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This chapter provides the context for understanding how English widening participation (WP) policy has interacted with the development of a marketised and expanding higher education (HE) system (the ‘dual imperative’ highlighted in the introductory chapter of this volume). It traces the intensification of market approaches in HE since 1997, examining how these interact with and become intertwined with evolving national WP policy concerns. Since 1997, WP for under-represented groups as a national policy aim has become firmly embedded in the activities undertaken by higher education providers (HEPs). Policy initiatives have moved between incentive and risk to encourage HEPs to address national and local inequalities of access and (later) student success and differential graduate outcomes. This chapter gives an overview of the key policy moments in this period and argues for how they have shaped the way in which the business of WP is enacted throughout the sector. It highlights how the business of WP drawn widely has become simultaneously a regulatory requirement, a way for institutions to differentiate themselves in the HE market and a key marker of institutional civic or social responsibilities. Situating this alongside the increasing focus on students and applicants as consumers, this chapter also begins to problematise the issues of collaboration and competition this creates.

The English sector is characterised by an expanding and increasingly differentiated set of higher education providers (HEPs) and an ever-more diverse student body. As a consequence, HEPs are as differentiated in their widening participation (WP) approaches as they are in every other aspect of the business of HE, and this has led to tensions between why and how they should go about the business of WP. Are HEPs driven by the desire to enhance social justice or merely responding to regulatory pressure? This chapter discusses how changing market regulatory regimes have interreacted with, and often conflicted with, institutional missions as they try to respond to the dual policy imperatives discussed in earlier chapters: the economic, human capital expansionary dynamic and the desire to enhance social justice through access to the HE system.

Widening participation (WP) has increasingly become part of the normal ‘business’ of English higher education (HE) providers during the last 25 years. WP entered the policy mainstream for the entire HE sector following the Dearing Review (NCIHE, 1997) and the election of a new Labour government wedded to notions of social justice but also concerned with ‘lifelong learning’ in the name of human capital growth. This book employs a dual usage of the term ‘business’ in relation to WP policy, practice and culture in the context of the marketised English HE system. The first, figurative, usage explores the ways in which WP has been drawn into institutional positionality as HE providers are encouraged to differentiate themselves in the market. The second, literal, usage explores the ways in which the business of WP has become ‘business as normal’ for the sector and institutions, increasingly intertwined with other activities and which play out variously, often in response to regulatory demands of the state. This introductory chapter first contextualises these developments with a brief overview of the evolution of the HE sector in England before proposing a multilevel model – the HE policy enactment staircase – as a way of thinking about how policy is made, enacted and implemented within the sector. This chapter then draws upon this model to acts as a structure for this book. It does this by moving from a macro-level exploration of ideological levels of policymaking, through National/Sectoral level right down to the issues at an institutional and operational levels. In doing so, this chapter creates a framework from which to understand how the various elements and levels of the business of WP play out within the English HE sector.

The final chapter of this volume brings together the key debates from this book and situates them within an ever-developing policy landscape. It argues that the themes this volume raises around the two competing uses of ‘business’, both figurative and literal, continue to drive developments in widening participation (WP). It draws together threads around the figurative usage of business to consider the ways in which the ideology of marketisation has impacted the sector to date and continues to shape policies in this area. Considering the more literal ways in which WP has become the ‘business’ of the sector, this chapter draws together threads from across the second part of this book, which examined how higher education providers (HEPs), further education colleges, new providers and third sector WP organisations all enact WP as part of their ‘business as usual’. This chapter concludes with a summary of changes to the market structure introduced since the Higher Education Research Act (HERA, 2017), such as the levelling up White Paper (Department for Levelling Up, Housing and Communities, 2022), the Department for Education (DfE, 2022a) higher education policy statement and Office for Students (OfS) regulatory consultations (OfS, 2022b), and questions whether these represent minor tweaks to a recently embedded policy environment or indeed render much of the 2017 settlement redundant. Whether these are considered as continuity or change, in the final analysis, they suggest that there remain tensions among those responsible for the executive/ideological policy direction, with corresponding knock-on effects elsewhere on the enactment staircase. What remains clear, however, is that the contradictions inherent in the dual imperative – the human capital needs of the country juxtaposed against a desire for a more socially just society – remain unresolved while a ‘level playing field’ market order is layered over such a steep institutional hierarchy.

The architects of institutional policy are rarely those tasked with operationalising it. This can create gaps between what is set out in policy and what happens on the ground. This is an under-researched area and one this chapter will shed a light on. This chapter examines the role that widening participation (WP) practitioners play in operationalising policy. Focusing upon the implementational level of the policy enactment staircase, it examines the roles of individuals working at the coalface in enacting WP policy. Drawing upon research conducted by the author in 2016–2017 with higher education providers (HEPs) in England (Rainford, 2019), it supplements this with data from a sector-wide survey conducted by the editors of this book in 2021. In drawing together these two data sets, it offers a rich picture of who works in WP within HEPs in England. It examines the multitude of roles undertaken by these practitioners and how this varies across the sector both in HEPs and collaborative Uni Connect partnerships. This chapter also highlights how practitioners can shift the focus of how policy is operationalised. In doing so, it examines some of the challenges faced by practitioners and the extent to which they are given the tools to carry out this essential work. While this chapter argues that practitioners have a level of agency in the work they do, this can be constrained by both national and institutional policies. It argues that these constraints are often shaped by competing imperatives of both social justice and economic drivers.