Review of higher education provision in Cumbria

Report by Sir Brian Fender to the Higher Education Funding Council

for England

Contents

Introduction 3

EXECUTIVE SUMMARY 3

1.Profile of economic and social circumstances in Cumbria5

2.Educational achievement in Cumbria13

3.Higher Education in Cumbria – the supply side 18

4.Direct demand for Higher Education in Cumbria23

5.Challenges and Issues for Higher Education In Cumbria24

6.The Scope of Planned and Potential Programmes26

7.Conclusions and Recommendations30

Introduction

This report was commissioned in November 2002 by the Higher Education Funding Council for England (HEFCE). It follows initiatives in Cumbria and by HEFCE both to assess and to improve the opportunities for higher education in the county. The terms of reference for the review are given in Appendix 1. The report focuses particularly on developments in higher education and the economy of Cumbria over the last three years. For those less familiar with Cumbria it includes general information on the geography, population, economy and schools education as well as higher and further education. The report has been prepared on the basis of meetings and conversations with organisations and individuals,with support from Jonathan Durnin and Alison Airey, of the Policy Unit, Cumbriacounty Council. I am grateful to all who contributed to the review; everyone did so with remarkable enthusiasm.

Executive Summary

Background

The report evaluates the progress made since the Advisory Group for Higher Education in Cumbria engaged consultants to ascertain supply and demand for higher education in Cumbria in 2000. The main challenge is to raise the profile of higher education in Cumbria. It is no exaggeration to say that without a stronger presence of higher education, which is relevant to all stages of life-long learning, there is a significant risk that the relative economic decline of Cumbria will continue.

The report summarises economic, skills and education performance, concluding that there has been decline in economic performance over the last decade, dropping to below the national average. Following Foot and Mouth Disease, it has the potential to fall further due to weaknesses in the rural economy and the continuing decline in traditional manufacturing. The sub-regional economy is dependent on major employers, and thus there is a need to broaden the industrial base and up-skill service sector demands. Compulsory education performance is strong in the county, but the report demonstrates that there is weaker progression to higher education (HE), especially at higher levels including research.

The HE curriculum in Cumbria has broad strength in the professional areas of business and management, education, and health;equally importantly there are local strengths in the more specialised areas of land-based studies and creative arts. The curriculum also includes some environmental management, social science/humanities, it, media studies, sport, physical education and outdoor education and leadership. However there is a clear gap of provision relating to science, engineering, medicine (seeparagraphs 6.17, 6.24 and 6.30 in the main report), and languages.

In terms of future demand for higher education, it is suggested that an additional 630 full time and 320 part time undergraduate places are over time realistic targets, as well as some 170 full-time and 280 part-time postgraduates. In addition, each of the higher education institutions (HEIs) concerned has given an indication of how it might contribute to the continued development of higher education in the county over the next few years. The recently announced Strategic Alliance of the Cumbria Institute of the Arts, St Martin’s College and the University of Central Lancashire with the Cumbria Learning and Skills Council is an important step in planning for and providing core provision.

The report is not intended to produce a menu of detailed recommendations; nevertheless the major priorities can be easily identified. There is a need to build effective critical mass in the separate campuses and to encourage the sharing of operations. Estates will need investment to cope with expansion, along with an investment in e-learning infrastructure. The physical learning environment should stimulate aspiration. There is also a need to build capacity in applied research areas.

But above all there is a need to build an identity for the 21st century vision of a network of deeply collaborating campuses which has all the key attributes of a single campus university but brings together the strengths of a number of universities and colleges. For convenience this network is called the ‘University of Cumbria’.

There is a particular opportunity to develop this concept into reality because, within the strong sense of community in Cumbria, there is an urgent need to raise aspirations and to establish strong regeneration. The building blocks for collaboration are in place, with developments such as the strategic alliance between current HE providers and strong support from business and the community. There is pride in what has been achieved but a willingness to build on the strengths of small friendly campusesto create a higher education identity in Cumbriathat is flexible, innovative, and keen to widen participation. There are a number of additional strengths which can be brought in collaboratively to reinforce the general wish to create a ‘University of Cumbria’ in which the whole county can take pride.

Main recommendations

To establish this vision there needs to be a formal agreement about this goal, not just by the HEIs and further education (FE) colleges but by the principal agents of the broader community in Cumbria. This in essence requires support for a recommendation that:

We agree with the broad thrust of the needs of and solutions for higher education in Cumbria, as identified by this report.

The report is intended to lead to further action. It is recommended that in the first instance:

  1. A Project Board be set up, along the lines of paragraphs 7.16-19, with a part-time chairman to supervise the production of a strategic plan andaccompanying business plan for the development of higher education in Cumbria.
  2. A project manager is appointed to be responsible for the production of the plans.
  3. HEFCE, the Learning and Skills Council Cumbria, the Cumbria County Council and the NorthWest Regional Development Agency fund the project, at an estimated cost of £100k plus contributions in kind (mainly staff time) from the provider institutions.
  4. The responsibility for identifying the part-time chair and project manager lies with the above group but is dependent on the agreement of the participating institutions.
  5. The time for preparation of the plans should be not more than 6 months from a start date of 1stMay 2003.

Recommendations for future planning

The sponsoring bodies and the HEIs (and FE colleges) will have views about the terms of reference for the Project Board, but it is recommended that the project group’s strategic and business plan includes at least the following:

  • That there is a three-year business plan set within a 10-year strategic horizon.
  • That the plans, where necessary, should be bold and innovative and not merely ‘make do’.
  • That, taking into account likely student demand, targets for growth are identified for each of the existing campuses.
  • That, in line with the recent White Paper on higher education, specific plans are developed to widen participation from the disadvantaged parts of the county and to support less advantaged students during their study. Full use should be made of the Aimhigher: Partnerships for Progression initiative.
  • That, again taking into account student needs, the academic programme provided by each campus is planned.
  • That particular attention is given both to major academic areas not currently well covered and to strengthening the disciplines which currently draw students from other parts of the UK and from abroad.
  • That routes for student progression to higher levels of study, including postgraduate study or research, should be well defined.
  • That the plans make explicit reference to the role of e-learning.
  • That the provision of medical education should be explored with the NHS.
  • That the proposal for developing a centre of excellence in the skills associated with nuclear decommissioning at the Westlakes Science Park be explored with the North West Development Agency and the industry.
  • That proposals for enhanced research activity should be prepared, which should include the potential for research in sustainable uplands and in the nuclear environment.
  • That an estates strategy is drawn up which takes an overall account of the needs of the ‘University of Cumbria’ and includes, where there is benefit, joint planning with the Learning and Skills Council.
  • That governance and management arrangements are proposed which will sustain and strengthen the organisational structure of the ‘University of Cumbria’ (see also paragraphs 7.15-19).
  • That a strategy is developed to enhance the identity of the collaborative ‘University’ both within Cumbria and beyond.
  • That the business plan identifies the additional funding required and the possible sources.

It is recommended that initially the core group of academic institutions involved in planning should be Cumbria Institute of the Arts, St Martin’s College, and the Universities of Central Lancashire, Lancaster, and Northumbria. The Open University, the University of Liverpool, the WestlakesResearch Institute and any other university likely to make a significant contribution should be involved in a way that is appropriate.

Review of Higher Education Provision in Cumbria

1.Profile of economic and social circumstances in Cumbria

Background to Cumbria

1.1Cumbria is located in the North West of England. The county boundary is naturally defined by the Irish Sea to the west, from the Solway Firth to MorecambeBay, with the Scottish border to the north and the Pennine hills to the east. It is the second largest county in England and contains almost half (48%) of the whole land area of the North West region.

1.2Cumbria’s settlement pattern is distinct and has been dictated principally by its unique topography. The central high land of fells and mountains is a natural barrier to cross-country communication, and has led to the majority of settlements being located around the periphery of the county on lower-lying land.

1.3Cumbria has a population of 491,000. The population is very dispersed with more than 70% of its settlements containing fewer than 200 people. Indeed only about 20 settlements have a population greater than 2500, and the county’s largest settlement, Carlisle, only accounts for 15% of the total population.

1.4The county as a whole is one of the most sparsely populated in the country. On average there are only 0.7 persons per hectare in Cumbria, compared to an England and Wales figure of 3.2. Within the county, however, there are substantial variations in population density. For example, Barrow has a density of 9 persons per hectare, whilst Eden has just 0.2 persons per hectare.

1.5Cumbria is a county of contrasts. It contains the Lake DistrictNational Park, an area of outstanding natural beauty that attracts visitors from around the world. Nevertheless the issue of deprivation is very significant in Cumbria.

1.6Due to the geography of the county, transportation and communication are particular problems. It is 160 km from Longtown in the north to Barrow in the south, and 125 km from Whitehaven in the west to Kirkby Stephen in the east. In addition, the effective operation of mobile phones is not consistent throughout the county, and in some areas there is no signal available. There are 97 km of motorway in Cumbria, and 357 km of trunk roads. In addition to principal and non-principal roads (3550 km), there are 3729 km of unclassified roads.

1.7Cumbria has 295 primary schools, 42 secondary schools and 5 special schools. The performance of Cumbrian pupils on published examination results and national curriculum tests has shown consistent improvement over the past three years and is above the national average. In line with other areas, there was a tailing off of improvement in mathematics at Key Stage 2 in 2001.

1.8In terms of the National Targets for Adults, Cumbria is significantly below the regional and national averages. This is due to a loss of younger, better-qualified people to other parts of the country, as well as the fact that there is no long-established university in the county. Higher and further education is delivered through seven colleges in Cumbria and a number of university-linked campuses (see later sections).

Cumbria in the North Westregion – key facts

1.9Cumbria:

  • 48% of North West area
  • 7% of North West population (489,000)
  • 7% GDP of North West (£5,634 million)
  • 11% of wards in top 1000 most deprived

by Index of Deprivation 2000.

1.10Rest of the North West:

  • 52% of North West area
  • 93% of North West population (6,401,800)
  • 93 % of North West GDP (£69,641 million)
  • 26% of wards in top 1000 most

deprived by Index of Deprivation 2000.

Demographic trends

1.11Since the 1970s there has been a major entry of affluent retirees into Cumbria, drawn by the county’s lifestyle attractions, especially into the Lake District. As a result, retiree expenditure has generated significant wealth within Cumbria, and the influx of older working-age and retired people, together with lower birth rates, has resulted in an ageing population in the county. This trend has been exacerbated by a net outflow of the young working-age population, especially amongst males.

1.12The most important aspect of this demographic shift has been a loss of talent and higher skilled labour, especially amongst West Cumbria’s younger working-age population. Graduate retention is particularly low in the county. Cumbria’s limited pool of labour, especially at higher skills levels, severely hampers the development of a knowledge economy, and inhibits indigenous growth and the attraction of inward investment.

1.13Moreover, the ageing population and decline in working-age people means that Cumbria has a large dependant population. This causes significant strains upon social and health services, to the detriment of overall economic prosperity. The ‘greying’ of Cumbria reinforces the limited appeal of the county to younger age groups (in comparison with more urbanised areas), exacerbating ageing trends and the ability to retain younger workers.

Table 1.1Population structure in Cumbria 1999

Allerdale / Barrow-in-Furness / Carlisle / Copeland / Eden / South Lakeland / Cumbria / North West / Great Britain
Total population / 95,446 / 70,771 / 102,317 / 69,764 / 50,305 / 103,211 / 491,814 / 6,880,
539 / 57,809,091
Age structure as percentage of total population
% 0-14 years / 17.6 / 19.5 / 18.0 / 18.6 / 17.2 / 16.5 / 17.8 / 19.5 / 19.0
% of working age: 15- 64 / 61.5 / 62.4 / 61.3 / 62.8 / 61.8 / 59.6 / 61.4 / 62.3 / 62.8
composed of:
15-29 years / 16.8 / 18.4 / 17.2 / 18.1 / 16.2 / 15.4 / 16.7 / 19.1 / 19.1
30-44 years / 21.2 / 21.8 / 22.0 / 22.4 / 21.9 / 20.9 / 21.6 / 22.3 / 22.8
45-54 years / 14.5 / 13.6 / 13.9 / 13.7 / 14.7 / 14.2 / 14.1 / 13.1 / 13.1
55-64 years / 9.0 / 8.6 / 8.2 / 8.5 / 9.0 / 9.1 / 8.7 / 7.8 / 7.6
% 65 years plus / 20.9 / 18.1 / 20.6 / 18.6 / 21.0 / 23.9 / 20.8 / 18.2 / 18.2
Source: Mid-Year Population Estimates, ONS Crown copyright

Business and employment structure

1.14In terms of global recognition and awareness, Cumbria has an important economic specialisation in energy. This is a result of the nuclear and gas industries that generate substantial economic benefits for the county. In addition,West Cumbria has the opportunity to develop new energy specialisms. Specialisation also exists in tourism and activities supported by visitors to the county, food, and transport. It has an important, if dramatically changing, agricultural sector.

1.15There is also the capacity for development of the knowledge-intensive sectors to raise R&D capacity and add value, especially in the defence and nuclear engineering industries. Such development would potentially attract research input that would significantly mitigate Cumbria’s historic under-provision of higher education resources, especially in West Cumbria and Furness.

1.16Such specialisation is however indicative ofCumbria’s dependence upon a small number of large multinational corporations, such as BNFL, especially in West Cumbria.

Table 1.2VAT-registered business stock 1995-99

Area / Stock 1995 / Net change from 1995-99 / Percentage change from 1995-99
Allerdale / 3,240 / -150 / -4.6
Barrow-in-Furness / 1,130 / -90 / -8.0
Carlisle / 3,035 / -95 / -3.1
Copeland / 1,565 / -45 / -2.9
Eden / 3,060 / -90 / -2.9
South Lakeland / 4,450 / 20 / 0.4
Cumbria / 16,470 / -420 / -2.6
North West / 159,875 / 175 / 0.1
Great Britain / 1,556,955 / 40,100 / 2.6
Source: NOMIS ©Crown Copyright

Table 1.3GDP in Cumbria 1998

Area / £ million / £ per head / (UK=100)
West Cumbria / 2,506 / 10,556 / 84
East Cumbria / 3,127 / 12,217 / 97
Cumbria / 5,634 / 11,418 / 91
North West / 75,275 / 10,909 / 87
United Kingdom / 743,314 / 12,548 / 100
Source: National Statistics, Regional Trends ©Crown Copyright

1.17Regarding employment, manufacturing remains a significant sector, especially in West Cumbria, despite national de-industrialisation trends. West Cumbria has above average full-time male employment, especially in craft and operative occupations, many returning relatively high wage rates.

1.18However, Cumbria is also heavily reliant upon a small number of very large employers. These firms are in sectors such as nuclear and marine engineering and pharmaceuticals, which are particularly subject to external decision making. The loss of any one of Cumbria’s multinational employers would represent a major shock for the county’s economy, especially in West Cumbria and Furness. Such a shock has been realised recently in the closure of marine engineering in Barrow-in-Furness, with the loss of 750 jobs.

1.19East Cumbria has high economic activity rates and very low levels of unemployment. This is particularly due to the prevalence of female, part-time employment, mainly in tourism, retail, hotels and restaurants, and in personal and protective occupations, such as health and care work. Many of these occupations have tended to generate relatively low earnings, especially in East Cumbria.

1.20Self-employment in the county is also high, though only amongst males, largely accounted for by the agricultural sector. Whilst small and sole businesses can be dynamic and entrepreneurial, they are also amongst the least advanced firms and are particularly vulnerable to external economic shocks, as occurred in 2001 with the foot and mouth epidemic.

1.21As a whole, Cumbria has lagged in the development of knowledge-based employment, such as in higher value service activities, which are necessary for the longer-term economic dynamism and vitality of the county. It also has a lower than average proportion of higher level occupations amongst its workforce, providing further evidence of low knowledge-intensity within the general economy.

1.22West Cumbria and Furness are marked by low economic activity rates, especially in the form of long-term sickness, early retirement, looking after the home and/or children. This area is also characterised by a higher rate of exits from the labour market, representing extensive ‘hidden unemployment’ in the county’s traditional industrial districts. These facts suggest low economic dynamism, and limit the pool of labour to attract new inward investors or to support indigenous growth.