Migrant Education: Monitoring and Assessment
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DIRECTORATE-GENERAL FOR INTERNAL POLICIES POLICY DEPARTMENT B: STRUCTURAL AND COHESION POLICIES CULTURE AND EDUCATION RESEARCH FOR CULT COMMITTEE - MIGRANT EDUCATION: MONITORING AND ASSESSMENT STUDY This document was requested by the European Parliament's Committee on Culture and Education. AUTHORS Universitat Autònoma de Barcelona: Miguel Àngel Essomba, Anna Tarrés, Núria Franco- Guillén RESPONSIBLE ADMINISTRATOR FOR THE POLICY DEPARTMENT Parliamentary research administrator: Michaela Franke Project and publication assistance: Virginija Kelmelytė Policy Department B: Structural and Cohesion Policies European Parliament B-1047 Brussels E-mail: [email protected] LINGUISTIC VERSIONS Original: EN ABOUT THE PUBLISHER To contact the Policy Department or to subscribe to its newsletter please write to: [email protected] Manuscript completed in February 2017 © European Union, 2017 Print ISBN 978-92-846-0382-4 doi:10.2861/223254 QA-05-16-046-EN-C PDF ISBN 978-92-846-0381-7 doi:10.2861/812028 QA-05-16-046-EN-N This document is available on the internet at: http://www.europarl.europa.eu/supporting-analyses DISCLAIMER The opinions expressed in this document are the sole responsibility of the author and do not necessarily represent the official position of the European Parliament. Reproduction and translation for non-commercial purposes are authorized, provided the source is acknowledged and the publisher is given prior notice and sent a copy. DIRECTORATE-GENERAL FOR INTERNAL POLICIES POLICY DEPARTMENT B: STRUCTURAL AND COHESION POLICIES CULTURE AND EDUCATION RESEARCH FOR CULT COMMITTEE - MIGRANT EDUCATION: MONITORING AND ASSESSMENT STUDY Abstract This is a first attempt to explore the monitoring and assessment of migrant education (MAME) in EU countries. A review of literature indicated the main dimensions of MAME, and these have shaped a questionnaire completed by national experts of 27 EU countries. The country reports reveal that little has been done to monitor and assess migrant education, but that most countries already have an enabling infrastructure. IP/B/ CULT/IC/2015-163 February 2017 PE 585.903 EN Monitoring and assessment of migrant education CONTENTS LIST OF TABLES 7 LIST OF FIGURES 8 EXECUTIVE SUMMARY 9 1. INTRODUCTION 13 2. BACKGROUND 15 2.1. Assessing children’s performance and explaining differences in attainment 15 2.2. Macro-level factors: education policy and children’s educational achievements and inequality 16 2.3. Migrant education: specific policies and its assessment 17 2.4. Language training 18 2.5. Teacher training and support, raising school capacity 18 2.6. Parents involvement 19 2.7. Monitoring policies 19 2.8. Gathering information 20 2.9. Impact, outcomes and processes 20 2.10. Conclusion 22 2.11. Bibliography 24 3. METHODOLOGY 29 3.1. Premises and common standards 29 3.2. Experts’ questionnaire 31 3.3. Data reading and reporting 32 4. SUMMARY OF REPORTS 33 4.1. Migrant children educational policies 34 4.2. Governance 35 4.3. Monitoring 38 4.4. Evaluation 42 4.5. Trends 46 4.6. MAME in context 47 5. EVIDENCE FROM OVERSEAS 51 5.1. Immigrant children educational performance 51 5.2. MAME in the United States, Australia, New Zealand and Canada 52 5.3. MAME compared to the country sample 55 6. DISCUSSION 57 6.1. The aim of monitoring and assessment 57 6.2. The diversity of subjects behind the category of “migrants” as well as the diversity of political responses 57 6.3. The contents and methods of monitoring and assessing educational policies addressed to migrants 58 6.4. The governance of monitoring and assessment 58 5 Policy Department B: Structural and Cohesion Policies 7. POLICY RECOMMENDATIONS 61 7.1. Recommendations addressed to the EU bodies 61 7.2. Policy recommendations to the Member States 61 8. COUNTRY REPORTS ERROR! BOOKMARK NOT DEFINED. 9. MAME – EXPERTS QUESTIONNAIRE 183 9.1. About this questionnaire and its completion 183 9.2. Important remarks 183 9.3. Some definitions 184 APPENDIX A: BASIC INFORMATION FOR THE COUNTRY PROFILE 187 APPENDIX B: OVERALL INFORMATION 189 APPENDIX C: ACCESS, PARTICIPATION AND LEARNING OUTCOMES 191 APPENDIX D: MAME INDEX SCORES 193 APPENDIX E: MAME ITEMS PER COUNTRY AND DIMENSION 195 6 Monitoring and assessment of migrant education LIST OF TABLES TABLE 1 Monitoring and evaluating educational policies 22 TABLE 2 Specific questions summary 31 TABLE 3 Governance items per country 36 TABLE 4 Monitoring items per country 39 TABLE 5 Assessment of individual outcomes items per country 42 TABLE 6 Evaluation items per country 43 TABLE 7 Trends in MAME for the 27 countries sample 47 TABLE 8 PISA 2012: Mathematics Performance for natives (born in the test country with parents born in the test country), second-generation immigrants (born in the country with foreign-born parents) and first generation immigrants (born in a foreign country) 51 TABLE 9 PISA 2012: Reading Performance for natives (born in the test country with parents born in the test country), second-generation immigrants (born in the country with foreign- born parents) and first generation immigrants (born in a foreign country) 51 7 Policy Department B: Structural and Cohesion Policies LIST OF FIGURES FIGURE 1 Phases of the study 29 FIGURE 2 MAME Summary contents 32 FIGURE 3 MAME items per dimensions. Sample average 33 FIGURE 4 MAME items and percentage of immigration 48 FIGURE 5 MAME items and Education score for MIPEX 2015 48 8 Monitoring and assessment of migrant education EXECUTIVE SUMMARY This study is an initial attempt to map the status of MAME at the state level in Europe. As the report shows, most EU countries have developed, to a greater or lesser extent, educational policies for immigrant children. Yet, this has not yet been accompanied by a comprehensive system of monitoring and assessment. Some countries have made greater efforts than others, in accordance with the relative size of their foreign-born population and, to a lesser extent, the level of integration policies in the realm of education. MAIN RESULTS Steps towards monitoring and evaluation of migrant education have been taken in EU Member States - in some more than others - but there is nowhere a comprehensive system of monitoring and assessment. Most Member States have developed, to some degree, educational policies for migrant children. The challenges in creating a system to monitor and evaluate the results of these policies should not be underestimated. Some Member States have gone further than others, related to the importance of the foreign-born population and, to a lesser extent, to the level of integration policies in the realm of education. It is significant that most of the countries in the sample have already developed systems for monitoring and evaluating their own educational system in general. This means that a structure exists, in which the monitoring and evaluation of migrant education could be incorporated. Many Member States have decentralised responsibility for education which, taken together with the principle of autonomy in education, means that the comprehensiveness of the results and conclusions of the study can only be qualified. By way of conclusion, we summarize the main results around four main areas of concern: the objective behind the actual monitoring and assessment, the conceptualisation of “migrant” and its implications for monitoring and assessment, what is actually monitored and assessed, and how and where these monitoring and assessment systems should be implemented. POLICY RECOMMENDATIONS The EC should build an agreement between the Member States on a common framework so that monitoring and assessment processes are comparable and cooperation reinforced. The EC should adopt an agenda to promote the monitoring and assessment of policies regarding students with a migrant background within Member States. The Eurydice agency should monitor the EU strategy to promote monitoring and assessment. The Erasmus+ programme should promote an extension of Key Action 3 for a specific plan on peer-review programmes between Member States that includes monitoring and assessment of policies. The EC should introduce a specific item in its budget to fund Member States that wish to improve their mechanisms of monitoring and assessment policies related to the education of students with a migrant background. The EC should announce a call for research initiatives aimed at filling in the gap on certain topics regarding monitoring and assessing policies addressed at students with a migrant background. 9 Policy Department B: Structural and Cohesion Policies The study also identified actions within the scope of Member States which are noted here: Migration policy processes should be based on research evidence. Monitoring and assessment processes should be focused on systemic processes that restrict the achievement of migrants in schools. In the case of the evaluation of this individual achievement, affirmative action should be discounted. In general, Member States should be aware of the diversity of migrants regarding their ethnic background. Monitoring and assessment provide knowledge of the current state of policy implementation. Member States are responsible for monitoring and assessing policies on migrant education. Monitoring and assessment processes should be in the hands of independent researchers, so as to ensure transparency and accountability. Member States, through monitoring and assessment, can become aware of the sustainability of good practices for educating students with a migrant