Written evidence submitted by the Universities
and Colleges Admissions Service (UCAS)
1. SUMMARY
1.1 As the UK's higher education admissions service,
UCAS welcomes the opportunity to submit evidence to the inquiry.
Our evidence focuses on a number of issues related to admissions,
particularly issues raised by the Browne Review and subsequent
announcements regarding higher education finance and student support.
Specifically this submission focuses on:
— admissions
to higher education: proposals in the Browne Review for controlling
access to student finance;
— provision
of information, advice and guidance to prospective students;
— demographic
changes, cross-border issues and impacts;
— UCAS
Qualifications Information Review (QIR); and
— UCAS
Admissions Process Review (APR).
2. UCAS
2.1 UCAS is the UK's provider of shared admissions
services for higher education. Our mission is to help applicants
to HE make the right choices for the right reasons with the right
outcomes, and to benefit our members through the provision of
shared services.
2.2 As a charity UCAS provides information, advice
and guidance; course information; entry requirements; and application
services to over 688,000 applicants to 305 universities and colleges
each year. Although this service primarily covers admissions to
full-time undergraduate programmes, UCAS also provides some services
for part-time provision, post-graduate courses, initial teacher
training and a specialist conservatoires admissions service. Other
UCAS activities include:
— publication
of regular data and reports on each application cycle;
— subscriptions
to a variety of analytical services which provide higher education
institutions, schools and colleges with the ability to track applications
effectively in real time, and to understand applicant behaviour
and the HE market;
— contract
and collaborative research, and licensing of data for research
and analysis;
— support
for the introduction of new qualifications;
— training
for schools, colleges and advisers on HE admissions; and
— supplier
of management tools to local authorities to support 14-19 education.
2.3 UCAS works closely with HEIs, schools and
colleges, governments, funding bodies, regulators, qualification
awarding bodies, and others to provide the products and services
needed for effective admissions to higher education across the
UK.
3. ADMISSIONS
TO HIGHER
EDUCATION: PROPOSALS
IN THE
BROWNE REVIEW
FOR USING
THE UCAS TARIFF
TO CONTROL
ACCESS TO
STUDENT FINANCE
3.1 The Browne Review proposed the expansion
of HE provision in England, with this expansion being driven by
student choice. To enable the Government to maintain control over
numbers of entrants to HE—and hence student finance—the
Review proposed that the UCAS Tariff should be used to set a minimum
entry standard to determine entitlement to student finance for
learning and living costs at English institutions.
3.2 UCAS has undertaken analysis work to evaluate
the likely impact on applicants and HE institutions using the
current Tariff as a proxy attainment hurdle. This indicates that
the Browne Review model could disproportionately affect:
— older
applicants;
— those
from areas with lowest HE;
— international;
— applicants
who hold qualifications not currently covered by the applicants
who hold qualifications which attract low Tariff points—ultimately
impacting on WP;
— applicants
whose suitability is determined by additional selection mechanisms
alongside qualification achievements, such as interviews or admissions
tests;
— certain
subject areas that tend to have lower average Tariff entry qualifications
eg creative arts and design, technologies, veterinary science
and related subjects; and
— institutions
that attract applicants with low or no Tariff points. This is
of particular importance given that non-traditional qualifications
are less likely to have been awarded Tariff points.
3.3 The proposal to set a minimum entry Tariff
in January each year would inevitably lead to uncertainties because
many applicants have Tariff-eligible qualification results pending
at that time. For instance, amongst young UK applicants offering
A-levels for entry the large majority (over 80%) are recorded
as having at least one A-level where the result is predicted rather
than known at the January closing date.
3.4 UCAS has briefed BIS on this analysis and
the potential risks associated with adopting this approach.
3.5 Any proposal to use the UCAS Tariff or a
sub-set of qualifications held by applicants in order to manage
student numbers or access to student finance will necessarily
face similar difficulties. It should also be noted that the current
Tariff methodology was designed over a decade ago to meet the
needs of a much simpler qualifications environment. As such, UCAS
is currently undertaking a review to understand better the needs
that HE providers and learners have for qualifications information
and how these needs can be addressed in an effective and efficient
manner (see section on the Qualifications Information Review below).
4. PROVISION
OF INFORMATION,
ADVICE AND
GUIDANCE TO
PROSPECTIVE STUDENTS
4.1 Providing prospective students with clear,
effective, and timely information, advice and guidance (IAG) is
at the heart of UCAS's mission to help those applying to higher
education to make appropriate choices about what, where and how
to study ie making the right choices, for the right reasons with
the right outcomes.
4.2 As such UCAS provides IAG to learners through
its web services, publications and training for schools, colleges
and advisers on HE admissions eg UCAS Course Search, providing
data for Unistats, and schools conventions. We are working with
HEFCE host the new Key Information Set of data which all HE providers
will need to make available to applicants, and we are developing
a range of improved IAG services, including a "Preparing
the Professional" scheme, which aim to give many more school
liaison officers and outreach officers access to accurate, up-to-date
information on HE entry. UCAS is also working with a number of
partners to explore how more data and information, particularly
about qualifications, can be made available to potential applicants.
4.3 UCAS believes that it is desirable that learners
applying to UK universities and colleges should have access to
the full range of study options when considering which courses
and institutions best meet their needs. Financial considerations
are important part of this decision-making process and it essential
that all applicants understand the financial commitments they
are making before submitting their UCAS applications.
4.4 For entry in 2012 the picture is complicated
by changes in HE funding and student support arrangements in England,
Scotland, Wales and Northern Ireland. This is discussed below.
4.5 For the vast majority of prospective students
UCAS is a first point of call for information about higher education
courses and fees. We are conscious that young learners typically
start discussing their HE choices with teachers and advisers towards
the end of Year 12 and would like to be able to provide young
learners with information about course fees they break up for
the summer. The 2011 end of term dates are 1 July in Scotland
and Northern Ireland and 22 July in England and Wales.
4.6 We are therefore working closely with schools,
advisers, institutions, and OFFA to manage expectations about
when fees information will be available in the UCAS Course Search.
It is our aim to release verified fees information on a single
day in July. We are plan to do this on the same day that OFFA
publishes the approved access agreements, or as close to this
date as is feasible. Our decision to publish information on a
single day comes in response to advice from the NUS and SPA, and
they have welcomed our approach. We are also working closely with
the governments and funding bodies in Scotland, Wales and Northern
Ireland to ensure that we are also able to provide fees information
from institutions across the UK at the same time.
4.7 It will be essential that fees information
is available before younger learners return to school or college
in August or September. Applicants will be able to submit their
applications from September 2011. The UCAS deadline for applications
for medicine, dentistry and veterinary science courses, as well
as for applications to the Universities of Oxford and Cambridge,
is 15 October 2011. The UCAS deadline for the majority of other
courses is 15 January 2012.
4.8 UCAS has constructed a comprehensive communications
plan in order to ensure that relevant and accurate information
is communicated to the relevant individuals and stakeholders at
the appropriate time. The purpose of this plan is to ensure that
any confusion or mismanagement regarding fee information is avoided.
5. DEMOGRAPHIC
CHANGES, CROSS
BORDER ISSUES
AND IMPACTS
5.1 The average age of UK domiciled UCAS applicants
increased over the last five years from 20.75 on 2006 to 21.30
in 2010 (Appendix 1, Figure 1). Whilst the majority of UCAS applicants
are 20 years and under (77.75% in 2010), this is an important
trend. Furthermore, given the projected decline of 18-20 year
olds within the UK population statistics analysed by UUK[161]
suggest that the number of UCAS applicants between the ages of
18 and 20 will decrease to its lowest point in 2020 with a 14.5%
change from 2009 to 2020.
5.2 The increasing average age of UCAS applicants
and the future decline of the number of 18-20 year olds in the
UK population are combining to suggest that the proportion of
HE applicants aged 20 years or under will decrease. (See Appendix
1, Tables 1 and 2). UCAS and other parts of the HE sector are
therefore increasingly focusing their information, advice and
guidance at more mature applicants.
5.3 Applications to HE for entry in 2012 and
applicant behaviour are likely to be affected by changes in HE
funding and student support arrangements in England, Scotland,
Wales and Northern Ireland:
— The
Westminster government has decided to enable institutions in England
to charge up to £6,000 per annum for their courses and in
exceptional circumstances up to £9,000 subject to meeting
new criteria on access.
— The
Welsh Assembly Government has indicated that Welsh institutions
may increase tuition fees in line with English ones, but that
the Assembly will pay the difference between the tuition fee charged
by institution and the current maximum tuition fee for Welsh-domiciled
students studying at English or Welsh institutions (£3,375
at current prices). The same subsidy will also apply to EU students
studying at Welsh institutions. Welsh institutions wishing to
charge more than £4,000 will need to produce a fee agreement
for approval by HEFCW showing a commitment to WP and strategic
initiatives in Wales.
— Whilst
HE funding and student support provisions are clear for English
and Welsh institutions, there remains a lack of clarity in relation
to Scotland and Northern Ireland with fee levels likely to be
affected by the outcomes of elections on 5 May 2011.
5.4 Any early changes in behaviour detected from
UCAS data is a significant decrease in the number of individuals
applying to HE in 2011 who are requesting deferred entry to 2012
(Appendix 1, Figure 1). This will in part be due to institutions
accepting fewer deferred students in light of uncertainties around
funding.
5.5 Table 3 (Appendix 1) shows where accepted
applicants from different domiciles have chosen to study in the
UK. This shows, for example, that in 2010 34% of Welsh domiciled
students, 6% of Scottish domiciled students, and 25% of Northern
Irish students chose to study in the England. Increasing differentiation
in tuition fees and student support arrangements are likely to
impact upon cross-border flows of students, particularly where
these arrangements favour home domiciled students over and above
those resident in other parts of the UK. It will be important
for policy makers to take a holistic view of any changes.
6. ADMISSIONS
PROCESS REVIEW
(APR)
6.1 The admission process for people entering
higher education has not changed significantly since its introduction
over 50 years ago. At this point the number of applications was
much lower and a lower percentage of applicants were successful.
Since then, there has been a significant expansion of higher education
both in term of volume and diversity, though the operating rules
and timescales have remained broadly unchanged over this time
period.
6.2 Recent analysis by UCAS has shown that, on
average, over 20 transactions are undertaken by an admissions
office to result in one successful applicant. There are also indications
that applicants are not using their choices wisely or are facing
issues associated with the admissions process.
6.3 Higher and further education is now facing
a period of major change. The admissions system needs to reflect
this and support members going forward by generating improved
efficiencies in the admissions process, while retaining fairness
of access for applicants. In light of this, UCAS has commenced
an admissions process review that will map future models of admissions
that could deliver improved efficiencies for members, increase
certainty for applicants, better services and outcomes for applicants
and an improved student experience. The review will consider synergies
with student finance applications and the possibility of extending
UCAS members outside of the UK.
6.4 The objectives of the review will be to:
— develop
a flexible, responsive and cost-effective system that can accommodate
a wide range of admissions models;
— design
a system that is tailored to institutional requirements in a way
which is efficient for UCAS and its members; and
— support
choice, fair access, social mobility and widening participation.
6.5 The Admissions Process Review will be given
strategic direction by a steering group which will be led by UCAS
board member and Deputy Vice-Chancellor of Keele University Rama
Thirunamachandran. It is currently scheduled to complete its initial
investigation by autumn 2011.
7. QUALIFICATIONS
INFORMATION REVIEW
(QIR)
7.1 The UCAS Tariff was introduced in 2001 with
the purpose of allowing comparison across different kinds of qualifications.
Since 2001 the range of qualifications available to learners at
Level 3 has increased significantly and the original Tariff mechanism
is less effective in supporting comparisons across an increasingly
complex qualifications landscape.
7.2 In order to keep pace with the changing nature
of the qualifications environment and to ensure that UCAS best
supports the needs of its members, a review of Qualifications
Information is being undertaken by UCAS. The Qualifications Information
Review aims to understand more about current use of the Tariff
and the wider qualifications information requirements of HEIs
and other stakeholders involved in HEI admissions, including awarding
organisations, schools and colleges, regulatory bodies, and HE
applicants.
7.3 The Qualifications Information Review is
currently gathering evidence from a range of stakeholders through
a series of consultation events. This contextual understanding
and rich evidence base about the qualifications information needs
of the sector will be used to outline a series of proposals for
a new or improved system. The review is being led by a steering
group chaired by Professor Neil Gorman, the Vice Chancellor of
Nottingham Trent University, and will report in June 2011.
10 March 2011
APPENDIX
Table 1
THE LEARNER PROFILE BY AGE OF UK DOMICILED
APPLICANTS FOR 2010
| | Country of residence
|
| England
| Wales |
Scotland |
Northern Ireland
|
| 20 years and under | 280,063 |
77.75% | 14,488 | 77.60%
| 23,180 | 71.88% | 11,246
| 83.26% |
| 21 to 24 years | 37,862 | 10.51%
| 2,013 | 10.78% | 3,942
| 12.22% | 1,368 | 10.13%
|
| 25 years and over | 42,283 |
11.74% | 2,170 | 11.62%
| 5,126 | 15.90% | 893
| 6.61% |
| Total | 360,208 |
| 18,671 | | 32,248
| | 13,507 |
|
Table 2
ACCEPTED APPLICANTS BY AGE GROUP AND UK COUNTRY OF RESIDENCE
(UK DOMICILE ONLY)
| Country of residence
| |
| England |
Wales | Scotland |
Northern Ireland | Total
|
| 20 years and under | 2010 |
280,063 | 14,488 | 23,180
| 11,246 | 328,977 |
| 2009 | 276,907
| 15,331 | 22,917 | 11,619
| 326,774 |
| 21 to 24 years | 2010 | 37,862
| 2,013 | 3,942 | 1,368
| 45,185 |
| 2009 | 39,185
| 2,261 | 3,863 | 1,273
| 46,582 |
| 25 years and over | 2010 |
42,283 | 2,170 | 5,126
| 893 | 50,472 |
| 2009 | 44,144
| 2,604 | 4,250 | 709
| 51,707 |
| Total | 2010 | 360,208
| 18,671 | 32,248 | 13,507
| 424,634 |
| 2009 | 360,236
| 20,196 | 31,030 | 13,601
| 425,063 |
Table 3
ACCEPTED APPLICANTS (ALL DOMICILES) BY AREA OF PERMANENT
RESIDENCE AND COUNTRY OF ACCEPTING INSTITUTION
| Area of Permanent Residence
| Country of institution
|
| England
| Wales | Scotland
| Northern Ireland | Total
|
| England | 2010 | 345,966
| 96.1% | 10,469 | 2.9%
| 3,547 | 1.0% | 226
| 0.1% | 360,208 |
| 2009 | 345,517
| 95.9% | 9,698 | 2.7%
| 4,747 | 1.3% | 274
| 0.1% | 360,236 |
| Wales | 2010 | 6,393
| 34.2% | 12,178 | 65.2%
| 92 | 0.5% | 8
| 0.0% | 18,671 |
| 2009 | 5,679
| 28.1% | 14,373 | 71.2%
| 131 | 0.7% | 13
| 0.1% | 20,196 |
| Scotland | 2010 | 1,792
| 5.6% | 55 | 0.2%
| 30,379 | 94.2% | 22
| 0.1% | 32,248 |
| 2009 | 1,716
| 5.5% | 52 | 0.2%
| 29,244 | 94.2% | 18
| 0.1% | 31,030 |
| Northern Ireland | 2010 | 3,430
| 25.4% | 169 | 1.3%
| 1,076 | 8.0% | 8,832
| 65.4% | 13,507 |
| 2009 | 3,117
| 22.9% | 117 | 0.9%
| 1,071 | 7.9% | 9,296
| 68.4% | 13,601 |
| Ireland | 2010 | 1,591
| 53.2% | 237 | 7.9%
| 650 | 21.7% | 514
| 17.2% | 2,992 |
| 2009 | 1,373
| 48.6% | 250 | 8.9%
| 756 | 26.8% | 444
| 15.7% | 2,823 |
| Other EU | 2010 | 18,403
| 81.4% | 807 | 3.6%
| 3,365 | 14.9% | 40
| 0.2% | 22,615 |
| 2009 | 16,391
| 78.1% | 828 | 4.0%
| 3,745 | 17.9% | 20
| 0.1% | 20,984 |
| Non EU | 2010 | 32,524
| 87.7% | 1,247 | 3.4%
| 3,208 | 8.7% | 109
| 0.3% | 37,088 |
| 2009 | 28,431
| 86.2% | 1,103 | 3.3%
| 3,363 | 10.2% | 87
| 0.3% | 32,984 |
| Total | 2010 | 410,099
| 84.2% | 25,162 | 5.2%
| 42,317 | 8.7% | 9,751
| 2.0% | 487,329 |
| 2009 | 402,224
| 83.5% | 26,421 | 5.5%
| 43,057 | 8.9% | 10,152
| 2.1% | 481,854 |
161
Universities UK (2008) Research report: The future size and shape
of the HE sector in the UK: Demographic projections. Back
|
