Impact of the University of the Air White Paper on lifelong learning opportunities

Impact of the University of the Air white paper on lifelong learning opportunities University of the Air white paper

2026 marks the 60th anniversary of the University of the Air white paper (PDF), which led to the creation of the Open University.

The concept of a ‘university of the air’, which was intended to capture the idea of distance learning through degree-level lectures broadcast into people's homes on television and radio, was first proposed by Harold Wilson in a speech in Glasgow on 8 September 1963 (PDF). On becoming Prime Minister in 1964, Wilson convened an Advisory Committee, chaired by Jennie Lee, then Minister for the Arts and later Baroness Lee of Asheridge, and made up of various higher education stakeholders, to consider how an institution focused on distance learning would work.

The white paper was published in February 1966. Lee outlined the concept of an “open university”, which would model “an imaginative use of new teaching techniques and teacher/ student relationships” and be “open to everyone on payment of a registration fee, irrespective of educational qualifications”.

The white paper explored how radio and television could be used to deliver lectures, and while it assumed that only a relatively small proportion of students might obtain a full degree, it envisaged large scale engagement and the gaining of “intermediate qualifications” being of great benefit to both individuals and their communities. The white paper also highlighted how such an institution would allow students to pursue courses flexibly over a timescale that suited them best. It said:

The main consideration is that arrangements should be flexible, so that some students could qualify in a shorter time if able to do so, and others could take longer if they found it necessary.

Establishment of the Open University

Following the white paper, a formal planning committee was set up in September 1967, tasked with creating a comprehensive plan and preparing a draft charter and statutes for what was now known as the ‘Open University’. The report of the planning committee was published in January 1969 (PDF), and Ted Short, then Secretary of State for Education and Science, announced the plan had been accepted in full.

On 23 April 1969, the Open University received a Royal Charter, and this date is now the official anniversary of its opening. The Open University started teaching in January 1971, offering four foundation courses. The first cohort comprised 25,000 students, which increased to 70,000 students by 1979. Since opening, two million students have been taught by the Open University, and it has partnered with the BBC to produce prime time programming that supports its students.

More information on the history of the Open University is available on its website.

Lifelong learning today Statistics

In academic year 2024/25 a total of 535,300 students started part-time courses at UK higher education institutions. 93% of these students were from the UK. 36% of part-time students were on first degree courses, the most common level for part-time study, The next largest were taught Master’s (25%) and other (non-first degree) undergraduate courses (15%).

The Open University had more students (total full- and part-time) than any other higher education institution in 2024/25. Its 124,600 students was more than double the next largest university. 23% of all part-time students at UK higher education institutions were studying at the Open University in 2024/25.

Part-time student numbers have been falling since 2009/10. They fell by 42% between 2009/10 and 2017/18. Numbers increased in the early 2020s, largely due to higher numbers on taught postgraduate courses, but have fallen back again in recent years. The 2024/25 total was 4.5% above the 2017/18 low.

Mature undergraduates are defined as those starting their course aged 21 or older. In 2024/25 there were 292,500 mature undergraduate entrants at UK universities. This was 38% of all undergraduate entrants. Part-time undergraduates were much more likely to be mature; 82% in 2024/25 compared to 30% of full-time entrants.

Mature postgraduates are defined as those starting their course aged 25 or older. In 2024/25 there were 278,600 mature postgraduate entrants at UK universities. This was just over half (53%) of all postgraduate entrants. Part-time postgraduates were also much more likely to be mature undergraduates; 88% in 2024/25 compared to 41% of full-time entrants.

Lifelong Learning Entitlement

Recent higher education policy developments have indicated a shift towards better facilitating lifelong learning. The previous Conservative government proposed replacing the current student finance systems with what is now known as the Lifelong Learning Entitlement (LLE), which could be used flexibly to fund up to four years of post-18 education for learners across their working lives.

This policy has been continued by the current Labour government. From the 2026/27 academic year, the Lifelong Learning Entitlement will create a single, publicly funded post-18 student finance system in England, replacing undergraduate student finance and Advanced Learner Loans at levels 4, 5 and 6.

The LLE will provide all new learners with a tuition fee loan entitlement to the equivalent of four years of post-18 education up to the age of 60. This would be £38,140 based on the current maximum fee limit of £9,535 for the 2025/26 academic year. Additional entitlement will be available for priority subjects and longer courses, such as medicine. A “residual entitlement” will also be available to returning eligible learners who have already received publicly funded student finance. The LLE is intended to be used flexibly, for full or part-time study, and can also be used for modules in subject groups that address priority skills needs and align with the government’s industrial strategy.

For more information on the LLE, please see the Commons Library briefing paper The Lifelong Learning Entitlement.

Further reading

• Early Day Motion, Marking the 60th anniversary of the University of the Air White Paper, 6 January 2026
• Parliamentary Office of Science and Technology, Lifelong learning and skills, 20 May 2026
• House of Lords Library, Lifelong learning: England’s adult education sector and the government’s plan for skills, 29 January 2025
• Open University, Exhibition: The OU Story and Exhibition: The Jennie Lee Archive Collection