The Scottish Greens have thrust higher education into the spotlight with their newly launched manifesto for the upcoming Holyrood elections, taking a bold stand against two cornerstone evaluation frameworks that have long shaped university landscapes across the United Kingdom. At the heart of their pledge is a commitment to dismantle the Research Excellence Framework (REF) and Teaching Excellence Framework (TEF), which they decry as drivers of unnecessary competition and market-driven pressures in academia. This position, unveiled just days ago, underscores a vision for a more collaborative and equitably funded system, particularly resonant in Scotland where free tuition has been a hallmark policy since 2008.
Launched on April 14, 2026, amid intensifying debates over university sustainability, the manifesto positions the Greens as champions of an education sector free from what they term 'artificially competitive' mechanisms. This stance arrives at a pivotal moment, as Scottish institutions grapple with funding shortfalls, staffing precarity, and post-pandemic recovery, all while navigating devolved powers that set them apart from England.
Unpacking the Research Excellence Framework (REF)
The Research Excellence Framework serves as the United Kingdom's primary mechanism for evaluating the quality of research produced by higher education institutions. Established in its modern form through the 2014 REF exercise, it replaced earlier assessments dating back to the 1980s Research Assessment Exercise (RAE). Conducted roughly every seven years—the latest being REF 2021, with REF 2029 on the horizon—the process involves universities submitting detailed portfolios of their research outputs, such as peer-reviewed journal articles, alongside evidence of impact on society, economy, or culture, and data on research environment and staff circumstances.
Step-by-step, institutions select outputs (typically two per researcher, though open to more), compile case studies demonstrating real-world benefits—like a University of Glasgow study influencing public health policy on alcohol consumption—and provide environment statements outlining facilities and strategies. Panels of expert academics score submissions on a scale from unclassified to 4* (world-leading). Funding bodies then allocate Quality-Related Research (QR) funding based on these scores; in 2021, this distributed over £2 billion across the UK, with Scotland receiving around £340 million via the Scottish Funding Council (SFC).
Critics, including many academics, argue the REF fosters a 'publish or perish' culture, incentivizing quantity over quality and collaboration. Scottish universities, while benefiting financially—Edinburgh and Glasgow often top rankings—report significant administrative burdens, estimated at £342 million UK-wide for REF 2021 alone. In a regional context, this metric-driven approach clashes with Scotland's emphasis on public good research, prompting calls for reform.
The Teaching Excellence Framework (TEF): Origins and Evolution
Complementing the REF, the Teaching Excellence Framework (TEF) aims to measure and reward outstanding undergraduate teaching. Introduced in 2017 by the UK government, it rates providers as Gold, Silver, or Bronze based on metrics like student continuation rates, graduate employment outcomes, and National Student Survey (NSS) satisfaction scores. Providers submit contextual statements explaining their performance, assessed by panels.
Scotland's 19 universities collectively opted out of TEF participation in 2022, citing misalignment with devolved priorities and free tuition model. Unlike England, where TEF links to fee caps, Scottish funding relies on SFC grants tied to student numbers rather than teaching ratings. Detractors highlight TEF's reliance on proxy metrics—NSS scores can fluctuate wildly year-to-year—and potential to prioritize student satisfaction over rigorous academics. For instance, a highly rated teaching institution might excel in feedback but lag in producing groundbreaking scholars.
In Europe, similar frameworks like the European University Association's quality initiatives exist, but Scotland's devolution allows tailored approaches, amplifying the Greens' critique.
Scotland's Distinct Higher Education Landscape
Scotland's higher education system diverges sharply from England's fee-based model. Since the 2008 abolition of upfront tuition fees, Scottish-domiciled students attend university gratis, funded through a graduate endowment later replaced by income-contingent loans. This sustains high participation rates—around 52% of school leavers progress to higher education, above UK averages—and bolsters social mobility.
Yet challenges persist: universities face real-terms funding cuts, with SFC grants per student down 20% since 2010/11, adjusted for inflation. International students, capped post-Brexit, provide vital revenue—£1.3 billion in 2024/25—but visa restrictions loom. Staffing issues compound this; over 40% of academic contracts are fixed-term, per UCU data, fueling burnout and inequality.
The Greens' manifesto intervenes here, pledging no tuition fees, a national summer hardship fund, and loan interest suspensions during parental leave to address gender pay gaps in academia.
Greens' Core Argument: Rejecting Marketisation
Central to the Scottish Greens' opposition is a rejection of 'marketisation'—the idea that competition via REF and TEF commodifies education. Their manifesto states unequivocally: 'Oppose the marketisation of higher education and artificially competitive funding mechanisms such as the Research Excellence Framework and Teaching Excellence Framework, and actively participate in cross-party discussions led by the higher education sector to find a sustainable funding model for universities.' This echoes longstanding concerns that these frameworks pit institutions against each other, diverting resources from teaching and societal impact.
Co-leader Ross Greer has framed this as liberating universities from 'financial marketplace' whims, advocating democratic governance and fair work practices like ending zero-hour contracts. For Scottish academics, weary of REF's game-playing—selective output submissions inflating scores—this resonates deeply.
The full manifesto (PDF) outlines complementary measures, including enhanced post-study work visas amid UK plans to shorten them from two to 18 months.
Academic and Union Perspectives on REF and TEF
- Bureaucratic overload: REF 2021 consumed 37% of academics' time, per surveys, stifling innovation.
- Inequity: Smaller Scottish institutions like Highlands and Islands University struggle against giants like Edinburgh.
- Gaming: 'Impact case studies' often prioritize measurable outputs, marginalizing humanities.
- TEF pitfalls: NSS biases toward vocational courses disadvantage research-intensive unis.
Unions like EIS-ULA and UCU endorse reform, citing mental health tolls. A 2025 UCU Scotland report highlighted REF's role in precarious contracts, aligning with Greens' fair work push.
Counterviews: Defending Metrics for Accountability
Not all agree. Universities Scotland acknowledges REF's funding role but calls for streamlining REF 2029—reducing outputs to one per person, emphasizing people/environment (40% weighting). Principal Prof. Sir Peter Mathieson (Edinburgh) notes metrics drive excellence, though burdens need easing.
SFC ties QR to REF scores, sustaining £340m annually; abolition risks shortfalls without alternatives. TEF opt-out preserved flexibility, but some argue national teaching metrics could enhance quality.
Broader Manifesto Commitments to Scottish HE
Beyond REF/TEF, Greens propose:
- National hardship fund for summer support.
- Scholarships for Palestinian/Ukrainian students.
- Democratic college boards with staff/student reps.
- Upskilling for adults via colleges.
Implications for Scotland's University Sector
Scrapping REF/TEF could foster collaboration, redirecting efforts to societal challenges like net-zero transitions—Edinburgh's climate research exemplifies potential. Yet, funding gaps loom; cross-party talks, as pledged, must yield models like needs-based grants or lotteries.
In Europe, devolved systems like Scotland's offer lessons for nations eyeing metric reforms. German Excellence Strategy, post-competitive critiques, emphasizes clusters over rankings.
Times Higher Education coverage highlights visa advocacy amid UK restrictions.
Other Parties' Stances and Election Context
SNP upholds free tuition but faces funding critiques; Labour eyes graduate tax; Reform pushes efficiencies. Polls show Greens competitive, potentially kingmakers.
Photo by 𝕡𝕒𝕨𝕤 𝕒𝕟𝕕 𝕡𝕣𝕚𝕟𝕥𝕤 on Unsplash
Path Forward: Sustainable Funding Visions
Greens advocate sector-led dialogues for block grants, echoing pre-REF eras. Pilots like collaborative impact funds could test viability, ensuring Scotland's 19 unis thrive collaboratively.
Outlook for European Higher Education
As elections near, this debate influences Europe's HE discourse—balancing metrics with mission. Scotland's trajectory could inspire equitable models continent-wide.
