The UCU’s Higher Education Committee met on Friday 27 September to decide on next steps in the 2024 national pay and related claim.
We have reached the end of a series of formal negotiations over pay and pay-related elements. Most employers are already moving to impose the offer on pay in members’ pay, but some — perhaps as many as 20 — have told union branches they intend to ‘defer’ for 11 months.
In the immediate term, HEC voted overwhelmingly to keep the dispute over pay alive. There was a recognition that we have both a major opportunity — to put pressure on the new Labour Government — and a major threat — a spiral of sectoral decline — to address.
As we set out below, the best way to develop a campaign to defend our sector includes an industrial campaign over pay. A UK-wide pay campaign can mobilise our members against the ongoing Cost of Living crisis and demand UK-wide solutions that Higher Education urgently needs.
At the Branch Delegate Meeting (BDM) before the HEC, no delegate spoke in favour of the pay offer. Everyone knows that it is a pay cut, on top of the 11% cut in pay members suffered in two years previously. Staging the payment adds insult to injury. But there was doubt expressed by a number of delegates as to whether we could win more. All members, delegates and branches need a strategy to turn the situation around.
HEC voted to reject the pay offer and accept the pay-related elements of the offer. Some branches at the BDM reported that their members voted to reject the pay-related elements (terms of reference for negotiation over the other Three Fights) because the offer was too vague. But ‘acceptance’ simply means UCU agrees to go into negotiations in JNCHES over national policy recommendations. And it would mean that any industrial action and ballot would be specified in relation to the pay claim.
Such an ‘acceptance’ does not prevent branches fighting for best practice at a local level with specific local claims to employers. Nor would it stop the union campaigning publicly over casualisation abuses, chronic workload or discriminatory pay gaps.
Indeed, the strategy we attempt to set out below could provide a good platform to expose the current poor state of UK Higher Education working conditions.
The employers’ offensive
Over the last year, as many as a third of Vice Chancellors have asserted the need for cuts in jobs. We have seen a wave of major redundancy programmes across the sector. As well as creating suffering among our members in branches, the VC’s mantra of ‘affordability’ has cast a long shadow over negotiations at the top table.
Redundancy programmes and course closures are not new — ever since London Met’s infamous shrinking by two-thirds, numerous universities, including recently Roehampton, Wolverhampton and Goldsmiths have borne the brunt of horrific purges. But in previous years, major redundancy programmes were exceptional. Employers knew they risked undermining student recruitment in a ‘competitive marketplace’. Instead they mostly managed workforce numbers over time via means that avoided a public crisis, such as retirement, recruitment freezes and voluntary schemes.
Unfortunately in the face of this wave of redundancies, UCU’s approach has been to keep the fight local. Branches have been supported by the central union, but apart from independent rank-and-file initiatives there has been no attempt to bring the whole union together to fight them. Many members hear about redundancies, but in a piecemeal way. Their union is not mobilising them to offer solidarity. Even the Higher Education Committee has not been permitted to see a breakdown of redundancies branch-by-branch, despite HEC members asking for this information repeatedly.
There are two overarching factors as to why the last year has been marked by a redundancy wave. The first is the cumulative division between ‘winners’ and ‘losers’ in market competition for students, worsening ever since 2010. Sooner or later the dam would break.
The second is the way our own union has reacted to the failure to meet the ballot threshold in Autumn 2023. Having botched the MAB by refusing to implement a summer reballot, and refusing to set up Conference-mandated strike committees to allow branches continuous reporting and control over the dispute, our union leadership effectively signaled defeat to the employers. Seeing their chance, Vice Chancellors rolled out their revenge across the country. The sector was now ‘in crisis’ despite universities sitting on billions in reserves.
We cannot continue like this. We have to say ‘enough’.
We need to discuss a serious strategy that can put meaningful pressure both on employers and the new Labour Government to change course.
We need to borrow from the successful NEU schoolteachers’ campaign for a ‘Fully Funded Pay Rise’, linking the fight over pay to the fight to defend the sector.
So how can we do that?
Building a new kind of dispute
We think UCU needs a joined up campaign, consisting of two elements: political campaign for a Fully-Funded Sector and an industrial campaign for a Fully-Funded Pay Rise. Many of the elements of this campaign are already policy, having been voted for by our Special Sector Conference in April.
This has to be a campaign that puts branches facing redundancies right at the centre. No branch and no members should be left behind.
Our inspiration should be the pay campaign run by the National Education Union (NEU). From the outset of their dispute, the NEU knew that schools in England and Wales would not be able to meet their pay demands. So they made that message part of their campaign.
They did not limit their demands to what the employers could afford. After all, a school with unbudgeted RAAC that turned the lights off after kids went home would not suddenly find cash for pay rises stashed away in a cupboard!
We need to take a leaf out of their book.
The public political campaign, which we suggest we could call For A Fully-Funded Sector, needs to be discussed and refined at branch, region and nation level, with initiatives taken up by all union bodies that can articulate both immediate and near-term demands to the new Labour Government. This would then be the backdrop for a ballot members over the national JNCHES claim (RPI+2% over pay).
HEC agreed to launch a consultative ballot as part of this campaign.
We need to urgently elaborate a strategy that all of our HE branches can get behind.
For a Fully-Funded Sector
The current home undergraduate tuition fee and loan system in England is unjust and unsustainable. Scottish universities have never had these high fees, and Northern Ireland and Wales had reduced fees. The falling real values of tuition fees, plus the competition for students built into the system, have cumulatively created the current crisis in the sector. Raising fees to £12,000+ a year, as Universities UK (UUK) wants, is socially regressive, unjust and politically divisive, will not address the ‘winners and losers’ problem, and could cause student enrolments to fall.
Recent reports that Bridget Phillipson is contemplating raising tuition fees to £10,500 a year shows that Labour is under pressure to do something. But it also shows that UUK are more influential than UCU right now.
In fact in the short term — without touching student fee levels — Labour can be called on to take three steps which together would begin to level the playing field in the sector. These were agreed by the Special HE Sector Conference earlier this year.
- Cancel (or agree to pay) the TPS surcharge. These are extra costs the Treasury has imposed on TPS employers as a result of the most recent pension valuation. Schools and FE colleges are not required to pay this cost for at least a year. But Post-92 universities are shouldering an additional cost of between 3 and 5% of total salary. This partially explains why so many Post-92s have triggered redundancy programmes.
- End the Hostile Environment, and ensure student visa routes are humane, affordable and rational. This means resurrecting post-study visas and visas for dependents. Labour should also abolish the migrant salary threshold for all. Right now universities outside of London cannot even internationally recruit postgraduate research assistants. Universities employ very large numbers of part-time teaching staff — none can be recruited internationally.
- Bring back the ‘block grant’. This is a teaching grant to departments that was abolished for many disciplines (including all of Arts and Humanities) in 2010, and reduced heavily in others. We need to resurrect support for courses that have been denied historic levels of funding for years. This could be fixed at a student number cap, allowing the government to bring back caps on regulated student recruitment in stages.
These are all short-term demands. But none of them require tuition fees to rise.
Having cheer-led for £9k fees, the Vice Chancellors in Universities UK are now campaigning to raise even higher fees — to over £12k. But the demand to increase tuition fees is obviously unfair, and would be politically difficult for the Government. It is by no means clear that Labour will increase fees, but if they do, it won’t be enough for the VCs.
Although UUK envisage the tuition fee rise would be covered by the student loan, that would just mean that the student debt mountain would grow even faster than its current £20bn/year growth rate.
Paying universities directly via resurrecting block grants is simpler, focused and cheaper. It could also create some structural stability by financially underpinning departments previously reliant wholly on student recruitment.
The market system got us to the current crisis. The solution is not more of the same.
Winners, losers, and building unity
Raising home undergraduate tuition fees by £1,000 per student/year or so can ease finances slightly.
But it will escalate, rather than moderate, the market war-of-all-against-all that the sector was plunged into in 2014 when the Government allowed universities to make unlimited numbers of offers to home students (with the exception of Medicine). It will increase income to the universities with the most home students. And it will add to the loan every student will borrow and be expected to ultimately pay back — which may mean a further disincentive to working class undergraduates.
In recent years, this scenario of ‘winners and losers’ has been used by the employers to undermine national pay negotiations.
The employers’ approach is to set the national pay rate at a level the poorest university in the sector can afford. Then some universities may choose to make better offers to (some) staff. This process may be via permitted local negotiated arrangements (e.g. London Weighting or adjusted grade boundaries), one-off payments such as ‘Covid enhancements’, or, more individually, by promotion programmes and market supplements. Exceptionally it may be through universities exiting national negotiations.
The result is that what started as a ‘rate for the job’ national negotiation starts to become one of below-inflation offers followed by limited and selective local and personal negotiation. Collective bargaining, sector cohesion and principles of solidarity and equity between staff and union branches are undermined.
This process is working for the employers. Universities are spending ever-smaller proportions of their budgets on staff. In the 1970s, some research-based universities spent as much as two-thirds of their budgets on staff costs. 50 years later, and that figure has fallen to nearly half.
In their last-published release, the UK Higher Education Statistics Agency reported that UK-wide staff costs had fallen to a record low of 50.8% of expenditure in 2022/23. The proportion is lowest in England (averaged across many universities) and greatest in Northern Ireland. Recent fluctuations aside (Covid and USS being likely factors), the tendency remains downward. The last sharp downturn between the 2021 to 2022-23 financial years coincides with the sharp rise in inflation (raising capital and operating costs) and below-inflation pay rises.
Paradoxically, as universities have become more and more focused on mass teaching, and more and more labour intensive, they have tended to spend a smaller proportion of their budgets on staff.
UCU, and its forerunners Natfhe and AUT, has always argued that pay levels should be based on inflation and the cost of living, not on what individual universities claim is ‘affordable’. Indeed, once we concede that argument, we know we become the prisoners of Vice Chancellors’ financial gambles. Employers show us empty balance sheets: redundancies become inevitable, and colleagues are put in a zero-sum game over jobs and pay. That is why a local bargaining strategy like the General Secretary’s latest misnamed ‘Building to Win’ strategy is guaranteed to spiral to defeat.
We need to reset our campaign, and fight over pay in a different way, one that does not let the Government off the hook for the Higher Education crisis.
It’s why we need an combined industrial and political campaign that calls for a Fully-Funded Sector and a Fully-Funded Pay Rise.
Redundancies and the Other Three Fights
A campaign of the type described here can create the kind of broad-based public political platform would also allow the union to highlight the worst managerial behaviour we see in Higher Education.
We all know that market volatility drives employment volatility. Fighting for secure funding is crucial to take on the public argument about job insecurity and redundancies. So when we say we want a Fully-Funded Sector we can also say we want Secure Jobs and No Redundancies within it.
The same approach applies to Workloads and Pay Gaps. We can put our members at the forefront of this campaign. Our colleagues are by far the best spokespeople. They can say that they must have Time to Think! Or they can expose the reality for women, Black members, Disabled members and others who find themselves held back by structural barriers to progression.
This should be an opportunity to enable our members to lobby MPs and others, to give members a platform to speak up about the real conditions in our sector.
This approach also gives our members a platform over Pay. We can show that we are both committed to fighting low pay in the here and now, and to viable employment for the next generation of researchers, lecturers, and academic-related staff.
Industrial action for Fully-Funded Pay
But we can and must go one step further — we will need to take industrial action to highlight how far our pay has fallen. Mobilising the union onto the picket lines and streets is crucial to show the public and MPs that we are serious. Without that step, we risk being written off as just another lobby.
The action that we took in 2022-23 was extremely hard-hitting. But it was focused specifically on employers. That meant long periods of industrial action. A campaign that is focused both on the employers and government could look different. What it looks like is something we need to discuss as a union.
Most obviously, we could start with specific days which have an impact in Westminster or other national parliaments.
But the first key focus for activists is to put UCU in a position to signal to the Labour Government that UCU members are prepared to return to picket lines. In order to do that we need to win an industrial action ballot.
Right now, to implement this plan we will need to take some practical steps. Rushing straight out to an Industrial Action ballot without explaining the strategy in branches would be likely to fail to mobilise the 50% of membership required to win a ballot. Indeed, it would also be a huge missed opportunity. We have vast knowledge and expertise among our members. We should develop the plan in conjunction with branch officers and reps.
A consultative ballot is coming our way.
We should not roll out a consultative ballot alone. The ballot should be part of an urgent serious structured discussion in our union about how we can put across our union’s arguments and mobilise our members in speaking up for our sector.
There will likely be more Q&As organised centrally. Branches can invite HEC members and national negotiators to speak at branch meetings.
This is a chance for all members to discuss how we can build a proper grass-roots membership-driven campaign to defend our sector, our colleagues and our pay.
Our sector is at an historic juncture.
The market system is publicly failing. We must make sure neither staff nor students pay the price.