ERIC ED342323: College Quality Assurance Assurances. Mendip Papers 020.

25 Pages·1991·1.7 MB·English

by  ERIC

DOCUMENT RESUME
ED 342 323
HE 025 294
AUTHOR
Sallis, E.; Hingley, P.
TITLE
College Quality Assurance Assurances. Mendip Papers
C20.
INSTITUTION
Further Education Staff Coll., Blagdon (England).
PUB DATE
91
NOTE
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AVAILABLE FROM
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Blagdon, Bristol BS16 6RG, England (MP-020, 5.50
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DESCRIPTORS
*College Outcomes Assessment; Colleges; Cultural
Influences; *Educational Assessment; *Educational
Quality; Educational Resources; Foreign Countries;
Higher Education; Management Systems; *Program
Development; Program Implementation; *Systems
Approach; Universities
IDENTIFIERS
United Kingdom
ABSTRACT
This paper discusses the increasing interest in
quality assurance in British education including its measurement and
management through the introduction of a quality assurance system.
The reasons and benefits of beginning a quality assurance system are
discussed, and questions of what constitutes quality, whether it is
quality in fact (specification adherence), or quality in perception
(consumer viewpoint), are considered. Three quality assurance systems
are examined: British Standards 5750 Quality Systems Total Quality
Management; and a system of the Staff College's devising. Also
examined are two issues surrounding the Implementation of o quality
assurance system, namely, the type of college culture that exists,
and the resources which the college is prepared to commit to quality
assurance. Finally, the report outlines the stages for introducing a
quality assurance system in the college setting. Stage 1 discusses
the appraasal and diagnosis process and provides a checklist to
assist the college in assessing its existing quality culture. The
second stage examines the measurement of managerial commitment, and
stage 3 focuses on costing considerations and analysis. The last
three stages cover establishing a plan of action; involving everyone
in the quality process; and review and evaluation. Contains 11
references and a 20-atem bibliography. (GLR)
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The views expressed in this Mendip Paper are those of the
contributor(s). They should not be taken to represent the policy of
The Staff College.
About the authors
About the authors
Edward Sallis is Associate Principal at Bnmel Clege of Technology, Bristol. He has taught full-
time in six colleges. specialising in recent years in the human relations aspects of management and
issues of organisational change. Edward is the author of a number of papers on quality issues,
including The National Quality Survey published as a Mendip Paper by The Staff College in 1990.
His current research interests include the translation of TQM philosophy into the further education
setting.
Dr Peter Hingley is Reader in Management at the Bristol Business School, Bristol Polytechnic. He
has carried out a considerable amount of research and consultancy into quality issues in a range of
public sector organisations, including local government, social services, and the N.H.S. Peter is
particularly interested in the problems of organisational change, professional leadership and staff
appraisal. He has a number of publications in these areas, including The Change Makers (1986).
Stress in Nurse Management (1988), and Assessment centres: a guide for health authorities
(1990).
Published by The Staff College
Coombe Lodge, Blagdon, Bristol BS18 6RG
Telephone [phone]
Fax [phone] or 63140 (Publications Section)
Designed and edited at The Staff College by Pippa Toogood and Susan Leather,
Publications Department, and produced by the Reprographics Department
OD The Staff College 1991
All rights are reserved. No part of this publication may be reproduced, stored in a
retrieval system, or transmitted, in any form or by any means, electronic, electrical,
chemical, optical, photocopying, recording or otherwise, without the prior
permission of the copyright owner.
ci)
College quality
ta4
assurance systems
121.
17)
E Sallis & P Hingley
(1)
Quality issues
Contents
The background
Quality issues
1
Quality is one of the major issues for further
4
Quality assurance
education (FE) in the 1990s.
There are many
systems
reasons for the recent upsurge of interest in quality
issues. The most imporiant arise out of the changes
Some issues in
10
brought about by the 1988 Education Reform Act
implementing quality
(ERA). The Act places considerable emphasis on
assurance
monitoring colleges' outputs. The performance
indicators specified in the report of The Joint
Efficiency Study (Managing colleges efficiently.
Introducing quality
13
DES/WO 1987), and mirrored in the colleges'
assurance
schemes of delegation, provide rudimentary
measures of the efficiency of institutions.
Conclusions
14
Performance indicators are generally crude, and,
while useful for broad monitoring, do not address
References
15
questions about the effectiveness of the learning
They only provide pmxies as to the
process.
Appendix 1:
16
successful management and operation of a college.
bibliography
Many colleges are looking forways of going beyond
performance indicators, and are developing systems
for both demonstrating and improving the quality
of their provision.
The new freedom granted to colleges by ERA is
matched by requirements forgreater accotmtability.
Colleges need to show that they can consistently
offer particular levels and quality of service.
Training and Enterprise Councils (TECs) and the
Scottish Local Enterprise Companies (LECs) are
beginnin to specify that colleges should install
quality assurance systems as a means of
demonstrating accountability. The recent White
Paper (DES/DoE/WO, 1991) announced that the
new FE Funding Council will expect colleges to
have quality assurance (QA) systems in place.
Mendip Papers Fr
Colleges also face greater competition both from
motivation will vary between colleges. Some will
within and from outside public sector further
want to satisfy the tequirements ofexternal agencies;
education. Competition can be an important spur to
others will be concerned to improve theirmarketing;
whilst another group will give priority to the
improve the quality of service. Focusing on the
needs of the customer, which is at the heart of
improvement of student services and the delivery of
The teasons for introducing a
quality assurance, is the most effective means of
the curriculum.
quality system can be summed up as follows;
facing competition.
The need to be accountable and the demands of
the college itself wants to improve the quality
competition have put a premium on the quality of
of its service (the professional imperative);
the pmvision for the colleges' customers and clients.
the college's customers deserve it (the moral
Colleges are now in the business of convincing
imperative);
external agencies and their customers that they are
other colleges have introduced one (the
able to deliver consistently high standards. The
competitive imperative);
change in the status of colleges in April 1993 will
TECs and LECs air
the college has to
highlight this need. The closure of colleges which
are not up to standard may be a pan of this new
demanding it (the survival imperative).
reality.
An interesting finding in the survey was the nature
This emphasis on the importance of quality is
of the motivation behind developing quality systems.
The external pressures from local education
reflected in the published findings of the National
authorities (LEAs) and TECs/LECs were less of an
Quality Survey (Sallis. I990a) in which 66 percent
of the 260 colleges who responded said the
influence than the desire of colleges themselves to
improve the quality of their pmv ision. Most colleges
development of a quality assurance system was a
have recognised the importance of offering a
high priority for them.
guaranteed level of service which meets the needs
of their customers and clients.
The choice of quality systems and approaches is not
easy to make, and has considerable implications for
As well as being clear about the original motivation
the management of the college. It is important for
behind the introduction of a quality assurance
colleges to introduce systems which match their
system, colleges also need to be certain of the
culture and resources. If this is achieved then the
benefits they expect from it. The National Survey
implementation is more likely to be ' right first time'.
suggests that there are a number of main benefits
This is important if the concept of quality assurance
which colleges expect to flow from its introduction.
is to have credibility with staff.
These include:
One interesting outcome of the National Quality
improved managerial performance;
Survey is the large number of requests the authors
have received for advice and guidance on quality
improved marketing opportunities;
issues, particularly on issues concerned with the
impmvements to the college's
implementation of quality systems. This paper
administrative systems and procedures;
attempts to provide that advice. Quality assurance
improved savice and clients' satisfaction;
in further education is a large and multifaceted
issue. It is also an area which is in its infancy. A
a change in dr culture of the college;
number of the conclusions in this paper are
improvements to teaching and learning; and
necessarily tentative. They have been drawn from
improved staff motivation and morale.
industrial quality models and from some of the
limited experience which fu rther education colleges
These benefits are not mutually exclusive, and all
have in this field.
are legitimate. However, the approach taken to
quality will depend to a great extent on the expected
The motivation for introducing a
outcomes from implementing quality assurance.
quality system
The attempt to create a total quality culture will
require a different approach and philosophy than.
say. an ambition to improve the college's
It is important to be clear why a college would want
to introduce a quality assurance system.
adm ini strati ve systems.
The
7] Mendip Papers
f;
Definitions and perceptions of quality
The total quality management definition of meeting
custmner requirements is a broader, but still a
relative definition. The difference is that the
Quality can be both an absolute and a relative
whit:star of quality is now the customer
not the
concept. As an absolute it is similar in nature to
producer. This is an important distinction and
one
truth and beauty. It is an ideal with which there
can
that requites further discussion.
It reflects the
be no compromise. This absolute definition implies
diffemnce between `quality in fact' and 'quality in
that things which exhibit quality are of the highest
perception'.
standard. The standard is set by objective criteria.
The absolute definition sees Rolls Royce
cars as
'Quality in fact' is based on the producer's
or
'quality products', but not Ford Escorts.
Rolls
supplier's specification. It is about being able
to
Royce cars have 'quality' because they
are made to
meet consistently the standard which the producer
the highest specifications. Such high and absolute
has set for itself. 'Quality in fact' is the basis of the
standards arc usually based on aesthetics as well
as
quality systems devised in accordance with the
practical criteria. 'Quality products'
are not only
British Standards Institution's 5750 standard. The
precision engineered, but are things of beauty.
problem with 'quality in fact' is that
Hand in hand with such 'quality' usually
consumers
goes
may have a different perception of the quality of the
scarcity and a high price tag.
product from the producer. In the last analysis it is
the consumer who is the arbitratorofquality, because
Quality assurance definitions of quali ty are different
without customers there is no business.
because they are relative in nature. Quality products
need not be expensive or exclusive. They
may be
'Quality in perception', on the other hand, looks
beautiful, but not necessarily so.
at
They can be
quality from the consumer's viewpoint.
It
mundane, everyday, and throwaway can
openers,
encompasses 'quality in fact' (consumets want
tins of soft drink and ballpoint pens. They achieve
products which meet specifications), but this by
quality by being 'fit for purpose', in the British
itself is not a sufficient definition of quality. Quality
Standards Insti tuti on 's (B SI) definition, and because
products have to appeal to consumers. Consumer
they meet their specification in a consistent fashion.
satisfaction provtdes the evidence of quality.
So long as a product consistently meets its maker's
claims for it, and consumers are prepared to buy it.
The importance of this distinction for further
then a product has quality. In this definition both
education is that colleges need to be careful that
Ford Escons and Rolls Royces
are quality products.
they base their quality standards
upon an analysis of
They both exhibit quality as long
as they consistently
customer wants and needs and not just upon their
conform to their manufacturers' specifications and
own definitions.
standards.
There is an argument that in
In this telative definition a distinction has
a service industry like
to be
education the definition of quality should
drawn between quality and standards. Quality is
go beyond
merely meeting customer requirements and should
that which consistently conforms to
a particular
be about 'delighting customers'. It is, of
course,
specification or standard, but it is not itself a standard.
A standard is a pre-defined and measurable
difficult to measure 'delight'. However, the point
of this definition is to emphasise the strong
specification. It is perfectly possible for
customer
a product
focus which a college needs to develop if it is
to be of high standani but poor quality. This is the
to
provide a total quality service.
case when there is a high level of specification but
a lack of consistency in producing products to that
specification. The obverse is also possible.
If
customers want a low level of specification at a low
price, but one that can be consistently delivered,
then that is also quality.
Mendip Papers
Figure 1: The flight path to quality
Total quality management
in People' provides a national scheme, with scope
Quality assurance systems
for local variation, for the effective investment in
It could form part of a more
human resources.
The choice of a system
system or it can stand alone.
QA
comprehensive
Colleges may wish to consider this standard as part
There are essentially three systems of quality
of their QA system.
assurance for a college to choose between:
The British Standard
BS 5750 Quality Systems (BSI 1987 and
1990);
93 of the colleges who responded to the National
Total Quality Management (TQM);
Quality Survey said that they are following the BS
a system of the college's own devising.
5750 route. Another 71 colleges answered that they
are considering the possibility. The British Standards
Colleges are taking a variety of routes to assure
Institution has had interest from hundreds of
quality. Some have embarked on the 'total quality'
colleges, and expects half a dozen colleges to bc
Others are devising their own systems. A
route.
seeking BS 5750 registnuion in 1991, with perhain
third group are building systems to enable them to
another 40 doing so in 1992. Typically, in industry
register with the British Standards Institution as an
it takes 18 months to undertake the necessary work
organisation with a registered Quality System
for BS 5750 registration, although as both BSI and
BS 5750.
further education are new to the standard it may
initially take colleges longer.
In addition to the systems 1 isted above, the Training,
Enterprise and Education Directorate of the
systems are not
The available choices of
QA
Department of Employment (formerly the Training
mutually incompatible. A number of colleges are
Agency) has set up a new scheme which will be
combining or intending to combine a college-devised
operated through the TECs/LECs. Ibis is the
system for teaching and learning with BS 5750 for
'Investors in People scheme'. It is a kite marked
their short course units. 27 colleges in the Survey
quality assurance system for the training and
said that they are blending a TQM approach with
development of people in organisations. 'Investors
BS 5750.
4
Mendip Papers
Certain aims may naturally lead a college
to a
pedomsance. The outcomes of these
processes will
particular solution in its choice of a quality system.
almost certainly lead to the establishment of
an
For example, BS 5750 may appear ideal to
a college
improvement culture.
which aims to improve its administrative
systems
or its managerial effectiveness. The emphasis on
The assurance of the system =Wards is carried
out
traceability, paper-based systems and procedures.
both by internal and third pany taiditing. and for the
and the system of external auditing fits well with
a
latter the college pays an audit fee. The external
college which is seekhig to improve accountability
audit establishes the initial registration. If
or managerial effectiveness. It also provides a
organisations cannot maintain their systems then
potentially powerful marketing tool. The registration
regisumion is withdrawn. A number of accreditation
logo (of either BSI, Yardsley OT Uoyds Register
bodies canundertake the audit. Accreditation bodies
depending on who registration is obtained with) is
are Itgistered with the Department of Traci:. .,..4nd
claimed by many to provide a competitiie edge.
It
Industiy (DTI) as being fit to undertake
s.
could also place a college in
a monopoly provider
Those bodies which could audit colleges
are BSI
position if BS 5750 is insisted upon by the college's
Quality Assurance, Lloyds Register Quality
local TEC or LEC. Companies who
are themselves
Assurance, and Yardsley Quality Assurance.
BS 5750 registered may insist that all theirsuppliers,
Organisadons whose quality systems meet the BS
including training suppliers,
are also registered.
5750 specification achieve registered finn
status
The fact that BS 5750 is identical with the European
with the un, and can use the accreditation bodies'
standard EN 29000 and the international quality
quality systems logo for marketing and publicity
stand ani ISO 9000 is an additional bonus for colleges
purposes.
pursuing international contracts.
BS 5750 is new to education and training.
The
BS 5750 places a considerable discipline
on those
British Standards Institution has only recently
issued
intending to use it. Putting a system in place is
not
guidance on applying the standard to colleges.
The
easy or straightfitrward. It involves a considerable
standard was originally written for manufacturing
investment of college
resources and staff time.
industry and needs consideraNe translation for
the
Everybody in the institution needs to understand its
educational context. The applicability of BS 5750
implications, to work the systems and follow
the
has aroused strong feelings. There is
a view that a
procedures which have been put in place.
rigidly applied BS 5750 system could be
counter-
productive in an organisation with
a professional
BS 5750 only sets the standard for the
system, not
and well-educated workforce. The
concern is
the standards which the college should be achieving.
whether the extra workload and tim need
to work
The college, together with its
customers, is the
strictly to systems and procedures, albeit internally
arbitrator of standards. BS 5750
assures that there
generated, could damage staff morale and
even the
are systems in place to deliver those self-imposed
impetus for change within colleges. It is argued
that
standards. Some critics argue that because colleges
it could undennine both creativity and the
spirit of
set their own standards some could deliberately
set
entrepreneurialism which are the
sources of strength
low standards. However, this is not
even a theoretical
in FE colleges.
possibility because one of the elements in BS 5750
is contract review, and it is unlikely that
customers
BS 5750 was originally designed for
manufacturing
and potential customers will demand anything
but
industries who were designing, producing
and testing
high standards from a college. What BS 5750
does
physical products. One of its underlying
concepts is
not guarantee is consistency of standards between
that a quality system must be able
to assure the
colleges.
production of products of consistent quality.
This
presents a methodological problem in education,
It is important to note that BS 5750 is concerned
where the 'products', however defined,
cannot be
with the consistency of the product rather
than
produced to a measurably consistent
standard
systematic quality improvement. It is argued that
a
regardless of the efficacy of the quality
system.
college could obtain BS 5750 and
cease to make
further significant quality improvements, but
would
Originally, BSI insisted that the student
(or the
be able to maintain its BS 5750 registration.
Again
value added to the student)
was the product of the
this is probably unlikely, because BS 5750
requires
ptucess. However, under pressure from those who
an organisation to have an effective system of
argued that the student is not the ploduct but
the
review and evaluation, and
to monitor its
customer, it has subsequently agreed that the
Mendip Papers
9
contend that well-devised systems, created by the
programme of atlases and/or the learning pmeess
staff that wolk them, enhance professionalism and
also qualify as pmducts. But whichever product
definition is adopted, it is still not possible
are entirely consistent with the educational aims of
their colleges. They argue that BS 5750 saves time
consistently to reduce an educational 'product' in
in the long run and makes tht: institution more
the way that a physical product can be produced.
efficient. At this stage in its development it is too
The problem is that in education, in common with
early to evaluate BS 5750's impact on and relevance
other service industries, the ii.teraction between the
to further education. However, this caveat applies
customer ane the supplier aims the quality of
have an
semice being provided. Custumers
equally to all quality system models.
important tole in determining the quality of the
service they receive.
a journey not a destination
TQM
In education, the customer has a direct tole in the
For colleges who see quality as an all-embracing
pmduction of the quality of the educational product.
holistic concept, with a strong customer focus, then
All teachers know that no two classes are identical,
the idea of total quality management may have a
because of the individuals who comprise the class
greater appeal than BS 5750. However, BS 5750
and the nature of the interactions in the classroom.
should not be written off by colleges looking to take
It is simply not possible to deliver a consistent and
The two are not
a total quality approach.
The
consistently uniform learning experience.
incompatible. Quality expert John Oakland (1989)
motivation and attitudes ofleamers are an important
argues that BS 5750 can be a useful lead into TOM.
aspect of the quality of the education they receive.
Another approach is to see the efficacy of systems
and procedures as one element of total quality and
A college quality system needs to confront this
to use BS 5750 for that aspect of the quality system.
Quality policies and
difficult problem.
A college can make as much of BS 5750 as it wants.
implementation strategies need to recognise the
effect which student/staff interactions have on the
TQM can be introduced without using the British
For this reason
consistency of service delivery.
Standard. Like BS 5750 there is as yet no clear
many people have argued that colleges might do
definition as to exactly what TQM means in an
better to leave BS 5750 alone and wait for the
educational setting. However, many of the concepts
publication of a service industry standard. A service
applied to TQM in an industrial setting may equally
standard is in preparation by the International
apply to education. 83 of the colleges who responded
Organisation for Standanli sation (ISO) as ISO 90041
to the National Quality Survey questionnaire said
2. It may offer a more sympathetic approach to the
that they were taking the TQM mute.
problem of service quality consistency. Time scales
are clearly important, but the issue of the product or
The fundamentals of TQM are that:
the outcomes from the learning process will need to
be clearly addressed in a college's quality policy
leadership and commitment to quality must
statement, if it is following the British Standard
come from the top;
accreditation route. A practical way of addressing
the commitment to quality must be
this problem is not to focus directly on the leaming
organisation wide;
process but on the things which surround and support
it. Such an approach would be to specify the level
a total quality culture needs to be created;
of entitlement which a student might expect from
thedefinitionofquality ismeeting customer
the college. The college will then build systems
requirements;
which provide a reasonably consistent level of
the standard is 'right first time%
entitlement.. If the entitlements are closely defined
they will have an important direct influence on the
prevention not detection assures quality;
learning process, without the need to look for
the organisation's focus is the customer,
consistency in the student/teacher interactions which
customers are both internal and external;
take place during that process.
quality systems must be vehicles for the
BS 5750 has its supporters in education, and a
empowerment of staff, not for contnolling
number of colleges are working hard on its
them;
implementation. Supporters of the BSI approach
6
Mendip Papers