Category: Government & Higher Education Policy

by GR Evans

This blog was first published in the Oxford Magazine No 475 (Eighth Week, Hilary term, 2025) and is reproduced here with permission of the author and the editor.

Rachel Reeds’ short but comprehensive book, Surviving and Thriving in Higher Education Professional Services: a guide to success (Routledge, 2025), is both an instruction manual for the ‘professionals’ it was written for and an illuminating account of what they do for the academics and students who benefit. However, Reeds is frank about what is sometimes described as ‘trench warfare’, a ‘tension’ between academics and ‘everyone else’, including differences of ‘perceived status’ among the staff of  ‘higher education providers’.

Her chapters begin with a survey of the organisation of ‘UK higher education today’. Then comes a description of  ‘job or career’ in ‘professional services’ followed by a chapter on how to get such a post. Chapter 4 advises the new recruit about ‘making a visible impact’ and Chapter 5 considers ‘managing people and teams’. The widespread enthusiasm of providers for ‘change’ and ‘innovation’ prompts the discussion in Chapter 6.

Reeds defines ‘Professional Services’ as replacing and embracing ‘terms such as administrators, non-academic staff or support staff’. In some providers there are not two but three categories, with ‘professional services’ sometimes described as ‘academic-related’ and other non-academics as ‘assistant’ staff. Some academics are responsible for both teaching and research but there may also be research-only staff, usually on fixed-term externally-funded contracts, which may be classified on the sameside of the ‘trench’ as academics. The ‘umbrella carriers’ of ‘middle management’ and ‘dealing with difficult things’ provide matter for Chapter 7. In Chapter 8 and the conclusion there is encouragement to see the task in broader terms and to share ‘knowledge’ gained. Each chapter ends with suggestions for further reading under the heading ‘digging deeper’.

The scope of the needs to be met is now very wide. Government-defined ‘Levels’ of higher education include Levels 4 and 5, placing degrees at Level 6, with postgraduate Masters at 7 and doctorates at 8. The Higher Education and Research Act of 2017 therefore includes what is now a considerable range of ‘higher education providers’ in England, traditional Universities among them, but also hundreds of ‘alternative providers’. Some of these deliver higher education in partnership with other providers which have their own degree-awarding powers, relying on them to provide their students with degrees. These all need ‘professional services’ to support them in their primary tasks of teaching and, in many cases, also research.

Providers of higher education need two kinds of staff: to deliver education and research and others to provide support for them. That was noticed in the original drafting of the Further and Higher Education Act of 1992 s.65, 2 (b) which approved the use of (the then significant) ‘block grant’ public funding for:

the provision of any facilities, and the carrying on of any other activities, by higher education institutions in their area which the governing bodies of those institutions consider it necessary or desirable to provide or carry on for the purpose of or in connection with education or research.

In what sense do those offering such ‘services’ constitute a Profession? The Professional Qualifications Act of 2022, awaiting consideration of amendments and royal approval, is primarily concerned with licence to practise and the arrangements for the acceptance of international qualifications. It is designed to set out a framework ‘whereby professional statutory regulatory bodies (PSRBs) can determine the necessary knowledge and experience requirements to work in a regulated profession (for example nursing or architecture)’. It will permit ’different approaches to undertaking’ any ‘regulatory activity’ so as ‘to ensure professional standards’This is not stated to include any body recognising members of the Professional Services of higher education.  Nor does the Government’s own approved list of regulated professions.

The modern Professional Services came into existence in a recognisable form only in the last few decades.The need for support for the work of the ‘scholars’ got limited recognition in the early universities. When Oxford and Cambridge formed themselves as corporations at the beginning of the thirteenth century they provided themselves with Chancellors, who had a judicial function, and Proctors (Procuratores) to ensure that the corporation stayed on the right side of the law. The office of Registrar (Oxford) and Registrary (Cambridge) was added from the fifteenth sixteenth century to keep the records of the University such as its lists and accounts.

The needs to be met expanded towards the end of the nineteenth century. Oxford’s Registrar had a staff of five in 1914. The Oxford and Cambridge Universities Commission which framed the Act of 1923 recommended that the Registrar’s role be developed. The staff of Oxford’s Registrar numbered eight in 1930 and forty in 1958. By 2016 the Registrar was manager to half the University’s staff.

The multiplication of universities from the 1890s continued with a new cluster in the 1960s,  each with its own body of staff supporting the academics. A body of University Academic Administrative Staff created in 1961 became the Conference of University Administrators in 1993. The  resulting Association of University Administrators (AUA) became the  Association of Higher Education Professionals (AHEP) in 2023. CUA traced its history back to the Meeting of University Academic Administrative Staff, founded in 1961. Its golden jubilees was celebrated in 2011 in response to the changing UK higher education sector. It adopted the current name in 2023.

This reflects the development of categories of such support staff not all of whom are classified as ‘Professional’.  A distinction is now common between ‘assistant staff’ and the ‘professionals’, often described as ’academic-related’ and enjoying a comparable status with the ‘academic’.

The question of status was sharpened by the creation of a Leadership Foundation in Higher Education (LFHE) in 2004, merged with AdvanceHE in 2018.  This promises those in  Professional Services ‘a vital career trajectory equal to research, teaching and supporting learning’ and, notably, to ‘empower leaders at all levels: from early-career professionals to senior executives’ That implies that executive leadership in a provider will not necessarily lie with its academics. It may also be described as managerial.

Reading University identifies ‘role profiles’ of four kinds: ‘academic and research’; ‘professional and managerial’; support roles which are ‘clerical and technical; ‘ancillary and operational support’. The ‘professional and managerial’ roles are at Grades 6-8. It invites potential recruits into its ‘Professional Services’ as offering career progression at the University. The routes are listed under Leadership and Management Development; ‘coaching and mentoring’ and ‘apprenticeships’. This may open a ‘visible career pathway for professional services staff’ and ‘also form part of succession planning within a team, department or Directorate or School where team members showing potential can be nurtured and developed’.

Traditional universities tend to adopt the terminology of ‘Professional Services’. Durham University, one of the oldest, details its ‘Professional Services’ in information for its students, telling them that they will ‘have access to an extensive, helpful support network’. It lists eleven categories, with ‘health and safety’ specifically stated to provide ‘professional’ advice. York University, one of the group of universities founded during the 1960s, also lists Professional Services. These are ‘overseen by the Chief Financial and Operating Officer’ and variously serving Technology; Estates and Facilities; Human Resources; Research and Enterprise; Planning and Risk; External Relations; student needs etc. The post-1992 Oxford Brookes University also has its Professional Services divided into a number of sections of the University’s work such as ‘academic, research and estates’. Of the alternative providers which have gained ‘university title’ Edge Hill (2006) lists seven ‘administrative staff’, two ‘part-time’, one described as administration ‘co-ordinator’, one as a ‘manager’ and one as a ‘leader’.

Reeds’ study draws on the experience of those working in a wide range of providers, but it does not include an account of the provision developed by  Oxford or Cambridge. Yet the two ancient English Universities have their own centuries-long histories of creating and multiplying administrative roles. The Colleges of Oxford and Cambridge similarly distinguish their ‘academic’ from their other staff. For example St John’s College, Oxford and Sidney Sussex College, Cambridge list more than a dozen ‘departments’, each with its own  body of non-academic staff.

In Oxford the distinction between academics and ‘professional’ administrators is somewhat blurred by grading administrators alongside academics at the same levels. Oxford’s Registrar now acts ‘as principal adviser on strategic policy to the Vice-Chancellor and to Council’, and to ‘ensure effective co-ordination of advice from other officers to the Vice-Chancellor, Council, and other university bodies’ (Statute IX, 30-32). Cambridge’s Registrary is ‘to act as the principal administrative officer of the University, and as the head of the University’s administrative staff’ and ‘keep a record of the proceedings of the University, and to attend for that purpose’ all ‘public proceedings of the University’, acting ‘as Secretary to the Council.’

The record-keeping responsibility continues, including ‘maintaining a register of members of the University’, and ‘keeping records of matriculations and class-lists, and of degrees, diplomas, and other qualifications’. The Registrary must also edit the Statutes and Ordinances and the Cambridge University Reporter (Statute C, VI). The multiplication of the Registrary’s tasks now requires a body offering ‘professional’ services. ‘There shall be under the direction of the Council administrative officers in categories determined by Special Ordinance’ (Statute c, VI).

Oxford and Cambridge each created a ‘UAS’ in the 1990s. Both are now engaged in ‘Reimagining Professional Services’. Oxford’s UAS (‘University Administration and Services’, also known as ‘Professional Services and University Administration’) is divided into sections, most of them headed by the Registrar. These are variously called ‘departments’, ‘directorates’, ‘divisions’, ‘services’ and ‘offices’ and may have sub-sections of their own. For example ‘People’  includes Childcare; Equality and Diversity; Occupational Health; Safety; ‘Organisational Development’; ‘Wellbeing’ and ‘international Development’, each with its own group of postholders. This means that between the academic and ‘the traditional student support-based professional services’ now fall a variety of other tasks some leading to other professional qualifications, for example from the Chartered Institute of Personnel and Development, the Chartered Management Institute or in librarianship and technology.

Cambridge’s UAS (Unified Administrative Service), headed by its Registrary and now similarly extensive and wide-ranging, had a controversial beginning. Its UAS was set up in 1996 bringing together the Financial Board, the General Board, and the Registry. Its intended status and that of its proposed members proved controversial. Although it was described as ‘professional’, the remarks made when it was proposed in a Report included the expression of concerns that this threatened the certainty that the University was ‘academic led’. This prompted a stock-taking Notice published on 20 June 2001 to provide assurance that ‘the management of the University’s activities, which is already largely in the hands of academic staff, must also continue to be academic-led’ and that the ‘role of the administration is to support, not to manage, the delivery of high-quality teaching and research’.  But it was urged that the UAS needed ‘further development both in terms of resourcing and of organization’. The opportunity was taken to emphasise the ‘professionalism’ of the service.

With the expansion of Professional Services has gone a shift from an assumption that this forms a ‘Civil Service’ role to its definition as ‘administrative’ or ‘managerial’. ‘Serving’ of the academic community may now allow a degree of control. Reeds suggests that ‘management’ is a ‘role’ while ‘leadership’ is a ‘concept’, leaving for further consideration whether those in Professional Services should exercise the institutional leadership which is now offered for approval.

In Cambridge the Council has been discussing ways in which, and with whom, this might be taken forward. On 3 June 2024 its Minutes show that it ‘discussed the idea of an academic leaders’ programme to help with succession planning by building a strong pool of candidates for leadership positions within the University’. It continued the discussion at its July meeting and agreed a plan which was published in a Notice in the Reporter on 31 July:

to create up to six new paid part-time fellowships each year for emerging academic leaders at the University, sponsored by the Vice-Chancellor. Each fellow would be supported by a PVC or Head of School (as appropriate) and would be responsible for delivering agreed objectives, which could be in the form of project(s).

‘In addition to financial remuneration’, the Fellows would each receive professional coaching, including attendance on the Senior Leadership Programme Level 3. Unresolved challenge has delayed the implementation of this plan so far.

The well-documented evolution and current review of Professional Services in Oxford and Cambridge is not included, but the story of Professional Services told in this well-written and useful book is illustrated with quotations from individuals working in professional services.

SRHE member GR Evans is Emeritus Professor of Medieval Theology and Intellectual History in the University of Cambridge.