Memorandum 69
Submission from Birkbeck College Student
Union Council
Birkbeck College Student Union (BCSU) is an
independent body, funded by Birkbeck College, to represent 19,000
Birkbeck students. We have been representing and campaigning for
our members since 1904. Our advice centre is open daily. This
submission is from Union Council, which is our highest governing
body (excluding General Meetings).
(A) EXECUTIVE
SUMMARY
1. The removal of ELQ funding affects non-ELQ
and ELQ students in a multitude of ways.
2. It forces students to choose lower level
qualifications in order to protect their future opportunities
to re-skill and meet the flexible needs of the modern workplace.
3. HEFCE funds will be wasted due to high
drop out rates as students are forced into inappropriate courses,
and the HEFCE funds invested in students' first degrees will also
be wasted where first and second degrees are incongruent.
4. Our analysis shows that already disadvantaged
graduates will be disproportionately negatively impacted upon.
5. The DIUS misguided policy locks students
to their first degree, but 75% of Black African origin graduates
are dissatisfied with their first degree choice,[84]
and women are more likely than men to choose a first degree that
channels them into a low paid career.[85]
6. Disadvantaged Graduates/Postgraduates
are more likely to need additional qualifications to advance in
the workplace, so this ELQ policy reduces diversity in medium
and high level jobs undermining the Equality Act.
7. It also undermines targets to reduce
Child Poverty by attacking mothers. Many mothers have to re-skill
within two years of childbirth. At least 1 in 5 women returners
change career and employer,[86]
and a huge proportion does not return to the workplace despite
wanting to.
8. Birkbeck's unique cohort of older students
will also be disproportionately disadvantaged by these cuts.
9. We emphatically do not agree with this
DIUS policy, as it will do monumental damage.
(B) NEGATIVE
IMPACT ON
NON-ELQ STUDENTS
(i) Changes to grass roots IAG (Information,
Advice, Guidance) at BCSU advice Centre
"Aim Lower": The ELQ cuts encourage
students to take lower level qualifications and reduce their aspirations
10. Our BSCU advice centre experience is
clear: lifelong learning is a workplace requirement. Rather than
encouraging students to up-skill, the ELQ cuts will encourage
students to embark on the lowest possible level of qualification,
as this leaves open future re-skilling opportunities.
11. Disadvantaged students are the most
likely to need to re-skill (28-64), and thus the ELQ cuts encourage
already disadvantaged groups to "aim low".
12. Worryingly, this course of action is
likely to be particularly demotivating to BME groups, as seminal
research on BME students in HE has found that:
"aspirations and expectations of the value
of, and benefits from, higher qualifications is a more significant
positive `driver' for minority ethic than for white students".[87]
The ELQ cuts will force us to give students who withdraw
from their courses advice that will make them less employable,
and wastes HEFCE funds
13. If a student is unable to complete an
honours or postgraduate degree, the BCSU advice centre advises
students to accept a lower qualification such as a diploma or
certificate, as recognition for the part of the course successfully
finished.
14. This has obvious advantages for the
student's CV and confidence, and is a better investment of HEFCE
funds than when a student withdraws without achieving any qualification
and with a gap in their CV.
15. This is problematic if ELQ opportunities
are eliminated, as after withdrawal, students often return to
study a different subject at a lower level. The original course
may no longer be relevant or of interest. The student's confidence
may be reduced by the withdrawal, and the reasons for withdrawal
may be enduring (eg mental health, childcare, low income). Ongoing
reasons such as these are most likely to be associated with disadvantaged
groups. BME students have higher non-completion rates than their
white peers, and so will be disproportionately affected by this
problem.[88]
Penalties: Blaming the victims
16. We are extremely concerned about the
potential penalties for students who do not reveal previous qualifications.
There has been reference to large fines and even prison.[89]
(ii) Examples of other effects on non-ELQ
students
17. Course Withdrawal: There will be a reduction
in the number of courses offered, as courses with high ELQ funding
levels will be withdrawn.
18. Cancelled courses will lead to income
loss for Postgraduate students who part finance their study through
teaching (most of whom have inadequate or no funding and are already
in significant student debt).
19. Peer Support: Students tend to go to
class mates for help, before turning to their tutors or the SU.
It is often the ELQ class mates, who have more experience of academia,
that give this support.
20. All students benefit from increased
lifelong learning opportunities to re-skill with additional qualifications.
This flexibility is demanded by the modern workplace, as the guarantee
of a "job for life" is obsolete.
21. The ELQ cuts also undermine the tremendously
exciting Layard Agenda, which proposes that financial investment
should support organisations that increase societal happiness
and enrich life experience,[90]
a criteria amply fulfilled by Birkbeck and BCSU. As noted elsewhere,[91]
careers that support societal happiness and the Layard Agenda,
such as the range of psychology, psychotherapy and theological
courses benefit from older students with more life experience,
and thus are vulnerable to course closure under the ELQ cuts.
22. The financial impact on Birkbeck will
reduce BCSU's grant, reducing the services BCSU offers all students,
such as representation in academic appeals, welfare advice and
community building or social activities. We play a considerable
role in keeping WP and other disadvantaged students in college.
23. BCSU is a centre of expertise on part
time and mature student issues within the student movement. A
weakening of BCSU will lead to a weaker national voice on part
time and mature issues.
(C) DIUS
RESPONSE TO
CRITICISM
(i) Re-skilling is not a personal luxury,
and the ELQ cuts will lead to a waste of HEFCE funds
24. HEFCE and Bill Rammel have said that
if people "want" to re-skill they can take a foundation
degree or train in a vulnerable area.[92],
[93]
25. The reality is re-skilling is often
not a matter of having a choice. Disadvantaged groups are more
likely to need to re-skill than average (28-70). Why should already
disadvantaged groups be even more penalised with the narrow and
inappropriate opportunities sanctioned by the ELQ funding changes?
26. The cohort in question is graduates/postgraduates
and they would be better off doing an ELQ course that works in
concert with their previous qualifications. This would mean that
HEFCE investment from the first degree is not wasted.
27. The inevitable outcome of being forced
to do an inappropriate course is a high percentage of non-completion,
and the consequential waste of HEFCE funds.
(D) ELQ
AND THE
EQUALITY AGENDA:
THE ELQ FUNDING
CHANGES HAVE
A DISPROPORTIONATELY
NEGATIVE IMPACT
ON ALREADY
DISADVANTAGED GROUPS
28. By disadvantaged groups we mean groups
who are disadvantaged in relation to their peers in HE and the
workplace eg such as women (to men), BME students (to white students)
and students with disabilities to those without. These are very
heterogeneous groups, but we have used the term "disadvantaged
groups" for brevity.
(i) The ELQ cuts destine graduates
to be tied to their early degree choices, and this has a disproportionately
negative impact on disadvantaged groups
Examples include:
29. The justifications for the ELQ funding
cuts rely heavily on students making "a correct" choice
of first degree. However, within two years of graduation almost
all White graduates are happy with their first degree choice,
but over 75% of Black African origin and over 67% of Asian origin
graduates regret their choice of first degree.[94]
30. BME groups are nearly 1.5 times more
likely than White graduates to do a second honours degree/sub
degree course (Black African origin graduates are nearly twice
as likely to do a second honours degree).[95]
31. These dramatic differences (29-30)
suggest that the proposed DIUS ELQ policy potentially discriminates
on grounds of ethnicity.
32. Government commissioned research on
the gender pay gap has identified that IAG given to school leavers
regarding appropriate qualifications and career pathways substantially
disadvantages women compared with men.[96]
Factors including IAG channel girls into qualifications leading
to lower paid career pathways than those suggested to boys. This
is despite girls achieving better exam results than boys.[97]
One major reason for this is that jobs that are stereotypically
female are low paid. The report Towards A Fairer Future[98]
observes:
"The occupational segregation that results
makes a substantial contribution to the gender pay gap. Choices
made at school can lock in differences in earning potential between
men and women for the duration of their working lives".
33. The report Shaping a Fairer Future[99]
specifically states in order to avoid being trapped by these early
choices, a woman must have a multiplicity of opportunities to
retrain and change career throughout her lifetime.
34. These findings (32-33) suggest that
the DIUS ELQ proposals potentially discriminate on the grounds
of gender.
35. The pay gap is a measurable economic
index of inequality. In London, which will be worst hit by the
ELQ cuts, the gender pay gap is 25%.[100]
This is virtually equivalent to what it is was in 1976 when the
Equal Pay Act was first brought in,[101]
and is 40% higher than the national average. The UK gender pay
gap is one of the worst in Europe. Government bodies have responded
to recent research with a host of progressive and exciting initiatives,[102]
but it is evident that these fledgling initiatives will be thwarted
by the proposed ELQ funding cuts. BME graduates are paid on average
9% less than their white counterparts.[103]
(ii) Barriers in the workplace mean
graduates from disadvantaged groups are more likely than their
peers to need to re-skill at an ELQ level
36. The WP agenda helps more people to get
degrees, but workplace and economic discrimination and disadvantage
continue at graduate level and beyond.
37. Overall BME graduates find it harder
to get employment than their white peers.[104],
[105]BME
groups are not a homogenous group. Chinese and Pakistani origin
male graduates are two times more likely than average to be unemployed.[106]
Thus, perhaps not surprisingly, these are also the two BME groups
(and Bangladeshi) that are most likely to re-enter HE for additional
qualifications.[107]
38. Economic distribution reveals graduates
from disadvantaged groups disproportionately clustering in lower
paid, lower prestige jobs than their peers.[108],
[109],
[110]
39. Disadvantaged groups are more likely
than their peers to require additional qualifications to gain
workplace recognition and promotion.[111]
Unemployment and barriers to career progression mean career changes
and sideways moves are more likely for disadvantaged groups than
their peers, and the result is an increased need to re-skill.
40. Research is dense with examples of the
scarcity of women, BME groups, and people with disabilities in
top layer, high prestige, highly paid jobs[112]
eg only 9% of directors of the UK's top 100 companies are women.[113]
41. Two recognised pathways for disadvantaged
groups to top layer jobs are mentoring/role models and additional
training/ qualifications.[114]
42. The government has committed to end
the pay gap(s) and workplace inequity for all socio- economic
groups with the progressive and exciting Equality Act. To tackle
inequality, diversity at medium and high level jobs must also
be achieved. However, the ELQ cuts eliminate one of the main accessible
routes to workplace progression and promotion by limiting opportunities
to re-skill and gain additional qualifications. This maintains
economic disadvantage beyond graduate level for disadvantaged
groups, and also reduces roles model and mentoring opportunities.
43. The DIUS proposal to take £100
million from economically disadvantaged graduate groups
and give it to economically disadvantaged non-graduate groups,
undermines the Equality Act and cements the Pay Gap(s).
(iii) ELQ and Women with caring responsibilities
44. At BCSU we believe that bringing up
children is the most valuable contribution to society a person
can make. However, the financial penalties for women who do so
are immense.
45. There has been much concern about the
effects of the ELQ cuts on women returners. In response, Bill
Rammel has stated that there are 47% of women on ELQ courses and
47% of women on non-ELQ courses, and he has implied that there
is not a problem.[115]
This shows a breath-taking lack of understanding of women's lives.
Women's caring status is not usually monitored by college admissions,
but there is every reason to believe that the ELQ and non ELQ
groups are two different cohorts of women.
46. A comprehensive round of research has
converged to agree that women's caring responsibilities are the
major reason for the gender pay gap and related economic disadvantages
eg pensions.[116],
[117],
[118]
47. There seems to be a general assumption
that women returners who need to re-skill are those returning
to the workplace after a number of years, or decades, raising
children. This is an important group. However, BCSU's experience
is that many mothers and carers are forced to re-skill within
roughly two years of childbirth due to the child-unfriendly nature
of their pre-children careers.
48. 30,000 women are forced into resigning,
redundancy, or are sacked due to their pregnancy each year in
GB.[119]
50% of pregnant women face discrimination and disadvantage at
work,[120]
and over 70% keep silent about it.[121]
Unsurprisingly, many women simply do not return to the workplace
at all. Those that do are often forced to change career and re-skill.
These are the types of women we see at BCSU advice centre. We
believe that a lot more women would like to re-skill, and return
to work but lack the appropriate IAG, so we have initiated an
outreach programme aimed at women returners (54-56).
49. 75% of mothers who do return to the
workplace, return as part-time workers[122]
either due to lack of quality childcare or because they want to
spend time looking after their children.
50. Part-time jobs are lower paid than full-time
jobs (on an hourly rate comparison), and top layer jobs are rarely
available part-time.[123]
The Women and Work Commission has found:
"Often they have to change employer and
occupation- and accept lower payto get part-time work.
This means their skills are being underutilised and this represents
lost productivity for the UK economy"[124]
51. Despite the obligation of employers
to consider flexible working patterns for women returners, at
least 1/5 mothers have to completely change careers[125]
and re-skill.
52. We are particularly worried about women
who have children shortly after graduation. These women will not
be protected from the devastating affects of the ELQ cuts even
if the suggestion of an exemption from the ELQ cuts after five
years of study is accepted.
53. Our outreach programme plans to target
mothers in mother/toddler groups (and possibly children's centres)
promoting Birkbeck's accessible admissions policy, evening nursery,
child friendly hours, BCSU's facilities and support eg our family
chill-out room. We also plan to promote family-friendly legislation.
There is a lack of appropriate IAG for women returners. JobCentre
lone parent advisors only see lone parents who don't claim income
support once (even if they are on equivalent low incomes via maintenance
payments). However, despite JobCentres being an excellent resource,
many women returners feel uncomfortable using them, but we feel
Birkbeck is very accessible.
54. Caring for children and/or relatives
is a 24 hour job. It can be both exhausting and time consuming.
Post natal depression may be as widespread as 52%,[126]
and depression is almost endemic amongst carers. These factors
make up-skilling unrealistic. So, we have identified Birkbeck's
practical and inspiring range of certificate and diploma courses
(at all levels of the common awards scheme) as our focus. These
are the courses worse hit by the ELQ cuts, and in the present
uncertainty, we have frozen our outreach.
55. Because the ELQ cuts reduce mothers'
chances to return to the workplace, and consequently maintain
the pay gap, the effect is to undermine the Child Poverty Agenda.
In Inner London, where the cuts will predominate, 51% of children
live below the poverty line, which is double the national rate.[127]
(iv) ELQ and Older Students
56. There is a growing demographic of older
people whose needs must be met.
57. Inadequate pensions and increasing retirement
ages mean older people need to work longer, which necessitates
a disproportionate need to re-skill in this group.
58. The courses that are particularly attractive
to mature and older students will be most vulnerable to closure
under ELQ cut plans. This affects ELQ and first time mature and
older students.
59. Many older graduates and postgraduates
want to continue contributing to society through voluntary work
after retirement. However, they often need to do a relevant course
to make their skills, and knowledge bases, truly transferable
to the voluntary sector. The voluntary sector is dependant on
skilled volunteers, but lacks the funds to pay for the exponential
rises in ELQs proposed. The ELQ cuts wastes the skills of older
volunteers and undermines the voluntary sector.
60. Increased incidence of disability in
older people results in occupational changes, and this leads to
a need to re-skill to avoid substantial drops in income and dependence
on benefits.
61. Depression is compounded with the onset
of many age related problems. Being part of a social network,
and having a sense of purpose and fulfilment are major recognised
ways to combat depression. Return to study has both a preventative
and therapeutic effect on depression. It also gives students access
to counselling, social activities and support available at BCSU.
62. Study and mental activity is thought
to have a preventative (and to some extent) therapeutic effect
on cognitive deterioration associated with age onset problems
such as memory loss and Alzheimer's.
63. The ELQ funding proposals systematically
advantage younger students as opposed to older students, and,
therefore, potentially breach the Equality Act.
64. The wealth of life and workplace experience,
knowledge and historical perspective mean that older students
make an irreplaceable contribution to Birkbeck's seminar groups.
(E) RECOMMENDATIONS
65. That you do not cut ELQ funding.
66. That further consideration is delayed
until completion, publication and public scrutiny of an equality
and diversity impact assessment.
67. We do not accept that targeted grants
will eradicate potential discriminatory outcomes of this policy.
Research and our experience shows that current IAG targeting disadvantaged
groups is inadequate eg the low uptake of tax credits shows that
people often assume that they are not entitled to support. Furthermore,
targeted grants will not support workplace diversity at middle
and top layer jobs.
68. Do not rely on employers to pay for
re-skilling. A major reason students study at Birkbeck is to change
employers. Furthermore, employees will be forced to remain with
employers for the duration of their qualification (eg five years).
69. Shorter courses such as certificates
and diplomas at all levels of the common awards scheme should
be exempt. This would still lead to savings as these courses are
shorter and cheaper. However, these courses almost always do not
include a dissertation or independent research component, which
is often the element resulting in the greatest student development.
A dissertation topic is also often flagged up during job interviews.
70. A proposal to fund ELQ students after
a five year study gap has been mooted, but we think two years
is more realistic, as this would allow graduates to realistically
assess what qualifications they need after a spell on the graduate
job market. It would also support women who have to change occupation
shortly after childbirth.
January 2008
84 Why the Difference? A Closer Look at Higher Education
Minority Ethnic Students and Graduates (2004) Connor, H, Tyers
C, and Modood T, Hillage J. Back
85
"Shaping a Fairer Future", (2005) Women and
Work Commission. Back
86
DTI, 2006. Back
87
Why the Difference? A Closer Look at Higher Education Minority
Ethnic Students and Graduates (2004) Connor, H, Tyers C, and
Modood T, Hillage J. Back
88
eg Why the Difference? A Closer Look at Higher Education Minority
Ethnic Students and Graduates (2004) Connor, H, Tyers C, and
Modood T, Hillage J. Back
89
Lords Education Debate: Adult Learners, 3 Dec 2007. Back
90
Happiness (2006) Layard, R. Back
91
Lords Education Debate: Adult Learners, 3 Dec 2007. Back
92
eg DIUS Select Committee 28 Nov 2007. Back
93
Commons debate on Higher Education 8 Jan 2008. Back
94
Why the Difference? A Closer Look at Higher Education Minority
Ethnic Students and Graduates (2004) Connor, H, Tyers C, and
Modood T, Hillage J. Back
95
Ibid. Back
96
"Shaping a Fairer Future", (2005) Women and Work Commission. Back
97
Ibid. Back
98
"Towards A Fairer Future", (2007) Department for Communities
and Local Government. Back
99
"Shaping a Fairer Future", Women and Work Commission
2005. Back
100
Women in London's Economy, (2005) GLA. Back
101
Equal Pay Act, 1975. Back
102
The Equality Act, "Shaping a Fairer Future', (2005)
Women and Work Commission, "Towards A Fairer Future",
(2007) Department for Communities and Local Government. Back
103
NUS Black Students Campaign. Back
104
NUS Black Students Campaign. Back
105
A Review of Black and Minority Ethnic Participation in Higher
Education (2006) Aim Higher. Back
106
A Review of Black and Minority Ethnic Participation in Higher
Education (2006) Aim Higher. Back
107
Ibid. Back
108
"Shaping a Fairer Future", (2005) Women and
Work Commission. Back
109
eg Why the Difference? A Closer Look at Higher Education Minority
Ethnic Students and Graduates (2004) Connor, H, Tyers C, and
Modood T, Hillage J. Back
110
Money, Money, Money. Is it still a Rich Man's World? (2005)
Fawcett Society. Back
111
Why the Difference? A Closer Look at Higher Education Minority
Ethnic Students and Graduates (2004) Connor, H, Tyers C, and
Modood T, Hillage J. Back
112
Money, Money, Money. Is it still a Rich Man's World? (2005)
Fawcett Society. Back
113
www.fawcettsociety.org.uk Back
114
eg CRE recommendations. Back
115
Commons debate on Higher Education 8 Jan 2008. Back
116
"Towards A Fairer Future", Department for Communities
and Local Government: London 2007. Back
117
Money, Money, Money. Is it still a Rich Man's World? (2005)
Fawcett Society. Back
118
"Shaping a Fairer Future", (2005) Women and
Work Commission. Back
119
Greater Expectations (2005) EOC. Back
120
Ibid. Back
121
Ibid. Back
122
DTI, 2006. Back
123
"Shaping a Fairer Future", (2005) Women and
Work Commission. Back
124
Ibid. Back
125
"Towards A Fairer Future", (2007) Department for Communities
and Local Government: London. Back
126
www.mumsnet.co.uk Back
127
Parents and Work in London (2006) GLA. Back
|