by Paul Temple
The easy way to tell authoritarian (or worse) states from ones that are, broadly speaking, liberal democracies is that in the latter you will find a range of public institutions that are significantly independent of the central state: this is what creates a plural society. It is, when you consider it, pretty surprising that we can have institutions largely funded, one way or another, by taxation, yet not controlled by the state. Take the example of Britain’s national cultural institutions: these are mainly state-funded yet guard their independence fiercely. However, we have seen in recent years how government has tried to drag them – the BBC, several major museums – into ludicrous “culture wars” and seeking to appoint to their governing bodies individuals thought to be sympathetic to certain government agendas. It is a sign that we live in a functioning liberal democracy that government does not routinely get its own way in these struggles: under an authoritarian regime, it would not even be a matter for discussion. Liberal-minded people know, almost instinctively, that independent institutions matter.
Perhaps the most important non-state public institution, everywhere, is the judiciary. The outcomes of legal cases where the state is involved in Russia or China, say, are invariably foregone conclusions. A judge’s task in these situations requires presentational skills rather than forensic ones: to frame the predetermined outcome so that it seems as if legal norms were applied, thus allowing the government to claim that the decision was made by an independent judiciary. That show trials continue in Putin’s Russia and elsewhere (why not just throw dissidents into jail, or indeed execute them?) is an implicit recognition that the moral standing of liberal institutions is too high to be simply ignored.
But those of us fortunate enough to live in liberal societies – being, as the poet Douglas Dunn puts it, “on the pleasant side of history” – cannot be complacent: the institutional structures that we all-too-readily take for granted and which underpin pluralism and support our freedoms are, we have seen recently, desperately fragile. The “enemies of the people” assault on the judiciary by the tabloid press in November 2016 over, bizarrely, a legal determination that parliament needed to vote to trigger the process of leaving the EU, showed how a populist frenzy might be worked up. That the attack was not countered immediately and vigorously by the government, because it suited the government’s political purposes at the time, was deeply shameful and worrying.
In most authoritarian states, universities and colleges do not seem to carry the same weight as the judiciary: they are apparently mostly left to get on with their work in peace, providing, naturally, that they don’t cause trouble for the regime. Academics in the former Soviet bloc countries became expert in knowing how far they could push matters (normally, not very far) and still keep their jobs and privileges. The state was a constant – if to outsiders, hidden – presence in university affairs, and university rectors usually saw their jobs in terms of keeping their academics quiet and the secret police out. The Soviet academic observation that the most dangerous university subject was history – because while we could be certain that the future would be a socialist nirvana, the past was full of traps for the unwary – neatly delineated the scope of university work under authoritarian rule. A recent detailed account of governance in Chinese universities today (Liu, 2023) explains that each university has a Communist Party committee which is “the highest authority within the university”, a point not made, in my experience, when western visitors meet the university president. He or she is accountable to a political structure that outsiders do not usually see (and if they do, its role is glossed-over), and which determines how decisions made in Beijing will be applied within the university.
In Britain, by contrast, the state/university divide was once maintained with almost religious fervour. In the days of the University Grants Committee (UGC) – peak liberalism for higher education – I once found myself chatting over coffee in a conference break to an Education Department civil servant. When he learned that I worked in a university, he almost dropped his coffee cup in shock when he realised that he’d sinned against the arms-length principle that meant that the UGC was supposed to be the only means of contact between universities and government departments. Universities, like local authorities, were seen then as autonomous parts of the public realm, each with their own goals and methods, rather than as agencies delivering central government policies. “The department [for Education and Science] dispensed cheques to the University Grants Committee for the universities and to the local authorities for schools and polytechnics with guidelines sometimes attached but virtually nil powers of enforcement…In the 1980s [under the Thatcher government] all that changed” (Hennessey, 1989: 428).
That change meant that the sharp state/university divide has now largely vanished: the role of the OFS is of course utterly different to that of the UGC. The proposal put forward by the then government in the recent general election campaign (have we heard the last of it?), that there would be central direction on which degree courses universities would be allowed to offer – or, in the measured tones of the Department for Education press release, “Crackdown on rip-off university degrees” – would mean that universities should be considered for all practical purposes as central government agencies, just as in China.
Why does this matter? One not-insignificant reason is about effectiveness: largely autonomous institutions – self-governing universities, locally-elected councils, free trade unions, the Whitehaven Harbour Commissioners – responding variously to the needs of the groups they are aiming to serve will almost certainly lead to better outcomes than would be produced by a remote, centrally-directed operation. But the larger reason is that pluralism underpins the freedoms we value in liberal societies, creating the distributed decision-making which you and I might have a chance of influencing. When those decisions are not ones that central government finds to its taste, it is even more important that independent thinking might prevail. The regular attacks on universities by Ministers in the last government, as regularly chronicled in SRHE News, surely had the purpose of undermining autonomous institutions with a commitment to disinterested knowledge production, and so weakening a core element of a liberal society. If this isn’t a fight worth having, I don’t know what is.
Dr Paul Temple is Honorary Associate Professor in the Centre for Higher Education Studies, UCL Institute of Education.
References
Hennessy, P (1989) Whitehall London: Secker and Warburg
Liu, X (2023) The Development and Governance of Private Universities in China Singapore: Springer Nature
