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COMMITTEE ON PROCEDURE AND PRIVILEGES (Sub-Committee on Seanad Reform) debate -
Thursday, 18 Sep 2003

Vol. 1 No. 3

Presentation by Convocation of the National University of Ireland.

Witnesses: Professor James Heffron, Dr. Michael Cosgrave and Ms Angela Hoey-Heffron.

I welcome the representatives from the Convocation of the National University of Ireland. Thank you for replying to our request for submissions, making a formal submission and coming before the sub-committee. Some 20 minutes have been allocated because of the number of submissions that have to be heard. We have read your submission carefully. Perhaps you can give a synopsis and take questions from the members of the sub-committee.

While members of the sub-committee enjoy absolute privilege, the same privilege does not extend to witnesses who have only qualified privilege. I am sure we will not get to anything nasty.

Professor Heffron

The first item in our submission was that university representation should be continued. The reason behind that statement is that the universities play a major role, not only in social development, but also in economic development. If one looks at the OECD report, the universities have figured. In many cases some have departments that are world class. For that reason we consider that the universities can play a very useful role in a body such as the Seanad, given that the origin of the Seanad is in Roman times and was supposed to be made up of wise men - but we will get rid of the men——

In the generic sense.

Professor Heffron

——wise persons. Given that we are going for this Europe of knowledge, it is even more important that universities are represented where they can offer advice - which I am sure is free to the Seanad and to the Dáil. That is the reason we consider retention of university representation is important. We also said the candidates should be university graduates. At present, the candidates do not have to be university graduates. It is appropriate in this day and age that they should be graduates.

Let me clarify that. Are you saying they should be graduates of a university?

Professor Heffron

Yes, as under the Act of 1997 under which seven universities are delineated. We suggest the candidates would come from one of these and, as at present, that they would be proposed and elected by university graduates. At this stage the Seanad seats in the universities sector should be allocated to the sector as a whole, that is, the seven universities, as set out in the Universities Act 1997. The number of representatives should be increased from six to 12. My colleague, Dr. Cosgrave, will make a comment on this. Given that the number of seats is three for the NUI and three for the University of Dublin, and the number of graduates of the NUI is over 200,000 and the electorate is over 100,000, it is the most democratic constituency in the sense that the NUI has 100,000 and Trinity approximately 40,000 on its register of electors.

With regard to the Seanad Éireann panels, it was felt by the council of convocation that candidates nominated by the nominating bodies should be elected democratically rather than by county councillors. We have spelled out the members of the nominating bodies as an example. Candidates should not be permitted to be nominated by more than one nominating body. The reason for this is obvious in today's democratic climate.

Dr. Cosgrave

As Professor Heffron has said, I want to refer to the suggestion that the number of university representatives be increased. That suggestion is being made by convocation in the context of the current structure and composition of the Seanad. We thought, given that the Taoiseach has 11 nominees, that the number of Members in the most directly elected constituency, the university seats, should balance the nominees of the Government, and that there would be a measure of equity and democracy in it. In regard to the suggestion to increase the number, since the Seanad was establishment in 1937, the number of graduates has vastly increased. We are rapidly heading towards having 50% of the population going through higher education. Therefore, in the light of that increase, it is appropriate to increase the number of seats, particularly if the new universities are brought into the electorate as well, as they should be.

Perhaps Senator Dardis would lead the questioning and any of you may answer.

I thank representatives of the convocation for attending the sub-committee and their submission. How would the delegation respond to a proposition that as university graduates represent just one sector of society, it is now an anachronism that they should be represented here at all? If the delegation says the nominating bodies should be more democratic in the sense that the members of the nominating bodies should be the electorate, why not extend it to the entire population? Why should the universities have any particular privilege relative to any other sector of the community?

Dr. Cosgrave

One of the original reasons for giving the universities seats in the proportion that they had was that the graduates of the universities represented professions that were not otherwise involved in the other panels. I think that is still the case. Those seats for degree graduates from the universities are a catch-all for professions that would not otherwise be represented on, for instance, the Industrial and Commercial Panel or the Cultural and Educational Panel. It enables graduates of professional standing who are not involved in any of the other areas to bring their expertise and put it at the disposal of the nation. The track record and the quality of contribution would go a long way towards justifying some extra space also.

The presentation states 50% of the population are now involved in higher education. The delegation also says the electorate should be confined to university graduates. There are two aspects to this. Within some of the other third level institutions, degrees are awarded by recognised universities which may not be Irish universities. Why should they not be included? To go beyond that, why should it not be extended to those who are alumni of third level institutions, whether universities or institutes of technology?

Dr. Cosgrave

I do not think we would be entirely opposed to the idea of extending it to degree graduates of all institutions in due course or as part of a reform. The important thing about graduates in many degree courses, such as engineering courses, is that they do courses on professional issues, where they look at the responsibility of their profession to society as a whole and other professions and how they interact on a professional basis. Most degree level courses have that element. Medicine had it for a long time in terms of medical ethics. There is a clear distinction between degree level graduates and others on courses that do not go to the full degree level. There is a case to be made as to whether one includes or excludes the degree graduates from the institutes of technology. We would accept that a case can be made for including them in a graduate panel.

When the delegation speaks about increasing the number of representatives from six to 12 Members, is it suggesting that should be within the existing 60 Members or that the membership be expanded to accommodate the extra six?

Dr. Cosgrave

We would see the membership being expanded. That appears to be the consensus of many groups which have made submissions so far this week and there is a need to have a broader pool in the Seanad.

Professor Heffron

May I add one point? The Senator referred to universities outside the State recognising degrees in Ireland. In a way that conflicts with the Universities Act. In the last few paragraphs there is a statement that if one was to set up a new university, one would have to apply to the Minister. I think it causes problems in regard to universities accrediting courses in institutions here. With the way the Bologna process is going in terms of harmonisation of degrees, I reckon we should stay with the universities and, as Dr. Cosgrave said, we would not be against the institutes of technology.

I was relieved to hear Dr. Cosgrave say he would not be against the institutes because the submission is quite emphatic that it should be the seven statutory universities. I take the issue of graduates as read, although I had intended to ask a number of questions.

I would like to raise an issue in the context of the Bologna process because an attempt at harmonisation is being made and the outcome of that attempt, as I understand it, may be that all third level courses which involve a minimum of three years post-second level schooling will be regarded as basic bachelor degrees. As an engineer, my vanity is endless and I fully accept the wonderful training in social responsibility that engineers and doctors get but I was not aware that somebody who did a BSc or indeed a BA - I respect all graduates of all third level institutions - received an extra education over one of my students in CIT who spends three years studying for a diploma in chemical technology. I have always been unhappy about the concept of diplomas anyway because it is a loose term and a degree is a much more well-defined term. Diplomas are offered in many subjects with varying degrees of validity and it is one of the reasons many of the graduates of the institutes of technology are unhappy with the concept of a diploma, not because they are unhappy with their education but because in the real world people who hear the word "diploma" do not know what it means.

My understanding of the process of integrating Bologna - it is being used by various interest groups to justify many issues that are not in the Bologna declaration, which is a necessary process - is that three years of post-leaving certificate third level full-time study will be regarded, by and large, as producing a qualification which will be a basic bachelor's degree. If that is the case, the logic would be to recognise the people who did those courses before they were called degrees. The idea that people who did the diploma in architecture, for instance, in Bolton Street College of Technology 25 years ago and are now fully recognised professional architects are in any way different from the architectural graduates of, say, University College Dublin appears to be intellectually impossible to contemplate.

The only justification for the anomaly that is the university seats is the fact that they have served a useful purpose and have worked. Senator O'Toole and I feel strongly about this. It is rarely I claim to be able to speak for Senator O'Toole but on this issue, I do. I would be concerned that the language used here suggests a kind of elitism on the part of universities that we could do without.

Professor Heffron

That is a more extensive subject. A Bologna conference was held in Dublin last Friday which was run by the Higher Education Authority and ourselves at which there were two British representatives, one of whom was a member of the Association of European Universities. I agree with Senator Ryan that the tendency is towards a 3-5 system. Not many are happy with this and they do not want to have a degree system in many countries. I got that impression in Britain. I am not sure about Ireland but I believe we are of the same view. We do not want the standard ice-cream or sausage that the European Union tried to introduce a number of years ago——

The straight banana.

Professor Heffron

——or the banana or to take all the toxic chemicals out of everything. It looked as if the depth of the four year degree that characterises, say, the Scottish and the Irish systems particularly was a strong feature of European higher education, and we are in a competitive situation with the United States. That was one of the themes that came across in the meeting. To answer Senator Ryan, I am not sure whether they will get away with the three year degrees in the Bologna process. As he is probably aware, in Britain they are now looking at completing foundation degrees in two years. Where do we stop?

I would not disagree with Professor Heffron but there are universities in Ireland which are currently awarding three year degrees.

Professor Heffron

I agree with Senator Ryan's point about architecture in Bolton Street.

The point is one of comparability.

I thank Professor Heffron for his contribution. I am delighted he has clarified the issue about the new universities, which I assure him was causing us some angst. The position now is that it would be broadened to graduates of all universities.

The real bonus the university constituencies have given is that they have allowed people to become elected without going through the party system. That is a significant aspect. Would the representatives agree that, whatever the background, that is what has made it different?

Professor Heffron

I agree that is an important aspect. It is from an independent avenue, so to speak, relative to the existing political parties. Is that what the Senator is saying?

Professor Heffron

I would not underestimate the value that can be obtained from them.

I am sure I speak for all of us here when I say we are very taken with the idea of increasing the number from six to 12 which I fully endorse.

I think the Senators are speaking out of the sides of their mouths.

It was a very cogent argument.

A very attractive proposition.

I was struck by the remark that the university seats were set up in 1937 in order that people of a particular calibre would find a voice. I put it to the representatives that in that intervening period many Irish people, thankfully, have found their voices. I am putting the proposition, as did Senator Dardis, that the idea of 1937, which was noble and, let me say, necessary, is no longer relevant. People can speak for themselves now and do not need others from some intelligentsia to speak for them.

Professor Heffron

We have moved into a fourth level in higher education where advanced scientific research is having an enormous effect on economic development. I would not like to go overboard on the economic side of it, but I am not sure that the public is able to appreciate such matters as the implications for ethics, etc.

Many of the Senators here could express those views also. We have gone beyond the time when only a particular type of person got a degree.

Dr. Cosgrave

The problem is that the level of knowledge is constantly advancing and the reason we have universities is to keep up with that and to make it available to the people in general. Participating in public debate, as many of our academics do either through the university Seanad seats, writing regular columns on science in the newspapers or whatever is all part of that contribution. In the third and fourth points of our submission we state, somewhat aspirationally, that we believe the members of all the panels should be elected by the members of the nominating bodies.

I accept you said that.

Dr. Cosgrave

We did not think that would necessarily fly but believe it would be a good idea if it were to happen. That would be a fairly major change which would then lead to having to reconsider the whole structure of the panels at some point.

The point was made about the increasing participation in third level, which is to be welcomed. Notwithstanding the contribution the university Members make and their independence, which we acknowledge, the consequence of the increasing participation is that far more people coming in here, elected and otherwise, are graduates.

We are all graduates.

Being graduates, I do not understand the reason we cannot represent the university point of view.

Dr. Cosgrave

I take the Senator's point but in the context of a vastly changed Seanad where the panels were elected by the members of the different groups - industry and commerce represented by IBEC, the Labour Panel elected by the members of the trade union movement - there would be grounds for examining a different construction of a panel to represent the knowledge economy, which would probably be a more broadly drawn educational panel. Going forward into the 21st century, representation by knowledge workers and people at the forefront of knowledge, as an economic interest and part of the nation's community, is very important to maintain in some shape or form. We cannot overstate the importance of that contribution in economic and social terms and the importance of having it represented.

I thank the three representatives for their attendance. Their submission was well thought out and presented. We are grateful to the convocation and I would be glad if those present would convey that to their colleagues.

The witnesses withdrew.

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