CONSULTATION ON A PROPOSED MERGER OF EDINBURGH COLLEGE OF ART WITH THE UNIVERSITY OF EDINBURGH
ANALYSIS REPORT
EXECUTIVE SUMMARY
1. On 1 October 2010, the Scottish Government launched a consultation inviting views on a proposal by the governing bodies of Edinburgh College of Art (ECA) and the University of Edinburgh to merge the two institutions. This would create an enlarged University of Edinburgh with an additional fourth College to be known as the Edinburgh College of Art.
2. The majority of respondents (ratio of around 2 to 1) were in favour of the proposal. Of 56 responses to the consultation, 40 were either supportive of the merger or had no objections.
INTRODUCTION
Background
3. Under the terms of section 47 of the Further and Higher Education (Scotland) Act 1992, the consent of Scottish Ministers is required for any proposals to merge designated institutions. To inform their consideration of the merger proposal, Ministers requested views from anyone with an interest in higher and further education as well as the arts. As required by legislation, Ministers also drew on advice from the Scottish Higher and Further Education Funding Council.
4. The consultation paper inviting views on the proposal was distributed to 7 main categories of interest groups, identified as key stakeholders:
- Universities and colleges;
- Local government;
- Scottish Parliament;
- Government Departments and organisations;
- Trade unions and staff associations;
- Arts and the Business sector; and
- Equality and diversity groups
5. The consultation period ended on 24 December. The paper can be viewed at: http://www.scotland.gov.uk/Publications/2010/09/30111021/2. 56 responses were received from organisations and individuals offering comments on the proposed merger.
Consultation Method
6. As well as being made available on the Scottish Government's website, copies of the paper were distributed to key stakeholders. A full list of those consulted is at Annex A.
7. Respondents were invited to give their views on the rationale, likely impact, benefits and disadvantages of the merger proposal. Seven main questions were asked and the majority of respondents answered them specifically, with a small number giving a more general response. A summary of the issues raised is given below.
RESPONSES
8. Comments on the proposals were received from 56 respondents:
- 36 Individuals
- 1 Local Government
- 4 Government bodies
- 8 Higher Education (HE) bodies
- 3 Further Education (FE) bodies
- 3 Trade Union/ Student Representative bodies
- 1 Political body
Publication of responses
9. A list of the respondents is at Annex B. A hard copy of each response is available from: Scottish Government Information & Library Service, Victoria Quay Edinburgh EH6 6QQ. Responses can also be viewed on the 'consultations' page of the Scottish Government website at:
http://www.scotland.gov.uk/Publications/2011/01/24154741/0
FINDINGS
10. A ratio of around 2 to 1 of respondents were in favour of the proposal. Respondents were free to comment in any way, although we stressed that we would find it particularly helpful to have views on the following questions:
- To what extent do you agree with the rationale for merger as set out in the merger proposal?
- What impact would the merger have on education provision and research at the two institutions?
- What is your view on the impact of the merger on higher education provision both nationally and internationally?
- What impact, if any, would the merger have on other higher and further education institutions?
- What impact would the merger have on students at Edinburgh College of Art and the University of Edinburgh?
- What would be the artistic and cultural impacts?
- What impact would the merger have on the creative industries sector in Scotland?
11. Of the 56 consultation responses, 40 were either supportive of the merger or raised no objections and 16 were not supportive of the proposal. Recurring themes in support were that the academic case was convincing and that ECA would benefit and increase its own standing and influence from being part of the bigger, internationally respected institution. Against, were concerns that the financial situation at ECA should not be the basis for seeking merger; loss of a separate independent arts institution would lessen our Scottish culture; joint cooperation rather than full merger would provide a better outcome and value for money; and that the funds being provided in support of merger could be used to secure the financial sustainability of ECA.
12. However, the responses were not always a clear cut yes or no, with some of those supporting the merger also highlighting potential areas of concern that need to be managed by the institutions to ensure success going forward. In particular, responses highlighted the need to ensure the retention of ECA's identity, ethos, pedagogy and studio based culture. Equally, some responses against the proposal recognised that there were also benefits to be accrued from a merger.
CONSULTATION QUESTIONS AND SUMMARY OF RESPONSES
To what extent do you agree with the rationale for the merger as set out in the merger proposal?
13. A strong ratio of around 2 to 1 of the responses were supportive of the merger and the rationale set out in the merger proposal:
Selection of the comments in support:
- 'sound academic rationale'. Glasgow School of Art
- 'fully support the proposal'. OPENspace
- 'positive opportunity for ECA to increase its capacity to service our needs and those of other clients'. Forestry Commission
- 'makes complete sense as long as identity and uniqueness protected and respected'. Scottish Documentary Institute
- 'academic case is extremely convincing'. National Galleries of Scotland
- 'rationale for the merger is strong'. Scottish Qualifications Authority
- 'express full support for the proposed merger'. Edinburgh College of Art Student Union
- 'merger will bring positive benefits to both institutions and their students'. Edinburgh University Students Association
- 'proposal sets out a clear and compelling case for merger'. University of the West of Scotland
- 'agree with the general rationale set out within the merger proposal and therefore support the merger'. Educational Institute of Scotland
- 'fully agree with the rationale for the merger'. Universities Scotland
- 'would support the rationale'. Stow College
- Various individual/anonymous comments:
'excellent and timely proposal';
'so long as students and staff from CCS [Centre for Continuing Studies] at ECA benefit from it in every way'.
Selection of the comments against:
- 'fail to see how ECA would benefit academically from the merger - case weak. Need a review of the background to ECA's financial difficulties. Without merger and with decent management, ECA could continue………at lower cost to the public purse and with better provision'. Council of the Alumnae Association of ECA
- Various individual/anonymous comments:
'loss of…independent arts institution would lessen and deprecate our Scottish culture';'
[need] joint cooperation rather than full merger';
'funding to support merger could be better used to retain ECA';
'a cost saving panic measure engineered by withholding vital investment;
'call for independent review of financial situation at ECA'.
What impact would the merger have on education provision and research at the two institutions?
14. There was a general recognition in the responses that ECA's teaching and research would benefit from the shared resources and expertise of being part of the larger and more diverse University. Counter to that were concerns that ECA would lose its independent character and cultural significance.
Selection of the positive comments:
- 'could provide significant opportunities for interdisciplinary study and research'. Glasgow School of Art
- 'improve the support available for research centres'. OPENspace
- 'more practice-based approach of ECA combined with the University's strength in theory and history makes perfect sense'. National Galleries of Scotland
- 'different way of teaching and research led by practice and creativity will allow ECA to grow and expand, bringing more visibility and international impact'. Scottish Documentary Institute
- 'potential to enhance education provision and research… benefits to be accrued from shared resources and expertise'. Scottish Qualifications Authority
- 'increased benefit to future learners in a merged entity'. Stow College
- 'positive for both current and future students'. University of the West of Scotland
- 'increase and improve the range and balance of… "art? courses at the university. The quality… should not change as the University is currently the degree awarding body for ECA'. Educational Institute of Scotland
- 'positive impact on the teaching and research provision… increased opportunities for cross-disciplinary education and research'. Universities Scotland
- Various individual/anonymous comments:
'more collaboration/cross-discipline programmes without the burden of additional administration of working across two institutions';
'underpin/facilitate the quality and impact of ECA education and research';
'merit in bringing some of [university's] art history knowledge ECA.';
'an institute of Scottish visual studies would be able to attract significant research and knowledge transfer funding';'benefit of sharing available resources e.g. Film Studies';
'opportunity to provide more facilities for part-time/mature students'.
Selection of the comments against:
- 'potential to destroy the learning ethos and studio based culture of the art school' Glasgow School of Art
- 'threatens the comprehensive provision of Art and Design Courses currently offered by ECA'. Council of the Alumnae Association of ECA
- Various individual/anonymous comments:
'Adverse impact… different ethos/values';
'ECA will lose its independent character';
'admission procedure and pedagogy may change student profile';
'ECA education… secondary to University's needs';
'danger that the emphasis placed on digital technologies…. will eclipse the fundamental skill of drawing as a means of research, intellectual investigation and the exploration of creative ideas'.
What is your view on the impact of the merger on higher education provision both nationally and internationally?
15. Whilst a majority of the responses to this question recognised that both ECA and the University would see exciting benefits from pooling and growing their international reputations, others were fearful that, being submerged in the larger university, ECA would lose the international identity and reputation it has built up over the years.
Selection of the positive comments:
- 'stronger identity and international brand for ECA [if promoted actively]'. Glasgow School of Art
- 'enhance and strengthen… College's identity on the national and international stage. ECA will have greater resilience, deeper resources and access to a wider academic network'. National Galleries of Scotland
- 'bring together the various theoretical elements of film with the internationally famous film practice at ECA'. Scottish Documentary Institute
- 'make the offering from both institutions more attractive'. Scottish Qualifications Authority
- 'will be of benefit to Scottish students. Opportunities for the ECA international brand to be strengthened, attracting a greater number of international students to Edinburgh'. Universities Scotland
- Various individual/anonymous comments:
'opens up exciting opportunities…for both students and staff in many areas';
'could lift ECA into a new international league';
'support growth and development';
'attract higher calibre students and academics';
'become a world leader in some new areas as the synergistic benefits make their impact'.
Selection of the comments against:
- 'small HEIs are [not] intrinsically unsustainable…merger should not force Glasgow School of Art to merger as well'. Educational Institute of Scotland
- 'will reduce choice. ECA…has the second highest proportion, after St Andrews University, of overseas students in Scotland'. Council of the Alumnae Association of ECA
- Various individual/anonymous comments:
'reducing specialist high level provision';
'international reputation of the ECA …submerged within the larger remit of education at the University';
'some art provision such as fashion, jewellery and illustration would suffer';
'broadening of art education should not be at the expense of depth'.
What impact, if any, would the merger have on other higher and further education institutions?
16. Concerns were raised about the implications and impact on other small specialist institutions and a worry that they too could be pushed towards a merger with larger universities, although some felt Glasgow School of Art would benefit as the only remaining independent art institution. Others saw unique benefits of incorporating art into university research and teaching.
Selection of the positive comments:
- 'increase the stature and competitiveness of research centres such as OPENspace'.
- 'foster closer links and collaborations with other bodies, including the National Galleries of Scotland'.
- 'will make the university unique in Scotland by realising a new academic vision incorporating art practice as well as enhancing our international visibility'. Scottish Documentary Institute
- 'ECA to engage much more readily with the work of relevant research pools where the University is already heavily engaged'. Universities Scotland
- Various individual/anonymous comments:
'will feel the competitive edge of the newly merged institution';
'place Edinburgh and Scotland more clearly on the world stage in areas of art, design, architecture and landscape architecture';
'opportunity to develop the area of Scottish visual studies'.
Selection of the comments against:
- 'concerned that the GSA should not feel pressure to emulate ECA and merge with another larger institution'. Educational Institute of Scotland
- 'potential to impact on the rest of the Scottish higher education sector if the required funds are taken from an already reduced HE budget for 2011/12'. Universities Scotland
- 'put the future, as independent institutions, of GSA and RASMD at risk'. Council of the Alumnae Association of ECA
- Various individual/anonymous comments:
'other SSIs would probably pick up the more creative students';
'SFC will see a merger as a template for other smaller Scottish higher education institutions'.
What impact would the merger have on students at Edinburgh College of Art and the University of Edinburgh?
17. Generally, it was felt that ECA students would benefit significantly from being part of a larger, more diverse and resource intensive university. The student representative bodies at both institutions were strongly supportive of the merger. However, there were worries expressed in response to this question and elsewhere that there might be a threat to the continuation of the ECA combined studies degree.
Selection of the positive comments:
- 'significant benefits for ECA students through unlimited access to University Learning Resources, sport and leisure facilities, specialist professional advice; Benefit to both in access to additional courses/units as part of interdisciplinary academic programmes.' Glasgow School of Art/Universities Scotland
- 'enriched experience and greater opportunities in terms of courses available to them and in terms of support for research projects'. OPENspace
- 'positive effect on student learning and will bring new opportunities and experiences to the current and future students of ECA'. Edinburgh College of Art Students' Union
- 'added value and a more secure future in a difficult funding environment'. Stow College
- 'some [ECA] students may thrive with the change'. Educational Institute of Scotland
- Various individual/anonymous comments:
'enhanced student experience';
'University is a diverse body and should be in a position to maintain key strengths ECA bring as a specialist organisation';
'merger likely to lead to the emergence of new programmes of study';
'hope merger will increase the opportunities for part-time study within ECA'.
Selection of the comments against:
- 'risks to ECA students are: probable reduction in the scope and variety of courses offered by ECA; to ECA's ability to admit students on a portfolio without academic qualification; level of Student Satisfaction at ECA is high, 80%+ whereas at the University it is in the second bottom quartile'. Council of the Alumnae Association of ECA
- Various individual/anonymous comments:
'reduction in teaching provision';
'co-operation between independent bodies is of more value in the long term than assimilation';
'university will raise fees and oversubscribe foreign students';
various concerns over threat to the continuation of Combined Studies BA.
What would be the artistic and cultural impacts?
18. There was a general recognition that ECA's impact would be enhanced with opportunities to bring art to a wider audience and into new areas of research and collaboration. Counter to this were concerns about losing an independent specialist arts institution in the East of Scotland and that the more talented arts students would gravitate towards Glasgow School of Art.
Selection of the positive comments:
- 'synergies are likely to be very positive'. OPENspace
- 'stronger College of Art in Edinburgh will become more of a key player in the culture sector in Scotland with benefits for students and the public'. National Galleries of Scotland
- 'huge cultural impacts to have a film school which will close the loop between education, training, talent development, integrated research and creative industries'. Scottish Documentary Institute
- 'provided the distinctiveness of ECA is retained, the impacts would be positive in terms of drawing on resources, reputations, and expertise of both institutions'. Scottish Qualifications Authority
- 'if successful then considerable both for Edinburgh and the wider Scottish society'. Stow College
- 'could have positive artistic and cultural impacts due to the ECA entity being able to use the University's name, reputation and resources to good effect'. Educational Institute of Scotland
- 'predict impacts to be overwhelmingly positive…..enlarged ECA with the support of the University's knowledge exchange and outreach infrastructure will be able to strengthen the scope and scale of its knowledge exchange and commercialisation activities'. Universities Scotland
- Various individual/anonymous comments:
'impacts of [ECA's] work and inspiration will have a wider effect';
'increased diversity within merged institutions';
'artificial boundaries could be eroded in the endeavours of art and science;
new audiences for, and across, the arts and sciences';
'better support for research, education and knowledge transfer will enhance ECA's work';
'ECA will be able to benefit from greater opportunities to exhibit their work and take part in initiatives with other European and international universities'.
Selection of the comments against:
- 'loss of the only independent Art School in the East of Scotland will have an impact on the artistic and cultural life of Edinburgh'. Council of the Alumnae Association of ECA
- Various individual/anonymous comments:
'Reduce Scottish impact internationally';
'creative direction could become under the control of people with only bureaucratic interest to satisfy';
'risk that there will be fewer artists, possibly less well trained, coming out from the college';
'loss of a centre of excellence in Scotland's capital city'.
What impact would the merger have on the creative industries sector in Scotland?
19. Comments were generally very positive that the merger would open up opportunities and collaborations which would enhance the sector and bring in more creative people. It was argued, however, that small institutions are better placed to interact with small to medium businesses.
Selection of the positive comments:
- 'increased resources available to creative education and research'. Glasgow School of Art
- 'ECA will be in a stronger position to provide an essential link between the creative industries and the wider education sector in Scotland'. National Galleries of Scotland
- 'greater synergies and collaborations'. Scottish Qualifications Authority
- 'important growth sector…benefit from successfully merged institution'. Stow College
- 'plan to establish a major new Design-Informatics Centre has the potential to make a significant contribution to the creative and design industries. More comprehensive support for knowledge exchange across ECA to the benefit of Scottish SMEs'. Universities Scotland
- Various individual/anonymous comments:
'more focussed channels being created';
'better placed to support Scottish industry and artists in their work';
'attract more creative people'.
Selection of the comments against:
- 'access for SMEs and micro businesses (over 90% of creative businesses) to a University is usually more complex than access to a small mono discipline institution'. Glasgow School of Art
- 'threatens wellbeing of ECA as a major supplier of new entrants to the creative industries'. Council of the Alumnae Association of ECA
- anonymous comment: 'With the jewel removed, Scotland would lose reputation and its most creative children'.
CONCLUSIONS
20. The majority of respondents (ratio of around 2 to 1) were supportive of the proposal to merge Edinburgh College of Art with the University of Edinburgh. The views expressed in response to the consultation paper, along with the advice from the Scottish Further and Higher Education Funding Council, helped inform the decision of Scottish Ministers to approve the proposal.
CONSULTATION EXERCISE: FINAL REPORT
21. All responses received were carefully considered and along with the advice from the Scottish Further and Higher Education Funding Council were reflected in the decision of Scottish Ministers to approve the proposal from Edinburgh College of Art and the University of Edinburgh to merge their institutions. The Cabinet Secretary for Education and Lifelong Learning approved the merger in a letter to the institutions on 24 January 2011. Subject to the approval of the Scottish Parliament, it is the intention of the institutions to implement the merger from 1 August 2011.
Scottish Government, Higher Education and Learner Support Division, 21 March 2011
ANNEX A
LIST OF CONSULTEES
All Chambers of Commerce in Scotland
All Scottish Further Education Colleges
All Scottish Higher Education Institutions
All Scottish Local Authorities
All Scottish MEPs
Association of Head Teachers in Scotland
Association of Managers of Student Services in Higher Education ( AMOSSHE)
Association of University Teachers
Scotland's Colleges
CBI Scotland
Coalition of Higher Education Students in Scotland ( CHESS)
Copyright Libraries
Convention of Scottish Local Authorities ( COSLA)
Creative & Cultural Skills
Creative Scotland
Education Institute of Scotland ( EIS)
Education, Lifelong Learning and Culture Committee
Equality and Human Rights Commission
Equality Network
Federation of Small Businesses
Futureskills Scotland
Highlands and Islands Enterprise
HM Inspectorate of Education
Institute of Chartered Accountants for Scotland
Institute of Directors
Lead Scotland
Learning and Teaching Scotland
Linking Education and Disability Scotland
National Association of Schoolmasters Union of Women Teachers in Scotland
( NASUWT)
National Galleries of Scotland
National Museums of Scotland
NHS Education for Scotland
NUS Scotland
Professional Association of Teachers
Quality Assurance Agency Scotland
Royal Society of Edinburgh ( RSE)
Royal Scottish Academy
Scottish Civic Forum
Scottish Council for Development and Industry
Scottish Council for Research Education
Scottish Council for Voluntary Organisations
Scottish Enterprise
Scottish Further and Higher Education Funding Council
Scottish Inter Faith Council
Scottish Natural Heritage ( SNH)
Scottish Parliament's Information Centre
Scottish Qualifications Authority
Scottish Refugee Council
Scottish Secondary Teachers' Association
Scottish Youth Parliament
Sector Skills Alliance Scotland
SKILL: National Bureau for Students with Disabilities
Skills Development Scotland ( SDS)
Skillset Scotland
STUC
Student Awards Agency for Scotland
Student Loans Company
Student Representative Council at UNISON
Universities Scotland
University and College Union
Volunteer Development Scotland
Young Enterprise Scotland
Youthlink Scotland
ANNEX B
LIST OF RESPONSES
001/2010 | John Wheatley College |
002/2010 | Glasgow School of Art |
003/2010 | Mary Mackinnon Mackay |
004/2010 | Professor Dugald Cameron |
005/2010 | Dr Duncan Comrie |
006/2010 | Individual |
007/2010 | University of Edinburgh (Architecture) |
008/2010 | Individual |
009/2010 | Individual |
010/2010 | OPENspace Research Centre |
011/2010 | Catharine Thompson |
012/2010 | Scotland's Colleges |
013/2010 | Individual |
014/2010 | Individual |
015/2010 | SNP Edinburgh Central |
016/2010 | Ruth Thomas |
017/2010 | Individual |
018/2010 | Trevor Davies |
019/2010 | Forestry Commission |
020/2010 | Scottish Natural Heritage |
021/2010 | Edinburgh University Students' Association |
022/2010 | Murdo MacDonald |
023/2010 | National Galleries of Scotland |
024/2010 | Alison May McCraken |
025/2010 | Scottish Documentary Institute |
026/2010 | Individual |
027/2010 | Professor W R Jones |
028/2010 | Scottish Qualifications Authority |
029/2010 | Robert Allan |
030/2010 | University of the West of Scotland |
031/2010 | Edinburgh College of Art Student's Union |
032/2010 | Individual |
033/2010 | George Dodds |
034/2010 | Individual |
035/2010 | Eleanor Symms |
036/2010 | Individual |
037/2010 | Professor Brian Robertson |
038/2010 | Individual |
039/2010 | ECA Centre for Continuing Studies |
040/2010 | Barbara Rowell |
041/2010 | Individual |
042/2010 | Individual |
043/2010 | Stirling Council |
044/2010 | Stow College |
045/2010 | Gareth Wardell |
046/2010 | Individual |
047/2010 | Individual |
048/2010 | Individual |
049/2010 | Educational Institute of Scotland |
050/2010 | Individual |
051/2010 | Universities Scotland |
052/2010 | Individual |
053/2010 | Council of Alumnae Association of ECA |
054/2010 | Robert Robertson |
055/2010 | Margaret Ferguson |
056/2010 | Derek Mills |
* Reference marked 'Individual' denotes anonymous responses from individuals.