No. 354

JUNE Bulletin 2008 Runnymede’s Quarterly

The GLA Elections: London Mayor and London Assembly Matthew Ross looks behind the results of the recent elections in London to see what is really going on.

Behind the personality politics these ambitions, the Assembly’s The Mayoral Election Matthew of the Mayoral contest, the May composition after the election The Mayoral election uses the Ross is an First London Assembly elections still falls short of accurately Supplementary Vote system, intern at the presented the main political representing an ethnically whereby the voter is able to cast a Runnymede parties with an opportunity to diverse London. Representation first and second preference vote. If Trust. put their stated ambitions for increased from only two BME no candidate receives more than increasing BME representation Assembly Members after the half of the first preference votes, in politics into practice. Not 2004 elections to four out the two candidates with the most only do black and minority of the twenty-five Assembly first preference votes go through ethnic people make up 29 per Members. Significantly for race to a second round and the other cent of Londoners, but also the relations in the city, for the first candidates are eliminated. If the Alternative Vote system used time, a member of the British second preference of voters for for the Assembly election allows National Party was elected the eliminated candidates were for for candidates from traditionally to the Assembly, and nearly either of the remaining candidates, underrepresented groups to 200,000 Londoners gave the these second preference votes be included on the London- BNP Mayoral candidate their first are added to their totals, and the wide ‘top-up list’. Despite or second preference vote. candidate with the highest total of

Table 1. Votes in the London Mayoral Election 2008 Source: london.gov.uk

Candidate name Party 1st choice 1st choice 2nd choice 2nd choice votes % votes %

Boris Johnson Conservative Party 1,043,761 42.48 257,792 10.49 Ken Livingstone The Labour Party 893,877 36.38 303,198 12.34 Brian Paddick Liberal Democrats 236,685 9.63 641,412 26.11 Siân Berry Green Party 77,374 3.15 331,727 13.5 Richard Barnbrook British National Party 69,710 2.84 128,609 5.23 Alan Craig Christian People’s Alliance and Christian Party 39,249 1.6 80,140 3.26 Gerard Batten UK Independence Party 22,422 0.91 113,651 4.63 Lindsey German Left List 16,796 0.68 35,057 1.43 Matt O’Connor English Democrats 10,695 0.44 73,538 2.99 Winston McKenzie Independent 5,389 0.22 38,954 1.59

ISSN: 1476-363X Runnymede’s Quarterly Bulletin JUNE 2008 1 Table 2. Final Mayoral Result Source: london.gov.uk

Candidate name Party 1st choice 2nd choice votes votes* Total Votes

Boris Johnson Conservative Party 1,043,761 124,977 1,168,738 RACE & Ken Livingstone The Labour Party 893,877 135,089 1,028,966 ELECTIONS * On papers where the 1st and 2nd choice votes are for the top two candidates, the 2nd choice votes are not counted

first and second preference votes tactically, with a mind to influencing representation (see Table 4). wins. the final result. However, with The impact of the Assembly’s The result of the Mayoral the distribution of first preference Additional Vote system is manifold, election (see Tables 1 and 2) votes so heavily favouring the top but has particular implications for matched the media coverage of two candidates this suggests that the diversity of candidates put the contest, in as much as it was the electorate treated the Mayoral forward by the political parties and presented as a two horse race election as if it was being conducted the likelihood of those candidates between Boris Johnson and Ken under the first past the post system. being elected. The London-wide Livingstone. In the 2004 election, It is difficult to discern whether list allows parties to correct for the 64% of first preference votes went this realignment is due to broader under representation of women to the top two candidates, while in electoral trends or factors particular and BME candidates, while London’s the 2008 election that figure had to the Mayoral contest, namely ethnic diversity would suggest increased to 79%. Either indicating the beauty contest between Boris there is a constituency for BME unfamiliarity with the Supplementary Johnson and Ken Livingstone. candidates. The Labour Party has Vote system or the electorate’s embraced this potential, with 50% view that the contest was indeed a The Assembly Election of their candidates for the Assembly two-horse race, 17% of voters didn’t The London Assembly is elected coming from a BME background. indicate a second preference and by two different electoral systems. The Conservative Party has been 15% of those who did, used their Fourteen Assembly members are less successful, with only three BME second preference to support the elected in constituency seats (usually candidates out of a total of twenty- direct rival of their first preference. covering two or three London three Assembly candidates. This in A Supplementary Vote system boroughs) using the standard part may simply be a reflection of should theoretically increase the Westminster first past the post the Party’s composition in London, vote share of smaller parties, as system (see Table 3). A further but it also reflects a lack of political voters can use their first preference eleven are elected in a London-wide will; where the Conservatives have to vote with their conscience party list ballot, with those seats focused on improving BME candidate and use their second preference allocated using a form of proportional selection, devices such as the A-List

Table 3. Constituency Assembly Members Source: london.gov.uk

Constituency Candidate Party Votes(%) Majority Gain/Hold

Barnet and Camden Brian Coleman Conservative Party 41.15% 19,693 Hold Bexley and Bromley James Cleverly Conservative Party 52.59% 75,237 Hold Brent and Harrow Navin Shah The Labour Party 37.27% 1,649 Gain City and East John Biggs The Labour Party 34.69% 31,553 Hold Croydon and Sutton Stephen O’Connell Conservative Party 44.08% 42,665 Hold Ealing and Hillingdon Richard Barnes Conservative Party 43.15% 28,638 Hold Enfield and Haringey Joanne McCartney The Labour Party 33.26% 1,402 Hold Greenwich and Lewisham Len Duvall The Labour Party 36.21% 16,134 Hold Havering and Redbridge Roger Evans Conservative Party 47.67% 43,025 Hold Lambeth and Southwark Valerie Shawcross The Labour Party 37.16% 23,648 Hold Merton and Wandsworth Richard Tracey Conservative Party 44.85% 26,293 Hold North East Jennette Arnold The Labour Party 37.95% 28,437 Hold South West Tony Arbour Conservative Party 40.82% 26,928 Hold West Central Kit Malthouse Conservative Party 53.41% 51,381 Hold

2 Runnymede’s Quarterly Bulletin JUNE 2008 Table 2. Final Mayoral Result Table 4. London-wide Members Source: london.gov.uk

Party Votes Votes % Number Change in elected number elected

Conservative Party 835,535 34.63% 3 3 RACE & Liberal Democrats 275,272 11.41% 3 -2 ELECTIONS Green Party 203,465 8.43% 2 0 The Labour Party 665,443 27.58% 2 0 British National Party 130,714 5.42% 1 1 UK Independence Party 46,617 1.93% 0 -2 Left List 22,583 0.94% 0 Independent (Rathy Alagaratnam) 3,974 0.16% 0 English Democrats 25,569 1.06% 0 Respect (George Galloway) 59,721 2.48% 0 Abolish the Congestion Charge 63,596 2.64% 0 The Christian Choice 70,294 2.91% 0 One London 3,430 0.14% 0 Unity for Peace & Socialism 6,394 0.27% 0

have provide successful, and will 5.42%, gaining its first seat on the position has been further weakened probably lead to the Conservatives London Assembly. by the decline in salience of the Iraq returning a number of BME MPs at The election of a BNP war, which had previously helped the next general election. Assembly member is a concerning them win votes with the Muslim The Assembly election increased development for race relations in community. the number of BME Assembly London. However, the scale of the Positively, new BME candidates Members (AMs) from two to four. BNP’s breakthrough shouldn’t be are well received within London, Both the sitting BME Assembly overemphasized; the contest was a no longer suffering that initial dip in Members were returned. The new lot tighter than had been expected, vote share as experienced by those BME Assembly Members were both with its share of the vote so close first BME MPs in 1987. Alongside elected as Constituency members, to the cut-off threshold it isn’t in the two main parties fielding with the first Hindu AM, Navin Shah, a strong position to go into future BME candidates in a number of making a Labour gain against the elections. Moreover, in Councils winnable seats – Chuka Umunna tide of the night, and the first black where the BNP has previously made (Labour) in Streatham, Shaun Bailey Conservative AM, James Cleverly gains, the pattern is for that support (Conservative) in Hammersmith securing a swing for his party of to wane, as Councillors fail to deliver and Rushanara Ali (Labour) in 13.58%, well above the London or are accused of incompetence. Bethnal Green and Bow, to name average. While a promising result, only three – it would appear the there still needs to be a further Conclusion next General Election will yield three BME Assembly Members The results for the London significantly more BME MPs than before it accurately represents Assembly election contain a number the current fifteen. q London’s diverse population. of trends that have a wider The Assembly’s Additional Vote set of implications for a system has allowed the formation of future general election. Table 5. Final London Assembly Results a party system distinctive from the While the Alternative Vote rest of England (see Table 5); the system allows for a plurality Party Seats Gain/Loss more proportionate representation of parties, results from the of the vote has made five or so Constituency seats indicate a Conservative Party 11 2 parties electorally viable. Critically return to two party politics. The Labour Party 8 1 for the smaller parties, getting above Both Labour and the the 5% threshold on the London- Conservatives saw swings Liberal Democrats 3 -2 wide ballot effectively guarantees at to their candidates, with the Green Party 2 0 least one seat in the Assembly. The Liberal Democrats’ share of British National Party 1 1 British National Party increased its the vote being squeezed in UK Independence Party 0 -2 share of the vote in the London- all the Constituency ballots. wide ballot from 4.71% in 2004 to The Liberal Democrats’ Source: london.gov.uk

Runnymede’s Quarterly Bulletin JUNE 2008 3 From Powell to Phillips; Rivers of Blood to Post-multiculturalism MULTICULTURALISM Rob Berkeley looks at Trevor Phillips’ three key principles Rob Berkeley of post-multiculturalism 40 years after Enoch Powell’s is Deputy rejection of multiculturalism in his ‘Rivers of Blood’ speech. Director of the Runnymede We must be mad, literally breaking work in the suburbs Trust mad, as a nation to be of Birmingham. His study of permitting the annual inflow Handsworth in the months after of some 50,000 dependants, Powell’s outburst was published into Segregation’ interview, who are for the most part as ‘Race in the Inner City’ in which he was forced to review the material of the future 1970. John found: resentment a few months later, to his ‘death growth of the immigrant- of immigrants; youth violence of multiculturalism’ speeches, descended population. It is responded to by an increase in Trevor Phillips has spearheaded like watching a nation busily the use of stop and search by a rethinking of the ways in which engaged in heaping up its the police (followed by increased we talk about race, ethnicity and own funeral pyre. (Enoch tension with all representatives immigration. Having shaken what Powell, 1968) of the criminal justice system); many saw as the rather cosy high unemployment and consensus on race relations, the . . .right now, the urgency underemployment of black ensuing vacuum had enabled of change demands a new youth; low expectations of black some rather unusual issues to social contract in which youth from teachers; police surface. Who would have thought we the British people reap clearing Rastafarian squats; new that among the first actions of the benefits of managed restrictive immigration proposals a new Prime Minister who had migration by pursuing a from government and the arrival been waiting (im)patiently for positive policy of active of new communities of asylum a go in the hot-seat would be integration. (Trevor Phillips, seekers (namely East African to raise the Union Flag over 2008) Asians, Bangladeshi and Pakistani); government buildings more overcrowding in houses; white regularly. Our debate on race In the same room in a Birmingham flight; and political indifference. relations was taking some rather hotel, 40 years apart temporally, Runnymede reaches its 40th strange turns. Phillips’ speech but a million miles apart anniversary with similar issues in on this momentous anniversary ideologically, Trevor Phillips and new guises on our agenda. If the was therefore heralded as a Enoch Powell have attempted problems are familiar, a bold new culmination of his thinking, an to shift our political and social response to break these patterns opportunity to focus on what understanding of race relations. is called for. is important (rather than the Both offered controversial In a speech which aimed to semantics of what you call it) and and radical statements of their capture the political attention a blueprint for the way in which perception of the way in which on the anniversary of Powell’s the new commission sees the people from different ethnic intervention which has entered next stage of race relations. backgrounds can co-exist and our political lexicon simply The meat of the speech thrive together in the UK. Powell as ‘Rivers of Blood’, Phillips revolved around three key believed it to be impossible; attempted to open a new principles for a post-multiculturalist Phillips to be essential, however chapter in our nation’s story. settlement: difficult. Both argued for a shift in The Chair of the Equality and the status quo. Powell, thankfully Human Rights Commission is • Integration is a two-way street; lost the argument. Can Phillips’ no stranger to controversy. His • Fairness is not just for vision prevail? Are we ready for various interventions as the last minorities; a shift to a ‘post-multiculturalist’ Chair of the Commission for • We must share the benefits settlement? Racial Equality have marked him and burdens of migration fairly. Runnymede was founded in out as an independent thinker, the shadow of Powell’s speech. but also as one who can be a Before dismissing these principles Our first publications stemmed tad careless with the actualité. as maxims from the school from Gus John’s ground- From his famous ‘Sleepwalking of the ‘bleeding obvious’, it is

4 Runnymede’s Quarterly Bulletin JUNE 2008 worth taking some space to Britain to play by the rules the archetypal ‘third way’ project reflect on what these principles and to do their best to to ‘make this country at ease include. Integration is back on share in the responsibilities with globalisation’ (Tony Blair, the agenda and is more than of living together. 2005)1, yet the economic trumps just a semantic change. For the social at all times, capital many years, integration was seen ‘Fairness for all’ is hardly a slogan always trumps labour, equity as akin to assimilation, which to capture the imagination, but remains subordinate to economic Powell advocated for limited it too marks an important shift competitiveness. Ultimately, MULTICULTURALISM numbers of immigrants and both in that it highlights the internal Phillips admits that this is the area multiculturalist and anti-racists had diversity of our ‘officially defined’ on which ‘we need to do some 1 Blair, T. fought against. We have become ethnic groups, the multiplicity of more thinking’ and it is clear that (2005) Speech more used to the language of identities, and calls for the building this is the case. 18 November, integration in recent years – of new coalitions. It also provides In the same hotel conference quoted in Stephen especially as it has been adopted a legitimacy in those interested room, 40 years and an ideological J Ball (2008) The as language of choice by our EU in race equality considering the gulf separates Powell and Phillips. Education Debate. partners. Phillips here marks the impact of class, social exclusion Powell failed to change the Bristol: Policy Press. shift which puts a responsibility on and other forms of discrimination. political direction in the way immigrants to participate in shared Finally and possibly most he would have liked – though democratic structures while also significantly, Phillips tries to square contributing to the stifling of contributing the benefits of their the circle on migration – joining a debate and obfuscation regarding world views and experiences to political consensus which argues race relations and immigration British life. for managed migration, without for a generation. If Trevor really thinking through what the Phillips’ speech was meant to Immigrants change us, implications might be for equality. deliver a coherent and complete mostly for the better . . . The consequences of which view of the post-multiculturalist They compete hard, they can be seen in the worrying settlement, what a new EHRC lift our standards. And in a proposals for new legislation this campaign is terming ‘modern global economy they are autumn [reported on p. 6 of multiculturalism’, then we still have beginning to give us the this Bulletin]. It is here where his some way to go. The question edge in markets . . . Most three principles are weakest. The remains, however, if for Phillips immigrants change too. We speech as a whole and the focus multiculturalism is dead, what expect those who come to on managed migration follows takes its place? q

First Steps: The EHRC Sets Outs Its Priorities

In May, the Equality and Human Rights Commission set out its plan for the forthcoming year. Staff and commissioners have been working hard to develop their initial approach and to set priorities for their work. The four key priorities they have identified are to:

• Analyse, define and target key equality and human rights challenges; • Change policy and organizational practice to provide better public services alongside an efficient and dynamic economy; • Engage, involve and empower the public, especially people from disadvantaged communities and areas; • Anticipate social change, develop new narratives and reach new audiences in ways that strengthen equality and human rights.

They propose to deliver on these priorities by:

• Lobbying for landmark legislation to promote equality and human rights, including a new Equality Act; • Using their investigative powers to launch a major inquiry into how well the Human Rights Act is currently working; • Commissioning research on the way social housing is allocated and on the associated community tensions that relate to social housing policy; • Putting a digital strategy into practice, drawing on the experience of interactive and social networking sites such as YouTube to encourage new audiences to get involved with the EHRC’s work; • Using their enforcement powers strategically, particularly for the public sector equality duties and in the ‘new’ areas of their remit — age, religion or belief, sexual orientation and human rights; • Working with business and the private sector to promote fairness in the workplace, including providing high quality information, advice and guidance tailored to individual business needs; • Providing clear and comprehensive information on equality and human rights and about the work we do for a range of audiences; • Looking at how to most effectively use the existing public sector duties to promote equality (which apply to most public authorities) as well as our legal and enforcement powers.

See page 10 of this Bulletin for more detail on the EHRC Human Rights Inquiry. Visit www.equalityandhumanrights.com to see the full Business Plan.

Runnymede’s Quarterly Bulletin JUNE 2008 5 Runnymede Trust Consultation Response1 to The Path to Citizenship: Next Steps in CITIZENSHIP

1 The Runnymede Reforming the Immigration System Trust also consulted Michelyn Laflèche expresses concern about the proposals, the framework in which they members of its are situated, and the poor quality of evidence to justify them. Academic Forum, several of whom have also asked On 20 February 2008, the Home Office published index is based on a normative framework derived 2 to be signatory to a Green Paper on its proposals for major reforms from the highest European standards expressed in this consultation to the process for acquiring British citizenship, human rights, anti-discrimination, and social, economic response. Their following the introduction of stricter definitions of and civic inclusion laws and practices –– laws which names can be who can come (the Points-based System (PBS)) the UK played an active role in creating and to which found at http:// and the transformation of how the system is policed we are signatory (with some notable derogations). www.runnymede. (including ID cards and use of biometrics). trust.org/uploads/ The speed with which government intends to When applied to the Green Paper proposals, the policy/Responses/ move forward with these proposals is remarkable. following results were found: PathtoCitizenship. Indications are that a partial draft bill will be pdf introduced for pre-legislative scrutiny by summer The UK’s score on access to nationality would drop as 2008. And the Prime Minister announced the much as 15 points, falling from its position as the 5th 2 Available for government’s intention to bring the proposals into most favourable for promoting integration to 10th, just download at a draft bill to be announced in the next Queen’s around the EU average. http://www.bia. speech in November 2008 through the publication of 3 homeoffice.gov. The Government’s Draft Legislative Programme on 14 The UK’s score on eligibility would lose its tie for 5th uk/sitecontent/ May, the very day that public consultation was due place with Ireland, since the probationary period would documents/ to end. make naturalisation longer for most first-generation aboutus/ We welcome the objective of giving immigration migrants. consultations/ applicants and the wider public clarity about pathtocitizenship? the different stages of the newcomer’s journey Given the proposals on economic resources, integration, View=Binary to citizenship, but we are concerned about the good character, and active citizenship, the conditions substantive content of the proposals, the conceptual for naturalisation in the UK could go from the ‘middle 3 Available for framework in which they are situated, and the of the road’ (score 57) to becoming some of them download at http:// extremely poor quality of evidence of the need for most onerous in Europe (a score of 26). www.official- these measures. Our analysis suggests that if the documents.gov. proposals were enacted and implemented, they The range of additional burdens and restricted rights uk/document/ would result in unfair discrimination on a wide range to be extended over an increased number of years cm73/7372/7372. of grounds and would violate fundamental human is more likely to alienate rather than to integrate pdf rights. people who choose to come to the UK to work or Runnymede’s formal response answers the set to join their families. 4 Migration Policy questions in detail. But there are two overarching Group (2007) concerns: (1) the overall impact of the proposals (2) The overarching concept of ‘earned Migrant Integration and the place of the UK in the European Union as citizenship’ Policy Index. regards integration policy; and (2) the overarching The Green Paper states that the concept of ‘earned Brussels: Migration concept of ‘earned citizenship’. citizenship’ is about ‘…putting British values at Policy Group and the heart of the system’ (p.9) and designed to ‘… British Council. (1) The overall impact of the proposals contribute to the government’s wider agenda of The Green Paper suggests that the proposals are in reinforcing shared values…’ (p.11) line with the current law and practice in many other It states that ‘The key feature of the proposed EU member states. However, an analysis of the system is that it aims to increase community cohesion Michelynn proposals using the Migrant Integration Policy Index by ensuring all migrants can “earn” the right to Laflèche is (MIPEX)4 does not concur. citizenship and asks migrants to demonstrate their Director of the The MIPEX Index uses 140 indicators to compare commitment to the UK by playing an active part in Runnymede the legal provisions in place across Europe to the community’. (p.12) Trust. promote the integration of non-EU migrants. The We are deeply concerned with the way in which

6 Runnymede’s Quarterly Bulletin JUNE 2008 this idea is presented. Throughout the Green The Path to Citizenship Green Paper Paper there is a negative and accusatory tone proposes: that is both unfair and unwarranted. This alone • A three stage route to citizenship, including a is likely to engender resentment and therefore probationary period of citizenship, requiring new create tension and reduce cohesion in our migrants to demonstrate their contribution to the view. UK at every stage or leave the country; • Full access to benefits being delayed until migrants The Green Paper argues that there CITIZENSHIP is a ‘transitional’ negative impact on ‘our have completed the probationary period; communities and public services’. It refers to • Migrants having to improve their command of obeying the law in such a way as to imply a English to pass probation; propensity on the part of migrants toward • Anyone committing an offence resulting in prison criminal behaviour, for which there is no being barred from becoming a citizen; evidence. And it implies that migrants don’t • Those committing minor offences being required want to integrate, particularly to learn English, to spend longer in the new probationary period which is not the case. of citizenship; What the Green Paper fails to adequately • Migrants contributing to a new fund for managing acknowledge is that successful and positive the transitional impacts of migration, providing integration of migrants rests on the concept extra financial help to communities experiencing of equal opportunities – in social and in civic change from migration; and terms – not on extending periods of insecure • Migrants getting involved in their communities immigration statuses and increasing the through volunteering being able to graduate to number of hurdles to be overcome. British citizenship more quickly. Agencies and individuals concerned with The Green Paper can be downloaded from http:// issues of equality and human rights, particularly www.homeoffice.gov.uk/sitecontent/documents/ in relation to immigration, need to keep a aboutus/consultations/closedconsultations/ close eye on developments in the next few pathtocitizenship/ months. q Fit for Purpose Yet? Zrinka Bralo reports on the recent launch of the Independent Asylum Commission’s first report Fit For Purpose Yet? which paints a grim picture of the asylum system in the UK: detention is overused, access to legal advice is restricted, and the odds are stacked against the people seeking protection. She emphasizes that the Commission chose to publish its findings as an interim report, as it is still gathering evidence and testimonies.

Nearly ten years ago I was invited accused of eating our donkeys from who printed online information to speak at a school in East Anglia, our city farms or eating our swans on rights of women; while other to help their learning by sharing with from our parks. broadsheets led on stories of botched teenagers some of my experiences Ten years on, it was up to the elections and related violence in of war and exile. As this is not one’s high court judge to declare that the Zimbabwe. usual audience for stories about the decision to deny healthcare to refused In ten short years as a country and war, genocide and exile I thought I asylum seekers while they are still here as a society, we moved from calling would start by asking them a simple was unlawful. asylum seekers names to denying question to break the ice: ‘Do you Mr Justice Mitting said that refused seriously ill people basic human rights. know who asylum seekers are?’, I said asylum seekers and refugees were One might forgive a young teenager enthusiastically. Only one lonely hand ‘penniless’, and ruled that the hospital for his lack of knowledge, but the went up at the back of the room. ‘Are in the test case had an obligation of NHS should know better. they criminals, Miss?’ said a young man. care for a Palestinian refused asylum How did this happen? How What else could he think? He had seeker with serious liver disease. All did we become like this? Fifteen never seen a refugee before, and from this was happening in the same week years ago I arrived on these shores what he was hearing and reading in that a young gay Iranian was fighting straight from a city under siege, the press he was quite right to assume deportation, after his partner was blissfully unaware of the unwelcome that these people must be criminals if executed for being gay; a leading committee. Exile is never easy, they are called all these names. And British broadsheet was campaigning to bureaucracies are complicated and that was before asylum seekers were save a life of a student in Afghanistan Kafkaesque everywhere in the world,

Runnymede’s Quarterly Bulletin JUNE 2008 7 and discrimination exists everywhere. best and hostility at worst, seemed at principles that should underpin UK But how on earth did we get to the times a daunting and impossible task. asylum policy. In partnership with point where ill asylum seekers, who At the end of March we launched Friction TV (http.//www.friction.tv) clearly cannot be sent back, have to our first report Fit For Purpose Yet? we have already received 200 online take the NHS to the highest court These are our interim findings. The responses to videos we posted about in the land to get help? These were report paints a grim picture of the the issue. just some of the questions on my asylum system in the UK: detention Thirdly, we wanted to ASYLUM mind when I was invited to join the is overused, access to legal advice constructively engage with the Independent Asylum Commission in is restricted, and the odds are government – political leadership as October 2006. stacked against the people seeking well as the civil service. We wanted The Commission was set up by protection. We did identify some the UK Border Agency to respond The Citizen Organising Foundation, positive changes and aspirations to to our interim findings and to have a very broad civil society network improve the experience of claimants. an opportunity to correct any factual whose members include churches, The full report can be found at the inaccuracies and provide answers to mosques, trade unions, schools and Commission’s website (http://www. concerns raised. other civil society organisations. Many independentasylumcommission.org.uk) This has been one very busy of its members were engaging with and hard copies can also be ordered Commission and its interim asylum seekers and hearing all kinds from our secretariat, so I won’t go into findings represent the results of of stories of hardship, mistreatment too much detail here. the largest inquiry on the issue of and injustice. So they decided But, what I would like to asylum in the UK ever undertaken. to investigate these anecdotal emphasize is that we chose to publish The Commission’s main task experiences, and they decided to our findings as an interim report for a now is to provide constructive do it properly. For 18 months the number of reasons. recommendations to improve Commission held seven all day public Firstly, we felt that our findings the system that has struggled to hearings in major cities around the needed to remain open to change function, to deliver for all citizens UK. We also had a special hearing in and challenge in case we missed and to safeguard the rights of Belfast. Human Rights TV recorded something or got something terribly vulnerable people. our public hearings and testimonies wrong. The Commission is still Over the next three months so you can see them on their website gathering evidence and testimonies. As the Commission will be publishing (http://www.humanrightstv.com). I write this, key stakeholder interviews three sets of recommendations to We also heard opinions and on public attitudes to asylum in Barking correspond with three thematic evidence in closed sessions at and Dagenham, Hackney, Birmingham, sections of our interim findings report. Westminster Abbey. And we Plymouth, Sheffield, Oxford, Cardiff Recommendations will also take into did not hear just from the ‘usual and Glasgow are going on. This work consideration government responses suspects’ but proactively sought to will be complemented by the focus to our findings and we will continue engage with a wide range of opinions groups in all these cities to understand to listen to the British public too. So and experiences. We received 180 public views on the issue better. there is still time to get involved and written submissions to the written Secondly, we wanted to engage let us know what you think. The first call for evidence from voluntary with the British public to make positive recommendations report How We Zrinka Bralo and community organisations, change. Launching just another report, Decide Who Needs Sanctuary, about is a journalist and personal testimonies from 90 no matter how accurate and objective the asylum decision making process is from Sarajevo asylum-seekers, the police, local it is does not change much in itself. due on 20 May 2008. This report will who has authorities, pressure groups and Preaching to the converted will not include some of the findings of our campaigned British citizens. The Commission also help much either. We wanted this public consultations and our public for refugee engaged an independent academic report to start a dialogue on how attitudes survey too. and human body to gather all published reports to make the system better, more The Commission’s work will be rights since her on the issue in the past five years to efficient and fair. We wanted to completed soon, but the work on exile in 1993. inform the inquiry. start reasonable conversations about improvement of our asylum system In the past We gathered information on all our responsibilities towards people is just starting. The Commission’s ten years she aspects of the asylum process from all seeking sanctuary, about natural reports and recommendations will not has worked sides of the political spectrum. We justice, about fair treatment, about be sitting on a dusty shelf in a library. as a journalist, considered evidence, asked questions, accountability. We wanted to be Apart from extensive media coverage commentator discussed, debated, questioned again, open to all questions such as what and very useful legacy websites, and researcher. researched, drafted and re-drafted do we do with those who are not we are handing our findings to the She is our interim findings for months. in need of protection. That is why Citizen Organising Foundation whose Executive Digesting complex legislation, with the Commission is organising The members will continue to make use Director of a cumbersome bureaucratic system Citizens Speak consultations, asking of it as a campaigning tool to ensure the Migrant in charge of it and trying to square it for the public’s views on sanctuary in that our treatment of asylum seekers and Refugees with emotional and often traumatic the UK. This involves facilitating over and refugees no longer ‘falls seriously Forum in West testimonies of vulnerable people, with 50 People’s Commissions across the below the standards to be expected London. the backdrop of public ignorance at UK to recommend the values and of a humane and civilised society’. q

8 Runnymede’s Quarterly Bulletin JUNE 2008 Another example might be where an older person Why Human is in hospital, unable to feed themselves and with no relatives visiting. These people are often left to go hungry because staff don’t have time or responsibility for feeding Rights Provide them. Human rights law provides an avenue to challenge this by requiring public bodies, such as hospitals, to Added Value positively protect people’s lives, and this would include ensuring that people in their care are fed properly. HUMAN Rosemarie McIlwhan examines the value of Another element of human rights law which is useful is RIGHTS human rights, giving examples where human the definition of discrimination which is a broad definition but is not an exhaustive list. So where the Race Relations rights legislation has made a real difference Act (RRA) defines precisely who is covered by the Act, Rosemarie to people’s lives. the Human Rights Act is not so specific, and this means McIlwhan is a that minority ethnic groups who aren’t covered by the Human Rights For many people in the UK the concept of human RRA would still be covered by the Human Rights Act. & Equality rights is a negative one, as they see it as being used and There are so many areas where human rights law Consultant. abused by prisoners, lawyers and others as a means of can help us to improve policy and practice, to gain Email: getting what they want. However, for many others, the better access to services and better treatment in mcilwhan human rights concept has been the backstop which has accessing those services. Human rights law ensures not consulting@ prevented them being abused or badly treated, not just just that we should all be treated equally, but provides ntlworld.com since the Human Rights Act came into force in 2000 but a baseline below which treatment of anyone should ever since the UK signed the European Convention on not slip. However this is only useful if we know it and Human Rights in 1953. awareness and understanding of human rights is still fairly There are many reasons why human rights have a low. Whilst public bodies should be upholding human ‘bad name’, not least because of media portrayal, but rights whether we know about them or not, the reality hopefully with the introduction of the new Equality is that some don’t. We need to be aware of our rights and Human Rights Commission to champion the and responsibilities and be able to demand that they cause, human rights will cease to be a dirty word and are upheld, and where they are not to ask the courts, will become something which we all understand and the inspectorate bodies, the Equality and Human Rights can use to protect ourselves and society. Since the Commission and the Government to enforce them. Human Rights Act came into force there has been a That need for education on rights and responsibilities lot of focus on human rights as a legal concept which along with the need for better enforcement of human has largely meant that anyone who is not a lawyer has rights law are two of the reasons why I will be responding shied away from getting involved, yet human rights to the EHRC’s human rights inquiry, but the main reason concepts such as dignity, equality, respect, fairness and will be due to frustration at the constant assaults on our autonomy are concepts which we would probably all rights whether that be the disproportionate counter- agree are desirable in society for everyone. If we can terrorism laws, ineffective identity cards proposals or persuade public bodies to change practices and policies an unfair asylum system. I see this as an opportunity to without having to drag them into court all the time, shape the future of human rights work and to explore then it’s better for the individuals involved and better the potential for human rights law, policy and practice to for the public bodies too. Of course there is a time and shape society into a place where everyone’s rights and place when recourse to the law is the only way, but it responsibilities are respected and upheld. q shouldn’t be our first port of call. So what value do human rights really add? All public Rights contained in 1 bodies, in addition to their duties on equality, need to the Human Rights Act 1 These article act in keeping with human rights principles, as outlined Article 2: Right to life numbers refer above. There are specific rights which they must uphold, Article 3: Prohibition on torture to the articles e.g. the right to privacy, right to freedom of expression, Article 4: Prohibition on slavery and forced labour in the European right to life, right to freedom of religion/belief, etc. Whilst Article 5: Right to liberty and security Convention on these and the other rights contained in the Human Article 6: Right to a fair trial Human Rights. Rights Act might not sound like much they can be very Article 7: No punishment without law When the UK effective when used properly. created the Article 8: Right to respect for private and family life Human Rights Act One example might be in relation to stop and Article 9: Freedom of thought, conscience and religion search by the police. Although equality law does not they chose not Article 10: Right to freedom of expression to include articles provide any protection from being repeatedly stopped Article 11: Freedom of assembly and association 1 and 13 of the and searched, human rights law would provide an Article 12: Right to marry and found a family ECHR as thay said opportunity to challenge the police on grounds of Article 14: Prohibition on discrimination that by creating invasion of privacy and discrimination – for example if Article 1 of the First Protocol: Protection of property the Human Rights you felt you were being selected on grounds of race or Act they had Article 2 of the First Protocol: Right to education ethnicity. The police would then have to demonstrate complied with that their actions were proportionate and legitimate. Article 3 of the First Protocol: Right to free elections those articles.

Runnymede’s Quarterly Bulletin JUNE 2008 9 Equality and Human Rights Commission Human Rights Inquiry Rosemarie McIlwhan explains why it is and services as the equality laws do, but across the spectrum of public services. One of the key elements important that voluntary and community HUMAN of the Human Rights Act was to create a human rights culture. In this sense the Act is more like a public sector RIGHTS groups play their part in this inquiry. duty which requires public bodies to treat everyone The Equality Act 2006 gives the Equality and Human with dignity, respect, equality, fairness, and autonomy, Rights Commission (EHRC) the power to hold inquiries rather than just a list of rights and responsibilities. How into any aspect of equality or human rights. On 6 March far we are towards this human rights culture is a central 2008 the EHRC announced that it was proposing to part of the human rights inquiry. launch an inquiry to find out how public authorities are Much is made in the media of the Human Rights responding to the Human Rights Act in England and Act being a ‘charter for chancers’ and a field day for Wales. (It does not have the power to hold a human lawyers; however, rarely do the stories about the rights inquiry in Scotland without the permission of the children who get access to the educational support Scottish Commission for Human Rights.) they need, or the older people who are now treated The inquiry is being lead by Dame Nuala O’Loan, with dignity rather than being left to starve, make it the Police Complaints Ombudsman for Northern into the news. The inquiry is an opportunity to share Ireland, with three EHRC commissioners – Francesca your positive and negative experiences of human rights Klug, Sir Bert Massie and Neil Wooding – also in England and Wales. involved. It is worth noting that the Joint Committee on Human Rights at Westminster has already held a The terms of reference for the inquiry are: number of inquiries into the application of the Human Rights Act and public bodies, and more information 1. To assess progress towards the effectiveness about these inquiries and copies of responses to them and enjoyment of a culture of respect for can be found at www.parliament.uk/parliamentary_ human rights in Great Britain; and committees/joint_committee_on_human_rights.cfm 2. To consider how the current human rights Voluntary and community groups have a key part to framework might best be developed and play in this inquiry, not only by responding as service used to realise the vision of a society built on providers or as representative organizations, but also fairness and respect, confident in all aspects of encouraging and supporting their members and service its diversity. users to respond as individuals. The EHRC is likely to use the information from the inquiry to determine The Human Rights Act defines ‘public authorities’; this what human rights work it will carry out over the next definition includes not just those bodies which are few years and to make recommendations on how usually thought of as public bodies but also any private to improve human rights in the future; therefore it or voluntary organisations which carry out public is important that they get an accurate picture of the functions. The scope of the inquiry covers all public current situation. authorities. When responding to the inquiry you might The EHRC is calling for evidence for the inquiry want to think about how easy it is to access public from those who have experience of delivering and services, how you and others are treated when using using public services, e.g. hospitals, schools, government those services and afterwards. You might also want offices/departments or services provided by private/ to consider what improvements you would like to voluntary bodies on behalf of public bodies. They want see made, or where you think the Human Rights to know about how these services treat people and Act is failing, for example by not providing sufficient to look at whether this is in keeping with the Human protection to asylum seekers or refugees in certain Rights Act – for example are patients in hospital circumstances, or because the definition of public treated with dignity and respect, are young people body is too vague or because the UK Government in the justice system treated fairly, do people in care are ignoring their obligations and introducing measures have autonomy over their own lives, are people from which could be said to breach human rights, e.g. minority groups treated equally in accessing services? detention without trial. You might be wondering what this has to do with You can find more information about the inquiry you; however equality is a fundamental human right, and the feedback form for responding at: www. included in the Human Rights Act. But human rights go equalityhumanrights.com/humanrightsinquiry much further than this. The Human Rights Act provides The closing date is 21 June 2008 so make sure you a minimum standard of treatment for everyone respond before then – at a time when our human regardless of personal attributes and not just in the fields rights are under threat from Government and beyond of education, employment and access to goods, facilities your input matters. q

10 Runnymede’s Quarterly Bulletin JUNE 2008 What Can We Expect 3. A joint policy on the removal of undocumented migrants. One proposal is that Frontex might from Europe in the Field be tasked with organizing collective flights to deport of Migration Policy? undocumented migrants. This will be coupled with EUROPE France, which will hold the Presidency of the EU from July renewed efforts to punish to December 2008 has indicated that reaching a more the recruitment by employers of undocumented migrant harmonized European migration policy will be at the core workers. Sarah Isal of its Presidency objectives. Sarah Isal looks at the French is a Senior Presidency’s ‘Immigration Pact’. 4. A harmonized asylum policy. Research The French are keen to move and Policy As the UK is proposing some of entering the European Union. towards a common asylum Analyst at the the most restrictive measures It intends to make more use policy throughout Europe. Runnymede relating to newcomers and of Frontex, an existing EU They intend to organize a Trust. migrants wishing to settle in this agency aimed at reinforcing conference on that subject in country, France, which will hold cooperation between September 2008, to agree on the Presidency of the EU from July member states on border a potential common definition to December 2008 has indicated management. of the right of asylum.1 that reaching a more harmonized European migration policy will 2. Some form of harmonization 5. A European development be at the core of its Presidency of legal migration policy across strategy. France hopes to objectives. the EU, through for instance a promote a common approach When looking at the actual ‘blue card’ system, which will to development, including the proposals that the French determine the conditions of organization of the second Presidency wishes to put forward, entry and settlement of highly Euro-African conference one understands better why qualified labour. It will work summit on migration and Gordon Brown and Nicolas towards an agreement with development (Rabat II). Sarkozy were so cheerful standing EU member states to ensure next to one another during the that they give up collective There is no mention so far of latter’s visit to the UK earlier and massive regularizations an integration strategy, therefore this year! Their vision of future of undocumented migrants, ignoring past European projects migration in Europe could not arguing that when these and discussions initiated by be closer, but unfortunately the regularizations occur in the Dutch Presidency in 2004 commonality is to be found in the one EU country, they through the Common Basic lack of any progressive migration affect another EU country Principles on Integration. Similarly policy. And Sarkozy now hopes unfairly. This proposal is there is no mention of low to take the rest of Europe with ironic given that there is skilled migration. It is difficult to him in the adoption of a European currently in France a process predict at this stage how much ‘Pact on Immigration’ which of regularization of several of the Immigration Pact will essentially aims to use European undocumented migrants actually be implemented, in an harmonization to control working in the hospitality area that remains very much the migration further – rather than sector, who had initiated a prerogative of member states. facilitate mobility and promote a strike movement, to raise However, given the types of European integration policy. In fact awareness about the fact immigration policies developed by the latter does not seem to figure that they were working and various EU members domestically in the Pact itself. paying their taxes, yet at the (see the UK example again), it So what is the French same time were not legally looks like France is simply picking Presidency proposing in its resident in France. After their up a general trend that has been ‘Immigration Pact’? The Pact employers, suddenly realizing witnessed in Europe for a while is articulated around five main that their businesses were now. Unfortunately, migration is principles: threatened, started raising this one example where European issue with the government, policy is not leading the way in 1 “Varsovie reste 1. Stronger European border the regularizations were progressive terms and NGOs will sceptique sur controls. The French will immediately considered, have to remain active over the l’harmonisation du promote a proper European despite the rhetoric and next few months to monitor how droit d’asile” in Le border police to ensure official speeches about being these proposals actually affect the Monde, 9 March migrants are kept from tough on illegal migration! rights of migrants. q 2008

Runnymede’s Quarterly Bulletin JUNE 2008 11 duties under the Race Relations The Role of FE and HE Amendment Act 2000. Such conflation also has the potential to Providers in Promoting create uncertainty among groups as to ‘who’ may be responsible for creating cohesion, and the resultant Community Cohesion coupling of community cohesion COMMUNITY with the prevention of violent COHESION The Department for Innovation, Universities & Skills extremism does little to rectify (DIUS) has recently issued a consultation document for this problematic association and the way it will be received at the Debbie the role of FE and HE providers in promoting community ground level. Weekes- cohesion, fostering shared values and preventing violent Bernard is Student societies a Senior extremism. Debbie Weekes-Bernard and Jessica Sims and segregation Research consider how the notion of community cohesion has Another problem with the & Policy become intertwined with the wider Government priority documents concerns FEI and Analyst and HEI involvement with various Jessica Sims of combating violent extremism. student societies. We have looked is a Research elsewhere at work exploring & Policy Recently the Department for 2001 have prompted national good campus relations between Analyst at the Innovation, Universities & Skills thinking about relations between students,5 and whilst there are Runnymede (DIUS) issued a consultation groups.3 A critical engagement indeed difficulties with the way that Trust document for the role of Further with this issue is necessary to avoid some student societies can work Education providers in promoting community cohesion being seen on an exclusionary level, for many community cohesion, fostering as something required by only a students the motivation behind shared values and preventing few specific ethnic or faith groups. joining specific societies is not 1 Weekes-Bernard, violent extremism – and guidance Worryingly, the clear association about segregation, but in order to D. (2007) School for Higher Education on the same between community cohesion and foster friendships around shared Choice & Ethnic topic. Both documents highlighted violent extremism, found within interests and important cultural Segregation: Educational some of the issues that Runnymede both the FE and HE documents, links, especially in campuses where Decision Making has been working on, such as will do little in our view to allay students of certain groups form a among Black and the publication on choice and these fears. distinct minority. Nowhere in the Minority Ethnic 1 Parents. London: segregation and the publication guidance for HEIs questions the The Runnymede on race relations on UK university Community cohesion potentially exclusionary practices of Trust. campuses.2 However, in both and race/faith ‘mainstream’ campus society such 2 Sims, J M (2007) documents the DIUS has conflated There is also some conflating with as the strong association between Not Enough notions of community cohesion current work that FE and HE alcohol and university social Understanding? with race and faith, in turn linking institutions (FEIs and HEIs) are activities. Student Experiences of Diversity in the race and faith of particular undertaking regarding community The guidance and the draft UK Universities. groups as the cause of violent cohesion work and promotion consultation are centred on tackling London: The extremism. of good race relations. Whilst violent extremism, rather than Runnymede Trust. this may demonstrate how well promoting community cohesion 3 Weekes-Bernard, The conflation of these areas work together, it is and tackling the multiple forms of D. (2007) ‘Learning community cohesion also potentially confusing. While discrimination that may happen in to Live Together’, Fabian Review with the prevention DCSF guidance for schools on FEIs and HEIs. The ways in which 119(2): 21-2. of violent extremism ways of meeting their duty on the the consultation and guidance One of the biggest issues of promotion of community cohesion frames community cohesion are 4 Weekes- Bernard, D. concern with the draft consultation does indeed focus on race and faith problematic – that the central (2007) ‘Promoting document is the ease with which problematically, it also stresses that point of community cohesion Community the notion of community cohesion the remit of schools must be wider is the prevention of extremist Cohesion through Schools’, has become intertwined with than race to explore gender, sexual violence, rather than an end unto Runnymede the wider Government priority orientation and disability. The ease itself. Runnymede’s consultation Bulletin, No. 352, of combating violent extremism with which notions of community response to ‘The Role of Education December. - specifically Al Qa’ida influenced cohesion becomes conflated with Providers in Promoting Community 5 Sims, J.M. (2007) extremism. As argued elsewhere, work on race and faith has been Cohesion, Fostering Shared Not Enough a careful look needs to be explored by us elsewhere, leading Values and Preventing Violent Understanding? Student Experiences taken at the types of discourse some to comment that it adds Extremism’, is available at http:// of Diversity in which surround the concept of nothing to existing work on race4 www.runnymedetrust.org/uploads/ UK Universities. community cohesion, as it seems and worse confuses those public policyResponses/ComCohesionFE_ London: The Runnymede Trust. that some very local events in bodies already failing to meet their response.pdf q

12 Runnymede’s Quarterly Bulletin JUNE 2008 Getting It Wrong. Again

Debbie Weekes-Bernard looks at to an independent body. The rationale for this proposal is that appeals undermine the authority Conservative Party proposals on countering of the headteacher, allowing parents to abuse bad behaviour in schools, in particular focusing the appeals process in order that their children EDUCATION on Tory policies on school exclusion. be reinstated into school. This is despite DCSF

findings that of all appeals heard in 2005/06, 1 Conservative Party, 2008, Giving Power Back to Teachers, Recent education policy proposals from the approximately 24% were held in favour of http://www.conservatives. com/tile.do?def=news.story. Conservative party have suggested that too little the parent, suggesting that the majority were page&obj_id=143477 5 attention is paid to the needs of teachers within unsuccessful. 2 DCSF, 2007, Permanent and fixed period exclusions from the Government’s attempts to counter poor Proposals also include abolishing the schools and exclusion appeals in England, 2005/06, http:// behaviour in schools. Central to the argument Government’s ‘one in, one out’ policy, whereby www.dfes.gov.uk/rsgateway/DB/ SFR/s000733/SFR21-2007.pdf within their education working paper is a concern schools enter into local partnerships to share 3 Through successfully 1 appealing decisions made by with violent and disruptive behaviour and from the behaviour management of their pupils: if a headteachers to exclude their this focus one would be forgiven for assuming child is excluded from a school, that school will children 4 DfES, 2006, Exclusion of that the majority of all excluded pupils from agree to take in a child excluded from another Black Pupils: Priority Review: Getting It. Getting It Right., schools in England are removed for such violence school within the partnership. The Conservatives London, DfES and disruption. Actual figures suggest rather view this as a means of ‘forcing good schools to 5 DCSF, 2007, ibid that 30% of permanent exclusions and 21% of take pupils expelled from bad ones’,6 and forms 6 Conservatives, 2006, ibid 7 Weekes-Bernard, 2007, fixed term exclusions from secondary schools part of their proposals to increase parental School Choice & Ethnic Segregation: Educational Decision in 2005/06 occurred as a result of persistent choice of schools from which disruptive children Making among Black and Minority Ethnic Parents, London, disruptive behaviour; 11% of permanent and have been removed. We have explored the Runnymede Trust 23% of fixed term exclusions during the same impact of choice on children from BME families 8 Though very little acknowledgement is made period were due to verbal abuse or threatening elsewhere,7 noting that the inability of parents of the poor educational progress of children attending 2 pupil referral units, or indeed behaviour against an adult. Although these from low income BME groups to choose schools of the clear relationship that exists between exclusion and are clearly figures not to be baulked at, what is exacerbates ethnic segregation. Policies which criminality. of importance in interpreting them is that they will enable schools to exclude children to 9 Guidance published by the 8 then DfES and included within relate to the numbers of exclusions, rather than ‘specialist facilities’ - a disproportionate number the Education & Inspections Act 2007 notes that if an numbers of pupils who have been excluded, of whom will be from BME backgrounds - and excluded child is seen in a public place, a fine will and that these pupil numbers will often include working in tandem with increased parental choice automatically be imposed upon the parent. We noted that given statistics suggesting Black young people who have experienced these procedures, will create sets of schools segregated children are more likely than others to experience these sanctions on more than one occasion. It is this both by ethnicity and class. sanctions, that this would place unfair burdens not simply on persistent minority of offenders whom the Conservative proposals also include removing Black parents, but also on lone Conservatives wish to target with a variety of the requirement recently placed on schools to working parents. 10 This includes removing the proposals which involve restoring a number of provide educational tuition from the sixth day of need to give parents 24 hours notice of a school detention, which is essential not only powers to teachers, whilst removing the ability of a pupil’s exclusion. Although we took issue with for child safety reasons but to allow parents to discuss these young people and their parents to ‘play the the requirement that parents be fully responsible the detention itself with staff. 3 Removing the necessity of system’. However, though the working paper for an excluded child during the first five days keeping a written record as 9 to why a pupil was searched in question raises the issue of the high numbers of an exclusion, we welcomed Government for dangerous objects would remove protection of staff in of exclusions occurring in deprived areas, there proposals that work be provided for children. the case of a complaint made by a pupil or parent. is no mention of race and its impact on these There are a number of other proposals 11 http://www.conservatives. com/pdf/New%20opportunity_ issues. What is startling about this omission contained within both the Conservative proof.pdf 10 is that disproportionate exclusions remain for working paper and the larger Green Paper 12 The working paper refers 11 to an article in the Times those from specific BME groups and for Black on education which have not been discussed Educational Supplement on individual cases of children Caribbean boys and pupils from Gypsy/Roma/ here but ultimately, the preoccupation with being excluded from school for carrying weapons, and Traveller backgrounds specifically. The then an image of a violent and disruptive pupil an individual case of a child returned to school following an Department for Education and Skills reported on underclass has formed the entire basis for this exclusion for carrying a knife as a means of providing rationale 4 for the necessity of reforming the ‘exclusions gap’ in 2006. The implications current set of Conservative proposals. The the independent exclusions for race equality therefore in publishing a set of populist process of basing policy reform on often appeals process 12 13 Reference is made to proposals that would facilitate the easier removal anectodal evidence is not new, but neither is acknowledging the seriousness of violent behaviour in of children at risk of exclusion from schools are it helpful. There is clear omission of an analysis schools serving disadvantaged populations but not to the far reaching. of race from these proposals, as well as an subsequent demonizing of the children who attend those 13 schools whose removal is only partial consideration of class differentials. necessary for those schools The Conservatives proposals The consigning of groups of pupils, who are to progress 14 See policy discussions in Conservative party proposals on countering disproportionately Black, of Traveller origin, and Bourne, J et al 1995, Outcast England: how schools exclude bad behaviour in schools include abolishing the from lower income families, to the margins of the Black children, London, Institute of Race Relations; Blyth & right of permanently excluded pupils and their educational system has simply been reinforced Milner, 1996, Exclusion from school: Interprofesssional issues families to make an appeal against the decision within this set of proposals.14 q for policy and practice, London, Routledge

Runnymede’s Quarterly Bulletin JUNE 2008 13 A new White Paper1 focusing on reform of educational provision for children educated outside the mainstream system was launched on 20 May 2008 by the DCSF. There are currently 70,000 children and young people being educated in alternative provision, about half of whom are excluded from mainstream schools. The other half are pregnant teenagers, young mothers and children with long term illnesses. The White Paper discusses the need to ensure that the educational provision for excluded children is of a good standard and proposes that poor performing pupil referral units (PRUs) be closed and pupil performance data of those attending be published. Private and voluntary sector EDUCATION organizations are being encouraged to run these units in a more innovative way, and behaviour partnerships are to be set up to allow schools to explore running PRUs jointly. A good practice guide for local authorities will be issued later in the summer term. Importantly, Local Authorities are being asked to use these proposals as part of strategies to prevent exclusions. Consultation on this paper will end on 25 July 2008.

1 DCSF, 2008, Back on Track – A strategy for modernising alternative provision for young people http://www.dcsf.gov.uk/exclusions/alternative_provision_policies/index.cfm

Kerrie Proulx is a recent A New Look at ‘Gaps’ in intern at the Runnymede Trust. Attainment at Age 16

Kerrie Proulx considers research which living in single parent households and living in looks at the interactions between ethnicity, deprived neighbourhoods. Whilst this finding is perhaps not surprising, an original feature of social class and gender and as a result the report is the suggestion that ethnic minority can suggest where the biggest ‘gaps’ in students appear to have ‘greater resilience to attainment are found at age 16. economic disadvantage’ than white British pupils. The evidence is based on the finding that white When it comes to educational achievement on working-class pupils had lower mean levels of ‘high stake’ exams at age 16, social class is still attainment at Key Stage 4 than most ethnic 1 Ofsted (2007). the strongest indicator of success, a Government- minority pupils from poor backgrounds. The claim The Annual Report funded report on ethnic minority achievement that white working-class pupils are ‘left behind’ 3 of Her Majesty’s has found. The report Minority Ethnic Pupils in was widely reported in the media. Chief Inspector of the Longitudinal Study of Young People, by Dr In effect, the report goes so far as to flip Education, Children’s Steve Strand from the Institute of Education at around the well-researched ‘ethnic gaps’ in Services and Skills Warwick University, found the social class gap educational attainment. Several ethnic minority 2006/07. London: in attainment at Key Stage 4 was substantially groups that were ‘underachieving’ at Key Stage 3 The Stationery larger than ethnic and gender gaps in educational including Pakistani, Bangladeshi, and Black African, Office. attainment. had caught up and surpassed white British pupils In 2006 only 20 per cent of pupils eligible at Key Stage 4, the report found. But there 2 Blanden, J. and for free school meals – the Government’s key seems to be a caveat to this finding: the ethnic Machin, S. (2007). measure of deprivation - achieved five A*-C gap closed, or changed its direction, only amongst Recent Changes in grades at GCSE, including English and maths, pupils from low socio-economic backgrounds – Intergenerational compared with 48 per cent of other pupils. however, this point is not explicit in the report. Mobility in Britain, Despite a series of government initiatives to On the other hand, the research found middle- Report for the tackle social inequality in schools, the relationship class white pupils at aged 16 performed better Sutton Trust. between poverty and educational outcomes is than many middle class ethnic minority groups 1 London: The Sutton ‘stark’ concludes the 2006/07 Ofsted report, (e.g. Black Caribbean and Black African). Trust. whilst a recent Sutton Trust report found social Together these findings highlight the mobility in Britain to be amongst the lowest of polarization between social class and educational 2 3 White Working any industrialized nation. attainment, which is argued to be most Class ‘Left Behind’ The ‘polarization’ in academic achievement extreme amongst white pupils. The report is (27 March 2008). between working-class pupils and their peers concerned with ethnic minority pupils but its British Broadcasting from wealthier homes is an ‘equity issue for all ‘most striking feature’ is related to social class Corporation. ethnic groups’, Strand’s report says. Drawing on and white pupils. ‘There is a need to move Available at: http:// data from more than 13,000 pupils, the study from a monolithic conception of white British news.bbc.co.uk/1/hi/ found attainment at aged 16 was negatively as a homogeneous group’ in order to recognize education/7316891. impacted across all ethnic groups by low socio- the profound differences in attainment at aged stm economic indicators including low parental social 16 between white pupils from diverse socio- class, mothers with no educational qualifications, economic backgrounds, the report argues.

14 Runnymede’s Quarterly Bulletin JUNE 2008 The report suggests working-class white pupils still the case that your educational chances are had ‘disproportionately low attainment’, but it substantially affected by where you live, the appears that it may be the case that middle- occupation of your parents, the income of your class white pupils had disproportionately high family’, Ed Balls, the education secretary, tells the attainment. New Statesman.4 Strand’s report, however, adds A strength of the research is that it considered ethnicity to the picture and provides evidence interactions between ethnicity, social class and to suggest that social class ‘effects’ ethnic groups gender and as a result it can suggest where differently, which in turn impacts their attainment. EDUCATION the biggest ‘gaps’ in attainment are found at The report puts poverty at the forefront of the age 16. The finding that the social class gap is debate on ethnicity and achievement, which more apparent and significant than ethnic and sits well with the Government’s goal to halve 4 Bright, M. and gender gaps is not new. The Sutton Trust report poverty by 2010. The report suggests, however, Kampfner, J (13 found 40 per cent of young people from the that where child poverty is eradicated, as in the December 2007). richest 20 per cent of households acquired a case of the middle class Black African and Black Interview: Ed Balls. degree compared with only 10 per cent from Caribbean groups in the study, ethnic gaps in New Statesman. the poorest 20 per cent of households. ‘It is attainment remain. q Available at: http:// www.newstatesman. com/200712130014 ‘Which Way Do I Ought to Go from Here?’: The Need for High-quality Careers Advice

in higher education by 2010. However, to reach this 1 Edge and the Kerrie Proulx looks at the careers advice Skills Commission. goal it is imperative that young people have access (2008). Inspiration and information about higher education within schools to accurate and impartial information and Aspiration: courses available to young people regarding higher education and career options. Young Realising our people who do not have access to information, advice Potential in the 21st Century. Available Careers advice being offered to young people in and guidance that enables them to make informed at: http://www. schools and colleges is ‘patchy’ and the talents of many educational and career choices are at risk of ending up policyconnect.org. young people are being ‘wasted’, a recent sixth-month ‘somewhere’ that fails to make the most of their skills, uk/content/skills/ inquiry into information, advice and guidance (IAG) abilities and interests. sc/resources/gen/ services suggests.1 The average adult in the UK spends Sir Peter Lampl, Chairman of the Sutton Trust NTI1OjA6MA== an average of four years and 10 months in jobs that said: ‘While it is encouraging that three-quarters 2 Millions in ‘wrong fail to make the most of their skills, adding up to 132 of young people aspire to university, less than half job’ says poll’. million working years spent by people in the wrong that number currently end up in higher education (2008, 31 March). job, it was claimed.2 and those from poorer families are the least likely British Broadcasting Corporation. In Alice in Wonderland an often quoted exchange to progress. So we need to offer more support to Available at http:// takes place when Alice realizes she is lost and asks young people throughout their education so that news.bbc.co.uk/1/hi/ the Cheshire cat, ‘Would you tell me, please, which they are in a position to realise their ambitions at 18 education/7323033. way I ought to go from here?’ and the cat replies, and beyond’. Research from Staffordshire University stm ‘that depends a good deal on where you want to that was published by the Sutton Trust in February 3 Ipsos MORI Young get to’. Alice says, ‘I don’t much care where, so long showed that few students knew about the bursaries People Omnibus as I get somewhere,’ to which the cat replies, ‘then or maintenance grants on offer at universities.4 Middle- Survey (2008). it doesn’t matter which way you go’. Perhaps unlike class students whose parents had experience of higher Research conducted for the Sutton Trust. Alice, in terms of education and careers, most young education made more use of their parents as a source Available at http:// people do care where they go. Nearly three out of of information and were more likely to be informed www.suttontrust. four young people say they are likely to go into higher about institutions and financial support, implying that com/reports/ education, according to the latest Ipsos MORI poll of young people who are most in need of bursaries are MORI2008.pdf student intentions published in April by the Sutton less likely to be informed. These findings are a further 4 Davies, P., 3 Trust. However, many students do not think they reminder that better support and guidance within Slack, K., Hughes, are getting enough information from their teachers schools is needed, particularly amongst students from A., Mangan, J., & about going into higher education. Thirty-one per non-privileged backgrounds, to ensure that ‘no young Vigurs, K. (2008). cent said they are getting ‘not very much’ information person loses out’, according to Sir Peter Lampl. Knowing Where to Study? Fees, and nine per cent claimed they are getting ‘none at The range of educational options on offer has Bursaries and Fair all’. The findings related to student intentions bodes increased in complexity (e.g. introduction of diplomas) Access. Staffordshire well for the Government, which is committed to and young people today are confronted with choosing University. Research ensuring 50 per cent of young people are participating from educational options and pathways from aged conducted for The Sutton Trust..

Runnymede’s Quarterly Bulletin JUNE 2008 15 14 that may include undertaking learning not just at a are maintained in the education choice making process single institution but through a number of educational because not all students have equal access to reliable, providers. Given the wider complexity of options on accurate and impartial information. offer to young people due to reform of the 14–19 The Department for Children, Schools and curriculum, such variation is likely to exacerbate the Families (DCSF) has reportedly ‘agreed the quality difficulties in making educational choices. Young people of information, advice and guidance (IAG) still too 7 EDUCATION are most likely to rely on parents or friends for advice often fell short of what young people needed’. Whilst about education and careers, according to a Youth access to IAG within schools may be insignificant for Matters consultation that included the views of 19,000 some embedded choosers, it is crucial for enabling 5 Department young people. 5 Only 19 per cent of students surveyed contingent choosers to make informed choices. In an for Education and had used careers advice services offered within their effort to improve IAG services nationally, an overhaul Skills (2006). Youth schools (Connexions) - but 62 per cent said they took place in April when the responsibility of IAG Matters: Next Steps. Available at: www. would like to have ‘one professional person’ to go to was devolved from 47 Connexions partnerships to everychildmatters. for advice and information. the 150 Local Authorities in England. Under the new gov.uk In the book Degrees of Choice the authors describe arrangements it is expected that local authorities will the difference between ‘contingent choosers’, who secure high quality IAG provision for young people 6 Reay, D., David, M. E., & Ball, S. J. are often socially disadvantaged students and the in their area by linking school and college based (2005). Degrees first-generation in their families to apply for higher provision for careers education with wider support of Choice: Class, education, and ‘embedded choosers’, who are middle- services including work-based learning providers Gender and Race in class students with an established family history and Connexions services. Schools and colleges may the Higher Education 6 Choice Process. of higher education. Contingent choosers make opt out of existing local IAG arrangements (e.g. Stoke on Trent: educational choices based on minimal information Connexions) if the existing provision is poor. New Trentham Books. and often finance is a key concern. Parents may offer standards of quality have been written to support the high levels of emotional support and encouragement development of high quality IAG services across the 7 Goff, H. (2008, but they are on the ‘periphery’ in terms of the choice country and they have defined IAG as an umbrella 31 March). Worry making process, mainly because they lack experience term that ‘covers a range of activities and interventions over ‘patchy career with the higher education process. The decision to that help young people to become more self-reliant advice’. British apply for higher education often occurs late – towards and better able to manage their personal and career 8 Broadcasting the end of GCSEs or during A-levels – and students development’. It is expected that under the new Corporation. are often not aware of different higher education arrangements all young people will have access to the Available at: http:// courses available to them and status distinctions following with their local authority: news.bbc.co.uk/1/hi/ between institutions. In terms of information and • Information – accurate, up-to-date and objective education/7318919. advice, contingent choosers often rely on ‘cold information about personal and lifestyle issues, stm knowledge’ (prospectuses) or on the basis of fairly learning and career opportunities, progression casual comments made by teaching staff. routes, choices, where to find help and advice 8 Department for In contrast, embedded choosers make educational and how to access it Children, Schools choices based on extensive sources of information • Advice – activities that help young people to and Families (2008). and finance is not an issue. Parents are proactive in the gather, understand and interpret information Quality Standards choice making process and are able to mobilize various and apply it to their own situation for Young People’s forms of support and information for the student • Guidance – impartial guidance and specialist Information, Advice including work placements and discussions with family support to help young people understand and Guidance or friends who have attended university. The decision themselves and their needs, confront barriers, (IAG) User Guide. to apply for higher education is well-established resolve conflicts, develop new perspectives and Available at http:// from an early age and it is often linked to entry into make progress www.iagworkforce. prestigious or highly paid professions. In terms of There have been concerns about how the new IAG co.uk information and advice, embedded choosers often services will be delivered in practice. For instance, rely on a range of sources including recommendations The Institute of Career Guidance has argued that from friends and family, league tables, career in addition to careers education programmes that consultants, teaching staff and school seminars are delivered by teachers, students must also have with leading professionals. The authors argue that access to independent careers advice provided by contingent choosers are at a gross disadvantage in the appropriately trained career guidance specialists. There education system, which is increasing in complexity and has, however, been strong support for IAG that is marketization, due to the fact that embedded choosers impartial, that will challenge stereotypes and that will have access to information, advice and guidance that raise aspirations. Whilst the jury waits to find out how has ‘a far higher currency and exchange value’. The effective the new IAG arrangements will be, a key appropriate social and cultural capital of embedded area of concern for all local authorities should be the choosers gives them a leg up in the choice making specific IAG needs of contingent choosers and their process, whereas contingent choosers are more likely parents, who need better support and information to to be at risk of making uninformed educational choices. help them decide where they ought to go when they Inequitable social class differences between students reach educational crossroads. q

16 Runnymede’s Quarterly Bulletin JUNE 2008 Investigating Ethnicity in the UK: The Possibilities of the UK Household Longitudinal Panel Survey ETHNICITY Lucinda Platt describes the UK Household Longitudinal Study (UKHLS) which will be the biggest survey of its kind in the world and aims to enable an understanding of the UK population over time. In addition to its broad coverage, one area that is a core aspect of this survey is ethnicity.

In April last year, work began on a major new survey topic in three main ways. of the UK population. The UK Household Longitudinal 1. By asking respondents’ ethnicity/ethnic group/ethnic Study (UKHLS) will be the biggest survey of its kind in identity. the world and aims to enable an understanding of the 2. By including questions about issues of relevance to UK population over time. The survey is a household research on the UK’s ethnic groups, including on Lucinda Platt panel survey which means that all members of the initial issues of association and belonging and areas where is a Senior sample of 40,000 households will be interviewed and comparison between ethnic groups is of interest. Lecturer in they will be re-interviewed annually, even if they are 3. By means of an oversample of selected ethnic Sociology in no longer living together and have established separate groups that thus provides large enough sample the Institute households. This means that it will be possible to sizes to facilitate detailed analysis of these groups for Social and discover how different aspects of people’s lives change individually or comparatively. Economic together or sequentially and in relation to those they Also, the survey leadership comes with the remit to Research live with. For example, do people marry people like encourage and engage researchers and research users at Essex themselves or do married people become more similar who have not typically used quantitative resources – or University. Her over time? who have been mistrustful of them – particularly among main areas of The UKHLS is based at the University of Essex and those interested in ethnicity and ethnic minorities. expertise are is led by a team of researchers from the Institute for In order to maintain the focus on ethnicity within child poverty Social and Economic Research (ISER) at Essex, and also the UKHS, a group within the wider leadership team and ethnic involves co-investigators from the University of Warwick for the survey is dedicated to furthering this ‘ethnicity minorities. and the Institute of Education in London. strand’. The group consists of myself, Richard Berthoud, The survey will ask questions across a wide range Jonathan Burton and Alita Nandi at Essex and Heidi of people’s experiences, attitudes and behaviours: the Mirza at the Institute of Education. work they do, their education and training, their political In order to engage with issues of topic content, affiliations, their health, the child care they use, their what and how we should ask about people’s ethnic aspirations, their relationships with others, the caring identity, and what were the topics of greatest salience for others that they do, attitudes to where they live, for the study of ethnicity and ethnic minority groups, their leisure, and so on. This will allow a picture of the we immediately embarked upon an intensive period multiple dimensions of people’s lives to emerge as well of consultation that ran in its first phase from June to as enabling investigation of how different aspects relate October of last year. The consultation involved targeted together at the same point or at different time points. and open meetings, large-scale mailings, direct email For example, do people from different backgrounds and phone contacts and face-to-face discussions. We have different aspirations? Do they change over time attempted to use the consultation exercise to engage or with changes in family circumstances? Do people with non-quantitative researchers: to address how achieve their aspirations? And what is distinctive perspectives from qualitative and theoretical ethnicity about those who do or don’t? Or, how does people’s research might be incorporated into a structured survey changing health status affect their employment, their such as this and how the survey might extend its reach beliefs and their relationships? Survey results will thus among the research and user communities as a valuable be of interest to a wide range of researchers and and valued resource. And we included grassroots research users with all sorts of different interests in organisations among those who we canvassed for people’s lives and trajectories. views, holding meetings directly with groups of such In addition to its broad coverage, one area that is organizations, to identify what they regarded as the a core aspect of this survey is ethnicity. There has not most salient issues facing their organizations and those been a dedicated survey of ethnic minorities in the on which they would value more information. These UK since 1994, when the Fourth National Survey of groups also provided valuable insights into obstacles Ethnic Minorities was carried out; and there has never interviewers might face, with certain groups on certain been a panel survey of ethnic minorities. The UKHLS is questions, language constraints and issues of decorum therefore designed to capture this important and salient within households.

Runnymede’s Quarterly Bulletin JUNE 2008 17 The consultation threw up a range of perspectives partly shifted to practical implementation issues and on what was important in attempting to establish to working with the survey organization, NatCen, ethnicity or ethnic identity. These ranged from on: indentifying target languages for translated those who thought that any attempt at ethnic group questionnaires; ensuring effective translation processes; classification was highly problematic and to be avoided, question ‘testing’ for new questions that have been through those who emphasized the importance developed to meet the priorities we identified; of collecting information on particular potential designing and checking the screen question which will ETHNICITY ‘dimensions’ of ethnicity, saw it as complementing determine who is included in the oversample and what ethnic group identification, such as migration histories, they are asked; developing ‘door-step’ procedures for religious affiliation and so on, to those who prioritized communicating with those who do not speak English classifications which would facilitate comparison with as well as for those who are not selected for inclusion other sources (e.g. the Census) and allow consistency in in the survey, and so on. Work is also ongoing on measurement, even if some subtlety was lost. technical design issues relating to the sampling of There were also a large number of topics identified households to screen for inclusion in the oversample. as being important to the study of ethnicity and ethnic These practical issues are all crucial to ensuring that groups. These have been summarized elsewhere we not only incorporate the three main elements of the (see links below), and covered (a) areas which were ethnicity strand – identity questions, relevant content, seen as important to understanding the meaning of and an oversample – into the UKHLS, but that we do ethnic ‘group-ness’ and the extent to which ethnic so to as high as possible a standard that will ensure groups were groups by other criteria, by asking, for the survey is used by existing ethnicity researchers and example, about social networks or experience of engages future ones. When the questionnaire for the discrimination; (b) issues which were related to recent first year goes into the field in January 2009, we will or more distant experience of immigration, such as begin to see if we have succeeded! transnational networks, remittances and so on; and (c) Meanwhile, we are also looking ahead to the topics which were not directly related to any particular second year of the survey and what content should understandings of ethnicity or ethnic groups but which be prioritized for that questionnaire. We already potentially varied across groups or revealed inequalities, have some ideas from topics proposed in the including income, employment, health and so on. previous consultation, questions which needed As well as questions and topic areas, those we more development or wouldn’t fit into the first consulted also showed a lot of interest in the design year’s questionnaire. But we are also interested in and coverage of the oversample. This resulted in a hearing further ideas, and welcome comments or number of interesting and lively discussions about what communications at any time. constituted a ‘group’, which groups were of particular We are also thinking about dissemination for the and/or growing interest, and which were likely to first year’s data, and how we should support people constitute relevant populations for analysis in years to in analysing it or in using findings emerging from it. To come, given that the survey re-interviews the same do this it will be important to return not only to those people year after year. These discussions highlighted we have already been in contact with, but also to issues around the ways that ‘groups’ come to be identify new audiences to engage with. We would be formed or recognized and the ways in which categories interested in hearing from you if you have suggestions such as those imposed by censuses or other forms or would like to know more about using the survey in of data collection may change their membership and the years ahead. q meaning over time. Lucinda Platt, University of Essex Towards the end of last year, we drew together the main conclusions from the consultation process in Further information terms of what ‘ethnic group’ questions should be asked, • further information on the UKHLS see: http://www. what were the priority topic areas for inclusion in the iser.essex.ac.uk/ukhls/ first wave of the survey (given tight constraints on total • summaries of the consultation on the ethnicity interview time and the pressures for space from other strand and priorities identified see: http://www.iser. areas), and who should be included in the oversample essex.ac.uk/ukhls/consult1/ethnicity/ (and who should be excluded from it) and how we • overview and proposed topic coverage for the should screen households to ensure we included the overall survey see: www.iser.essex.ac.uk/ukhls/ targeted groups. In making these sorts of decision, we conference/docs/UKHLS_topic_content_Jan_10.pdf were supported by an advisory committee with a wide • the membership of the advisory committee for the range of expertise from across academia, government ethnicity strand, see: http://www.iser.essex.ac.uk/ departments and the voluntary sector (including ukhls/about/emac/ Runnymede). The advisory committee have also proved very helpful in challenging us to ensure that the ethnicity To contact Lucinda about the UKHLS, strand does not get lost or diluted within the survey as email: [email protected] a whole. or write to: Lucinda Platt, ISER, University of Essex, With content for the first wave of the survey Wivenhoe Park, Colchester, Essex CO4 3SQ now established reasonably clearly, attention has or call 01206 873062.

18 Runnymede’s Quarterly Bulletin JUNE 2008 Ethnicity and Nationality: Review of ONS Census Proposals Omar Khan reports on the changes proposed to the ethnicity questions, which were first included in the 1991 census. He argues that if the Census doesn’t respond more sensitively CENSUS to the experiences of minority ethnic groups in the UK, and doesn’t better apprehend the political difficulties in discussions on nationality, the questions on ‘ethnic group’ and ‘national 1 2011 Census: identity’ will fail to acheive their important aims. Ethnic Group, National Identity, Religion and The Census is the most important unique responses, which the office understood first. First of all, the Language source of data on the population for National Statistics (ONS) have ethnicity and nationality questions consultation. of the United Kingdom. From divided among four different groups: are not and will not be the same Summary report employment to housing and from 1. Central and devolved government for all of the countries in the on responses to family size to ethnicity the Census (23); 2. Experts, community & special UK; in particular the questions the 2011 Census stakeholders collects a wide range of data but also interest groups (139); 3. Local & for England and Wales differ consultation has an enormous impact on policy. regional government (89); and, 4. significantly from those in Scotland, 2006/07. London: This is because funding and delivery Local service providers (46).2 a complication we have to sidestep Office for National is in large part determined by the As ONS effectively summarize in this review. Second, the 2011 Statistics, October needs of various populations, and these responses in a number of question proposes a new question 2007. this is typically calculated on the basis documents, we will instead raise on ‘national identity’ in addition to 2 See http://www. of census figures. some of the key issues, including ‘ethnic group’, as well as one on statistics.gov.uk/ Since 1991 the UK Census has those for moving forward on the ‘language’. Third, to understand census/2011Census included data on ethnicity. These 2011 Census categories. Although the proposed changes for the /Consultations/ questions are self-reported and we are deeply concerned with 2011 Census, we must first come ethnicldent included ten categories in 1991 and a number of the proposed to terms with the existing sixteen consultation.asp sixteen in 2001. They are probably changes, three key points must be categories from the 2001 Census. familiar to readers because they are also those used on equal opportunity monitoring and other forms. Census Table 1. categories are therefore important 2001 Census Question 2011 Proposed Questions not only for government policy, but White White also impact the labour market and White British Welsh educational institutions. White Irish Other British Because of the centrality and White Other Irish importance of census data, it is Any other white background, write in important that the information is accurate and understandable. In Mixed Mixed the case of the ethnicity question, White and Black Caribbean White and Black Caribbean the changes between 1991 and White and Black African White and Black African 2001 responded to the increasing White and Asian White and Asian diversity of the UK population, Other Mixed Any other Mixed background, write in especially the growth of the ‘mixed’ Asian or Asian British Asian or Asian British population, but also the diversity Indian Indian within the largest category, namely Pakistani Pakistani the ‘white’ group. The Government Bangladeshi Bangladeshi recently completed a consultation Other Chinese on whether and how to adapt Any other Asian background, write in these categories further for the 2011 Census, by which time the Black or Black British Black or Black British minority ethnic population of the UK Black Caribbean Black Caribbean will be considerably larger but also Black African Black African considerably more diverse. Black Other Any other Black background, write in There were over 600 responses Chinese or any other ethnic group Other ethnic group to this consultation, although many Chinese Arab of them were sent on behalf of Other Gypsy/Romany/Irish Traveller campaigning organizations. Excluding Any other, write in repetitive responses, there were 297

Runnymede’s Quarterly Bulletin JUNE 2008 19 The ‘ethnic group’ worth trying to map the broader carry no such designation), but question in Census 2001 context in which the question on incoherent in the context of a and Census 2011 ethnicity operates. Considering national identity question. What The ethnicity question for the the ethnic group categories if certain respondents wish to 2001 census included ‘single one by one, it is immediately declare themselves as ‘English’, group’ and ‘combined group’ obvious that the groups are ‘Welsh’ or ‘Scottish’ in terms categories (see Table 1). That is, designed for respondents living of their national identity – are CENSUS each of the sixteen categories in England and Wales, but that they still to be defined in terms fits into five larger ‘combined they do not fully capture their of ‘British’ even if they identify likely self-identification. To take contrariwise? If the Census is to one important example, the treat the ethnic group category 2001 categories did not admit a as a separate question from Table 2. ‘White English’ or ‘White Welsh’ national identity, the combined What do you consider your response. Partly in response to categories must be more simply this problem, a new question termed ‘Asian’ and ‘Black’. national identity to be? on ‘National Identity’ is being The second problem is in Welsh proposed for the 2011 Census. fact more serious in terms of English its political implications. This Scottish National identity and is that the majority of white Northern Irish ethnic group respondents in England will be British There are in fact two reasons to forced to choose ‘Other British’ Irish amend the discussion on ethnic as their ‘ethnic group’. While the Other, write in groups by adding a question combination of national identity on national identity (see and ethnic group is particularly Table 2). The first has already confused in the case of white group’ categories. These are been alluded to, namely to groups – deriving of course from ‘White’, ‘Black or Black British’, disaggregate ethnicity, geography, the complicated multi-national ‘Asian or Asian British’, ‘Mixed’ nationality and race. A second nature of the British state – the and ‘Chinese or any other group of reasons are more equivocal response proposed in ethnic group’. These larger pragmatic (i.e. political), whether the Census test question is not categories are not obviously in response to the possibility so much an academic question equivalent – two carry the term of greater power or indeed as a political one. Consider the ‘British’ – and they combine independence for Scotland headlines if 85% of the country race, geography and nationality or Wales, or to address the is required to identity as ‘Other in different ways. This is increasingly torturous debate on British’ in terms of ethnicity. probably inevitable given the ‘Britishness’ (for more discussion This will not only be confusing actual experience of race and of this debate see the review of for the many white people ethnicity in the UK, but it partly Multicultural Nationalism on p. 29 who fail to identify as Welsh or explains why many experts and of this issue of the Bulletin). Irish, but potentially alienate a community groups are sceptical Unfortunately, the proposed good number of white citizens of the usefulness of these larger question on ‘national identity’ – and even give succour to the categories. particularly when combined with arguments of far-right English With respect to the ethnic the lack of serious amendment and British nationalists. And on group categorization, the to the ‘ethnic group’ question the other hand, the term ‘Other major proposed changes are: – raises more difficulties than British’ in this context suggests 1. increased use of write-in it solves. In proposing these that Welsh and Irish are also categories; 2. a new ‘Welsh’ changes, the ONS should simply sub-sets of the category category; 3. a newly termed have offered greater symbiosis ‘British’, an implication that not ‘Other British’ category; 4. between the ‘national identity’ a few Welsh and Irish may find moving the ‘Chinese’ category and ‘ethnic group’ questions. objectionable. from the ‘Other’ combined The proposed changes fail It is hard to understand how group to the ‘Asian or Asian on this front in at least two the ONS could have got this British’ heading; and, 5. adding serious ways. First, the ethnic question so spectacularly wrong. two new named ethnic groups group question continues to The only possible explanation in the ‘Other ethnic group’ modify its characterization is that the terms ‘English’ and combined category, namely of two ‘combined’ groups ‘Scottish’ were considered ‘Arab’ and ‘Gypsy/Romany/Irish – Black or Black British and too politically difficult to Traveller’. Asian or Asian British – with concede as ethnic categories. Before we assess the the term ‘British’. This is not But whatever the sensibility potential benefits and pitfalls of only inconsistent (the ‘White’, of that view, it is hard to see these proposed changes, it is ‘Mixed’ and ‘Other’ groups how the term ‘Other British’

20 Runnymede’s Quarterly Bulletin JUNE 2008 Table 3. Suitability of the proposed ethnic group categories

Combined Ethnic Groups Single Ethnic group Yes No Partially Yes No Partially Central & devolved government 36 45 18 45 14 41 Experts, community & special interest groups 14 71 15 13 59 28 CENSUS Local & regional government 30 33 37 24 25 52 Local service providers 42 42 17 30 38 33 Omar Khan is a Research All respondents 25 52 23 22 41 37 & Policy Analyst at the Runnymede as an ethnic designation gets categories, such as Nigerian, the consultation exercise. This Trust. around those problems. In fact, Somali and Sudanese within suggests that those best placed on any plausible understanding the African ethnic group. Other to understand the role and of national identity and ethnic groups also requested new impact of ethnicity in the UK group, it is more credible to categories, often supported by disagree with those best placed argue for Englishness as a ethnic campaigning organizations as to decide how ethnic categories category and Britishness as a in the case of Cornish, Jewish, should be devised. national identity. That white Kashmiri and Sikh groups. people in the UK often (or It is worth pointing out Conclusion even typically) have a mixed an important divergence of The importance of the Census English, Scottish, Welsh, Irish opinion between government in terms of policy obviously and perhaps other European and other service providers means that the ONS is sensitive background means that all of and ‘experts, community and to those considerations. those identities should have special interest groups’. In their However, as this consultation been suggested as possible overview of the responses, the responses reveal, this is responses to the ethnic group ONS sometimes glosses these only one standard by which question. data in a misleading way, and to evaluate the suitability in particular obscures some of ethnic group and other Respondents to the important disagreements. For Census categories. We might consultation example, while the document instead respond to the actual Only 22% of all respondents summary states that ‘the experience of various individuals to this consultation said they majority of respondents were in the UK, and some of the were satisfied with the single satisfied with each of the existing questions may not ethnic group categories in the combined group categories’ best fit the identities or indeed test question, a remarkably the closely related question of the objective needs of various low figure. At the same time, whether the proposed ethnic groups. At the same time, however, more than 80% of group categories were suitable there are significant political respondents needed ethnicity for user needs garnered only implications for characterizing information, suggesting that the 25% agreement. Furthermore, people in particular ways. categories must be seriously there was a stark difference of Ethnic group categories can amended between now and opinion between government theoretically ‘create’ particular 2011. and experts on this question, as kinds of interest groups, but in Although respondents didn’t Table 3 reveals. the case of the 2011 Census agree on the specific way this Interestingly, the largest the greater concern is that it should be done, they seem to differences are between central may confuse or even alienate a have agreed that the ethnic government and experts in large majority of the population. group question in general terms of the usefulness of the If the 2011 Census doesn’t required greater refinement or single ethnic group categories. respond more sensitively to sophistication. Such demands It is striking that only 14% of the experiences of minority included greater disaggregation central government respondents, ethnic groups in the UK, and of the ‘combined’ categories but fully 59% of experts, doesn’t better apprehend the – to include, for example, thought the single ethnic group political difficulties in discussions Polish, Cypriots and Turks, categories were not suitable. on nationality, the questions or Indonesian, Sri Lankan and Although the discrepancies in on ‘ethnic group’ and ‘national Vietnamese, while others called other areas were less significant, identity’ will fail to achieve their for greater specificity of existing they were replicated throughout important aims. q

Runnymede’s Quarterly Bulletin JUNE 2008 21 Young Children and Racial Justice Jane Lane

This book has taken more than three years of this mean that, completely out of my life – a totally exhausting although most EARLY experience. So why have I written it? people somehow YEARS I am passionate about playing a part in getting know that racism is rid of racism. It has haunted me ever since Kelso ‘bad’, they do not Cochrane was murdered by a gang of white men in see its relevance in Jane Lane is Notting Hill in 1958, near where I was living. But it is the early years or an advocate so institutionalized, so much a part of the ‘system’, its its implications for worker for tentacles so embedded in our society that the task is them personally. racial equality almost overwhelming. It feels as if many people just To compound in the early do not care whether it exists or not. this, people are years. I decided, with others, many years ago to focus apprehensive about on the early years of children’s lives as being key to discussing racial trying to break the cycle of learning racist attitudes equality issues. They from generation to generation and thus beginning fear being accused part of the process of breaking down racism of being racist, of making terminological errors, Research evidence over 50 years shows that of being made to feel guilty and of being found young children ‘notice’ skin colour differences by inadequate and lacking in knowledge. It is far easier the age of three and, unless specific action is taken to avoid this wherever possible. to counter it, very many express racist attitudes If people take time to understand what racism is – to those with skin colours that are not white. By that they are not personally responsible for it unless working with families and early years workers in early they fail to take responsibility to do something about years settings and with local and national government it – some of this apprehension will be removed. departments we aimed to identify and address both One of the significant barriers to getting rid of individual and institutional practices and procedures racism lies in a reluctance and fear of talking about it, that not only so clearly discriminated against black understanding it and to working out ways together children but also distorted the lives of many children, of removing it. both black and white – racially prejudiced attitudes I have written this book with the aim of are not confined to white children although it is demystifying racism and its implications for early only white ones who maintain powerful positions in years policies, practices and procedures. I have society and are able to act them out as they grow to tried to define it, to analyse it, to explain it and adulthood. This is the sad and depressing reality of to consider some of the anxieties and questions racism. that many early years workers may think about. But despite the work of many individuals, a few With this understanding I hope readers will organizations, an increase in resources, training approach all other aspects of the issues discussed and written information, race relations legislation with open and questioning minds. I have tried to and some important moves by government both be non-threatening, sensitive, compassionate and nationally and locally, there remains a significant understanding of the variety of perspectives and lack of knowledge about what racial equality backgrounds with which people arrive in the early means in practice. This lack is reflected in a failure years field – from workers in early years settings to understand why, in 2008, it is necessary to to national and local government, to researchers, acknowledge the existence of racism, its connection inspectors, trainers, policy makers and even with early years work, and particularly its institutional government ministers. At all times I suggest everyone aspects, if practice is to be built on solid antiracist tries to work within a no-blame culture. foundations. Crucially, many black families have seen That is why I have written this book. little real change over the years. A well-known sculptor friend of mine once came Although much has already been written in to talk with some of my evening class students. the early years field about what is considered to When they asked him if anyone bought his sculpture be good practice for racial equality, little has been he said that not many people wanted his work. They said about racism. Similarly training, qualifications, asked why he didn’t make what they wanted. He national standards, curriculum documents, inspection replied that if he did he would be making garden frameworks and government policies, procedures gnomes. and guidance, while being greatly improved with He was absolutely right. I have not written a book the advent of the national childcare strategy, do that people may prefer (garden gnomes). I have not acknowledge the existence of racism or the written what I hope is constructive and what I think is statutory requirements of the law. The consequences needed. Whether others agree is another matter! q

22 Runnymede’s Quarterly Bulletin JUNE 2008 ‘Race’ and Domestic Violence in the Media zohra moosa analyses how violence against her father and uncle) as a threat at least twice. RACE & According to evidence from the trial, not only THE MEDIA ethnic minority women is reported in the did the police fail to protect Banaz, they actually media and demonstrates how ‘culture’ neglected to file a report of her allegations and also increased the danger she was in by informing her 1 Tariq Modood has replaced ‘ethnicity’ in mainstream parents of her claims.2 (2005) Multicultural Politics: Racism, discourses on race. This lack of a professional response and the Ethnicity, and Muslims exacerbation of the danger Banaz Mahmod faced in Britain. Minneapolis: Runnymede’s recent report, A Tale of Two Englands, by the police are widely acknowledged in the press University of Minnesota Press. aims to demonstrate how the use of ‘culture’ as an coverage of the trial of Banaz’s father and uncle.3 explanatory framework within media reporting on What is interesting about many of the reports, 2 http://www. guardian.co.uk/ violent crime that affects ethnic minorities is highly however, is the fact that the reprimands in the uk/2007/jun/11/ racialized. Monitoring two months of newspaper media stories are directed at the police for not ukcrime.karenmcveigh coverage, it examines the place of race and ethnicity recognizing that Banaz was becoming a victim 3 E.g. http://www. of victims and perpetrators in media discourses to of honour-crime – not for failing to intervene in dailymail.co.uk/pages/ demonstrate how particular ethnic ‘communities’ a case of domestic violence. Stories in several live/articles/news/ news.html?in_article_ are ascribed pathological cultures, while structural different newspapers on 12 June 2007 about the reasons for crime trends and patterns are ignored. police failings, for instance, all put in the foreground 4 http://www. guardian.co.uk/ In this way the report helpfully provides additional that Banaz was a victim of honour-based violence uk/2007/jun/12/ evidence on the theory that ‘culturalism is the new (first sentence in the Guardian4, headline in the ukcrime. prisonsand racism’ (e.g. Tariq Modood, 2005).1 Independent5, headline in the Telegraph6, third probation1 id=461280&in_page_ 7 Unfortunately, the report deliberately excludes sentence in The Times and first sentence in the id=1770 sexual and domestic violence from its analysis Daily Mail8). Background stories on Banaz’s case 5 http://www. on the basis that it would have been difficult to juxtapose the recorded ‘transgressing kiss’ against independent.co.uk/ compare violence committed by family members ‘British culture’, specifically citing Banaz’s father’s news/uk/crime/ with violence between relative strangers. Iraqi, Kurdish and Muslim backgrounds as relevant honourkilling-victim- told-police-four-times- 9 However, analysing how violence against ethnic and explanatory in his murder of his daughter. of-fears-father-would- minority women is reported in the media offers The Times article, moreover, argues that it was murder-her-452725. critically different evidence of how ‘culture’ has the police’s failure to adopt the relevant police html replaced ‘ethnicity’ in mainstream discourses on guidelines on honour-based crimes that led to 6 http://www. race. Moreover, the problematic use of culture Banaz’s murder.10 telegraph.co.uk/news/ main.jhtml?xml=/ also becomes more evident: ‘culturalist’ framings In framing the police’s poor response to the news/2007/06/11/ of violence against ethnic minority women threats on Banaz Mahmod’s life as a lack of nhonour111.xml are undermining women’s safety on the one understanding about honour-based crime, the 7 http://www. hand and their options for justice on the other. media constructs the failure of the police to protect telegraph.co.uk/news/ main.jhtml?xml=/ Where women should be expecting support Banaz as a technocratic challenge, rather than an news/2007/06/11/ and protection from violence, and proportionate issue of gross negligence or incompetence to a nhonour111.xml response from the criminal justice system as victims, victim of gender-based violence. In turn, this framing 8 As above ethnic minority women are facing lower standards allows poor police response to be more readily 9 E.g. http://www. of professional response, misdiagnoses of dangers excused through explanations such as officers not timesonline.co.uk/ and threats they face, and racialized categorizing of having sufficient training on honour-based violence tol/news/uk/crime/ the gender-based crimes against them. or the police not understanding the cultural article1918019.ece and http://www. nuances at play. Instead of holding the police to guardian.co.uk/ The use of ‘honour’ as a cultural account for its failure to deliver a professional uk/2007/jun/11/ lens on violence against women service to all who walk through its doors, the ukcrime.karenmcveigh As A Tale of Two Englands predicts, the reporting ‘mistakes’ made in Benaz’s case are positioned as 10 E.g. http://www. of so-called ‘honour killings’ provides particularly situated within a particular, complicated, different timesonline.co.uk/ tol/news/uk/crime/ useful examples of how culturalism is the new arm space; in this space, a mainstream service like article1918014.ece of racism. The case of Banaz Mahmod is one worth the police could reasonably be expected to 11 One article that examining in some detail as coverage of her murder lack expertise on difference. The fact that an did not fit this type was widespread. appropriately professional response, even without includes this one Banaz Mahmod was raped and strangled in extra training on the nuances of honour-based from The Sun: http:// www.thesun.co.uk/ January 2006 after having contacted the police four violence, would likewise have prevented Banaz’s sol/homepage/news/ times for help, and naming her murderers (including murder, is largely ignored.11 article237947.ece

Runnymede’s Quarterly Bulletin JUNE 2008 23 The ascription of ‘honour’ Women’s Rights Organisation actively campaign as a racializing phenomenon against ‘honour oppression’. Second, honour crimes In the media stories about Banaz Mahmod exist outside of Kurdish communities. They have discussed above, honour-crime is framed as a been reported by Catholics and other Christians, as cultural phenomenon on the one hand, and as well as by Hindus and Sikhs; they occur in Europe, particular to certain ethnic groups on the other. the Middle East, North Africa, South America and RACE & It is this slippage between problematic ‘traditions’ South Asia; and honour ‘defences’ are permitted in THE MEDIA and their ascription to certain ethnic groups that the penal codes of Argentina, Bangladesh, Ecuador, culturalism is about. For example, in two of the Egypt, Guatemala, Iran, Israel, Jordan, Lebanon, the articles, reporters argue that Banaz’s father and Occupied Territories, Peru, Syria and Venezuela.14 12 http://www. uncle felt justified in their actions because of the Similarly, in an interview with Banaz’s sister, BBC’s timesonline.co.uk/ tol/news/uk/crime/ ‘shame’ they felt at Banaz’s behaviour because of Ben Geoghegan asks Bekhal Mahmod whether she article1918019.ece their Kurdish, and non-Western, backgrounds.12 thinks her ‘father and those members of your family and http://www. guardian.co.uk/ In deliberately linking ‘honour-crime’ to an ethnic of his generation felt that Banaz was bringing shame uk/2007/jun/11/ group in this way, and strategically framing it as on them’.15 Yet Bekhal Mahmod’s descriptions of ukcrime.karenmcveigh a cultural phenomenon, the ascription of honour her experiences at home chime more with notions 13 http://www.bbc. co.uk/mediaselector/ by the media becomes a racializing process: some of control and coercion – familiar conceptual check/player/nol/ ethnic minorities are subject to ‘cultural traditions territory for anyone with even basic knowledge newsid_6740000/ newsid_6742100? of honour’ that white people and other ethnic about domestic violence. Bekhal does not use the redirect=6742141 minorities are not. The delineation of difference words ‘shame’ or ‘honour’ to explain her father’s .stm&news=1&bbwm =1&nbram=1&nbwm uses ‘culture’ as a reference point, but race as a treatment of her or Banaz even after Geoghegan =1&bbram=1 marker (i.e. Kurdishness). introduces the ideas. Geoghegan continues this line 14 Presentation by The BBC’s multimedia coverage offers telling of thinking when he asks Bekhal what advice she Heather Harvey, Stop Violence Against examples of this process. In a number of pieces, would offer to ‘other Muslim women who might Women Campaign its reporters go to great lengths to discuss how be living in a forced marriage or living in a family Manager, Amnesty International, to Banaz had left an arranged marriage, how she environment where they’re at home but living in the Conservative was part of a ‘close-knit Kurdish community’, and fear’. Not only is it unclear that Banaz’s marriage Women’s Organisation’s how her relationships with her father and uncle was forced (several accounts name it as ‘arranged’), Violence Against were apparently exclusively constructed in terms but she was divorced and had moved back in with Women Summit, 11 October 2007. of notions of honour and shame – a neat package her parents when she was murdered. In addition, 15 http://www.bbc. that can clearly be tagged as ‘culturally different’. Geoghegan’s choice to refer to ‘other Muslim co.uk/mediaselector/ check/player/nol/ For example, in ‘How “honour killing” investigation women’ suggests that he thinks domestic violence newsid_6740000/ unfolded’, the BBC notes that the police argue for Muslim women is inherently different to the newsid_6742300? redirect=6742393 they faced difficulties in handling Banaz’s case domestic violence that 25% of British women will .stm&news=1&nbwm because of the ‘closed nature of London’s Kurdish face in their lifetime.16 =1&bbwm=1&bbram 13 =1&nbram=1 community’. The BBC does not point out the fact To be fair, Geoghegan may have been attempting 16 The Fawcett that her sister and partner were both available for to be ‘culturally sensitive’: as Bekhal sat across from Society, Women and interview, that Banaz herself had reported to the him in full burka, he may have assumed that she the criminal justice system: the facts, police four times, and that evidence in a murder would welcome acknowledgement of her religion 2007. case would presumably be difficult to come by in some way. Unfortunately against the backdrop 17 http://www. in any ‘community’. More remarkably, the BBC of the rest of the interview and other examples of fawcettsociety. org.uk/index. seems oblivious to its framing of the investigation the BBC’s coverage, it becomes obvious that it is asp?PageID=599 even though within the same segment, Jasvinder this so-called cultural sensitivity that is the problem. Sanghera of Karma Nirvana firmly states in her The BBC, like other media outlets, allowed the interview that police should not be treating idea of ‘culture’ to over-determine how violence zohra moosa is Senior scenarios like Banaz’s as ‘cultural issues’ but instead against ethnic minority women is perceived. As Policy Officer Race & should be seeing them as abuse. a result, what could otherwise be treated as one Gender at the Fawcett In other programmes, the BBC makes its manifestation of the broader problem that is Society [http://www. fawcettsociety.org. racialized framing of honour even more explicit. violence against women is framed as particular and uk/] where she runs In its Today Programme, for instance, the BBC peculiar to specific ethnic minorities. Seeing Double, a dedicates an entire segment to discussing ‘the national campaign Kurdish community’ entitled ‘”Honour killing”: Conclusion on the experiences Kurd culture’. Billing the programme as ‘The BBC’s Obviously honour-based crime is a real challenge and needs of ethnic minority women. Today Programme investigates life within the and does need specialized interventions. In Prior to this role, Kurdish community in response to the “honour foregrounding the ‘honour’ element of the violent zohra was Senior killing” of Banaz Mahmod’, the BBC thus defines crime in press reporting, however, the media effaces Policy Advisor to the being Kurdish as synonymous with honour killing. the broader – and mainstream – lessons around Director of Strategy This is a mistake for two obvious reasons. Firstly, violence against women, including appropriate police and Communications at the Commission for the ‘Kurdish community’ is not a monolith. response to women victims of violence and also Racial Equality (CRE). Organizations such as the Iranian and Kurdish ethnic minority victims, and the role of patriarchal

24 Runnymede’s Quarterly Bulletin JUNE 2008 structures and patterns of male abuse that typify all honour. On the one hand, the police have yet to gender-based violence against women. For example, demonstrate that they provide fair treatment to it is widely acknowledged that women victims of women victims of domestic violence generally. On gender-based violence face extremely poor police the other, the police have yet to prove that they responses. The Fawcett Society’s recent campaign will provide equitable treatment to ethnic minority on justice for rape victims, for instance, highlighted women when they report equivalent injustices as how failings in basic police protocol directly white women. The media’s decision to emphasize RACE & contribute to the scandalously low rape conviction the ‘honour’ element of Banaz’s murder makes her THE MEDIA rate.17 Similarly, there is plenty of evidence that the experience about her Kurdishness and Muslimness, criminal justice system is institutionally racist, while rather than about structural challenges such as campaign groups such as Southall Black Sisters have patriarchy and how the police treated her. As A exposed how ethnic minority women face particular Tale of Two Englands also reveals, this rendering, challenges in accessing justice and protection from moreover, allows the reader to make the mistake of the police. passing judgement on Kurdish and Muslim ‘culture’ The problem then is much deeper than – which only Kurdish and Muslim people have – as the failure to implement special guidelines on the culprits in Banaz Mahmod’s murder. q

of the guiding topics for the political Kjartan Páll (Re)thinking ‘Gangs’ agenda in the coming months and Sveinsson is years. As a result, we can expect to a Research Runnymede’s latest Perspectives publication is an analysis by see the emergence of more policies & Policy Claire Alexander of the concept of the ‘gang’ and what it along the lines of the ‘in-your-face’ Analyst at the policing of youth (in the words of Runnymede means. Here, Kjartan Páll Sveinsson puts the analysis in the MPS Assistant Commissioner Tim Trust context of the recent political agenda. Godwin),3 and the extension of police stop-and-search In Runnymede’s latest publication murders in 2008 have received powers which is finding in the Perspectives series, Claire the intense media scrutiny that its way back onto the Alexander takes a critical look at many of the high profile cases of political agenda. With the concept of the ‘gang’ and its 2007 attracted), teen-on-teen the offhand and uncritical meaning in political and public murders are still high up on the association between discourses. The paper explores political agenda. Indeed, political ‘gang culture’ and the the concept through three exploitation and manipulation of African Caribbean interrelated sets of questions. the ‘gang’ problem appears to be ‘community’, concerns How has the concept of the picking up pace. Boris Johnson about the effect on ‘gang’ been constructed in the made the fight against ‘gang culture’ relations between media, and how do politicians and the central plank of his campaign to the police and black policy makers both pick up on become the Mayor of London. ‘It people are not entirely and feed into this construction? is time we got a grip on the culture groundless. Indeed, one How does the criminological and of the gangs and gang-related would even be excused sociological research on ‘gangs’ killings’, he professed on backboris. for fearing that 15 years in the US and UK explain the com,1 although his actual policies of police investment in building trust current situation, and are these were substantially more modest. could shortly and swiftly be undone. 1 http://www. explanations useful? What are the Following Johnson’s victory in the In any case, it will be interesting backboris.com/ assumptions underlying the current race for the mayoralty and Labour’s to monitor the political landscape policy/security/ debate on ‘gangs’, and what are the colossal losses in the May 1 local in the near future, and how the gang_culture.php consequences of looking at youth elections, the Government has ‘tougher-than-thou’ rhetoric – which violence through this lens? launched a major fightback in order is gaining political momentum at 2 Bobby Duffy The paper outlines and analyses to recapture control of the political a frightening pace – will translate et al. (2007) a number of dangers inherent in the agenda. The fight against ‘gangs’ is into policies on youth and criminal Closing the Gaps: development of the public discourse part and parcel of this campaign, justice. This report, however, Crime and Public around ‘gangs’ – one of which is and features prominently in the urges a critical rethink of ‘the Perceptions. ‘the speed at which the “gang” section on ‘Law reform, victims and gang’ in policy and practice. If London: Ipsos has moved from mythmaking to witnesses bill’ in the Government’s our understanding of ‘the gang’ is MORI. policy making’ (p. 7) – and identifies Draft Legislative Programme based on a construct of the media, politicians’ and public institutions’ 2008/09. politicians and policy makers rather 3 The Times, 14 uncritical adoption of the term as With crime a constant than empirical evidence, it is actually May 2008 ‘Stop- the crux of the problem. Although contender for the top seat of the getting in the way of thinking and-search blitz there are certain signs of ‘gang’ British public’s biggest concerns,2 the about effective responses to youth after knife deaths’ fatigue in the press (none of the spectre of ‘gangs’ is likely to be one violence. q (Adam Fresco)

Runnymede’s Quarterly Bulletin JUNE 2008 25 a number of companies and South Africans agencies offering to manage the whole process of UK In the Runnymede’s latest Community Study, Kjartan programmes, work permits and visas available to South Africans. Páll Sveinsson looks at one of the largest foreign national As one interviewee put it: groups in the UK. The whole thing has been COMMUNITY professionalized now, so STUDIES South Africans are one of the about the future of South Africa. you don’t even go through largest foreign national groups in At the end of apartheid, governments … as a South the UK. According to the 2001 Archbishop Desmond Tutu African you’re dealing with a Kjartan Páll census, there were 132,300 coined the term Rainbow professionally run company, and Sveinsson is South Africans living in Britain in Nation to capture South Africa’s you say ‘Do you think I’ll be able a Research that year, but analysts expect this ethnic and cultural diversity. to do X, Y and Z? Will I be able & Policy figure to be closer to 750,000.1 This diversity is apparent in to get this kind of visa?’ They Analyst at the This places them amongst the the demographic makeup of process everything for you, they Runnymede most populous immigrant groups the South African presence give you an answer back. Trust in the UK. South Africans are not in Britain. Proportionately, In this way, South Africans by any means invisible – there however, these communities have access to resources not 1 Dr Robert are numerous South African are not representative of South readily available to less affluent Crawford (personal bars and shops across London as Africa; while the overwhelming migrant groups, and are therefore communication) well as newspapers and sports majority of South Africans are more likely to be successful 2 See Andreea R. magazines, and a number of black, the reverse appears to be in their visa or work permit Torre (2008) Living 5 Transnationally – South African expatriates have true in the UK. Accurate figures applications. Furthermore, many Romanian Migrants become well known figures in are hard to come by, as the South Africans are eligible to in London. London: British public life. Nonetheless, 2001 census is likely to be out enter the UK on ancestry visas, Runnymede Trust. as an immigrant group they have of date. However, the biggest which give permission to stay and 3 The most sparked little interest in the group is without doubt white work for five years and the right conclusive study to date is Mark national media – certainly much South Africans. Although the to apply for permanent residency. Israel’s South African less than far smaller groups such ratio between English speakers Many of the interviewees of this Political Exile in the as Romanians2 – or indeed in and Afrikaners is unclear, some study had entered Britain this United Kingdom 3 (1999). However, academic research. Phrases such interviewees suggested that way. The concept of ancestry three studies were as ‘community cohesion’ and Afrikaners could currently visas raises problematic questions being conducted at ‘ethnic segregation’ are seldom comprise up to a quarter of all about access to citizenship, as the same time as this one: Dr Robert evoked when speaking of South South Africans in the UK, and it implies that some people are Crawford of Menzies African migrants, and South that their numbers are growing. genetically more entitled to Centre for Australian Africans are not considered The Jewish South African citizenship than are others. This Studies/King’s College London; Max to be adding to the migrant community is also notable, which is particularly apparent in the Andrucki for the pressure on public services such according to the 2001 census, case of South Africa, where the University of Leeds; as housing. comprises 9% of South Africans ‘ancestry’ lines are clearly drawn and the International Organization for South African migration to the in London. along racial categories. Migration. UK has a long history, and has The themes discussed in the However, South Africans can 4 Data Management seen a number of peaks: most report differ in significant ways also teach us a lot about how and Analysis Group notably in the periods of 1960-1, from Runnymede’s previous migrant groups can successfully (2005) Country of 1976-9, 1984-6 and from 1999 Community Studies. South organize themselves in order to Birth and Labour Market Analysis in to more or less the present day. Africans are affluent and well optimize their opportunities in London: An Analysis of During apartheid, these were off relative to many other Britain. Throughout the apartheid Labour Force Survey mostly reactions to political and migrant communities, such as period, South Africans were and Census Data. DMAG Briefing social events in South Africa, Bolivians or Vietnamese. For able to organize themselves, and 2005/1. London: such as the Sharpeville Massacre instance, the South African the exile diaspora, centred in Greater London of 1960 and the Soweto uprising employment rate is amongst Britain, played an instrumental Authority. of 1976, as well as a series of the highest in London, with a part in the fight against apartheid. 5 Tellingly, in 2005-6, legislative changes cementing notable concentration in high Today, South Africans are 86 per cent of 4 Working Holiday the realities of apartheid. The paid sectors of employment. an immigrant success story, Maker applications latest wave, however, has been Thus, a comparison between with a high employment rate from South Africa triggered by a number of factors, South Africans and other migrant and concentration in highly were issued, while Ghanaians, who including concerns about violence groups can be revealing in paid sectors. They have also also apply for a high and high crime rates, a struggling many ways. For example, the managed to elude anti-immigrant number of Working economy and job insecurity, visa application process has sentiments from the right wing Holiday Maker visas, had a refusal rate of declining quality of public become a professionalised and press in a way EU8 migrants have 74 per cent. services, and general pessimism remunerative business, with not. q

26 Runnymede’s Quarterly Bulletin JUNE 2008 Celebrate Gypsy History Month Sharon Yemoh describes a month-long celebration of Gypsy, Roma and Traveller history and culture, and explains why it is important, whilst recognizing the discrimination these communities face, to use the celebration of their history and culture as a positive tool in the anti-discrimination fight. GYPSY HISTORY This June, England celebrates the first national Gypsy political commitment by Central and Southern European MONTH & Roma Traveller History Month (GRTHM). Romani governments to improve the socio-economic status of REVIEW Travellers have lived in England for over five hundred Roma. International Roma day, celebrated annually on years, and the Irish Traveller community has been present April 8, is another occasion to celebrate and confront in England for at least one hundred and fifty years. With exclusion. Whilst the importance of these initiatives Sharon Yemoh roots stemming back this far, GRTHM will provide a cannot be discounted, as Romani Scholar Ian Hancock is a UKREN much-needed occasion to celebrate, learn and share the asserts, ‘a proper understanding of the contemporary intern at the cultural diversity that GRT contribute to the UK. situation of Romanies can only be reached in the context Runnymede Numbering over 12 million, Gypsies, Roma and of history’.2 It is important to recognize the discrimination Trust. Travellers are the European Union’s largest ethnic that Gypsy, Roma and Traveller communities face, but it minority community, and in the UK it is estimated that is equally important to use the celebration of history and 1 GRTHM website they number around 300,000. Whilst GRTHM is a culture as a positive tool in the anti-discrimination fight. www.grthm.co.uk, celebration of this group’s culture, identity and history, In 2001 with support of the local Irish Traveller accessed on 4 May even in the UK the complex diversity within the group Community, GRTHM was organized in Brent by 2008. affords a rich exploration of difference. For example, Rocky Deans, Head of the Traveller Education Service. migrating from northern India in the first century, Following this success, in 2004 a number of organizations 2 Edward Romany Travellers first arrived in Britain in the sixteenth lobbied for a nationwide GRTHM. In 2006, Lord Adonis, Proctor (2008) century. Irish Travellers on the other hand, are indigenous Parliamentary Under Secretary of State for Schools, gave Gypsy Dialects: A to Ireland, with many settling in Britain from the 1950s his support to GRTHM, adding that ‘We can challenge Selected Annotated onwards. Yet although their presence in Europe spans myths, tackle prejudice and be in a position to offer a Bibliography of hundreds of years, Gypsy, Roma and Travellers continue balanced debate about the issues’.3 Various events for all Materials for the to be the most marginalized ethnic community and are will be taking place all over the country ranging from Practical Study subjected to discrimination and prejudice in extreme football tournaments, music events, talks and presentations, of Romani, p. xi. forms. Gypsy, Roma and Traveller inclusion and equality workshops and storytelling. A full listing of the events are Hatfield: University is at the forefront of EU social inclusion agendas. The available on the official GRTHM website www.grthm. of Hertfordshire 2005-2015 Decade of Roma Inclusion marks a regional co.uk q Press. (This book is reviewed below.)

3 Quoted on Gypsy Dialects: A Selective Annotated Bibliography of GRTHM website, Materials for the Practical Study of Romani accessed on 4 May Edward Proctor 2008. Hatfield: University of Hertfordshire Press, 2008 Pp. 128; £50/USS100.00; ISBN 978 1 902806 48 8

Originating from Indo-Aryan languages over two readers to assess if thousands years ago, the Romani language is based on the the resource will ancient Indian language of Sanskrit from which Hindi and be suitable for Urdu are also derived. Over time Romani has evolved their needs. As into numerous dialects and has also been influenced by well as its value local speech and currently at least sixty different Romani as a resource, dialects exist worldwide. Many scholars have explored the Gypsy Dialects linguistic complexity of Romani. However, Gypsy Dialects also provides an seeks to bridge the gap between the intricate studies of the overview of a language to more accessible learning tools. Its purpose is short account of to provide resources for those who want to learn to speak the terminology and understand the language. The book is a descriptive and and scholarship evaluative list of materials in various formats useful for both of Romani, and Proctor also explores the issue of Romani Rom and Gadže (non Roma). The resources are broken being a ‘secretive’ language. All the entries in Gypsy down into printed resources, Internet and electronic Dialects are up to date and new additional materials will also resources, and audio recordings and broadcasts. Proctor be posted on the publisher’s website providing an ongoing usefully provides commentaries on each entry enabling resource for continual learning. q

Runnymede’s Quarterly Bulletin JUNE 2008 27 Critical Thinking about the Uses of Research

Reece Walters and Tim Hope REVIEW Centre for Crime and Justice Studies, 2008 Pp. 44; Free to download: www.crimeandjustice.org.uk/ 1 See Sarah evidencebasedpolicy.html; ISBN: 978 0 9548903 6 1 Isal (2006) Reviewed by Kjartan Páll Sveinsson Equal Respect – ASBOs and Race Equality. London: ‘Evidence based policy making’ is a phrase many have that parental Runnymede Trust. come to associate with New Labour. It feels good, irresponsibility and sounds credible and effective, and fills the public with a growing lack of 2 See Omar Khan confidence. Yet what do we actually know about ‘respect’ are the (2008) ‘Why the current state of evidence based policy making? sources of injustice, Single-Group According to a new monograph by the Centre for inequality and Funding can be Crime and Justice Studies – Critical Thinking about criminal behaviour; and so on. (p. 14) a Good Thing’, the Uses of Research by esteemed criminologists Reece Runnymede Bulletin Walters and Tim Hope – not an awful lot. The Indeed, when Runnymede conducted its research 353 (March): Government conceals, suppresses and manipulates not into Asbos,1 our experience was similar to that 27-29. only evidence itself (Walters), but also obscures the described by Walters and Hope. this was exactly methods of gathering this evidence (Hope). what we encountered. The evidence base on which 3 See Claire The arguments put forth in the monograph are Asbos were grounded was pretty thin from the Alexander (2008) pretty straightforward, but hard hitting and shocking very beginning, and our research revealed that there Re(thinking) to the layperson. Hope demonstrates, through a was no particular intention of collecting data such as ‘Gangs’. London: case study, that in spite of claims to transparency, ethnic monitoring. Runnymede Trust. the Home Office peer review process is obfuscated Walters and Hope’s monograph focuses exclusively (See also the to a point where it fundamentally contradicts the on criminal justice research, which received 68% of article about this democratic principles of academic peer review. the total Home Office research budget in 2006-7. publication on p. Meanwhile, Walters states in unambiguous terms But selectivity is not confined to criminal justice 25 of this issue of that Home Office research is essentially so biased system policies, and their critique should be heeded the Bulletin). that it is not only scientifically useless, but politically by researchers in other disciplines as well. The dangerous as well. The storyline, as far as Walters Green Paper The Path to Citizenship: Next Steps in is concerned, goes like this: the Government hypes Reforming the Immigration System, for instance, has a up a new approach to policy making, one which is chapter outlining the evidence used in drafting quite research led and evidence based; the Government drastic policies which will, if pushed through, have then increases funding for external research by 500% a pronounced impact on a large number of people. in order to recruit academics to rubber stamp policies The evidence cited is not drawn from the extensive with scientific credibility and legitimacy; finally, body of independent academic research on the issue, the Government manipulates research topics and but a collection of nine focus groups – organized by methodologies and cherry picks results to suit policies the Central Office for Information on behalf of the they have already decided on. Border and Immigration Agency. Intriguingly, even The effect of this is far ranging. Not only does the this methodologically unsound evidence contradicts Government push through populist and ill conceived the proposed policies. Even the least sardonic of policies on issues such as probation or prisons, but also commentators would take this as an indication that real shapes public perception of what criminality actually evidence would in fact dispute the claims made in the is. Walters points out that none of the 571 studies from Green Paper and are therefore ignored. 1988 to 2003 investigate crime perpetrated as part of The Centre for Crime and Justice Studies legitimate business activities and concludes: monograph is valuable for third sector organizations, as it exposes the impasse many of us encounter when As a result, the Home Office, through its biased challenging seemingly badly conceived policies. On and skewed research agenda, presents the British issues ranging from single-group funding2 to gang public with an erroneous and partial view of crime violence,3 voluntary and campaign groups as well in British society: that anti-social behaviour is a as think tanks and NGOs should be working with working class youth/drug problem; that violence has academics and social science researchers to produce and become part of black culture; that increased prisons are promote critical knowledge and counter-hegemonic required to rescue a fledgling criminal justice system; ideas. It’s an alliance we would all gain from. q

28 Runnymede’s Quarterly Bulletin JUNE 2008 Multiculturalism and Devolution: Understanding Migrant Groups in Scotland REVIEW Multicultural Nationalism: Islamophobia, in Scotland may be weaker because of a greater level Anglophobia, and Devolution of dislike against a more important common ‘other’, 1 The Future of Asifa Hussain and William Miller namely the English. Multi-ethnic Britain. Oxford University Press, 2006 From a UK-based or British perspective the book Report of the Pp. 216; £56; ISBN: 978 0 1992 8071 1 offers some real dilemmas. In the first place, it finds very Commission on Reviewed by Omar Khan little allegiance to the notion of Britishness – including the Future of among Pakistani Scots – in Scotland, thus suggesting that Multi-ethnic Britain any attempts to link that identity to ‘shared values’ is likely (2008). London: A multicultural English civic identity depends to an to be unsuccessful. In fact, the views of Scottish Pakistanis Profile Books. extent, it is sometimes argued, on the creation and – while clearly beneficial for community relations in evolution of devolved elected government in the English Scotland – are troubling from a wider UK perspective. regions analogous to developments in Wales and Many of the respondents apparently believe that BME Scotland…the development of a Britain as a community communities in England live in ‘ghettos’, have failed to of communities is not about ‘multi-ethnic Britain’ alone; it integrate, and some even report prejudicial views about is for the benefit of all people, not just so-called minorities, other minority ethnic groups in, for example, London. and is dependent on much more than just race-specific As the volume recognizes, the Pakistani experience policies.(The Commission on the Future of Multi-ethnic in Scotland is marked by being a smaller and better off Britain: 8-9)1 community than their counterparts in England. This arguably creates different opportunities for interaction When the Commission on the Future of Multi-ethnic with other groups in society, but cannot be viewed as Britain called for Britain to be recognized as a community normatively better than more large-scale immigration. of communities as well as a community of citizens it had In fact, the strength of the volume – its strong empirical in mind the many different ‘groups, interests and identities, study of English and Pakistani immigrants in Scotland – from Home Counties English to Gaels, Geordies and also leads to a number of weaknesses. Mancunians to Liverpudlians, Irish to Pakistanis, African- First, the views of respondents on life in England Caribbeans to Indians’ (p. 10). Whatever one’s evaluation and BME communities in particular are unlikely to be of the Commission’s framework, it had the undoubted appreciated by those of us who live south of the border. benefit of trying to understand the diversity of all the Second, while people in Scotland – particularly those groups in the UK, focusing not only on ethnic or racial in support of full independence – obviously have the diversity, but also national diversity in the form of the Irish, right to define themselves in line with their experiences Welsh and Scottish. and ambitions, jettisoning the category of ‘Britishness’ The main theme driving Multicultural Nationalism has greater knock-on effects than simply defining the is that our discussion on these matters remains English as an ‘other’ of Scottish identity. In particular, divided into two languages or frameworks. We talk BME groups in England – most of whom continue to of ‘multiculturalism’ when we refer to ethnic or racial identify as British – are simply ignored on any version of (or increasingly religious) diversity, while we think of ‘Anglophobia’. This speaks to the quote at the top of this ‘multinationalism’ or indeed devolution as referring to piece, namely whether or not a more ‘civic’ notion of Wales and perhaps more so to Scotland. Based on a large Englishness can be constructed to capture the aspirations number of interviews, the authors of this book explain and identities of BME people, a project perhaps most how that division is incapable of capturing the experience notably pursued by Billy Bragg. of the two largest minorities in Scotland, namely the Third, and perhaps most puzzling, is the claim that Pakistani and English communities. Pakistani and Scottish people can unite against English This volume helpfully reminds non-Scottish readers imperialism. This is odd because the idea of ‘British’ that the dominant SNP view of Scottish nationalism is identity was perhaps most obviously forged in the not overtly ‘ethnic’ but a ‘civic’ model of nationalism operation of the British Empire, in particular the large- (while it also recognizes the problems with that scale participation of Scots in administering the Empire, distinction). The empirically-based discussions of from the Caribbean to Africa to India to Australia. For Pakistani and English views of Scottishness, and in South Asians (including Pakistanis), their experience particular how devolution has eased intergroup tensions, of colonialism was targeted against the British (or even is also valuable. At the same time, Hussein and Miller ‘Britishers’) – which included English, Scots and indeed recognize the existing level of racism in Scotland Irish as the colonial masters. If Scotland was indeed and indeed Anglophobia. In fact, one of their more ‘imperialized’ by England, we must remember that interesting arguments is that Islamophobia and racism British India was rather ruled by ‘Britain’, which notably

Runnymede’s Quarterly Bulletin JUNE 2008 29 included Scottish administrators and entrepreneurs and with Alex Salmond’s name misspelled twice in the first so the Scots cannot be absolved of whatever wrongs the twenty pages. authors adduce to imperialism. Despite these faults, this volume is important for raising a Many of these dilemmas are in fact wider ones that surprisingly understudied and increasingly important question. simply haven’t been grasped by the popular discussion of As politics in Scotland is less and less concerned with what ideas such as ‘Britishness’, shared values or integration. This is happening in Westminster – and with the prospect of REVIEW volume is useful for framing these difficult questions on a a Conservative government in London in the next few broader canvas, but seems to imply that creating a civically years – dialogue or indeed even knowledge between the minded sense of identity requires us to focus on a common various regions in the UK is weakening. This will have ‘other’ (for Pakistanis and Scots in Scotland, this other is serious consequences not only for the long-term future of the English). Although these are indeed muddy waters, the the UK as a constitutional entity, but also for the identity of book is insufficiently precise about how multinationalism different groups living across the UK, especially BME groups and multiculturalism might be joined under a single in England. To understand these developments, we can’t analytic rubric, and is clearly hindered by referring to a simply try to strengthen a sense of Britishness, but need to shared history of imperialism and to the 1843 schism in focus instead on how every citizen is treated fairly and equally Presbyterianism as an example of multiculturalism. Other by the state. And if Pakistanis in Scotland feel that Scottish conceptual confusions relate to the relationship between devolution, or indeed independence, is better able to deliver racism and Islamophobia, and the odd distinction between that than a sense of Britishness, we shouldn’t bemoan that culture and national identity in chapters seven and eight. development, but rather focus on delivering equal rights for The book also suffers from typographic or editorial errors, all in the rest of the UK – however that identity is defined. q

The Education Debate Stephen J Ball Policy Press Pp. 256; £12.99; ISBN 978 1 8613 4920 0 Reviewed by Rob Berkeley

In this enlightening book, Stephen which increasing engagement with the private sector is Ball reminds us about the usefulness not a whim or simply a result of big business interests, but of ‘policy sociology’ in helping central to an understanding of the way in which the ‘old’ us understand the directions of public sector must be transformed to face up to ‘new’ education policy. Standing back challenges. Such discourse has a way of limiting policy from the policy fray, he thoughtfully options and perhaps indicates why both government and situates New Labour education opposition currently present very similar programmes for policy within the broader historical ongoing educational reform. sweep of English post-war education Ball provides an insight into the ‘policy technologies’ policy and the international trends used in order to ‘transform and discipline public sector (or policy epidemics) in education which have seen similar organizations and to link the processes and endeavours policy approaches developed across national borders. His of such organizations to the political economy of global introduction to key concepts should be required reading competition’. Practitioners and policy analysts alike will both for those engaged in policy making processes and recognize these tools, many of which can be traced back those seeking to influence change in education. Ball’s key to the Labour government’s first White Paper ‘Excellence argument is that; in Schools’: top-down performance management, competition and contestability, choice and voice, and The social and economic purposes of education have been capability and capacity. Having provided a means of collapsed into a single over-riding emphasis on policy understanding the directions of current education policy making for economic competitiveness and an increasing (no mean feat given the amount, complexity and rhetorical neglect or sidelining (other than in rhetoric) of the social obfuscation of recent policy development), Ball is then purposes of education. able to offer his key critique, namely that equity is no longer a value in its own right in policy. In his section of Discourse in education policy which revolves around race equality in education, Ball notes that ‘equity issues in modernization, innovation, transformation, productivity, English education are marked more than anything else by a international competition, and delivery are seen as history of policy avoidance’. symptoms of the drive to make public sectors more Having provided a means of understanding the businesslike. It is a small step from here to one of New directions of policy, Ball has also provided the means Labour’s key arguments that business should become more by which to challenge them. This book is a significant involved in education. Ball effectively charts the ways in contribution to the education debate. q

30 Runnymede’s Quarterly Bulletin JUNE 2008 Exiles, Diasporas and Strangers (Annotating Art’s Histories series). Edited by Kobena Mercer. Published by Iniva and the MIT Press in 2008. Iniva, Rivington Place, London EC2A 3BA www.iniva.org Pp. 224; £15.95; ISBN: 978 1 8998464 5 0 Reviewed by Sharon Yemoh REVIEW

Migration is the movement of people, which brings are all analyses Sharon Yemoh an interchange of ideas, styles and creativity. The independently using is an intern at eight articles in this unique collection offer a fresh a thematic topic- the Runnymede examination of the relationship between the movement based approach. Trust. of people and twentieth century art. The fourth and final What is most book in the Annotating Art’s Histories series, Exiles, engaging about the collection is that although each essay Diasporas and Strangers is a collection of essays offering follows the same historically sensitive premise, which is a varied thematic overview of the critical and creative explored in Mercer’s introduction, the collection offers a role that migration has contributed to twentieth-century wide variety of global contexts and experiences. modern art. Jean Fisher looks at ‘Diaspora Trauma and the Poetics Edited by Kobena Mercer, the collection challenges of Remembrance’ through the lens of slavery and the de-historical view that places cultural difference in colonialism, and how the past shapes the artistic present. the contemporary art bracket, arguing that modernism Ian McLean explores ‘Aboriginal Modernism in Central is actually a product of ‘travelling cultures’. Rather Australia’. While some of the analysis may seem quite than classifying all migratory patterns as the same, the technical for readers not familiar with the art world, the difference between ‘exile’ and ‘Diaspora’, ‘emigration’ collection offers an interesting, critical and thought- and ‘immigration’, and ‘the stranger’ and ‘the other’ provoking read. q

Reluctant Refuge: The Story of Asylum in Britain Edie Friedman and Reva Klein Published by British Library Publishing Pp. 160; £14.95; ISBN: 978 0 7123088 7 8 Reviewed by Anne Gumuschian

The concept of asylum has been shown to be deeply by the voice problematic in recent years, as it is caught in the of the refugees contradiction that lies between border control and a themselves. Their humanitarian response to the migration of refugees personal stories to Europe. Since the late 1990s, a series of laws have help reflect the tried to stop asylum seekers from coming to Britain, criminalization displaying a clear political retreat from the spirit of and dehistorization humanity behind the 1951 UN Refugee Convention. In of the concept of striking a balance between controlling immigration and asylum and refugee the protection of refugees, British and the EU laws have as influenced been progressively moving away from a commitment to by the government’s and the media’s rhetoric, which human rights. legitimizes hostile discourses and shapes popular opinion In Reluctant Refuge, Friedman and Klein provide a while contributing to the association of asylum and lack useful overview of the history of asylum in Britain: they of documentation with crime and irregularity. adopt an historical approach using Jewish refugees as the Contesting these prejudices, Reluctant Refuge paradigm for the refugee experience followed by the provides an accessible introduction to the history of review of some significant groups who have come to asylum in the UK, but also to immigration and asylum Britain in the last thirty years such as Ugandan Asians, law. It states the problems related to the law as well as Somalis and Romani, with a focus on the case of refugee the challenges posed to the concepts of human rights children. Referring to these various groups, who fled to and equality. Essentially, it suggests a more inclusive Anne Britain at different times and in different circumstances, approach to asylum to prevent the poverty, destitution, Gumuschian is is shown to be useful for evaluating the value of social exclusion and stigmatization experienced by many an intern at the legislation, as well as considering certain similarities refugees and asylum seekers in Britain at a time when Runnymede of experience which in the book are rendered vivid refugee standards of protection are lowering. q Trust

Runnymede’s Quarterly Bulletin JUNE 2008 31 Jessica Mai Sims reports on the People in Harmony (PiH) conference aimed at understanding the experiences of mixed race families and young people, and improving services available to them.

At the end of April 2008, People in Harmony hosted expectations. The second barrier is that their identities the conference entilted ‘Understanding the experience are not being acknowledged in schools, LEAs or policy, MIXEDNESS of mixed race families and young people: improving and that this invisibility in turn makes it difficult for their services’. Aimed primarily at service providers, the underachievement to be challenged. conference sought to raise awareness of the relation In order to address the underachievement of between people and families of mixed heritage and mixed white and black Caribbean pupils, Tikly argues their access and use of public services by presenting for new thinking in schools to break with stereotypes research and good practice through a programme of and assumptions about race. He advocates a ‘culturally presentations and break out study sessions. learning school’ that takes a whole school approach to Introducing the main presentations, Dr Chamion building positive identities for young people through Caballero from London South Bank University detailed mainstreaming race equality, recognizing the difference 1 The research her recent research on parenting children of mixed between small ethnic minority groups and including their with Ros Edwards heritage.1 The project includes the experiences of voices and experiences in the curriculum. will be launched 30 couples self-identified as mixed, their children and Bradley Lincoln finished the main sessions’ by the Joseph parents. The presentation looked at parents who passed presentations with the introduction to his Multiple Rowntree on positive identities to their children, which heritage Heritage Project. The project is a series of conferences Foundation in identities they chose to pass on, and what relationships in different areas that are aimed at providing an June 2008 and resources helped or hindered this process. opportunity for young people to explore their Unsurprisingly, they found that there was no one identities. Aside from the secondary school aged pupils method used to foster positive identities in children. who participate during the day, Lincoln trains youth Families varied in approaches in negotiating difference facilitators to work with the young people in order to – by promoting either single heritage identities, open keep the expertise of ‘mix’d’ identities within the area. identities not rooted in any particular heritage, mixed With support from local government, the conferences identities that focus on a specific combination of have been held in Manchester, Trafford, Birmingham, heritages, or a mixed identity in general. For these Leicester, Nottingham and Nottinghamshire. families, the challenge to the development of positive As Lincoln argues, the conferences provide a safe identities did not stem from internal family conflict space for the young people to air their thoughts out loud but rather external factors such as assumptions and about their identity in order to support self-confidence stereotypes by others. Caballero argued that through in their mixed backgrounds. The discussion that emerges the research they have recommended a need for more then feeds into reports in which the young people understanding of race and diversity in the wider public provide their ideas and recommendations on how to consciousness and more positive images of people and challenge stereotypes about ‘mix-d’ people and how families identifying as mixed. they would change the school curriculum to be more Professor Leon Tikly, from University of Bristol, then inclusive. Lincoln argues that this model can have broader presented on the barriers to educational achievement implications for inclusion work in general, through for mixed race children, particularly mixed White and developing exercises to build the confidence of people in Black Caribbean boys. As he argues, the first barrier to smaller groups, and policy consultation of young people. achievement is institutional racism; the barriers that mixed In the afternoon study sessions delegates discussed white and black Caribbean pupils face are similar to those the topics of developing self-confidence in mixed race faced by pupils of black Caribbean origin. They are more young people, the overrepresentation of mixed race likely to come from socially disadvantaged background, young people in the criminal justice system, making to be excluded, and to experience low teacher mixed race young children visible in the education system, working with and providing fostering and adoption services to mixed race families, and working Runnymede’s Perspectives paper, Mixed Heritage: Identity, Policy with mixed race mental health service users. and Practice, seeks to explore both the mixed category, and the While presenters frequently state the caveat that mixed lives of people who are mixed along heritage identities are not just ‘black and white’, often in with people who are mixing. Featuring the discussions the terms ‘mixed race’ and ‘mixed heritage’ collaboration with external writers, each were used as shorthand to refer to people of mixed white contributor’s article explores the topic from and Black Caribbean heritage. In terms of policy, often it a variety of expertise, covering theoretical is unhelpful to analyse the mixed race group because it is explorations of mixedness, policy areas and very broad; as Tikly pointed out, unlike mixed white and returning to the fundamental question of Black Caribbean pupils, mixed white and Asian pupils are whether it is useful to speak of the mixed high achievers. Without a deeper understanding of the category as a unitary group and whether a different groups in the broader mixed race category, policy mixed community exists. that targets the group may be ineffective. q

32 Runnymede’s Quarterly Bulletin JUNE 2008 Video ART Postcards: they devised the Lesson Plans, using the films as key elements Lesson Plans in developing materials to help teachers meet some of the Manifesta and the Runnymede the inhumanity and injustice of Requirements of Key Stages 3 and Trust launched the Video ART the transatlantic slave trade. 4 of the National Curriculum’s Postcards’ Lesson Plans for The evening was opened Citizenship module. LAUNCH Citizenship – on Slavery, Racism by Marion Vargaftig, Manifesta After the presentations, and Resistance – at Channel 4 Director, and Michelynn Lafleche, teachers and teaching advisers Television Studios on 3 April Director of the Runnymede Trust discussed the films and the lesson 2008. The Lesson Plans are (see photo b). plans and how they could be put designed to be used alongside Wesley Kerr, Chair of the to best use in the classroom (see the films themselves, which were Heritage Lottery Fund Committee photos f and g). designed and created by young for London, the main funder of All the films can be seen people aged 14 to 19 during a the project (see photo c), spoke and the lesson plans can be 5-day period in the summer of about the value of education downloaded free of charge at 2007. Some of the filmmakers and the importance of providing the Runnymede Trust website at attended the launch (see photo young people with opportunities http://www.runnymede trust.org/ a), and several of their films to express themselves. projects/video-art-postcards.html were shown. There is a great Professor Chris Gaine and For more information, or to diversity to the approaches Cristina Bennet, two experienced talk about how you can screen taken in each film, with each teachers and curriculum writers these films, contact Marion one showing – in their own (see photo d), explained to Vargaftig, Manifesta Co-Director individual and powerful way – the audience (photo e) how at [email protected] q (a) (b)

(c) (d) (e)

Runnymede’s Quarterly Bulletin JUNE 2008 33 (f) (g)

LAUNCH

BELONGING: A New Initiative

Following the success of Video ART Postcards, locations, and will explore ‘intercultural dialogue’ Runnymede and Manifesta have joined forces – grounded in the specificity of their personal again for a new transnational initiative, building on and social opportunities as well as the challenges the momentum of 2008, the European Year of which arise around new migrations and the making Intercultural Dialogue. of new communities. This new creative video project for ‘teenagers’, Investigating the ‘social archaeology’ of these BELONGING, will address cross-communal and inter- urban spaces (successive new migrations settling in generational realities of migration and settlement. the same neighbourhoods), the project will look, Working across Europe, in neighbourhoods in historically, at the factors influencing social inclusion London, Lisbon and Paris and in the context of and social exclusion – treating these as indicators of 2008, the European Year of Intercultural Dialogue ‘intercultural dialogue’. (EYID), BELONGING will involve teenagers, In collaboration with local youth service communities, video/digital media artists, cultural providers in each of the three cities, BELONGING centres, museums and broadcast organizations in an will engage its young participants in 5-day creative imaginative exercise combining creative film-making workshops, where they will investigate the social and community history learning. history of their city neighbourhoods, and develop Thanks to the support of the Calouste Gulbenkian expertise in making imaginative short films using Foundation in the UK, Portugal and France, digital media. Assisted by local historians and video BELONGING officially started in May 2008 and will artists, each young participant will produce her/his run until early 2009. own short film (no longer than 3 minutes) by the BELONGING will address the notion of end of the workshops. ‘intercultural dialogue’ in the personal and The films will be exhibited widely, in each of communal successes, and the concerns, fears and the communities involved -- as well as online, on confrontations that have arisen in the wake of television, in festivals, museums and galleries. We historical and demographic change. The project starts anticipate that the films will also be presented at off from the position that knowing more about, events and conferences related to the European and understanding the social and historical context Year of Intercultural Dialogue, in the UK, Portugal in which contemporary social concerns, anxieties and France, as well as in other European countries. and frustrations arise, is central to assisting people They will also be used in educational toolkits in progressing from suspicion and antagonism to on cultural diversity, in formal and non formal constructively dealing with difference and promoting educational settings. the value of diversity. For more information on BELONGING, contact BELONGING will work with a group of about 18 Manifesta Co-Director Marion Vargaftig at marion@ young people, aged 15 to 19, in each of the city manifesta.org.uk q

34 Runnymede’s Quarterly Bulletin JUNE 2008 Update: Faith Schools and Community Cohesion

Rob Berkeley reports on a faith in society and relationships inclusive, engaging in successful between the state and religion; partnerships, and empowering Runnymede study which is debates which often produce young people, others had taken nearing fruition. more heat than light. These are approaches discussions that remain at the which were Our faith schools and centre of the political agenda. less successful. community cohesion project The forthcoming single equality We argue that has reached its final stages and bill, proposed bill of rights, the many faith will be published this summer. high profile launch of the Tony schools have The study consulted over 500 Blair Faith Foundation and the lost connection people from a variety of faith Lambeth Conference will ensure with their communities and those of no that these debates are prominent original laudable religion, including young people over coming months. Yet these missions and attending faith schools, parents, debates often seem far removed have become and teachers. The aim was to from the day-to-day experiences exclusive, understand how an education of citizens. By looking at faith inward-looking system with faith schools can schools we have been able to and unable to best prepare young people to understand better how faith connect with operate successfully in a multi- can be used and misused in the other parts of faith and multi-ethnic society. delivery of public services and in the education Our findings include building successful communities system to the degree that they Rob Berkeley recommendations for practice of citizens. do not contribute to improving is Deputy and policy at a number of We found that faith schools community cohesion and indeed Director of the levels. The role and place of highlighted key tensions in become barriers to good Runnymede faith schools in our education government education, race relations. We hope, through Trust. system intersects with a number equality and cohesion policy this report, to begin to influence of crucial policy debates. We – forcing faith schools to find change in these institutions found that the debate about means of balancing competing so that the role of faith in faith schools often acted as demands. While some schools the delivery of public services a lightning rod for a broader had come closer to achieving this produces benefits for all and not discussion about the role of balance through becoming more just the few. q Real Histories Directory – Websites for Students

Sangeeta Dhamelia-York describes how and parents explore the scope and content of Sangeeta online resources and use these resources for Dhamelia-York the Real Histories Directory project is practical teaching in and out of the classroom. is a recent branching out by focusing on websites Following the success of these features, we have intern at incorporated a further dimension to the ‘Website Runnymede that have been created primarily for of the Month’ page; we aim to also focus on use by children and young people to websites that have been created primarily for use enhance their learning. by children and young people to enhance their learning. This new direction means that students will The Real Histories Directory is constantly have the opportunity to find like-minded young evolving and developing new ideas and initiatives people who want to broaden their opinions to suit the needs of teachers, parents, students and aspirations, to develop key skills and create and the wider community. The ‘Topic of The international links. At the same time, teachers Month’ and the ‘Website of the Month’ are and parents will have the chance to access features specifically designed to aid teachers educational resources to support and enhance

Runnymede’s Quarterly Bulletin JUNE 2008 35 CONTENTS

The GLA Elections: London Mayor and London Assembly 1 Matthew Ross From Powell to Phillips: Rivers of Blood to Post-multiculturalism 4 Rob Berkeley Runnymede Trust Consultation Response to The Path to Citizenship: Next Steps in Reforming the Immigration System 6 RUNNYMEDE Michelynn Laflèche TEAM Fit for Purpose Yet? 7 Zrinka Bralo Why Human Rights Provide Added Value 9 Michelynn Rosemarie McIlwhan Laflèche Equality and Human Rights Director Commission Human Rights Inquiry 10 Rosemarie McIlwhan What Can We Expect from Europe Robert in the Field of Migration Policy? 11 Berkeley Sarah Isal Deputy Director The Role of FE and HE Providers in Promoting Community Cohesion 12 Debbie Weekes-Bernard and Jessica Sims Sarah Isal Getting It Wrong. Again 13 Senior Research Debbie Weekes-Bernard and Policy A New Look at ‘Gaps’ in Analyst Attainment at Age 16 14 Kerrie Proulx their students’ and children’s learning. Debbie ‘Which Way Do I Ought to Go from Here?: With this in mind, June’s featured website is KidLink (www. Weekes- The Need for High-quality kidlink.org), a site that has been created for kids to collaborate Careers Advice 15 Bernard Kerrie Proulx Senior Research and network with friends around the world. We have chosen Investigating Ethnicity in the UK: The Possibilities of the UK Household and Policy this website to emphasize the importance of creating international Longitudinal Panel Survey 17 Analyst connections at an early age. The site serves both teachers and Lucinda Platt children/young people as an educational tool highlighting the Ethnicity and Nationality: Review of ONS Omar Khan Census Proposals 19 importance of sharing knowledge globally. As a result, children/ Omar Khan Research and young people are given the opportunity to enhance their Young Children and Racial Justice 22 Policy Analyst Jane Lane independent learning through joining discussion groups and ‘Race’ and Domestic Violence in the Media 23 Jessica Mai Sims projects. Teachers and parents also have the chance to support zohra moosa Research and (Re)thinking ‘Gangs’ 25 the learning process by accessing modules on KidLink and using the Kjartan Páll Sveinsson Policy Analyst ideas in conjunction with the national curriculum. The founders South Africans 26 of KidLink believe this will help to create a generation that will Kjartan Páll Sveinsson Kjartan Páll Celebrate Gypsy History Month 27 Sveinsson comprehend the importance of understanding and accepting Sharon Yemoh Research and different cultures. Book Reviews 27 Policy Analyst We hope that this new feature will add an exciting new Report: People in Harmony Conference 32 Jessica Mai Sims dimension to the Real Histories Directory, helping our younger Vastiana Belfon q Video ART Postcards Lesson Plans Launch 33 Real Histories visitors to access the resources in a more directed way. Belonging: A New Initiative 34 Directory Update: Faith Schools and 35 Community Cohesion Robin Rob Berkeley Frampton Real Histories Directory – Websites for Students 35 Publications and Website Editor Bulletin No. 354, June 2008 Rebecca ISSN 1476-363X Waller Administrator In 2008, The Bulletin, Runnymede’s Quarterly newsletter, will be published in the months of March, June, September and December by:

The Runnymede Trust The photographs 7 Plough Yard, Shoreditch on p. 4, 33-4 and London EC2A 3LP 35 were taken by Tel: +44 (0) 20 7377 9222 Benedict Hilliard Fax: +44 (0) 20 7377 6622 © 2007, 2008. Email: [email protected] Url: www.runnymedetrust.org This issue was edited by Annual subscription in 2008 is £35.00 Robin Frampton

Typeset and printed by: 36 Runnymede’s Quarterly Bulletin JUNE 2008 St Richards Press Ltd. Leigh Road, Chichester, West Sussex PO19 2TU. Tel: 01243 782988 Copyright © 2008 Runnymede Trust and individual authors.

The opinions expressed by individual authors do not necessarily represent the views of the Runnymede Trust.