CARDONALD COLLEGE GLASGOW RESPONSE TO BUILDING A SUSTAINABLE FUTURE FOR HIGHER EDUCATION

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1 CARDONALD COLLEGE GLASGOW RESPONSE TO BUILDING A SUSTAINABLE FUTURE FOR HIGHER EDUCATION INTRODUCTION Cardonald College Glasgow appreciates the opportunity to respond to Building a Sustainable Future for Higher Education. The Higher Education sector is vital to the continued development of Scotland s economy, its attractiveness in terms of investment by new businesses both UKbased and International, and in maintaining the excellent research base in our universities. It is the unique landscape of Scottish Higher education that allows access and elite performance to work in parallel. We are pleased to see the ability to learn, not the ability to pay remains as the defining characteristic of Scottish education. Higher Education is often viewed as only that which occurs in universities. This is simply the reflection of a lack of understanding of the complex structure which supports Higher Education through colleges, universities and flexible learning options such as the Open University. We would hope to see each element reviewed in terms of efficiency, effectiveness and economy based on access; geographical and social, cost, and output both in quality and in contribution to Scotland s economy and society. All education must be seen as providing more than factual knowledge. It is transformational and the effects go far beyond the individual undertaking that educational experience. The guiding principles outlined in the Introduction are clear and would match the aspirations of this College for the future of Scotland s Higher Education; however we believe that the paper does not adequately describe the function or the economic model which would then underpin Higher Education in the 21 st century. Without a conceptual framework it is difficult to formulate rational responses. If responses are developed around existing curricula and delivery methods then Scotland will miss an opportunity to re-energise its Higher Education provision. We have many discussions on access, affordability, appropriateness and availability, yet we do not challenge the paradigms on which Scottish Higher Education is built. Why do we need a four year Honours degree which is expensive and does not capitalize on SCQF, ties young people especially into a discipline often with no clear employment opportunities associated with it? Is this not an opportunity to take radical action and produce a new model which has a reduced number of undergraduate degrees (not time-bound and unitized) which could then be followed by a one year Masters level degree preferably linked to employment opportunities? What is proposed above is a version of the Australian Melbourne Model which has the benefit of having been tested in a society which shares many aspects, educational and cultural, with Scotland. It is an affordable model especially if the financial benefits of utilizing the college sector where appropriate for SCQF Levels 7 and 8 are maximized. We appear to abuse the Honours classification by using it as a filtering system for post-first degree selection decisions rather than as it was originally intended, to identify those students who would go onto research activity within their discipline.

2 We note that the questions in the full document are not matched by the questions posed in the summary paper. We have therefore only made comment or given responses where we feel our contribution would be helpful. We have also included extracts from this College s response to The Roe Review where we feel it is helpful to adopt an holistic approach in considering post-16 education in Scotland. NB Cardonald College Glasgow does not subscribe to the position of Scotland s Colleges as outlined in Colleges at the Core with regard to: giving colleges sub-degree awarding powers the establishment of a QAA-like structure to quality assure all in Higher Education in colleges especially at a time of public funding difficulties the promotion of specific colleges as polytechnics which would damage the coherence and aspirational portfolio of courses offered by colleges Susan H Walsh Principal and CEO Cardonald College, Glasgow

3 BUILDING A SUSTAINABLE FUTURE FOR HIGHER EDUCATION Learning, Teaching and Access This section requires work in two areas, maximising use of SCQF, and recognising the needs of users; students and employers). Staff in all education sectors need to review and where necessary adapt teaching approaches and engagement with learners. This is especially so in the university sector where prescribed and usually tight disciplinary boundaries are in place. The learning experience remains one of, in the, main didactic teaching with limited opportunity for exploratory learning and moving into subjects outwith the parent degree department. Learners entering the university sector having experienced CfEx as it is envisaged, will without such changes be reduced in their capacity to build on the approaches with which they are familiar and maximise the gain from Higher Education. Flexibility in how learners achieve a degree qualification, with the ability to move in and out of the entire Higher Education sector as appropriate to the learner s life requirements, would mean learners who are forced to discontinue studies would be able to pick up from where they leave off without unnecessary disruption and those who can only gain a full qualification by accumulating elements would be able to re-enter HE when appropriate. It is beneficial where the design of Degrees is undertaken jointly between colleges and universities. There is merit in extending HN provision in the college sector with guaranteed places in appropriate university courses with recognition of achievement. This would also carry substantial cost savings as a Higher Education student in a college costs 3, whilst studying the equivalent SCQF level in a university would costs At a time of severe financial pressure on the Scottish public purse it would be remiss not to address this cost differential and exploit it to the benefit of Scotland s learners. This issue was also highlighted in the Howatt Report several years ago and unfortunately not progressed which has over the intervening period cost Scotland millions of pounds. Similarly credit accumulation and transfer both up and down the SCQF would be beneficial. Those who drop out of degree programmes at present do not as a norm access the SQA service of reverse qualifications where e.g. a first year university completer intending to leave university could match achievements with relevant Higher National Units and perhaps receive a Higher National certificate as a free- standing qualification thus also giving him the potential to benefit in the future by re-entering HE. We are keen to see the removal of the 6 years honours degree in Scotland where students completing HND courses enter university in year 1. This acts as a disincentive to progression, especially in relation to students coming from deprived communities and these students are left with higher levels of student debt on graduation. Research showed that such students are more likely to take low level jobs on graduation because they are in severe financial difficulties and are tempted or perhaps force d to take any available employment. We applaud the work of the post-92 universities which have worked in partnership with colleges to maximise the benefits of HN study prior to entering university. This is an example of the positive benefits of jointly designed Degrees.

4 Whilst progression is a welcome option for some HN students, it should also be recognised that achieving and remaining at a level below degree within SCQF is an appropriate choice for individuals and for Scotland. This is becoming increasingly important in a range of employment opportunities where there is an increasing number of SCQF Level 8 graduates required. Recent work by price Waterhouse Cooper in replacing their graduate trainee schemes with sub-degree training has been demonstrated to carry significant benefits to the employer but also to the individual learner. Research and Knowledge Exchange Whilst colleges make relatively little contribution through research they do make a substantial contribution to the economy via knowledge transfer. Colleges have a particularly strong relationship with employers, especially SMEs and larger regional employers which tend to be around the provision of commercial training to companies. The availability of newly emerging PDAs especially at SCQF levels 7 and 8 will offer employees and employers Higher Education in smaller more-accessible certificated chunks which can accumulate to provide complete qualifications such as HNCs or HNDs and thus eventually give access to degree studies through articulation links. The work of the UK Commission on Employment and Skills confirms that the workforce in Scotland has a weakness at the technical/technologist level. Existing university provision ensures a steady supply of employees at graduate levels whilst below technician level is a large pool of people with little or no qualifications. This means that Scotland lacks a strong technical presence in terms of levels, a level that is most relevant in the current economic context. It is at this level of applied Higher Education that colleges have a particular contribution to make to knowledge transfer and through this route to articulation with universities. Relatively recent work by the universities to build progression pathways for those holding higher level SVQs is welcome and should be encouraged. Employers have a dual role to play in Higher Education. They are the beneficiaries of qualified students and the output of research. Unfortunately many companies do not interact with the Higher Education sector in universities because it is perceived as detached from the world of work, product and profit. In colleges the difference is direct contact and delivery of training which has been designed specifically to need a sector s business need. Tax incentives would encourage employers to increase investment in their employees to upgrade existing qualifications through such courses which would allow then support credit accumulation and transfer but which also meet an immediate business need. Roe Review response. In addition a greater recognition that the HNC/D and Professional Development Award route is often much more appropriate for some individuals and for employment rather than a drive to enhance all HNDs to degrees.

5 Many employers already appreciate the benefits of training staff and are prepared to pay for that training. It would be useful if that investment could be recognised perhaps through the taxation system, wherefore investment in training, which improves company performance and increases profits, is recognised either by an element of this increase being exempt from corporation taxation as long as it is retained for further future staff training or the cost of training be deemed tax deductable. Employers also provide valuable placement experience for students, especially for HN courses. Although individual colleges are responsible for arranging placement experience where it is required, companies which take on students should have some recompense through tax allowances. Employers would argue that they already contribute through Corporation Tax to the provision of Higher Education and therefore additional contribution is unnecessary unless there is a specific benefit to the company e.g. sponsorship of a Chair or a facility/resource. International Contribution International student recruitment is competitive and increasingly difficult as other countries realize the financial and relationship benefits which arise from internationalization. Promoting Scottish Higher Education under one banner could only mean engagement at a level which explained the structure of Scottish education, the benefits of studying abroad and the opportunities for employment beyond the period of study. More detailed institutional input is required to allow admissions tutors to give appropriate advice, match qualifications and undertake language checks in order to meet stringent UKBA requirements. In addition fees are an institutional issue and vary widely across the country. There are anomalies in the UK which potentially could cause friction between university and college sectors in Scotland, namely college International fees tend to be lower than those of universities. Just as it is cost-effective for the Scottish Government to support two years of an HND programme before a student goes to years 3 and 4 in a university so it is also costeffective for an International student to spend two years at a Scottish College achieving an HND and then transferring for one further year of study to an English University, thus obtaining an Honours degree in three years and paying substantially less than a four year degree programme at a Scottish university. The issue of making fees more transparent may have unintended consequences. A number of home based students have already taken advantage of articulating to third year of an Honours Degree in English universities which clearly brings financial benefits, including reduction in student debt. The proposed changes by UKBA are intended to reduce improper access to the UK via the education system and this is welcome however the issue of protecting the title college has yet to be resolved. If the title was protected then it would reduce substantially the capacity of bogus colleges to market themselves as bona fide institutions and thus protect the integrity and reputation of Scotland s Higher Education.

6 Staff and student exchanges already take place through multiple European Funded programmes and these are welcome, however in all cases the purpose, benefit and future impact must be demonstrated to be substantial and in Scotland s favour. The issue of retaining international students and staff in universities is important as shown by the high proportion of recent Nobel awards achieved by international researchers who work in British universities. Student Support We would fully support a simplified system. The costs of administering a complex system diverts funds from front-line student services. Students are not an homogeneous group. Many from families for which post-school education is not usual, may face challenges those from more traditional backgrounds do not face. Student support funds are essential as is on-going personal support for many. There are numerous examples of college students who have moved onto university asking their previous college if s/he could have access to the college library and ICT facilities because they find the university daunting, the staff seem unapproachable or the cost of travelling to the university facility is one they cannot meet beyond when attendance is a necessity. Students fall into the benefits trap and are unable to access the education which would release them from poverty and potentially release future generations of the same family from poverty. We would support a minimum level of support, preferably the NUS figure of 7,000 per annum to include necessary travelling and ensure reimbursement of other costs is available to students. We also support the concept of an entitlement to post-16 to education and training for all students. Extract from Roe Review relevant to post-16 entitlement. Entitlements in CfE are already going to be challenging to sustain in the present economic environment therefore funding further entitlements will be extremely difficult. However, there is a need to concentrate on improving essential skills and improving enterprise training, so there should be careful consideration of incentives not only for employers but for participants so that this is not seen as a way of reducing unemployment statistics, but a real opportunity to become self sufficient. Specifically; Transitions training should be free as should further education that prepares the young person for employment, Education up to SCQF Level 9 should be free thereafter individuals should pay for higher SCQF levels through increased taxation on the individual post-qualification (once a certain threshold of earnings has been met). This threshold could vary according to the SCQF level of qualification, Those over 25 should receive at least the equivalent of one year s free full-time training to gain new skills that will increase their employability. This is not counter to the item above as it relates to new areas of skill development, Public funding should be prioritised to improve the vocational skills required for sustained economic growth and, ILA fund should be maintained but focussed on skills to support employment.

7 Funding We are aware of the numerous options available to the Scottish Government in establishing a funding system which is affordable and sustainable whilst ensuring Higher Education is accessible to those with the ability to benefit from it. We would agree that the primary responsibility for funding Higher Education lies with the State however it is difficult to identify an optimal funding model and therefore the potential contribution required from graduates without knowing the educational model being funded. If we implement a model in which SCQF Levels 7 and 8 are delivered in colleges and only SCQF 9/10 required in university then costs will decrease and a decision on the funding model could be made accordingly. For example if this were to be the case, then could Scotland afford to fully fund SCQF Levels 7 and 8, with a Graduate Tax/contribution only being required for the university element if required at all? If we adopt the Melbourne Model then graduates would potentially cost the State less and therefore be liable for reduced repayment should this be required. It is clearly important that we treat UK students equitably and therefore the issue of fees across the university sector in the UK must be addressed without disadvantaging Scottish students. The setting of fees depends on whether we have a market-driven Higher Education sector or we accept the historical position in Scotland that all education is a public good and therefore only that which the people can afford is charged and paid for by the elected Government. We would fully support the concept of philanthropic giving to Higher Education, especially where such donations allow additional funding streams to be accessed thus increasing the value of the donation. The challenge for colleges in this field is that their graduates who move into the university sector are happier to associate themselves with that institution than the college which gave them the entrance qualifications to access university. The following is an extract from our response to The Roe Review. We are in danger of imposing false boundaries by separating the continuum of post-16 education and training by either the academic-vocational divide or by age. If radical improvements are deemed necessary then radical change to the thinking which underpins those structures is required. This means removing the institutional barriers between school, employment-based training, college and university and therefore deconstructing the differential funding streams which underpin post-16 education and training. This is not to suggest that colleges and universities receive equal funding; different functions require different funding, however the funding for each level of SCQF provision should be demonstrably equitable.

8 Shape and Structure A key issue is whether Scotland needs 14 universities. The argument is similar for the college sector. We may need 41 points of access (rather than 41 colleges) to ensure learning is embedded, especially in more remote or deprived communities but we do not need 41 separate institutions, however, we are a hostage to our own legislation and the creation of autonomous, independent organizations which are charged with acting in the best interests of the organization. It is difficult to remain objective when one s own organization and its hard won reputation and presence is perceived as being under threat. Although the Scottish Funding Council has the ability to plan coherent Further and Higher Education recent history shows the difficulty of bringing autonomous institutions together in a smooth and positive fashion. It may be more robust methods are required to move towards a reduction in the number of institutions supported by Scotland. It should also be remembered that merger does not always bring the cost-savings expected and that a positive merger depends on people as well as planning and policy decisions. A positive merger is unlikely to take less than three years, carries substantial upfront costs and will only deliver real efficiencies some three to five years following full merger. We are pleased to see the commitment to removing unnecessary VAT barriers to sharing services between institutions. Summary Cardonald College Glasgow is pleased to submit a contribution to the debate on the future of Higher Education in Scotland. The unique contribution of the college sector is underrepresented in the debate on Higher Education and its profile needs to be raised amongst parents and school careers staff if Scotland is to provide its young people, emerging from Curriculum for Excellence programmes in schools the opportunity to capitalize on their selfdirected and independent learning skills. College-based Higher Education offers participants access to an appropriate mix of technical and theoretical study and access to both employment and progression to university. It would be a positive move if SCQF was strengthened to minimize the time and financial commitment required of student moving from college to university. This is especially important for adults either in-employment or returning to education where it is most likely they would have pre-existing financial and family commitments. We acknowledge the excellent work done by our local partner universities especially, the University of the West of Scotland, Glasgow Caledonian and Glasgow School of Art. In specialist areas we have further special relationships e.g. with Duncan of Jordanstone for Creative Industries and the University of Strathclyde s School of Education both of which greatly benefit our students. The flexibility of SQA qualifications to deliver what employers want, short-sharp focused learning, within an HE framework through the development of PDAs is unique in HE and should be more widely disseminated and promoted. There is value to employers in Higher National Certificates and Diplomas as they are seen to meet vocational needs as discrete qualifications rather than Certificates and Diplomas in Higher Education which tend to be perceived as compensation for non completion of Degree studies and do not carry the same relevance to employment.

9 We appreciate that colleges have a different but equally important role to play from that of the university sector and therefore funding differentials will exist in many cases, and rightly so, however, there are cases where Scotland s public purse would be better served by developing programmes where all of SCQF levels 7 and 8 are delivered in colleges with universities taking students on for degree completion. We would suggest that Scotland has an opportunity to radically overhaul university education and maximize the benefits of colleges and universities working more closely together and that the Melbourne Model is openly debated and examined for lessons Scotland could learn.