Written evidence submitted by University
of Cambridge ESOL Examinations (SV19)
EXECUTIVE SUMMARY
1. University of Cambridge ESOL Examinations
(Cambridge ESOL) recommends that in looking at the impact of the
proposed restrictions on Tier 4 migration, the Select Committee
also needs to question the actual quality of the assessment instruments
used to regulate the scheme. This applies particularly to the
proposals in the current Home Office consultation to introduce
tougher entry criteria for students. We believe it is possible
to have a secure student immigration system if it is based on
a qualifications system which to ensures security, fairness, reliability,
and where the tests are fit for purpose. By ensuring that the
system abides by such criteria, it is possible to achieve a robust
and rigorous system, without taking further measures which are
likely to have a detrimental impact on the UK education industry.
RESPONSE
2. Cambridge ESOL is one of the three examination
boards which make up Cambridge Assessment, the University of Cambridge's
International Examinations Group. Cambridge ESOL examinations
are the world's leading qualifications for learners and teachers
of English. Each year over 3 million people in 135 countries take
our examinations. More than 11,500 of universities, employers
and governments rely on Cambridge ESOL certificates as proof of
English language ability. In the UK, we have more than 350 examination
centres, with over 300,000 candidates a year. We produce and deliver
high-quality, flexible and secure English language assessments
for high and low level speakers, geared to the requirements of
the Points Based System.
3. Our experience includes working closely with
the Department of Immigration and Citizenship (DIAC) in
Australia. Cambridge ESOL examinations and IELTS (the International
English Language Testing System) are designed to meet these
requirements. The case for a constructive, supportive yet
well regulated student visa system is well demonstrated in
the success which Australia has achieved, retaining a well
recognised control of its borders while still benefiting
from 18% growth in English language student numbers
in 2007-08.
4. We support the view that overseas students
are vitally important to language schools, colleges and universities
in the UK. As well as the financial contribution they make, they
bring cultural diversity and a wealth of different experiences
that enrich education in this country. Their experiences here
enhance our reputation worldwide and many of them go on to leading
roles in business, education or government, taking with them a
positive view of the UK.
5. Cambridge ESOL is committed to making a positive
contribution to a fair, effective system for managing student
migration so that bona fide students are able to gain visas while
bogus applicants are excluded. We fully support the idea of a
Tier 4 which is rigorously monitored and controlled and prevents
people coming to live and work in the UK by pretending to be students,
but which does not discriminate against legitimate students and
allows the UK to benefit from the global industry in international
education.
6. Whilst we welcome the Committee's inquiry
into the impact of the Government's proposed restrictions on Tier
4 migration, we would suggest that before looking at the impact,
the Select Committee also needs to ask the Government about the
actual quality of the restrictions themselves. This applies particularly
to the proposals in the current Home Office consultation to introduce
tougher entry criteria for students.
7. We believe it is possible to have a secure
student immigration system if it is based on a qualifications
system which is designed to ensure security, fairness, reliability,
and where the tests are fit for purpose. By ensuring that the
system abides by such criteria, it is possible to achieve a robust
and rigorous system for monitoring immigrants on student visas,
without taking measures which are likely to have a detrimental
impact on an industry which contributes considerable value to
the UK economy.
8. These potentially detrimental measures include
current proposals to raise the minimum level of qualification
that can be studied under Tier 4, and to place limits on the progression
of students on courses up the qualifications scale without returning
to their home countries. We question whether either will tighten
up the Tier 4 route. For example, in the latter case, if students
admitted initially have already been processed through a secure
route, the measure will not tighten up the route in terms of preventing
the entry of bogus students, but would have a negative impact
on the UK education industry.
9. Current proposals also introduce tougher entry
criteria for students, requiring that all Tier 4 students should
be competent at B2 standard of the Common European Framework of
Reference for languages (CEFR). However, focusing on the level
of qualification that students entering through the Tier 4 route
need to hold will not necessarily bring about the introduction
of a fair and effective system. In fact, the important question
is not so much the level at which the qualification required for
entry should be set, but more the criteria introduced to ensure
that students are sitting the right, secure tests. With the right,
secure test students at different levels could enter the UK with
identity, country of origin and school attendance securely recorded.
It is vital that in order to introduce a secure system which is
also fair to legitimate students, the Home Office ensures only
tried and tested qualifications with high levels of security and
quality control are recognised for this purpose.
10. We outline below the criteria which we think
any proposals on language testing for entry into the UK need to
include:
- Security: Any test recognised for immigration
purposes needs to be delivered through a secure network of examination
centres, subject to extensive quality control procedures and backed
by proven systems to detect and manage malpractice. A robust system
must be in place to confirm candidates' identities and to allow
immigration authorities to verify the results quickly and easily.
We are well known for the rigorous supervision of our centres,
and we have already provided advice to the UKBA on the potential
for breaches of exam security.
- Reliability: Tests must be demonstrably reliable
and backed by evidence that they accurately assess language skills
at the appropriate level and
are consistent over time, regardless of where and when they are
taken. Cambridge ESOL's uniquely rigorous approach to the quality,
validity and reliability of its exams is publicly documented in
the publication Principles of Good Practice:
quality management and validation in language assessment.
- Fairness: A fair test is one in which the ability
being tested is the primary focus and where all irrelevant barriers
to candidate performance have
been removed. So, for example, in terms of test delivery, as students
will be required to demonstrate their skills before they arrive
in the UK, tests must be available worldwide and throughout the
year.
- Fitness for purpose: Tests need to be based on
communication skills, rather than abstract knowledge of language,
to ensure that the skills they
cover are relevant to the contexts in which the student will need
to use them. Applicants need access to a range of qualifications
so that they are able to select one that closely matches their
own needs and that of the institutions where they will be studying
or working.
January 2011
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