Students have two kinds of problems.
There are the big, systemic, institutional policy failures that make their lives miserable. These might be social ills of discrimination and prejudice rendered into the classroom experience. These might be reasonable adjustment policies that turn out to be entirely unreasonable. Or it might be the pecuniary architecture that collapses the student experience into unending part-time work and just about squeezing study in.
In general students’ unions and universities are set up to address these kinds of challenges. There are committees, policies, liaison groups, central budgets, and a power and decision making architecture which faces these problems. This doesn’t mean they can always solve these issues, if they ever can be solved, but it does mean they are at least positioned to have a go at doing so.
Power
In the realm of the fundamentally bad and wrong a senior executive often can make things better. After all, they set institutional budgets, strategies, policies, contracts, and rules that impact every student. However, there is another kind of problem that impacts students where they just have less proximity to the issue.
Imagine the student where things are basically ok. Life is tough, as it is for many students, but as far as they can tell they do not believe they are being treated unfairly, they seem to be broadly getting the big things they were promised when they turned up, and all available evidence suggests their lecturers are working within a set of policies that seem to be pretty fair. In other words, things aren’t too bad.
However, as time goes on things don’t go badly wrong but they do go a little awry. The common room they went to before lectures doesn’t open until 09:30 in the winter. Their feedback has gone from arriving in six weeks to seven which adds a little bit more pressure on their exams. The library is suddenly much busier as the cold nights have set it. The buses are now much less frequent after a timetable change. The kit they need for their programmes is now more booked up as a new term has brought a new set of modules. And onward and onwards on the ever more bits of bad experience ephemera that clog up students’ lives.
This is the rubbish bin theory of the student experience. Nobody is doing anything terribly wrong, in fact many people will be doing the right thing in some context and doing the best with the time they have, but the little bit of bad experience builds up and up until the whole student experience stinks. Some of these bits of rubbish are bigger than others, some might even amount to breaches of OfS’s ongoing conditions, but nobody is doing anything which is intentionally malicious.
The rubbish bin theory of the student experience posits that everyone within a students’ ecosystem can make perfectly reasonable decisions within their own domains, turning down the heating to save on budgets, reconfiguring communal meeting space for staff offices, and changing opening hours of the reception desks might make sense in the context of the university more generally and even for some students some of the time. It is that the university is too big, too bureaucratic, and does not always operate on a small enough level to always take the rubbish out.
The rubbish bin
The problem with the smelly rubbish bin is that it’s often only noticed when it’s full. For example, the classic students’ union response is to bring together lots of information from course reps, school reps, committees, and other sources, to then feedback for subsequent years about a different bin, different ways to take out the rubbish, new bin liners (you get it I have tortured the metaphor now). The challenge is that even if you really push down the rubbish in one place it will only pop out in another (ok I am really done this time).
This is because the issues are often too small-scale to warrant institutional intervention, which the union is well set up to advocate for, and often too local, emerging in programmes or departments, to be wholly made visible to the union or to be wholly made to work with university policy. The bin is able to get more and more full because everyone just flings their bit of rubbish in and it’s not anybody’s job to take it out from time to time (ok, sorry).
The university incentive is to deal with the regulatory challenges in front of them. And while these are ongoing conditions the information the university can rely on, publish, and collate, is often a retrospective indicator. To take only two examples. NSS reporting encourages universities to deal with the issues of students no longer at the insitution. Graduate Outcomes measure student performance at a point in time in an ever changing labour market.
This isn’t to say students’ unions don’t do lots of things for individuals, it’s not to say that universities only care about the big issues, that isn’t true, it’s a question of how these two institutions keep an eye on both the structural problems and the emerging challenges.
Public administration
There are three interesting public administration and organising theories that might help conceptualise this challenge. Henry Mintzberg, one of the most important public administration theorists of the 20th century, imagines organisation strategy like a potter at a wheel. The raw ingredients exist (staff, committees, students’ unions, money, representatives, and so on), but the shape of the pot only comes into focus when hands are applied to it. This is strategy by doing says that strategic intent only becomes apparent through patterns in retrospect.
This would mean that students’ unions would have much looser resource allocations and move across departments, programmes, central university structures, representative groups, and ways of working, where the challenges and insight led them. It would mean that universities find the means to have more hands at the wheel. Giving school, departmental, and faculty committees more power, allocating budgets for taking out the rubbish bin, and challenging central structures so they spend more time focussing on emerging problems, not the retrospective ones encouraged by the regulatory reporting cycle.
Community organising, which is a direction of travel across students’ unions, is slightly different to Mintzberg’s theory of emergent strategy. As imagined by the likes of Saul Alinsky community organising assumes that communities have the solutions but not the positional power to address issues. Emergent strategy places a greater emphasis on cross-organisational actions that can both exist within and between sites of local organising. They are both about allowing ideas to emerge with greater flexibility; it is that ideas of emergent strategy places greater emphasis on the initiation of those ideas and the provision of the materials to affect change within an organisational context. This would hold that rather than having a committee of people to take the rubbish bin out let students do it themselves through helping them organise and giving them budgets and responsibilities.
The other important theorists here are Denhardt and Denhardt and their idea of New Public Service which sets out organisations to serve rather than steer their stakeholders. In this model universities and students’ unions would spend much less time trying to fix the problems of their students but instead provide the spaces through which students could learn from each other, provide resources through which students could advocate for themselves, and provide insights that would allow students to more effectively make the case for change to the people in power. In this model the emphasis would be on how universities and students’ unions open up bureaucratic spaces to allow a greater plurality of student voices to come forward.
These are just three models amongst many but they raise the question of the best means of keeping an eye on the accumulation of student issues that lead to generally bad experiences. It comes down to a set of trade-offs which could be brought into sharper relief. The extent to which the universities, students’ unions, and their partners, ultimately develop policy and ways of working to support people to solve their own problems and they extent to which they are better served putting the organisational bureaucracy behind these bigger issues.
The rubbish bin theory although a metaphor brings into focus the literal problem of how universities value maintenance. The accumulation of student issues are partially addressed by the ongoing commitment to keeping stuff open, working, reliable, and functioning. In general, reward often follows doing a good new thing rather than keeping the good old thing working. The issue of the student experience is intrinsically tied to the recognition and reward of those who take the rubbish out.
