Ms Mary Doyle:

I thank the Chairman and members for the opportunity to address the joint committee on the accreditation of the Bahrain facility of the Royal College of Surgeons in Ireland. I am accompanied by my colleague Mr. Keith Moynes. In my presentation I would like to focus on four areas. The first is the statutory framework for quality assurance and accreditation, which is relevant to the issues under discussion. The second is the broad policy context in which the international activities of Irish higher education institutions are undertaken. Third, I will outline the Government’s perspective on the situation in Bahrain, which has been articulated consistently by the Department of Foreign Affairs and Trade. Finally, I wish to state the position the Government has taken on the RCSI’s presence in Bahrain, again as articulated by the Department of Foreign Affairs and Trade.

On the first set of issues, namely, the statutory framework for quality assurance and Medical Council accreditation, a core mission of the Department of Education and Skills is to provide a strong framework for high-quality educational opportunities and outcomes across the spectrum of educational provision. The Qualifications and Quality Assurance (Education and Training) Act 2012, which has been alluded to by a number of speakers, among other things makes Quality and Qualifications Ireland, QQI, responsible for the external quality assurance role formerly undertaken by the Higher Education and Training Awards Council, HETAC, and the Further Education and Training Awards Council, FETAC, in the higher and further education and training sectors, respectively. Furthermore, QQI was assigned this role in respect of what are termed designated awarding bodies - that is, the NUI, the universities, the Dublin Institute of Technology and the RCSI.

The Royal College of Surgeons in Ireland (Charters Amendment) Act 2003 made provision for the RCSI to award its own degrees, subject to the relevant by-laws being agreed by the Minister for Education and Skills. The RCSI submitted draft by-laws for approval in 2009 and the then Minister requested that the Higher Education Authority and the National Qualifications Authority of Ireland, which is a predecessor body of QQI, conduct a review of the RCSI and advise him on the question of approval of the by-laws. Following that review, the by-laws were approved in 2010.

The RCSI, similar to all other higher education institutions referred to in the 2012 Act, is subject to review and oversight by the relevant national external quality assurance body, QQI. Review, in this context, refers to the formal review of the effectiveness of the institution-wide quality assurance policies and procedures established and implemented by the RCSI. A further review of RCSI by QQI, in accordance with the provisions of the 2012 Act, was undertaken in 2013, and I understand that the report is due to be finalised and published by QQI in the coming weeks.
Dr. Halpin outlined the NUI role and I do not propose to repeat the provisions on NUI.
Under the legislative framework, separately to the external quality assurance role of QQI, the Medical Practitioners Act 2007, which falls under the remit of the Minister for Health, sets out the role of the Medical Council in assessing the fitness for purpose of programmes of basic medical education and training and the bodies, including the RCSI, which deliver those programmes.
The Medical Council has already outlined the relevant processes under that Act, but it is germane to mention that section 88 provides for consultation by the Medical Council with the Minister for Education and Skills as part of their process for approving or not approving programmes and bodies. The Medical Council met, at its request, the Minister for Education and Skills on 6 February 2014 to "discuss its programme of accreditation and in particular the accreditation programme in 2014 including Royal College of Surgeons Bahrain". At that meeting, the Medical Council outlined to the Minister and the Department its intended programme of accreditation and the general principles which underpin its approach. The Medical Council has not yet formally sought to consult the Minister for Education and Skills under the terms of the 2007 Act in respect of RCSI-Bahrain.
The second issue is the national policy context regarding the internationalisation of education. The Department of Education and Skills has lead responsibility within Government for developing and implementing national policy to facilitate the internationalisation of higher education, in collaboration with other Departments and agencies.
Internationalisation is one of the major trends in modern higher education. The OECD pointed out that "in today's age of global knowledge and technology, an interconnected network and global awareness are increasingly viewed as major and sought-after assets." In principle, Government policy is supportive of high-quality internationalisation. It is important for Ireland, as an open economy which fundamentally relies on international engagement, to have institutions which are globally competitive and internationally oriented.
The ambition to enhance international collaboration and engagement by our education institutions is one of the seven key system objectives set out in our higher education performance framework for the period 2014 to 2016. Our national policy document for enhancing internationalisation, Investing in Global Relationships: Ireland's International Education Strategy, identifies a range of benefits for Irish and international learners but also for Irish society more generally and the societies of our overseas partners. In this context it is clear that many societies rely on international provision to fill gaps in their capacity to provide particular types of advanced education and training. This is particularly the case in highly specialised and crucial areas, such as medical training.
Particular complexity arises in the delivery of programmes outside the jurisdiction. To assist institutions in ensuring strong quality assurance in these circumstances, the Guidelines for the Approval, Monitoring and Review of Collaborative and Transnational Provision have been developed by the Irish Higher Quality Network, which comprises representatives of higher education institutions. This builds on work previously done by HETAC and international bodies, including the OECD and UNESCO.
In the specific area of human rights, the National University of Ireland has developed, in co-operation with the Irish Human Rights Commission, guidelines entitled Human Rights Principles and Code of Conduct for the National University of Ireland and its Member Institutions, which sets out five core human rights principles that should underpin international engagement by the relevant institutions. The Department of Education and Skills and the Department of Foreign Affairs and Trade were supportive of this and met the NUI in the course of the development of these guidelines.
The third issue I will address is the Government's position on the situation in Bahrain as articulated by the Department of Foreign Affairs and Trade. It is also important to say that at national level we align our internationalisation strategy closely with Ireland's foreign policy and with any EU and international obligations, including restricted measures such as sanctions that may be in force in respect of particular countries. Individual higher education institutions, including RCSI, also keep in close contact with that Department and Ireland's diplomatic missions overseas.
On the specific question of the Government's position relating to the situation in Bahrain, this has been articulated by the Department of Foreign Affairs and Trade, which has been consistent in conveying its concern at every suitable opportunity regarding the human rights situation in Bahrain, including the Government's concerns regarding the cases of medical professionals and human rights defenders. The Minister for Foreign Affairs and Trade most recently articulated what has been the Government's consistent position in Dáil Éireann in response to parliamentary questions on 2 October 2013, stating:

The overall human rights environment in Bahrain continues to be of serious concern. Ireland shares the concerns recently expressed by the United Nations Office of the High Commissioner for Human Rights regarding the deep polarization of society in Bahrain and the harsh clampdown on human rights defenders and peaceful protesters. Such actions continue to make a durable political solution based on reconciliation and dialogue more difficult to secure.

The Tánaiste also stated that he has:

ensured that Ireland's concerns on human rights issues in Bahrain have been conveyed regularly to the Bahraini authorities and [he] will continue to do so. Ireland was one of 47 member states who participated in a joint statement expressing serious concern over the human rights situation in Bahrain at the ... UN Human Rights Council on 9 September. In the statement, the signatories expressed their concern regarding the protection of human rights in Bahrain and called on the Government to expedite the implementation of the recommendations received from the Bahrain Independent Commission of Inquiry in this regard.

Finally, I will turn to the Government's position on RCSI's presence in Bahrain, again as articulated by the Minister for Foreign Affairs and Trade. At the outset of the crisis in Bahrain, the Tánaiste stated in Dáil Éireann on 6 July 2011 that he regarded the activities of the RCSI

... in assisting with the training of foreign medical personnel overseas as a highly worthwhile activity through which the College makes a significant contribution to the quality of life of millions of people around the world. The RCSI, as an educational provider, also has a responsibility to all of its students and ensuring they are able to complete their medical training.

The Tánaiste reiterated this position in the Dáil on 17 October 2012 when he noted:

The Royal College of Surgeons in Ireland, RCSI, the Royal College of Physicians of Ireland and the Medical Council are independent organisations involved to varying degrees in the education of medical professionals in Bahrain. It is important to distinguish between the involvement of Irish institutions in the education and training of Bahraini medical personnel, which is entirely positive both for this country and Bahrain, and the case of the imprisoned Bahraini doctors.