6 Opening up education: innovative
teaching and learning through new technologies
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14116/13
+ ADD 1
COM(13) 654
| Commission Communication: Opening up Education: Innovative teaching and learning for all through new Technologies and Open Educational Resources
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| Legal base | Article 209 TFEU;
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| Document originated | 25 September 2013
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| Deposited in Parliament | 30 September 2013
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| Department | Business, Innovation and Skills
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| Basis of consideration | EM of 11 October 2013
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| Previous Committee Report | None; but see (35199) 12453/13: HC 83-xiii (2013-14), chapter 36 (4 September 2013)
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| Discussion in Council | November 2013
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| Committee's assessment | Politically important
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| Committee's decision | Not cleared; further information requested
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Background
6.1 Education and vocational training are policy areas in
which the EU has a limited competence to "support, coordinate
or supplement" the actions of Member States.[31]
Articles 165 and 166 TFEU foresee a role for the EU in encouraging
cooperation between Member States and supporting and supplementing
their actions, with a view to developing "quality education"
and vocational training policies. The types of action envisaged
at EU level include promoting language and distance learning,
mobility, the recognition of academic qualifications, and the
exchange of information on issues common to Member States' education
and vocational training systems, with a particular emphasis on
vocational training as a means of adapting to changing labour
market needs. Action at EU level is limited to the adoption of
"incentive measures" and non-binding policy recommendations
and must respect Member States' responsibility for the content
of teaching and organisation of their education and vocational
training systems.
6.2 In its most recent Communication in this
area, "European higher education in the world"
of 11 July 2013, the Commission considered the changing landscape
for European higher education institutions and the challenges
and opportunities they face as a result of burgeoning student
numbers in countries such as China, Brazil and India, increasing
mobility, and the emergence of digital learning. It noted that
global demand for higher education was expected to grow exponentially,
with the current worldwide student population expanding from 99
million today to 414 million by 2030, with most of this growth
being in emerging economies. It is considered in depth in the
Report of our meeting on 4 September 2013.[32]
Our assessment
6.3 We noted that the Government broadly endorsed
the Commission's analysis of the challenges and opportunities
which the rapid growth in student numbers, increasing mobility
and the emergence of new digital technologies present for higher
education institutions in the EU. We considered that the Commission's
recognition that a "one-size-fits-all" approach is impracticable,
given the diversity that exists within the higher education sector
in Europe, was important.
6.4 We agreed that the Government was right to
emphasise the need for EU action to complement, not duplicate,
the efforts of Member States and to respect the institutional
autonomy of higher education providers.
6.5 Whilst clearing the Communication from scrutiny,
we also drew it to the attention of the Business, Innovation and
Skills Committee because it addressed issues that were likely
to be of particular significance to the UK higher education sector
in developing its international profile and reach.[33]
The Commission Communication
6.6 The previous Communication stated that the
Commission would propose a new initiative for the promotion of
digital learning and better use of Information and Communication
Technology (ICT) and Open Educational Resources (OER)[34]
in education in the autumn of 2013. This Communication outlines
that initiative.
6.7 The Communication considers how education
in the EU might be stimulated into adopting and adapting these
technologies in order to help achieve wider EU objectives, notably
increased competitiveness, a more skilled workforce and increased
employment. It expresses some concern that the EU is at risk of
falling behind other key competitors — particularly the
USA and some Asian economies — who are already using ICT
to transform their education systems.
6.8 The Commission identifies three main areas
where the impact of technology on EU education needs to be considered:
— Technology
as a disruptive innovation that affects both teachers and learners;
— OER: how to ensure EU content is accessible
for all; and
— Infrastructure: the need for the underlying
infrastructure to support the development of these technologies.
6.9 The Commission calls for an integrated approach
by Member States in tackling these issues. It does not propose
legislation, nor make any definite recommendation for specific
action by Member States at this stage.
6.10 In his Explanatory Memorandum of 11 October
2013, the Minister for Universities and Science at the Department
for Business, Innovation and Skills (Mr David Willetts) highlights
the following aspects of the Communication thus:
"Technology:
The emergence of OER and new forms of distance learning provision
has started to disrupt the traditional model of education provision,
most notably in higher education. Taken to the ultimate, new technology
allied with OER, offers the prospect of allowing anyone access
to education, anytime, anywhere and on any device. This access
can be provided at scale.
"This
is in marked contrast to the traditional model where learners
were expected to physically attend an establishment, at set times
and were taught via a set curriculum. Historically, numbers accessing
education were limited with criteria set by academic qualifications
(and often financial means). In the UK, OER and mass distance
learning has had a more limited impact to date than in the US
where uptake has been in part driven by the high cost of a US
college education. Also in the UK it has been the Government's
action in restricting numbers entering HE to limit the cost to
the taxpayer, rather than the cost to the student.
"These new models
offer a far more flexible and far more inclusive form of education
provision. At the same time, use of sophisticated education analytics
can produce a more personalised learning experience for the individual.
"The most prominent
application of new technology has been the Massive Open Online
Course (MOOC). These allow anyone with access to the internet
the ability to study a range of courses for free. To date these
have been mainly HE in content and style but their potential use
is far wider (in FE, vocational training and skills). The three
main MOOC providers are US based.
"The use of ICT in
teaching is highlighted as of concern, both in terms of how it
is used and the ability of teachers to use technology. The latter
is part of the broader digital skills issue with significant numbers
lacking basic digital skills or access to ICT.
"So far validation
of on-line courses has been limited. Such courses typically provide
learners with an open badge "completion certificate"
however these are not validated or accredited by the course provider;
equally qualification bodies and employers do not recognise them.
"OER are becoming more widespread and
are now often of high quality. They offer the opportunity for
both teachers and learners and can be used to provide blended
learning as well as face to face or online. They have the potential
to significantly reduce costs.
"Although OER have
grown massively in terms of number and variety of subject, they
are typically HE orientated and in English. Technical (ie ICT)
subjects dominate. The Communication calls for a wider variety
of languages and subjects but does highlight two specific issues
hindering further OER development within the EU. One area is value
added tax (whereby online educational textbooks attract a higher
VAT rate than physical textbooks. The other is the issue of copyright.
The current EU copyright framework does contain exemptions for
teaching material but copyright is a complex area. A concern is
whether the Framework offers sufficient transparency and legal
certainty for the user.
"Infrastructure — broadband
is now an essential part of education. The Communication notes
the wide range in broadband availability both at home and in the
classroom across Member States. Alongside broadband, interoperability
and open standards are needed to allow different devices and different
software to communicate effectively with each other.
"There is a massive
market within the EU and world-wide for educational software,
applications and technology. The potential for this will be enhanced
if broadband and interoperability expand this market, maximising
demand and allowing the greatest economies of scale."
6.11 With regard to the question of Subsidiarity,
the Minister notes that Articles 165 and 166 TFEU state that the
Union and the Member States shall foster cooperation with third
countries and the competent international organisations respectively
in the sphere of education and sport (Article 165 (3)) and vocational
training (Article 166 (3)), going on to state that:
"The Government accepts that such a coordinating
role for the EU in education can be useful to Member States. The
Government further notes that education is a devolved matter not
only in the UK but in a number of other Member States, and it
is important that the Commission takes account of this in any
proposals it puts forward."
6.12 With regard to the Interest of the Devolved
Administrations, the Minister says:
"Education is a devolved matter under the UK's
devolution settlements although telecommunications (including
broadband) is not. Notwithstanding, the Scottish Government is
implementing a distinctive digital strategy that will promote
sustainable economic growth, which is a devolved matter. Scottish
Government Ministers, Welsh Government Ministers and Northern
Ireland Executive Ministers all have an interest in education
and the devolved administrations have been consulted in the preparation
of this EM."
The Government's view
6.13 The Minister of State for Universities
and Science (Mr David Willets) describes the Communication as
"a general picture of how technology is affecting teaching
and learning across the EU" that both highlights a number
of areas where particular issues are specific problems for one
or more Member States and suggests some possible courses of action,
falling either to the Commission or Member States . He says that
"[w]hile these actions are reasonable, for the UK they represent
areas where work is already being carried out or indeed where
no action is necessary."
6.14 The Minister then comments in detail as
follows:
"It should be noted that this is an extremely
fast-moving area. New technologies and new educational applications
are being developed apace. While there is a lag between development
and adoption, there is no evidence that the education market is
not reacting.
"A one-size-fits-all strategy is not appropriate.
Rather than the Commission trying to identify cross-the-board
actions or proposals, it seems clear that for the most part it
is for Member States to identify the particular issues which apply
to their circumstances and to develop and implement national solutions.
"The exception would be where an issue relates
to European legislation. We note that one area of concern might
be copyright. However, this is the subject of a separate Commission
review and, if a legislative proposal were to emerge in due course,
it would be subject to scrutiny in the normal way.
"TECHNOLOGY/OER
"UK institutions are already at the forefront
of digital education in Europe. The launch of the FutureLearn
platform in September 2013 was the first major MOOC development
outside of the USA. To date some 24 UK universities have joined
FutureLearn as well as the British Library, British Museum and
British Council, plus Trinity College Dublin, Monash (Australia)
and Auckland (New Zealand). The first courses "go live"
in October and FutureLearn has registrations from over 190 countries.
This is in addition to a number of smaller MOOC initiatives. We
note that France is also about to launch their own MOOC platform.
"In terms of European Commission activity, we
welcome the support which is to be provided in this area through
Erasmus+ and Horizon 2020 as a means of complementing the activity
already under way at national level. In particular, research for
evidence-based policy is an area where the European Union can
provide added value by helping Member States and higher education
institutions to understand the challenges and opportunities posed
by digital innovation in a longer-term, strategic and cross-border
context. Through providing Erasmus+ and Horizon 2020 funding the
Commission can also encourage relevant research to be undertaken
at an institutional level, as well as to facilitate the exchange
of best practice and effective resources and the development of
appropriate validation and recognition tools, as the digital agenda
evolves.
"Currently, digital education is at such an
early stage of development and that it is not yet clear in which
areas additional European-level activity will be most useful —
consequently the European Commission must remain flexible in its
responses to developments. For that reason we do not think the
EU should attempt to set up any EU wide quality assurance initiatives
for OERs. To do so could hamper development and discourage institutions
from making content freely available.
"Within the UK Jisc,[35]
along with the JANET computer network[36]
(see below), provides ICT services and support for all HE and
FE establishments. Jisc (a private limited company and charity)
develops ICT solutions and resources for the education sector
as well as making a mass of OER material available http://www.jisc.ac.uk/content.
"Similarly the UK's Research Councils take the
issue of OER very seriously and make the outputs of their activity
as open as possible http://www.rcuk.ac.uk/research/Pages/outputs.aspx
"DIGITAL SKILLS
"The UK is addressing the subject of digital
skills through a multi-strand approach.
"In schools a new more ambitious and rigorous
computing curriculum is being developed. Its aim is to not only
prepare pupils to apply existing digital technologies confidently
in further study and employment, but to provide them with the
fundamental knowledge and skills needed to create new digital
technology products.
"In the community the Government supports a
range of initiatives to target the different facets of digital
exclusion. One strand is lead by Go On UK, the UK's Digital Skills
Alliance, a unique cross-sector partnership, have committed to
reaching those who do not have the basic skills and knowledge
to operate online. The Government also supports the UK Online
Centre network run by the Tinder Foundation. This is comprised
of 3,800 community partners who support people to get online and
become confident users of computers and the internet. This can
enable them to progress on to further learning, employment and
active citizenship. Over 1.25m people have so far been helped.
"In order to help UK SME s make the most of
the opportunities of being online, industry, in partnership with
Government and Go On, launched a programme this October to reach
1.6m businesses over the next five years. Its aim is to equip
UK SMEs with the digital skills they need to transact online.
"The Government has also promoted the creation
of the Further Education Learning Technology Action Group (FELTAG)
to facilitate better understanding and uptake of education technologies
in the further education and skills sector.
"The Communication calls for efforts to promote
networks of volunteer teachers and digital communities to help
the uptake of digital skills. This is the model which the UK has
already adopted. The main provider for basic digital skills training
is the Tinder Foundation — a staff-owned, not-for- profit,
mutual and social enterprise. It coordinates and supports a network
of 5,000 local UK online centre partners, the majority of which
are run by volunteers.
"ACCREDITATION
"Although the majority of MOOCs are currently
not credit bearing, UK higher education institutions involved
in their development use established procedures for academic planning
and quality control of the development of course materials, with
a focus on learning outcomes. The awarding of academic credit
is the responsibility of individual, autonomous institutions,
with recourse to national credit frameworks and guidance
included in the Quality Assurance Agency's UK Quality Code. The Agency
is engaging the higher education sector in debate about quality
and standards in the development of MOOCs, including the recognition
of achievement through formal assessment processes.
"It is worth noting that the recent BIS literature
review "the Maturing of the MOOC" found learners currently
attached a relatively low importance to the issue of accreditation.
"It is not clear what role the EC will play
in relation to teachers' professional development through open
online courses. More details need to be supplied in order for
the appropriateness of this activity to be assessed. This recommendation
is of some concern when read in conjunction with the High Level
Group on the Modernisation of Higher Education's recommendations
on Teaching and Learning, which stipulate that all staff teaching
in higher education institutions by 2020 should have received
certified pedagogical training. It is important in this
context to recognise that voluntary frameworks, including but
not limited to the Higher Education Academy's UK Professional
Standards Framework (PSF) and optional accreditation service,
are already in place in the UK and that no European level counterpart
is deemed necessary.
"SCHOOLS
"The actions for Member States for schools are
reasonable, but they are obvious and we would resist future Conclusions
drafted in this area that specify what Member States should to
do. We believe that EU level activity needs to concentrate on
where it can add value, for example through the use of the education
programmes and associated funding. EU activity should also give
Member States examples of what is working, and what is possible,
and let them decide how to use that information.
"COPYRIGHT
"The Communication calls for more OER to be
made available. As noted the FutureLearn platform will make quality
MOOCs freely available and both Jisc and the Research Council
already provide OER. There are also a number of open access courses
providing OER (e.g.) the Open Media project at Coventry University,
the Open University's various collaborations with the BBC. We
note that the Commission is itself reviewing the EU Copyright
Framework to establish whether this provides sufficient transparency
and legal certainty for users. If a legislative proposal were
to emerge in due course, it would be subject to scrutiny in the
normal way.
"Certain uses of copyright works for education
have long been permitted in UK copyright law, but current provisions
can lead to obstacles in the modern teaching environment. The
UK Government aims to extend and clarify authorised uses for copyright
material, including digital uses via electronic networks. This
would reduce the cost and complexity associated with using copyright
materials for education.
"The Government's proposals are intended to
introduce greater transparency and legal certainty for both users
and authors, and these marry with the Commission's suggestions.
Educational establishments will be able to make use of a greater
range copyright material with a reduced administrative burden,
without adversely affecting licensing revenues for rights holders.
"VAT
"This Communication highlights VAT rates, including
those for digital and physical text books, and refers to the EU
Commission's review of VAT rates as set out in its Communication
on the Future of VAT (EM reference 18288/11). In that
Communication, the Commission indicated that it would undertake
a review of the current EU VAT rates structure with a view to
producing a legislative proposal by the end of 2013. The Commission
is still undertaking that review and at this stage it is unclear
what the outcome will be. If a legislative proposal were
to emerge in due course, it would be subject to scrutiny in the
normal way.
"The UK currently applies a zero-rate to physical
books, as allowed under the terms of our accession agreement,
and the standard rate to e-books, as required under existing EU
VAT law.
"BROADBAND INFRASTRUCTURE
"The UK is well-served by broadband. 99.1% of
the UK has 3G mobile coverage (from at least one mobile operator);
some 94% has ADSL broadband while around 73% of the UK premises
are served by superfast broadband. In addition 4G roll-out continues
apace. Notwithstanding, there are significant regional variations,
for example, even after substantial public subsidy in Scotland,
16% of premises in the Highlands and Islands will remain beyond
the reach of next generation broadband. And even though mobile
operators are meeting their current 3G coverage obligations of
95% of the UK population, rural coverage is still poor and is
as low as 91% in parts of rural Scotland.
"In terms of individual take-up, some 20% of
the UK population do not have broadband at home. However, for
most of the have-nots, it is a matter of personal choice not to
have internet access with only 6% wanting access but not able
to.
"Further enhancement continues. The Government
set itself the target of seeing a transformation of broadband
services by 2015. The private sector will deliver superfast broadband
to two-thirds of the country, including through the roll-out by
BT of its superfast broadband network and through Virgin Media's
footprint. BT has brought forward the target for completion of
its network from 2015 to 2014.
"To help achieve this, the Government has allocated
£530m to support broadband roll-out in the largely non-urban
areas that would not otherwise be commercially viable to the private
sector. Together with local match funding (including from European
programmes) the available funding is expected to be sufficient
for superfast broadband to be extended to 90% of premises and
to ensure universal availability of standard broadband. The Government
also announced in June that it would investing further; up to
£250 million, locally match-funding, would be invested to
extend superfast broadband provision from current coverage plans,
so that 95% of UK premises will have access to superfast broadband
by 2017 and that it would be exploring with industry how to expand
coverage further, using more innovative fixed, wireless and mobile
broadband solutions, to reach at least 99% of premises in the
UK by 2018.
"The Government has a project to improve
mobile coverage across the UK and appointed communication infrastructure
and media services company Arqiva to deliver the £150m Mobile
Infrastructure Project (MIP).
"For schools broadband provision is an individual
matter, and, although all schools have internet access, budgets
for ICT are delegated to individual schools. It is up to each
school to determine the amount of bandwidth required and how ICT
is deployed. The position is different at HE and FE where the
demand for access and bandwidth is far higher and co-ordinated
via JANET operated by Jisc.
"JANET provides all of the UK's HE and FE colleges
with broadband connections and ICT support. In 2012 BIS established
a £145m programme to develop a coherent infrastructure for
the UK's education and research sectors. Of this some £26m
was directed at upgrading the JANET network for provide a core
backbone fibre network linking the 18 regional networks serving
universities and colleges across the UK. By 2018, JANET will have
a backbone capacity of 8,000 GBit/s."
6.15 With regard to the possible Financial
Implications of the Communication, the Minister says the UK
is already active in the areas highlighted by the recommendations
and actions in this Communication and there does not appear that
any additional action or expenditure would result other than planned.
6.16 Finally, the Minister notes that Education
and the Information Economy formed two separate strategies published
in 2013 under the wider umbrella of the Government's Industrial
Strategy, and that both strategies included extensive consultation
with a wide range of stakeholders on a number of key issues.[37]
6.17 Looking ahead, the Minister says that, although
not a legislative proposal, the Communication does indicate actions
the Commission proposes to take or to propose; and that Council
Conclusions on this Communication are likely to be put forward
by the Greek Presidency for the February Education Council following
a policy debate in the November Council: "The Government
would expect, and argue for, such conclusions to be non-binding".
6.18 The Minister also notes that, separately,
the Commission is undertaking a review of the EU copyright framework
(he refers to the 18 December 2012 Communication on Content in
the Digital Single Market)[38]
and may propose changes to that framework as a result.
Conclusion
6.19 The Minister is right to emphasise that
a one-size-fits-all approach is inappropriate and that it is for
the most part for Member States to identify the particular issues
which apply to their circumstances and to develop and implement
national solutions; and that the Commission should concentrate
on where it can add value to and complement activity at Member
State level, remain flexible in this fast-moving area and avoid
the pursuit of prescriptions, e.g., any attempt to set up EU-wide
quality assurance for OERs or HE professionals. The Minister
also indicates some concern over the Commission's approach to
schools.
6.20 We would therefore like the Minister
to write to us about the outcome of the discussion at the November
Council, with his views on how this is likely to be reflected
in the Council Conclusions that he anticipates, and to say if
his concerns remain or have been satisfied.
6.21 We would also like him to explain what
he means by "non-binding" Council Conclusions: in our
estimation, Council Conclusions are indivisible and carry equal
weight.
6.22 In the meantime, we shall retain the
Commission Communication under scrutiny.
6.23 For the same reasons as previously, we
are also drawing this chapter of our Report to the attention of
the Business, Innovation and Skills Committee.
31 See Article 6 of the Treaty on the Functioning
of the European Union (TFEU). Back
32
See headnote. Back
33
See headnote: (35199) 12453/13: HC 83-xiii (2013-14), chapter
36 (4 September 2013). Back
34
Open Educational Resources (OER) are digital materials that can
be used, re-used and repurposed for teaching, learning, research
and more, made freely available online through open licences such
as Creative Commons. OER include a varied range of digital assets
from course materials, content modules, collections, and journals
to digital images, music and video clips. Back
35
Jisc are a registered charity who (according to their website)
"champion the use of digital technologies in UK education
and research" and who "[f]or over 20 years, ... have
constantly pushed the boundaries, encouraging the adoption and
usage of digital technologies within UK teaching, learning and
research". See http://www.jisc.ac.uk/ for full information. Back
36
According to its website, Janet is a part of Jisc Collections
and Janet Limited, a Jisc company; manages the operation and development
of the Janet network, on behalf of Jisc; and is government funded,
"with the primary aim of providing and developing a network
infrastructure that meets the needs of the research and education
communities". See https://www.ja.net/ for full information. Back
37
The Minister says that these strategies can be found at:https://www.gov.uk/government/organisations/department-for-business-innovation-skills/series/industrial-strategy-government-and-industry-in-partnership. Back
38
COM(12) 789: for the Committee's consideration of this Commission
Communication, see (34577) 17983/12: HC 86-xxix (2012-13), chapter
10 (23 January 2013). Back
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