage point

STEM Science, technology, engineering and maths

TASO Centre for Transforming Access and Student Outcomes in Higher Education

TEF Teaching Excellence and Student Outcomes Framework

USS Universities Superannuation Scheme