Tag Archives: students

The Office for Students: Ten reasons why it is not for students at all

The Office for Students (OfS) is the new regulatory body for universities and higher education providers in the UK.  To date it has had a short and rather volatile history. Below is a collection of the main issues which students and academics should be aware of.

  1. The OfS will ensure that the Teaching Excellence Framework (TEF) becomes even more prominent for universities who are to be assessed on their ‘outcomes’. However, the TEF is relatively untested, and its critics charge that it will not diagnose poor teaching any more than it will uncover excellent teaching. It is not designed for these tasks since no teaching is actually observed. Teaching quality is inferred from proxy measures which have a very distant and disputed relationship with teaching. See this blog from Dorothy Bishop, and this previous one from me.
  2. The TEF will not incentivise universities to prioritise teaching. Unlike the REF (Research Excellence Framework) which has, arguably, recognised and rewarded excellence in research wherever it is found (notwithstanding Derek Sayer’s well-founded objections), a very different set of circumstances obtain for the TEF. Let’s take an example. Several universities have seen fit to cut courses in Modern Languages in response to falling student demand. Languages will soon no longer be taught in Northern Ireland, so how would an undisputed finding of excellent teaching affect that decision? Will universities channel funding to support excellent teaching wherever it is found? I predict they will not, and that is because funding follows the student. It is a formula designed to disrupt the traditional right of universities to make autonomous decisions about course provision based on the current state of knowledge and discovery. The fact is, when university curricular decisions are outsourced to the caprice of 18 year olds, there is little point in trying to pretend any other factor counts. If you have decided to expand a course because it attracts funding and international students, then no amount of poor National Student Survey scores will not dislodge that conclusion.
  3. Ergo, poor teaching will be condoned and concealed by universities in the flawed and distorted market of UK higher education. The TEF is still useful to universities as it offers a justification for getting rid of unconventional academics who are disliked by managers.
  4. The Office for Students seems to fixate on issues which don’t really register as important for students. Amatey Doku, NUS Vice President for Higher Education, answered questions from The Joint Committee on Human Rights – a Select Committee of both Houses of Parliament on 17th January 2018. Here he exposes the mythology of a crisis of freedom of speech in universities which is not top of students’ priorities.Amatey Doku
  5. The Office for Students has no representative from the National Union of Students on the board. This is in spite of promises from Theresa May that the NUS would work in consultation with the new regulatory body. The sole student representative, Ruth Carlson, is relatively unknown. The circumstances of her appointment are not clear, but the new minister for higher education, Sam Gyimah, revealed that she was chosen from outside of the pool of three candidates considered appointable by the interview committee. We can only speculate what advantages Ms Carlson’s appointment might confer on the board of the OfS, but expertise in student representation does not appear to be among them. She is studying civil engineering, however, and this might plug a gap on the board (see 6).
  6. Not a single other scientist or engineer has been selected for the board.
  7. The Office for Students’ mission is defined in Chapter 2 para 37 of Success as a Knowledge Economy, the government White Paper published in May 2016.

“The OfS will be explicitly pro-competition and pro-student choice, and will make sure that a high quality higher education experience is available for students from all backgrounds. For the first time, we will put the interests of the student at the heart of our regulatory landscape. By enabling better student outcomes, we will also protect the interests of taxpayers and the economy”.

But the suspicion at this point is that the government’s understanding of competition and choice is restricted to the introduction of new private providers into the system. The fear is that they will choose to provide cheap-to-teach courses, like law and business, and this will further restrict the choices available to students. This concern is grounded in the fact that among the members of the board are Carl Lygo, former VC of BPP University, part of the Apollo Group which includes the for-profit University of Phoenix in the USA. The rest of the appointees can be seen here  and we note that private sector and business professionals predominate over practitioners in higher education.

8. There are real doubts about how the quality of higher education courses will be protected by the new regulator. The OfS will oversee the award of university title to new HE providers – a privilege currently only bestowed by the Privy Council. The OfS has already shown signs that it may tolerate a less rigorous pathway to university status than we see with current arrangements. Alarm bells rang for many academics when the UA92 Manchester United Academy was announced. The new regulatory arrangements allow for degree awarding powers to be issued with no demand for a track record of quality teaching and assessment under the supervision of an established university.  OfS will also be able to revoke the title of university for those institutions it deems to be failing. The current quality assurance system works with universities if they are seen to be in need of improvement, but students now might start studying at a university, only to find their institution downgraded or fined into bankruptcy.

9. The OfS has already demonstrated poor judgement in its attempt to appoint Toby Young to the board. Given the structures outlined in the White Paper, this appointment must have been overseen by ministers (namely Jo Johnson), and Young would have been interviewed by Sir Michael Barber, the Chair of OfS. The appointment of student representative, Ruth Carlson (see point 5 above) seems similarly unorthodox. This action has alienated most parts of the sector, as we can only assume it was meant to. We need an independent regulator which can work with universities, not antagonise them for the sake of it.

10. Jo Johnson, the previous minister for higher education, has suggested that it will be within the remit of OfS to issue financial penalties to universities which award ‘too many’ firsts and 2.1 degrees. Firstly, as I argue (in a forthcoming piece), there is no firm basis for charging universities with grade inflation. Secondly, there is no suggestion at the moment what might constitute ‘too many’. If the OfS does interfere with universities’ cherished independence and academic judgement in this manner, it is unlikely to make many friends among students it counts as its central constituency.

The unease which has greeted the launch of the OfS has prompted Alistair Jarvis, Chief Executive of Universities UK, the vice chancellors’ representative body, to write of the recent consultation document from the OfS, “The tone of the document is, in places, confrontational and appears preoccupied by short-term political concerns rather than the larger long-term task of creating a credible, independent regulator”.

The OfS has shown itself to be willing to pursue moral panics that vice chancellors feel originate with a government piqued by perceived opposition to its agenda (especially Brexit).  Many of the rest of us resent the ideologically motivated campaign in both government and media circles which is unsympathetic to dearly held academic values such as education for the public good and worry that the OfS is merely another vehicle by which to instigate this. I for one share Alistair Hudson’s hope that, “In the months ahead, it will be necessary for the OfS to establish itself as a mature, fair and accountable regulator that uses its powers to support students through proportionate regulation and judgement.” Sadly, the shortcomings exposed by its initial actions have meant that OfS has probably exhausted any goodwill it might otherwise have been able to claim.


The accident of accessibility: How the data of the TEF creates neoliberal subjects

This is the link to a video of a talk I gave to the Digital University in a Neoliberal Age Symposium, organised by the Contemporary Philosophy of Technology Research Group. Title: The accident of accessibility: How the data of the TEF creates neoliberal subjects.


In an era of neoliberal reforms, academics in UK universities have become increasingly enmeshed in audit, particularly of research ‘outputs’ via the Research Excellence Framework (REF). A new Teaching Excellent Framework (TEF) has emerged in 2017, whose results are determined primarily by proxy data of National Student Survey (NSS) scores, retention data and Longitudinal Educational Outcomes data (LEO), i.e. salaries of graduates. This has been made possible by SBEE (Small Business, Enterprise and Employment Act 2015) legislation which has enabled data mining and synthesis of data streams from records held by the Student Loans Company (SLC), HMRC and universities themselves.

These two audit processes, REF and TEF, were originally envisaged as instruments to evaluate research and teaching, respectively, at institutional level. This had a distinctively neoliberal purpose in seeking to mould universities more closely towards serving the economic needs of the nation. The REF, however, has also been recruited as an instrument of individual performance management in universities, with each academic forced to compete in academic output and research funds with the most talented and unencumbered scholars. The TEF, similarly, bestows an institutional ranking, but will rapidly be repurposed in order to shape the behaviour and priorities of academics. For example, the participation of local areas (POLAR) classification allows universities to be rated according to their success against the Widening Participation (WP) agenda. In this way, universities can appear to fail by revealing larger differential outcomes for target groups according to ethnicity and social class than their benchmark permits. The discourse of the TEF legislation, bolstered by studies from HEA/HEPI, assumes the source of inequality of outcome is poor teaching and requires corrective action by universities. Further justification for surveillance and quasi-regulation is borne by appeals to ‘value for money’ and ‘competition’. Universities are positioned as subject to market forces, and students positioned as consumers. Universities are responding by creating ‘managers for the student experience’ whose responsibility it will be to oversee change, without ever addressing the question of what causes differential outcomes, or what actions on behalf of government or institutions might make a difference.

I argue that what seems to be an arbitrary constellation of proxy data points has in fact been a calculated plan to render universities, staff and students as neoliberal subjects. The accident of accessibility, inasmuch as it overlaps with the neoliberal imperative, has determined which data shall function as Key Performance Indicators (KPIs). These KPIs are signalled via metrics-driven student and staff dashboards which offer no retreat from the interpretation and coding imposed by government, and the whole assemblage is cemented by discursive choices which align with neoliberal principles. In this way, the ideological purpose of the legislation and the audit is realized: the imposition of institutional and personal responsibility for structural inequality has been achieved.

The Government White Paper Success as a Knowledge Economy, May 2016, will form the text for corpus analysis of keywords, discourses and metaphors.

Managing malice, reaffirming Robbins

My last blog post addressed some of the misconceptions surrounding the award of first class degrees in UK universities. I was favorably surprised by the reception and the number of people who seemed relieved to be presented with another explanation than the now customary media allegations of dumbing down, declining standards and apathetic students being rewarded for sub-standard work. However, in the print media, there swiftly followed another set of familiar accusations  – that universities are admitting students with poor A levels to under-subscribed degrees.  Even more concerning, apparently these students won’t be able to secure a graduate job commensurate with their knowledge and skills.

This year’s cohort of freshers will experience uncertainty over value for money, having heard that universities are replacing credentialed academics with graduate teaching assistants or disenchanted teaching fellows.   Even lecturers with permanent posts are bailing out with stress-related illnesses.  Many students will have internalized the suspicion that a share of their £9000 could be gifted to an avaricious vice chancellor by a secretive remuneration committee. And they harbour the nagging thought that if they defer admission for a year or two, they might not have to pay such exorbitant fees.  And now, even if they overlook this catalogue of condemnation, students are told that they may be denied the prize of a first class honours degree, as universities could be punished if they award too many of them. And in any case, even the Guardian believes that academic judgement of degree classifications is so flawed it amounts to universities ‘marking their own homework’, and questions whether a first from one institution is equivalent to one from another. 

As I write, it is encouraging to know that for the first time in a long time, there has been an immediate and robust response to some of the critics from the new CEO of Universities UK, Alistair Jarvis, citing “misinformation, muddled argument and even a little malicious intent.” It is a welcome intervention.  

The uniting theme to all these accusations is that universities are doing a poor job and standards are slipping. The tired old argument goes, that if only 5% of students were admitted to universities in 1970, and today 32.5%, then it stands to reason that the bar must have been lowered. I suggest such critics go and read this excellent blog by Mike Ratcliffe, More Means Better, which is aimed at deflating the fiction that higher education should be the provenance of a self-defined elite.

My contribution to the debate has been to rebut the argument that universities have no check on standards and quality of teaching and assessment. My last blog piece pointed out that student achievement at university is criterion referenced, i.e. if a student reaches a threshold of learning, they will be awarded the same mark as every other student at this level of achievement, regardless of how many of them there are. Every student’s work is blind-marked, moderated (double checked) by another qualified academic, and passed before an external examiner whose job it is to monitor standards and comparability. This is fair to both students, and institutions who need to safeguard standards and reputation. At present, the reputation of UK universities is high – outside of the UK. It appears to be a peculiarity of UK journalists that they condemn the system that educated them. The fact that so many who voice skepticism are graduates of Oxford University has not escaped me, but you cannot be sure whether their views are the product of careless ignorance or exclusionary elitism. We can probably assume, though, that they will foster the ascent of their own children to suitably selective universities.

Let me offer an analogy which might clarify why ‘more means worse’ arguments are unsound, and which sheds some light on objective criterion referencing and improvements in performance.  

Recently untethered from the academy, I have been able to spend time during the summer with New York Open Water – a group which organizes marathon swims in New York. The most arduous of these swims is the 8 Bridges Hudson River marathon swim. It is a multi-stage swim, and each day’s distance of between 13.2and 19.8 miles must be completed within the time window allowed by the tidal flow of the Hudson River. It is preposterously hard to swim a marathon on consecutive days over a week. Between 2011 and 2016 only six swimmers managed to successfully accomplish all seven stages of this 120 mile swim between Kingston and New York Harbor, and there were two years when nobody made it. Nevertheless, the 2017 cohort furnished us with nine new entrants to the 8 Bridges hall of fame. Could anybody seriously suggest that somehow the standard required for success has slipped? Quality control tanked? Demand an investigation from the regulatory body? The 2017 event took place over the same course, had the same organizers and was run under the same rules of marathon swimming.

So what might account for the sudden and massive increase in success? Firstly, the profile of this event has risen across the international community of marathon swimmers, so many more people see it as an accomplishment they might wish to add to their CVs. Secondly, techniques of training, nutrition, mental and physical preparation have been customized towards the requirements of this event. It adds up to a highly targeted approach to this demanding swim, and a consequent rise in the success rate has been the result.

The analogy with university degrees is this; contrary to the misgivings of the media critics, universities have become much more focused on how to teach students in interesting and varied ways, on how students learn, and how to embed feedback and progression into the assessment process. Every student is made aware of the requirements of the course, the learning outcomes and assessment criteria. No surprise, then, that they focus their efforts on meeting these.

It is different world from the exams encountered by students fifty years ago. Then, nobody thought it off limits to set questions on material the course had not actually covered. Arts and humanities courses, particularly, saw their final exams as an assessment of general erudition. I have seen a finals paper from Bristol university (circa 1965) sat by all arts students which assumed knowledge of literature, poetry, artistic movements as well as music. There was no preparatory taught course; students were just expected to have absorbed this knowledge as part of their autonomous intellectual development. The Robbins principle had, after all, stated that the role of universities was to produce “cultivated men and women; and to transmit a common culture and common standards of citizenship.” 

It would be facile to compare exam papers from the 1960s with those of today and declare the latter less challenging. In the intervening years, the emphasis has swung from familiarity with high culture, to the acquisition of transferable skills and intellectual agility. We now appear to be moving beyond this to a requirement for demonstrable ‘learning gain’ in graduates. 

Failure to understand the evolution of teaching and learning in universities may be at the root of some of the dismissive articles we have seen over the last year. It sometimes happens that the products of elite institutions believe their own myths. When you are told you are very ‘bright’, and are surrounded by others who are deemed ‘bright’, you tend to believe in your own exceptionalism and entitlement, when in fact ‘bright’ is often nothing more than the expression of privilege and social capital. As an educator of over 30 years, I am unimpressed by ‘bright’ because it has always seemed one of the least useful predictors of success in higher education, or indeed life. Give me the curious, the challenging, the creative, the hardworking, but above all the persistent. And a measure of self-belief is always helpful. These are the attributes I observed among the marathon swimmers I met, and among the students who distinguished themselves by improving year on year. So rather than objecting that universities are somehow diluting their standards and bestowing worthless degrees, let’s at least acknowledge two important legacies. Students are emerging from school, motivated, qualified with A levels and fully eligible for higher education. This is also one of the outcomes envisaged by Lord Robbins who argued that university places “should be available to all who were qualified for them by ability and attainment” Robbins believed that many more students could benefit from university than had been able to access it prior to 1963. He went to great lengths to provide statistical evidence that more would not mean worse in terms of lowering of standards, and indeed the expansion of UK universities was matched by enhanced international standing.

The Robbins’ principle of democratization of universities was what we wished for the nation’s young people in 1963 and it is worth defending today. It is what our politicians and journalists want for their children, even as they undermine those advantages for everyone else’s.