No. 336

DECEMBER Bulletin 2003 RUNNYMEDE’S QUARTERLY

revelation, so to speak, the one that A Sense of Place stood out for me was arts practitioners themselves From 24–27 November, the old Central Library building in the linking successful arts intervention projects to the utilisation of ‘social heart of Cardiff played host to the conference ‘A Sense of Place capital’ when devising and running – Displacement and Integration: the role of the arts and media in these sorts of projects. I’ll explain reshaping societies and identities in Europe’. Runnymede was one that in a moment, but first let me just step back and talk about why I of several partners facilitating this 4-day event organised by the came to this conference. British Council, and after a brief description of its aims and There are two main reasons. objectives, three active participants contribute their impressions, First, I have a strong personal belief beginning with Runnymede’s Director, Michelynn Laflèche. that it is possible to create a fairer, more just and more equal society and that I, as an individual, can ‘A Sense of Place’ was developed In preparation for this closing contribute towards creating it.This in the context of heightened public panel, we were asked to reflect on is on a very personal level, suspicion, fear and intolerance, and three questions: obviously, but it is a belief that evolving European human rights • the most memorable moment permeates all I do in all aspects of A section of the and immigration policies. Its aim of the conference for each of us my life. audience at the was to consider the shifting and how it has affected what Second is how the themes of seminar ‘From landscape since World War I, we think about the role and this conference relate to the work Arts and Cultural looking at how societies are in flux, Interventions to potential of media and arts to of the Runnymede Trust. Our Social how cities are in transition and transform society; report, The Future of Multi-Ethnic how rebuilding is taking place at Transformation • whether what we’ve learned Britain, which is the starting-point and Back Again: both a physical and psychological here will affect the way we for much of Runnymede’s current PracticeÐ level.This international event conduct our work in the future, work programme in its perspective Research–Policy’, sought out the meeting grounds and how; on how to promote what we call created in between arts and social policy, • and, if asked to return in 2 years a successful multi-ethnic Britain, partnership with theory and experience, the Runnymede. The for a follow-up event, what outlines ideas and strategies for session was well personal and public. Setting the differences would we have improving social policy to achieve political context of migration on attended and observed or be able to report? that aim. But while the policy widely the opening afternoon of the Among numerous ‘moments’ of discussion and recommendations appreciated. conference, it then focused one full day each on the role of the media and the potential of the arts in, as the title so clearly states,‘reshaping societies and identities’.The concluding morning of the conference reflected on the discussions held over the preceding 3 days and tried to imagine what could be different in 2 years’ time through the personal reflections of four concluding speakers, of which I was one.

ISSN: 1476-363X RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 1 of this report may be very much same thing. But, as a result of relationship between research, arts Britain-focused, the vision is one discussions held here, I now view practice and policy-making, where that can be applied to the whole them as intrinsically related. Here’s each could influence the other.The of Europe, and a key theme is the why. opportunity to view a disjuncture need to reshape (reimagine even) In the session ‘From Arts and between these three at this society and identities, to begin to Cultural Interventions to Social conference leaves me with a understand Britain, and indeed Transformation and Back Again’, renewed vigour for our own Europe, as both a community of organised for this conference by project and a stronger belief that ARTS & communities and a community of Runnymede, a lengthy discussion arts practice with groups at risk or SOCIETY citizens. In order to realise this took place between arts facing disadvantage can have an vision, there needs to be created a practitioners and cultural policy- influence on social policy, when ‘I have common sense of belonging which makers/funders about the value cultural policy and social policy are noticed a must both foster and go hand-in- and potential of arts intervention understood to be intrinsically tendency to hand with valuing diversity, and this projects for making social change. related. separate all has implications, therefore, for Experiences were relayed There are many projects out social and the law and for social policy. suggesting that funding policy (to there, across the UK and Europe, cultural With this in mind, I wanted to be understood as wholly mediated that are attempting to do this, to policy as if contribute my thoughts and learn by cultural policy) impacted on the create social change through arts they were from others about how the arts in kinds of projects that could be intervention with vulnerable or distinct.’ particular are, or could be, created to win funding and altered disadvantaged groups of people, harnessed to impact directly on the aims of the arts intervention but the impact on social policy social policy, indirectly on the law, projects to reflect current cultural seems to be low. So the questions and affect more broadly the hearts policy concerns. remain: How exactly are these and minds of Britain’s and Europe’s The point of view of cultural projects going to influence policy- residents (Citizens or not!) policy-makers/funders was very makers? And what should our role towards devising and sharing a much the opposite and it was be as an organisation directly more inclusive vision for the future stated that what arts practitioners concerned with policy-making? – in other words, to explore the needed to do was apply their And how could we, in that way, get potential for arts to be used for ‘social capital’ to securing support policy-makers engaged in the social transformation. for their projects.The complexities creative process as part of social Runnymede is currently running of arts practitioner-led projects change? a major project called This is Where were not fully recognised in this For Runnymede, one answer I Live, which is about just that – discussion, but, even more has to be to refocus our own social transformation through arts, importantly from my point of view project – to explore in greater trying to use arts as the medium and my particular interest in the depth the full process of: (a) how and/or the methodology for creation of policy language, it arts practitioners work with young influencing social policy.The project seemed that the emerging social people, (b) how the social and links up with youth workers and policy focus on civil renewal and creative aims of the projects, arts practitioners working with social capital had permeated the devised to complement each young people to give them a voice thinking and views on practice of other, get worked through; and (c), through creative expression. But, cultural policy-makers. Not most importantly, get evaluated. beyond that, our project is surprising one might say, in The unique feature of our exploring how to use creative hindsight; but at that distinct contribution can be to identify a expressions and outcomes to moment a revelation nonetheless. methodology that utilises the impact social policy.Young people This leads me to the second creative processes in order to are taking part in this project not question for this morning — what explore social concerns and just because they want to make difference will this make to the disseminate policy music, film or poetry (powerful way we conduct our work in the recommendations directly to though that is) but because they future? Runnymede takes a social policy-makers. But this has to be a want to transmit their views and policy perspective on its work for methodology which is reflective ideas on identity and belonging to the This is Where I Live project.We and robust in the evaluation of its social policy-makers.The trick, of are not an arts organisation, nor own impact on policy-makers, course, is how to do that. have we spent much time working while fully respecting the needs of Reflecting back to Monday, I on arts and cultural policy issues. the project participants. started out with a question as to Our concern in this project is to In 2 years’ time, I would hope whether or not cultural policy and work with arts practitioners and that we could all of us – not just us social policy were the same thing. youth workers to bring the at Runnymede but most of you too In speaking with arts practitioners, creative outcomes of young – reunite to share our successfully through the medium of our people to the eyes and ears of implemented methodologies for project as well as at this social policy-makers concerned using creative mediums in the conference, I have noticed a with fostering greater equality and service of improving social policies tendency to separate social and inclusion in our society. for the achievement of a successful, cultural policy as if they were We started from the position inclusive, multi-ethnic Britain and distinct. Indeed, I was doing the that there is a triangulated Europe. ❑

2 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 policy agenda, but their incapacity Arts for Social Change or unwillingness, in practice, to Day Three of A Sense of Place featured the session created support social transformation projects using the full potential of in partnership with Runnymede:‘From Arts and Cultural arts interventions. Interventions to Social Transformation and Back Again: Igor Dobricic, from the European Practice – Research – Policy’.The session was chaired by Cultural Foundation in Amsterdam, ARTS & Marion Vargaftig who here summarises a complex and presented the Art for Social Change SOCIETY wide-ranging discussion. Programme, which has been running since 1996. Built on youth expression through the arts, the The aim of this session, held on used as a starting-point programme started with theatre- day three of A Sense of Place, was ‘Transparency’, a photography and making in the Balkans, at a time to look at the relationship between self-advocacy project involving where Yugoslavia was at war. Igor art, culture and social change and young refugees in London, with insisted on the need to create a to explore the potential of three key aims to: methodology for greater project Arts/Cultural interventions in • provide a channel for self- sustainability (e.g. anchoring the influencing policies and making expression and creativity, project with local organisations, social change. • create a body of work to training local artists, etc.) to ensure Three projects (two of which combat negative stereotypes, that the activities would be were pan-European), which used • and provide long-term support followed up after project different medium/art expressions, to the young refugees. completion. were presented as a starting-point Tiffany talked about the role of for illustrating experiences at the funders in defining priorities and The discussion started around interface between research, project parameters and their desire simple but key questions and arts/cultural practices, and social in principle to engage with social notions that tend to be taken for policy.There then followed a discussion, which explored the tensions between arts/cultural Alex Rotas, sharing a platform with Michelynn Laflèche, Rasa Sekulovic practices as a developmental aid to and Kuljit Chuhan at the final panel session to summarise the policy, and as constrained by it. conference, had many impressions to share, including the following: I want to frame my comments around a remark made by the journalist John Torode on Tuesday. Interventions He said:‘I thought this was an academic conference’ – or words to that effect, after something said Liesbeth de Block, a Researcher rather passionately by one of us. It’s made me think about the fact that I actually am an academic from the Institute of Education, and yet I’ve found the last few days incredibly emotional on all sorts of levels, as well as being presented CHICAM (Children in engaging on other levels too (intellectually, issue-related, information-sourcing, etc).There have Communication around been lots of very moving moments. One of them was listening to the panel of exiled journalists who had to dig deep into painful Migrations), an action-research personal experiences when making their presentations from this platform. It made me think about initiative involving refugee children my own anxieties about giving a paper – anxieties that were ‘performance-related’ really, rather using video/new media in six than connected to deep personal trauma. So I want to say ‘thank you’ to all the people who felt European locations. Set up 3 years safe enough and brave enough to share that sort of experience with us here at the conference. ago, it responded to the interest of There have been phrases other people have made – other people’s sound-bites, if you like – that have moved me particularly. Here’s a selection of them: the European Commission in new • ‘Exile is never being able to visit the graves of those who stayed – including your mother’s.’ media, social inclusion and media • ‘I don’t want to be assimilated. I want to be integrated.’ literacy. Liesbeth referred to the • ‘How can we have “refugee art”? Do we have refugee accountants?’ relationship between the funders’ • ‘Exile is trying to repay the limitless hospitality of your hosts and knowing that you never will.’ priorities and broader social policy • ‘You fight every day for recognition here. I didn’t need to do that in Africa.’ • ‘I want to hear fewer stories about asylum seekers. I just want them to be able to get on with agendas and questioned where their lives.’ these were complementary and • ‘Blackness is relentlessly examined.Whiteness is relentlessly presumed.’ where there were tensions. She • ‘I prefer Syrian prison to detention centre here because at least my mother could visit me also underlined the challenges there. brought by new ways of working: • ‘I wasn’t there when the songs became old.’ And finally Aidan Jolly’s comment, when we were talking about how you are born black or How does one work as a born a woman – this was in the context of comparing the notion of ‘refugee art’ to ‘black art’ or researcher within an art project? ‘women’s art’ – but becoming a refugee is something that happens to you. Aidan said, ‘We in the How does one work as a video West shouldn’t be so complacent that we think that we’ll never become a refugee. It’s one of the artist with a research project? things that could happen to us all.’ There are many, many more. It’s been really valuable, stimulating, interesting and moving, and we have seen a lot of evidence in the past few days that it is from the personal we create broader Tiffany Fairey, co-founder and meanings. Director of the charity Photovoice,

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 3 granted: How may art/cultural But practice is exploring and existing art practice is likely to be interventions bring about social testing this premise; so how can the real impetus informing the change? What does social change practice inform and help define the thoughts of policy-makers. But is exactly mean? Does it mean social next policy step? And in this art practice recognised as such by cohesion, or integration, or more process, what is the role of policy-makers? And what is the than that? And when one talks research? How does one feed the relationship between the demands ARTS & about art for social change, what outputs of such a project into and responsibilities of social work SOCIETY exactly does one mean? Social policy? And how can one and the nature of the artistic change for whom – the individual communicate the richness of process? Sometimes the or society? Finally, how does the creative outcomes in such a way as relationship between those two Marion creative process reconcile with the to influence or contribute to elements is in harmony, sometimes Vargaftig is a social work element of the project? policy-making? clashing or even disconnected. One European Practitioners involved in such can postulate that art creativity Consultant for Observations projects often find themselves often necessitates the breaking of Cultural The debate needed inevitably to limited by the exigencies of boundaries or rules as they are set Programmes look at the different elements of providing a certain kind of in social contexts - being as free as and Social ‘project-making’ (i.e. the practice) evaluation/final report to funders, possible from these norms is Action and go through several issues and and unable to adequately reflect in essential to the vitality of the phases essential for defining how a the form of a report the reality of creative process. project will work, from: their experience and the richness If the consensus was that (a) its resources – and how these of the project’s learning processes. expression through the arts can affect the project itself; Arts/cultural projects, because of provides new and powerful means (b) its objectives – policy and their creative process, do not of self-development to practice; follow the conventional format of disadvantaged people, the audience (c) its process – and necessary activities which deliver pre-defined was divided around the notion of flexibility of process, an aspect outputs in response to pre- whether art for social change was not always understood by determined goal-setting.They have simply a form of art-therapy, and if funders; their own ‘creative logic’, and when not, could we really talk about art (d) project outputs – those it comes to evaluation, it is clear anyway. planned as well as unplanned; that social workers and artists In particular, for youth art (e) social outcomes (insight from apply different models of projects, can artists and young the project’s experience); evaluation to measure their people really work as equals, and (f) project impact – on success. Furthermore, it is arguable how far can the young really go participants as well as on that an artist who does art work without active input from the others; with a particular group is setting up adults.This raises additional issues (g) evaluation – the complexities a process of discovery, a form of on how to interpret their creative of evaluating art work and the research, and that this research work and draw conclusions from it. necessity of ‘translating’ it into a should feed back into policy- medium or language making. Issues for research understood by policy-makers; If the need for policy design is Many questions were addressed in (h) and, finally, the exit strategy, if what underpins funding the debate, many others remain any. programmes aimed at using art unanswered, despite the session Policy (whether cultural or social) and culture as a catalyst for social lasting longer than planned.

Runnymede was often sets the context for practice. change, it may be argued that Ultimately, finding answers will take one of several more than a group discussion, as conference these are complex and challenging partners and organised the issues being explored and further session: ‘From reflection and research is needed Arts and Cultural Interventions to in this field.The aim of such Social research should be to lead to a Transformation and Back Again: potential new set of practical tools PracticeÐResearch as well as new forms of –Policy’. Here mechanisms between artists, (LÐR) panellists Igor Dobricic and researchers and policy-makers. Liesbeth de Block Above all, it should point to ways are seen with Marion Vargaftig of communicating art project in the Chair. outcomes and outputs to policy- Michelynn Laflèche and makers in a form that they can Tiffany Fairey comprehend and use for future were co-panellists policies, both cultural and social. ❑ at this session.

4 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 Old Boots and New Brooms

The Immigration Rights Project’s latest discussion forum1 focused on a paper presented by Don Flynn, which examined the seeming ‘paradox’ of New Labour’s asylum and immigration policies since its arrival in government in 1997. Here Liza Schuster summarises the key points she raised when speaking in response to Don’s presentation on 4 December. MIGRATION

Taking as my starting-point Don Flynn’s paper ‘Tough workforce, too scared of deportation to claim rights as Old Boots’? Asylum, Immigration, and the Paradox of or just marginally better conditions. 1 The Immigration New Labour Policy,2 I’m examining the three core But utilitarianism can also be understood in its Rights Project elements he identifies as underlying Labour’s Benthamite sense; morality as a felicific calculus (IRP) is a migration policy generally, and asylum more according to which what is good is what promotes discussion forum specifically: the greatest good of the greatest number.This sponsored by the 1. Utilitarianism philosophy continues to exert a significant influence Joint council for 2. Animosity to rights on contemporary thought and policy. the Welfare of 3. Adherence to communitarian commitments to As someone with an attachment to a more Immigrants social cohesion Kantian universalist approach to humanity, I have a (JCWI). It is number of problems with utilitarian philosophy, which intended to Utilitarianism at Don’s prompting, I realise are similar to problems I provide a Taking utilitarianism first of all in the sense that Don have with migration/asylum policy in Britain and structure for uses, which is in terms of migrants’ utility, Don Europe. discussion and suggests that while economic migrants add value to • The first of these is the possibility of perfect debate on all the British economy and base their claim on this knowledge.There is a sense that this government aspects of value, asylum seekers base their claim on their rights, believes they have the technology, they have the immigration, their needs – I’ll come back to the issue of rights in a power to gather all necessary information, they refugee and moment – but this distinction explains the hostility can build a finely tuned, evidence based, managed nationality law and towards one group, and the welcome afforded the migration system – identity cards, biometric data, policy in Britain other. scanners etc bring the control of borders today. However, there was a time when asylum tantalisingly within their power. seekers/refugees were seen as adding value to However, perfect knowledge is not possible, and 2 Don Flynn’s receiving societies. Most recently, during the Cold there is a marked failure to share enough of the discussion paper, War, asylum seekers or refugees had an ideological knowledge currently in government databases to ‘Tough as old value, but the end of the Cold War and the apparent arrive at a coherent policy.When I was recently boots’? Asylum, victory of liberal ideology has reduced though not introduced to a Home Office civil servant as an Immigration, and destroyed it – hence the continued, ritualised academic working on migration, he smiled warmly the paradox of hypocrisy of references to Britain’s long and and announced that there was a pressing need for New Labour honourable tradition of granting asylum.To continue people like myself, since there was so little policy, is published to see itself as liberal, Britain must continue to offer information available on migration(!). Surprised I for the IRP by the refuge to those who need protection – though asked what kind of information he was looking for, JCWI, and is ideally not too many! and he mentioned information on how asylum available to read There was also a time when refugees/asylum seekers choose their countries of destination. I on their website seekers had an economic value.The Huguenots, replied there was a very good recent study by [www.jcwi.org.uk] though encountering hostility, were welcomed by the Koser and Pinkerton on just this subject. He asked or to purchase as government of the day because of the lace-making eagerly where he might find it, and was hard copy from skills they brought with them, and more recently, embarrassed to learn it was published by the their offices at 115 labour shortages in the immediate post-war period Home Office on their website.3 Even when the Old Street, saw the UK trawling Displaced Persons camps in knowledge exists… London EC1V Europe, bringing in refugees through the ‘European • Second, and more importantly, who counts when 9RT, price £2.00. Voluntary Workers Scheme’. counting the greatest number? When and how This paper was Given the ongoing labour shortages that currently much do they count? Lydia Morris has already launched with a enable asylum seekers, in spite of a ban, to find work spoken of the stratified, or graded way in which seminar held at in the shadow labour market, and given Alan some people count within a polity, but it seems the JCWI on 4 Finlayson and Don Flynn’s stress on the utilitarian almost inevitable that democratic governments December 2003. nature of Labour’s approach, the denial of work will be constrained to promote the happiness of permits might seem irrational.Though of course it their electorate, and that therefore the electorate 3 http://www.home isn’t – it serves two purposes: first, it is supposed to will always count more. office.gov.uk/rds/ deter those whose goal is primarily to seek work; Admittedly, it doesn’t have to be like this, at pdfs2/social and second, it creates a flexible and malleable least in theory. Singer, who I mentioned earlier, is a network.pdf.

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 5 Moments from the post-presentation discussion

Elsbeth Guild – There are two competing visions of migration – the first is this battle for control, but it conflicts with those who argue for free movement, presenting the EU as a paradise where people can circulate freely. Also top Civil Servants in Europe are scarred by the fall of the Berlin Wall, and this partly explains their obsession with control. MIGRATION Arun Kundnani – The ‘R’ word has been missing from the discussion. Racism can’t be disconnected from the asylum debate. And there has been a shift – the debate changed when Blunkett became Home Secretary – social cohesion moved onto the agenda, and race and immigration get connected in response to riots in the North.The anti-racist agenda that was there under Straw was subsumed under talk of cohesion in an attempt to reassure those turning to the BNP.

[LS] – I don’t agree that this is a new debate. Racism has always been intimately linked with migration controls. It was Straw who introduced the Race Relations (Amendment) Act 2000, which included section 19, exempting migration and nationality legislation from the Act. And look at his response to the Roma: when fewer than 800 arrived one winter, he cut the appeal period from 28 to 5 days. (see ‘State Racism and its Techniques’ in Racism and Asylum in Europe – Special Issue of Patterns of Prejudice, 37,3 (September 2003)).

Richard Williams – Civil servants are told:“I want a silver bullet to sort out asylum, I don’t care about international law.”

universal utilitarian and insists that the greatest Reading Michael Walzer4 again recently, his use of number is the global population, but … within the principle ‘Mutual Aid’ struck me as familiar – I present-day state mechanisms, this is not the should point out that Mutual Aid is not used in the case anarchist Kropotkin’s sense, but in the more limited And at a more pragmatic level, while the sense of an obligation to assist those in need, so long Tampere framework declared that the as the cost to ourselves is low. And it is this principle interests of states of origin and of migrants of mutual aid as used by Walzer that underpins should be taken into account when Britain’s asylum policy – rather than attachment to developing a common European asylum human rights norms.Taking Jack Straw, when he was and migration policy, it seems, from the still Home Secretary, his declaration that ‘we cannot output of the European Council, that take every genuine refugee’ is straight from Walzer countries of origin only count when (that and the animosity to rights), and I think explains signing readmission agreements, and why Labour feels justified in limiting our obligations to migrants only when they have skills and ‘even genuine refugees’. use regular channels. Walzer offers criteria according to which we can • Finally, and most importantly, a significant problem select those to whom we should offer refuge. He with the happiness calculus is that individuals are argues that we have an absolute obligation to those treated as means rather than ends. We see this whom we have turned into refugees, and cites the very clearly in relation to asylum (and migrants case of the Vietnamese boat-people and the obligation more generally).This is a major problem and incurred by the United States. But beyond that, when takes me to Don’s second point… forced to choose from among refugees, we should

Animosity to Rights ‘look, rightfully, for some more direct connection Turning to Don’s second core element - the animosity with our own way of life…[boundaries] depend to rights.Yes, it is true that rights are not as firmly with regard to population on a sense of rooted in British culture as they are in, for example, relatedness and mutuality. Refugees must appeal France and Germany – though for different reasons. to that sense.’ And a rights culture in both those countries does not necessarily protect individuals but it does mean that in Communitarianism France, for example, it is not possible to detain for This takes me to the third of Don’s elements – prolonged periods. If someone is detained they must communitarianism.What Walzer is defending is the be brought before a court within 48 hours and the notion of community, of belonging.This runs beneath detention justified. It is only within the last month that and sometimes on top of asylum policy throughout

4 Michael Walzer a new law has extended the maximum period of the 20th and 21st century.We just have to look at the Spheres of Justice, detention from 12 to 32 days.This is in stark contrast reaction to Jewish refugees, and the Ugandan Asians. I Oxford: Martin to the situation in the UK, where there are no limits think the three elements Don identifies characterise Robertson, 1983. to detention – not even for children. policy since at least the 1905 Aliens Act – the sense

6 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 that we should only admit those who share ‘our’ To return to what is novel – states have always values. It is this concern that was expressed by Denis been faced with crises – government seems to consist MacShane, the Foreign Office Minister, who said that overwhelmingly of crisis management – but in the British Muslims had to make a choice between ‘the past, crises ebbed and flowed, were occasionally British way’ or the values of terrorism. resolved.This no longer seems to be the case. It feels as though we have been in the midst of an ‘asylum A Panacea for an Unruly World crisis’ for more than a decade.Why? Given that MIGRATION What is new is what Don discusses at the end of his numbers last year – the measure of the crisis – have paper – the increasingly desperate battle for control, fallen dramatically, one would assume the government a battle in which new technology is embraced as a would be triumphantly announcing the end of the Liza Schuster is panacea for an unruly world.This is allied to a return crisis, arguing that they had got it right, that clearly a Senior to shifting responsibility for social provision from the they are back in the saddle. But they aren’t.Why not? Research state to the private sphere – whether family, friends There is a second equally important question – Officer at the or charity – and the use of the minimal state how high a price are Labour prepared to pay in Centre on Migration, provision as a further weapon of control.This second pursuit of these goals? As the controls grow ever Policy and element has precedence – it is not simply that more restrictive, so the number of deaths in trucks Society, support is reserved for the deserving poor, but that in the Mediterranean grows.Will there ever come a Oxford and support is used to ensure continued good behaviour, point when these deaths are considered too high a author of The including that of asylum seekers who should board price to pay for controlling the borders of this area Use and Abuse planes for home when their claim is exhausted. of ‘freedom, justice and security’? ❑ of Political Asylum in Britain and The Politics of Migration: Managing Opportunity, Conflict and Change Germany Edited by Sarah Spencer (IPPR) is published by Blackwell’s in December 2003. (London: Frank With an impressive list of over a dozen contributors that includes Tariq Modood, Andrew Geddes, Shamit Saggar,Will Cass, 2003). Kymlicka and Claude Moraes, the book ‘explores the opportunities and tensions posed by migration today through She is the issue the eyes of some of the foremost international experts on migration and citizenship issues’. editor of the September We hope to include a piece by Sarah Spencer in the March 2004 Bulletin. 2003 issue of Locate the book on the publisher’s website at: www.blackwellpublishing.com/1405116358 Patterns of Prejudice, a special issue on Racism and Asylum in Revisiting History – a necessity from time to time Europe with contributions A Comment from Dipak Nandy on Omar Khan’s June article on the National Census was left from Tony out of our September issue. As Omar has returned to the Census statistics in this December Kushner, Graham issue (see over) we publish it here with apologies to Dipak for the delay. Macklin, Ronit Lentin, Omar Khan’s comprehensive as well as succinct analysis of the 2001 Census in the [June 2003] Bulletin is a valuable Catherine contribution to public education. I wish he had taken the opportunity to point out that it finally lays to rest, for good, Lloyd and Les one of the great arguments which raged round the infant Runnymede Trust for the year of its birth, 1968. Back. Patterns By the year 2000, there will be ‘in the region of 5–7 million’ Commonwealth immigrants and their descendants, of Prejudice is ‘approximately one-tenth of the whole population [of Great Britain].Whole areas, towns and parts of towns across a quarterly England will be occupied by different sections of the immigrant and immigrant-descended population’: thus Enoch journal Powell in his infamous Birmingham speech on 20 April 1968. published by The actual figure, it transpires is 4.6 million, or 8.1%, and even that, as Khan points out, on a generous selection of the Routledge/ the Census categories for inclusion in the ‘Black and Ethnic Minority’ population. He might have pointed out too that, Taylor & far from occupying ‘whole areas, towns or sections of towns’, the BME population reaches the 50%+ level in just two Francis Group London boroughs. for the Institute for Omar Khan is, of course, right to stress that the real significance of the Census figures lies in their contribution to Jewish Policy relevant local service delivery. But it is, I suggest, not unimportant to give Powell’s blood-curdling prognostications a Research decent burial. In its time they panicked a Home Secretary bereft of principle into passing the 1968 Commonwealth (London). Immigrants Act.The then Junior Minister, David (later Lord) Ennals, pleaded that there were ‘millions of Alf Garnetts’ in the country as a justification of that shameful piece of legislation.The tendency to ditch principle and run for cover at the first sign of trouble persists, as when the current Home Secretary declares, a propos asylum-seekers today, that the whole country is ‘seething’. The poison that the late Enoch Powell injected into the bloodstream of the body politic lingers to this day, directed now at asylum-seekers; the fear that ‘they’ will ‘take over’ is facilely repeated in 2003, exactly as it was in the 1960s.That is why it is important to revisit history from time to time and, when necessary and appropriate, give it a final burial.

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 7 Constituency First

In the June Bulletin, Table 1. UK Constituencies (top 50) with highest BME Runnymede analysed the percentage populations ethnicity question in the Constituency BME % Party NATIONAL East Ham 66.27 Labour 2001 census. At that stage, Birmingham, Ladywood 64.89 Labour CENSUS data was available at district Birmingham, Sparkbrook and Small Heath 64.84 Labour and borough level, but in Brent South 64.59 Labour September information was West Ham 60.23 Labour Brent North 58.17 Labour released on constituency Ilford South 54.87 Labour Ealing, Southall 52.67 Labour figures.This allows observers Camberwell and Peckham 50.24 Labour to consider more Bethnal Green and Bow 49.82 Labour Leicester East 49.80 Labour assiduously the impact Croydon North 49.49 Labour of black and minority Birmingham, Perry Barr 48.08 Labour Bradford West 47.40 Labour ethnic voters, the status Poplar and Canning Town 45.67 Labour of BME candidates and the Harrow East 44.87 Labour Tottenham 44.86 Labour role of Britain’s minority Lewisham, Deptford 43.36 Labour ethnic communities in Brent East 42.27 Lib Dem Hackney South and Shoreditch 41.72 Labour politics more generally, says Leyton and Wanstead 41.43 Labour Omar Khan. Walthamstow 40.83 Labour Vauxhall 40.53 Labour Hackney N and Stoke Newington 39.47 Labour Even though it is well recognised Feltham and Heston 38.98 Labour that statistics can be and often Leicester South 38.80 Labour are manipulated, it is important to Harrow West 37.34 Labour understand population trends in Slough 37.28 Labour Streatham 35.74 Labour the British population, particularly Ealing North 35.28 Labour in the case of ethnicity.This article Hayes and Harlington 34.17 Labour examines the recently published Lewisham West 33.87 Labour results of the 2001 census by Hendon 33.16 Labour parliamentary constituency, Regent’s Park and North Kensington 32.74 Labour focusing on their potential impact North Southwark and Bermondsey 32.53 Lib Dem on British politics. Since general Edmonton 32.52 Labour elections are not only emblematic Mitcham and Morden 32.09 Labour of democratic politics but Holborn and St. Pancras 32.04 Labour evidently influential on people’s Brentford and Isleworth 31.65 Labour lives, it is crucial to understand Ealing, Acton and Shepherd’s Bush 30.92 Labour Dulwich and West Norwood 30.57 Labour the form and variety of the Warley 30.17 Labour populations that make up the Manchester, Gorton 29.28 Labour parliamentary constituencies. Blackburn 28.95 Labour While some liberal democracies Luton South 28.36 Labour have other means of electing their Bradford North 28.28 Labour representatives, the single- Birmingham, HodgeHill 27.87 Labour member constituency system of Tooting 27.55 Labour the United Kingdom links the Walsall South 27.34 Labour voters of a particular locality with Wolverhampton South East 26.91 Labour their representative in a manner that focuses consideration on Constituency Data released in the context of the local concerns and interests. In from the 2001 Census 2001 census.The figures in Table 1 this context, it makes sense to Before considering why ethnicity denote the 50 constituencies with examine and consider the statistics might matter in a the greatest number of black and implications of the recently parliamentary democracy, it is minority ethnic voters. Between released figures on ethnicity. useful to present the data the 1981, 1991 and 2001

8 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 censuses, the threshold for such quarter, meet or exceed this clearer. In both the North East seats rose from 15% to 20% to figure for BME population and North West over three- 27%.These statistics are roughly percentage, and nearly half of fourths of all constituencies in line with increases in the BME these (67) are in London. contain BME populations of less population more generally that Another revealing statistic is the than 3% and in the North West, were analysed in the June 2003 percentage of seats in each region Yorkshire and the Humber and Bulletin. that contain BME populations East Midlands over half of the NATIONAL In many ways, the constituency greater than the average of 9% in constituencies do so. On the CENSUS data reveals the continued England.While in London over other hand, no constituency has a concentration of BME population 90% of constituency seats exceed BME population under 3% in even more starkly. For example, the number of seats with more Table 3. Regional Variation of BME population in England, than 40% BME populations indicating constituencies where BME population is less than 3% of total increased from 3 in 1981 to 7 in Region Under 3%a Under 2%a Total constituencies 1991 to 23 in 2001.Though much North East 23 (76.7) 19 (63.3) 30 less dramatic, the number of seats North West 45 (59.2) 32 (42.1) 76 with more than 15% BME Yorkshire and the Humber 30 (53.6) 25 (44.6) 56 populations has nearly doubled East Midlands 25 (56.8) 23 (52.3) 44 over 20 years: from 51 in 1981 to West Midlands 18 (30.5) 13 (22.0) 59 99 in 2001. East Ham is reported London 0 (0.0) 0 (0.0) 74 as the constituency with the South East 40 (48.2) 19 (22.9) 83 greatest proportion of BME East 24 (42.9) 17 (30.4) 56 voters at over 66% (see Table 1), South West 39 (76.5) 36 (70.6) 51 quite an increase from Brent Total 244 (46.1%) 184 (34.8%) 529 South’s figures of 55% in 1991 a Figures in parentheses indicate the percentage of constituencies in each region and 46% in 1981. Indeed, there below 3% and 2% respectively. are now 14 constituencies with a greater proportion of BME the national average, in the North London, and in the West Midlands Britons than the highest such seat East and South West the figure is less than one-third are below this (Brent South) in 1981. under 4%. figure. The obvious flipside to the Although the regional variation Regional Variation preponderance of minority ethnic is noteworthy, the strongest As noted in previous Bulletins, the constituents in certain regions is element appears to be black and black and minority ethnic their relative paucity in other minority ethnic concentration in population in Britain is also areas, captured in Table 3. As this urban districts. For example, 48 of regionally varied, a point further table reveals, over one-third of the 50 constituencies with the demonstrated in Table 2. Of the English constituencies (184) have highest BME proportions listed in 23 constituencies with BME populations with less than 2% Table 1 are in metropolitan areas populations in excess of 40%, 18 BME representation and nearly (and Slough and Luton are only are in London and 3 in the West half (244) have less than 3%, far just outside Greater London), Midlands. If the overall statistic of fewer than the national average where the vast majority of BME 9.08% is taken as a national of over 9%. Britons live. Indeed, 35 of these benchmark, only 136 Examining these figures constituencies are in London, 7 constituencies in England, or one- regionally makes the trend even are in the West Midlands (i.e. Birmingham) metropolitan area Table 2. Regional Variation of BME population in England, and 2 each in Leicester, with comparison to overall national average of 9.1% Manchester and Bradford. Region Over 9.1% Constituencies % above Political implications England average What is eye-catching in Table 1 is North East 1 30 3.3 the dominance of the Labour North West 13 76 17.1 party among seats with significant Yorkshire and Humber 13 56 23.2 BME populations, with only two East Midlands 7 44 15.9 Liberal Democrat MPs, in Brent West Midlands 19 59 32.2 East and North Southwark and London 67 74 90.5 Bermondsey respectively (both South East 8 83 9.6 originally won in by-elections). East 6 56 10.7 Since the 1974 election, evidence South West 2 51 3.9 has indicated that over 80% of Total 136 529 25.7 BME voters support the Labour

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 9 party, so this result should not be BME populations in the 1983 will probably take more than surprising. However, it is significant election and even 24% in 1992, superficial appeals to overturn that the increasing concentration two related trends have this trend. of such voters in particular dramatically altered their It is clear, therefore, that the constituencies is having a clear prospects in such areas. First, the disproportional increase in BME and substantial effect on British overall population nationally and voters in certain parts of Britain NATIONAL politics. in each constituency has has made it more difficult for the CENSUS In the June 2001 Bulletin,we increased (see Tables 1 and 3). Tories to compete in many, if not noted that the changing nature of Second, the number of seats with all, of the seats in Table 3, many of which are among Labour’s safest Table 4. London Constituencies formerly held by the Conservatives, with seats.The London constituencies current Labour majorities and BME percentage populations from 1981 to 2001 of Cities of London and Westminster (22.12%), Chipping Constituency Current Labour 2001 1991 1981 Last year Barnet (17.65%), and Kensington Majority (%) BME% BME% BME% held by and Chelsea (17.46%) are the Conservative Conservative constituencies with Brent North 10,205 (30.07) 58.17 41.74 23 1992 the greatest number of BME Leicester East 13,442 (33.06) 49.80 38.07 26 1983 voters. Even among the 132 Ilford South 13,997 (33.90) 54.87 35.66 20 1987 constituencies with BME Leicester South 13,243 (31.42) 38.80 32.28 26 1983 populations of 10%, in 2001 Croydon North 16,858 (40.25) 49.49 30.94 23 1987 Labour won 117, the Tories 9 and Harrow East 11,124 (23.14) 44.87 30.24 17 1992 the Liberal Democrats 6. Again, Slough 12,508 (32.07) 37.28 28.13 21 1987 the overwhelming trend of this Streatham 14,270 (38.57) 35.74 28.02 20 1987 data would seem to suggest that Feltham and Heston 12,657 (34.99) 38.98 27.02 20 1987 the Conservatives (and to a Dulwich & West Norwood 12,310 (32.10) 30.57 23.08 17 1987 lesser extent the Liberal Ealing North 11,837 (26.33) 35.28 22.98 <15 1992 Democrats) need to do more Harrow West 6,156 (13.20) 37.34 22.51 <15 1992 than simply field increased Brentford & Isleworth 10,318 (23.18) 31.65 22.49 <15 1992 numbers of BME candidates, but Finchley & Golders Green 3,716 (8.51) 26.17 21.29 16 1992 also consider the policy Hayes and Harlington 13,466 (41.56) 34.17 21.25 <15 1992 preferences and specific interests Wolverhampton South West 3,487 (8.53) 26.91 21.09 18 1992 of BME voters. Luton South 10,133 (25.75) 28.36 20.89 18 1992 Edmonton 9,772 (28.10) 32.52 20.15 17 1992 Brent East by-election 2003 The recent result in Brent East constituencies in terms of BME populations greater than attracted a great deal of attention ethnicity means that formerly safe 20% has more than doubled, from in the national media because of or at least winnable seats for the 33 according to the 1981 census its potential as a symbol of the Tories, especially in urban areas, to 73 by 2001. By 1997 the Tories weakness of the current Labour are increasingly becoming Labour were able to win only a single government and perhaps even strongholds. For example, a seat seat in this category – a trend Tony Blair. For the purposes of such as Feltham and Heston, held confirmed in 2001. As more this article, it is more immediately by the Tory party in 1983 and constituencies pass this threshold, relevant to determine the 1987, but by the Labour party the Conservatives may well have possible impact of the black and since 1992, increased from 20% to reconsider their strategy in minority ethnic makeup of this BME population in 1981 to 27% attempting to gain a majority in seat on this somewhat surprising in 1991 to 39% in 2001.The General Elections.This is not to result for the Liberal Democrats. same experience can be retold in suggest that poor Conservative Brent East’s BME population of a number of other formerly Tory- results are linked exclusively with over 42% is the 19th highest in held London constituencies, such BME voting patterns; it is well Britain, and like nearly all such as Ilford South (20% in 1981, 36% known that the Tories do worse seats had been held by Labour, in 1991, 55% in 2001), Brent in metropolitan areas, even namely by Ken Livingstone, from North, Croydon North, among those with low BME 1987 until his election as London Streatham, Harrow East, Harrow populations. Nevertheless, the mayor in 2000, and then by Paul West and even Margaret results in seats with high BME Daisley until his death in 2003. Thatcher’s old seat of Finchley and populations were less When Sarah Teather won Golders Green. Some of these overwhelming even as recently as Brent East for the Liberal trends are indicated in Table 4. 1987 and 1992, and it is Democrats in September 2003, While the Conservatives won important for political parties to she gained an enormous 29% 35% of the seats with substantial try to understand them even if it swing to defeat the local Labour

10 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 MEP Robert Evans. Although voters and in a single-member they listen carefully to the criticism of the Labour candidate district it is imperative for multiple voices of BME Britons, for being a millionaire and the low candidates to connect with despite the difficult and turnout of 35% probably the particular interests of their sometimes costly groundwork adversely affected his chances, locality. In some cases, the this necessitates. And as it other factors related to the Labour party is no longer in becomes even more important makeup of the constituency also direct accord with the to entertain the notion that NATIONAL seem to have played a role in Mr. interests of BME voters, even various groups might present CENSUS Evans’s defeat. In particular, many if it remains the overwhelming competing claims, in some policy speculate that the large Muslim choice for most. areas the one-shoe-fits-all population was angered by the • Third, the Liberal Democrats approach will become Labour party’s support for the seem capable of winning increasingly inappropriate. war in Iraq, and the Liberal metropolitan seats with large The second caveat is that it is Democrats did focus on this issue. BME populations, confirming a increasingly counterproductive to Of the BME population in trend seen in Southwark and isolate BME voters as a particular Brent East, most are of Asian Bermondsey, though it is type whose loyalties to the descent. While statistics cited probably too early to Labour party are unreflective or above note that roughly 80% of unequivocally advance such a instinctive. In fact, this was always BME voters have supported conclusion. a myth: the Labour party did well Labour, there has been some • Fourth, the Conservative among non-white voters evidence that this support is party cannot assume they will precisely because it seemed weakening, particularly among automatically pick up BME most able and willing to Asians. Some observers have votes as Labour support represent their interests, and no noted that the Tories could do declines, and must increasingly amount of good will by the worse than appeal to upwardly challenge the Liberal Tories or Liberal Democrats can mobile Asians, a claim that seems Democrats in appealing to obfuscate this historical appeal. to have some empirical support. concerns that matter to the However, as the Brent East by- However, the results in Brent community. election recently demonstrated, East indicate that the the BME vote will go to the Conservatives cannot simply rely Conclusion party that best reflects its on such changes in support As mentioned above, participants interests, and these can no accruing to them. Indeed, while in a representative democracy longer be taken to be the swing from Labour to the usually expect their MP to have synonymous with those of the Liberal Democrats was some understanding of their Labour party. overwhelming and surprising, the concerns.While this of course This might suggest that the Conservative vote share was leaves a great deal open in terms Labour party is less connected lower than in 2001.This indicates of which interests and concerns with some of its historical vote that simplistic appeals to voters they see reflected by their MP,it is sources. More generally, and need to be supplemented by notable that the majority of BME perhaps more importantly, it also substantive policies; the voters in MPs represent constituencies with indicates that analysts should Brent East understood perfectly large BME populations.The cease viewing the BME well that concerted support for analysis offered here on BME population as an outlier and the Liberal Democrats could voting patterns must be mediated instead compare their Omar Khan unseat the Labour candidate. by two caveats. preferences and behaviour to was a Whatever one’s opinion of First, the BME population is trends observed in the British researcher at the result in Brent East, it is increasingly diverse. African- electorate in general. Runnymede important to recognise its Caribbeans, Bangladeshis and On the other hand, as the until mid-2001, implications, though all of these Pakistanis continue to occupy BME population recognises the when he must be tempered by its less privileged positions in strength of its position, it might returned to his somewhat atypical nature as a society, but Chinese and Indian be able and inclined to make a studies. He is mid-term by-election in the Britons are in some cases more greater impact on British politics now a context of a relatively unpopular successful than the average more generally, whatever the consulting (particularly in this locality) British voter. Such evidence party in power.Whether or not policy policy in Iraq. cannot be marshalled to deny BME voters will continue to researcher to • First, the Labour party cannot the social salience of race, but it support the Labour party Runnymede simply rely on the votes of should be taken seriously in increasingly depends upon the while working the BME population as it did considering the political ability of all three of the major on his PhD at in the past. preferences and particular parties to develop and ultimately St Antony’s • Second, there are specific interests of various voters. All implement policies that matter College, policy issues that appeal to parties need to make sure that to them. ❑ Oxford.

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 11 At the Jim Rose Inaugural

The Lord Lester of Herne Hill, QC, who co-founded the Runnymede Trust with Jim Rose in 1968, gave the inaugural Jim Rose Lecture under the chairmanship of Pam Rose, Jim’s widow, on 15 October 2003. Also at this event, Middlesex University’s Centre for Racial Equality Studies launched the Runnymede JIM ROSE Archive Collection; and the British Council, who hosted the evening, announced the publication of LECTURE & Citizenship Education and Human Rights Education, an updating of their original 2000 programme of activity in this area. RUNNYMEDE Runnymede’s Director, Michelynn Laflèche, drew attention to recent Runnymede publications, in ARCHIVE particular Guardians of Race Equality, which examines the impact of the RR(A)A 2000 on inspection and regulation in practice, and includes contributions from those who have been subject to inspection – a government minister, inspectors, regulators and voluntary organisations. But the focal point of the evening was Anthony Lester’s speech in which he paid tribute to his friend and Runnymede co-founder with a series of reminiscences dating from the early 1960s to the close of the 20th century. Extracts from his speech appear below, and the full version can be read on the Runnymede website [www.runnymedetrust.org].

Leading up to the 1968 Race Relations Act out in a common mould, as one of a series of ‘I first met Jim [Rose] and Nicholas [Deakin] in 1964, carbon copies of someone’s misplaced vision of having returned from the American South to write a the stereotyped Englishman…. I define report for Amnesty International during that long hot integration, therefore, not as a flattening process summer.When we met I was attempting without of assimilation, but as equal opportunity, much success, as a member of a Society of Labour accompanied by cultural diversity, in an Lawyers committee, to develop proposals to atmosphere of mutual tolerance.That is the goal. persuade the decision-takers in what would become We may fall short of it in its full attainment, as Harold Wilson’s first administration to introduce a have other communities both in the past and in (LÐR seated) The Race Relations Act worthy of that name. Jim and the present. But if we are to maintain any sort of Lord Lester of Herne Hill, QC, Nicholas became interested in the use of legislation world reputation for civilised living and social Mrs Pam Rose, to combat racial prejudice and discrimination. cohesion, we must get far nearer to its and Rod Pryde, Asst Director- Two years later, when Roy Jenkins became Home achievement than is the case today.‘ General of the Secretary for the first of the two liberal interludes at British Council; (LÐR standing) the Home Office, together with his close friend Mark Roy Jenkins, Mark Bonham Carter, I, and many others Michelynn Bonham Carter, I helped in preparing Roy Jenkins’s worked hard behind the scenes to build support for Laflèche, public statement of his attitude towards racial comprehensive and effective anti-discrimination Professor Ken Goulding, Deputy discrimination and the problems of integration.That legislation. Unfortunately, Jenkins did not remain Vice-Chancellor was the speech in which Jenkins explained that he Home Secretary long enough to introduce the of Middlesex University, and did not regard integration as meaning a loss, by legislation.That was done by his successor, Jim Professor Heidi immigrants, of their own national characteristics and Callaghan, and the 1968 Act was broad in scope but Safia Mirza, Head of the Centre for culture. toothless and unenforceable, which is why we had to Racial Equality replace it 8 years later. Studies at ‘I do not think’, he said, ‘that we need in this Middlesex University country a “melting-pot”, which will turn everybody On the subject of ‘translating the ideals of racial equality into practical reality’: I cautioned against a blinkered approach in the introduction to a book on ‘Race and Law’ on which I collaborated with Geoffrey Bindman,1 when I wrote that:

‘Some of the problems of cultural diversity can be safely left to solve themselves; some, but not all. It would, for example, be entirely misguided for public authorities to tolerate the exploitation of children or the maltreatment of wives and daughters because such practices were condoned by a particular national, religious or cultural group. Prejudice and discrimination ought to be opposed with equal force, whether among white people or black people, natives or immigrants; and cultural

12 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 tolerance must not become a cloak for oppression to Colour and Citizenship: and injustice within the immigrant communities themselves.’ ‘If this Report has any message it is that the decision-makers must recover the confidence From the outset we regarded it as essential that necessary to take initiatives of the kind that we Runnymede should be and should be seen to be have outlined here. Not merely because justice for wholly independent of Government and new citizens is a necessary measure if we are to JIM ROSE Government bodies. It is not an offshoot of avoid the disasters that have overtaken other LECTURE & Government, and must never become so …. societies … or even because injustice disfigures RUNNYMEDE our society as a whole, but because ultimately this On keeping in mind, as Chair, the issue involves more than the future health of our ARCHIVE objectives of the Runnymede Trust: society. … Runnymede’s functions as set out in the Trust The dominant question of our century is whether 1 A. Lester and G. Deed are to assist in combating the defamation of men of all races and colours whom advances in Bindman (1972) Race and Law, minorities; to be available to the media for science and technology have made near p.18. London: information and advice about race relations, to neighbours, can live together in harmony …. A Longman and publicise the findings of existing research on race society which has provided the model for other Penguin Books. relations in a popular form; to sponsor short-term research; and to convene conferences on policy and research.They remain vital objectives. From the archives: Those associated with Runnymede from its birth Hugo Young and Race Relations were remarkable for their enlightenment and The recent death of Hugo Young produced a small tide of tributes, as the influence: Jock Campbell, Adrian Cadbury, Harry press are usually generous with valedictory space for one of their own Walston, Peter Medawar, Edward Boyle,Tony profession. Dipak Nandy has had occasion to recall instances of Young’s Rampton,Trevor Huddleston, Elizabeth Parker, Pranlal generosity to Runnymede, and some of these were recounted by Anthony Sheth and Elizabeth Scott, to name only some of Lester in his speech to guests at the Jim Rose Lecture on 15 October. them…. It was a singular privilege to know and to Dipak, who could not attend this event through illness, had recalled work with them, and we shall not see their like again Hugo Young’s passionate commitment in the 1960s to race relations:‘So …. deep … that his response to Powell’s “Rivers of Blood” speech of May 1968 was an uncharacteristically intemperate leader in The Sunday Times On promoting a culture in which he accused Powell of “spouting fantasies of racial purity”, just of respect for human rights: the thing which the pedantic Powell had taken care not to do.’ Those who founded and developed Runnymede … Dipak also reminded us of Young’s ‘authoritative critique of the “news well understood that it is a characteristic of the values” criterion’, as one of four contributions to Race and the Press human condition to conform and to take the line of published by Runnymede in 1971. least resistance.They understood what Mill meant by the tyranny of the majority, and they saw the need The central point about race as an issue, Hugo pointed out, is for coherent legal principles, rules and remedies for that race relations is not ‘self-reporting’. Confronted with the the victims of unfair and unjustifiable discrimination, balance of payments figures, journalists from extreme left to as well as for a continuing campaign to promote a extreme right have a shared context within which they can read culture of respect for human rights, including the the figures; but faced with one month’s immigration statistics, rights of ethnic minorities. Jim’s own words on this they are at sea because there is no such shared context. Each subject are as relevant in today’s world as they were paper supplies its own ‘context’ and, in so doing, places its own 30 years ago.This is what he wrote in his conclusion slant on the story. The same fact could be presented as ‘Immigration figures rise again’ and ‘immigration rate slows’. At the end of his characteristically authoritative analysis, he draws a The British Council publication crucial distinction – that between neutrality and objectivity – in Citizenship Education and Human Rights Education dealing with race relations in journalism. – An overview of recent developments in the UK can be downloaded as a pdf from their website: Although only a couple of paper copies of this publication remain in http://www.britishcouncil.org/governance/index.htm Runnymede’s own records, we know that one of the functions of the Runnymede Archive, now housed at Middlesex University’s Cat Hill site, The Runnymede Collection at Middlesex University will be to make available, to all those interested in civil rights activism, can currently be viewed by appointment only. anti-racist struggles of the 1970s and 1980s, and the history of Contact Professor Heidi Safia Mirza on: immigration policies and public attitudes, not just the news stories and +44 (0)20 8411 6279 for more information; press clippings of the late 1960s to the present day, but many kinds of or visit their website at: academic documentation and private testimony that make the people www.mdx.ac.uk/www/runnymedecollection behind the issues more accessible, if not always understandable, to those and living in the first decade of the third millennium. www.mdx.ac.uk/news/ethnichistory.htm Dipak Nandy was the first Director of the Runnymede Trust (1968-1973).

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 13 societies by evolving democratic forms that respect resourced and staffed to promote equality of the individual, and which has shown how to combine opportunity and treatment on merit, and to use its law tolerance with dissent, now has the chance to set a enforcement powers strategically and effectively.There further example by proving that men of many races is much work to be done in combating prejudice and can live together in justice and harmony.’ promoting genuine equality.

JIM ROSE That is also the dominant question of this century. And from the Question & Answer session that LECTURE & followed the speech: On reform of the Equality legislation: RUNNYMEDE It is surely unacceptable that the present Government 1. In response to a question from Sam Walker of the ARCHIVE has amended the law to give less legal protection to Black Cultural Archives about political engagement with the victims of discrimination based on colour than to the question of racial equality Lord Lester replied: the victims of other forms of racial discrimination. It is Home Secretaries are like most human beings, they also unacceptable that the Government has refused to follow the line of least resistance and they don’t have give effect to the recommendations of the equality courageous principles. I think the remarkable thing agencies and independent experts about the need to about my old boss [Roy Jenkins] was that he did.We reform the outmoded and inadequate legislative code. were a minority Government expecting to be booted As the Parekh Report explains, the time is ripe for out at any moment.We had a coherent well- the comprehensive reform of our equality legislation. constructed Conservative opposition, and yet we got There is a pressing need for a single Equality Act, with through first the Sex Discrimination Act, that wasn’t a manifestly independent Equality Commission well quite so hard, and then the Race Relations Act, which for their day were radical and effective measures. Now, with this huge majority, I don’t think there is that Officially published on 15 October 2003 degree of commitment, and I’m depressed about that, because I think the Government’s commitment is weak Guardians of Race Equality: now in comparison to when it came to power. Perspectives on Inspection and Regulation 2. In response to a question from Richard Stone, Runnymede Trustee, on bringing human rights issues into Foreword by Audrey Osler the structure of an equalities commission: Introduction by Rob Berkeley The parliamentary committee on which I sit, the Exploring the issues: Human Rights Committee, were divided as to whether I.The Public Duty and a Duty to the Public you should have an equality and human rights II.Trust, Accountability and Race Equality commission all in one place or whether you should III. Regulation, Review and Partnership have an equality commission that can look at human Rob Berkeley rights, but only in the equality field, and a separate Viewpoints: human rights commission. My own view, which was the minority view, was that there was a danger of having 1. Race Equality and Accountability everything in one house because torture and free Fiona MacTaggart, Parliamentary Under Secretary speech and privacy and family life and forced labour for Race Equality and the right to marry and property rights and all the 2. Why Inspection is Important, and What It Means rest of them would have to be tackled by the same for Ethnic Minorities Floyd Millen, Director of ROTA body that was monitoring very detailed anti- 3. On the CPS’s Experience of Investigation by the CRE discrimination legislation. And one part of the single Sir David Calvert-Smith, Director of Public Prosecutions house, which would be the equality and equal rights 4. Tackling Black and Minority Ethnic Underachievement: commission, would have enforcement powers and the Teacher Professionalism and the RR(A)A 2000 other would be largely a propaganda place with no Shiraz Chakera, GTCE powers or very few powers. I don’t want the equality side to be weakened by 5. Light Touch Inspections? Racism Does Not Touch Lightly the human rights side even though, as you probably Dave Allport, PCT know, I’m not unenthusiastic about protecting general 6. Inspecting for Race Equality: the CRE’s Approach human rights. I would say you need to have a human Joe Charlesworth, Commission for Racial Equality rights commission and an equality commission and Afterword by Rob Berkeley some kind of federal link between them. I especially don’t like the idea that the powers on the equality side Bibliography might be reduced because you don’t want strong Price: £7.95 ISBN: 0 9538164 5 1 powers on the human rights side. It’s all in our report Available to purchase from: Central Books [the Hepple Report], we’ve consulted further on it and Tel: 020 8986 5488; fax: 020 8533 5821 I wait to learn what Patricia Hewitt and her colleagues Email: [email protected]. Or contact Runnymede for more information come up with. ❑

14 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2004 Invoking Community problems and their potential remedies has a distinctly ‘fogeyish’ dimension. Vic McLaren plots the rise of the concept of ‘social capital’ The Black American sociologist and considers its broader implications for government and Iris Marion Young and the veteran UK radical criminologist Jock Young for neighbourhood. have both been critical of the kind CIVIL of gemeinschaft vision of society RENEWAL Newspapers and social Putnam.2 Though not the originator depicted by orthodox commentators often refer to the of the concept – that honour goes communitarians, arguing that decline of ‘community’; and the to fellow US academic, the late contemporary urban society is rebuilding of communities has James Coleman – Putnam is best envisaged, and operates been a major plank of government currently the most vociferous most successfully, as a policy since 1997, with nearly £2 advocate of the idea. He certainly network of lightly billion earmarked for succeeded in touching a nerve engaged strangers, where neighbourhood renewal funding with the American reading public, diversity and creativity between 2001 and 2006. writing in an accessible style and can find their own Ministers, when speaking of with a journalist’s eye for a good space.4 According to this ‘community’, are generally phrase and a bon mot,by version of the good concerned with territorial suggesting that the Tocquevillian society, the key to urban communities, and with the issue of foundations of US democracy living may have more to neighbourhood empowerment. were palpably beginning to do with issues around But the potential for ‘communities disintegrate. ‘civility’(in the broad sense of of interest’ (for example, faith There was sufficient resonance civilised behaviour, communities) to be involved in in Putnam’s headline messages for encompassing respect and 1. David Blunkett, regeneration is also increasingly governmental policy advisers in this toleration as well as courtesy) Politics and being recognised. country to sit up and take notice. rather than the notion of ‘strong Progress. London: Demos, Politico’s The other sense in which The Performance and Innovation communities’ propagated by Publishing, 2001. community is being invoked could Unit within Whitehall prepared a political communitarians. Other more accurately be described as detailed study on the policy critics argue that nowadays 2. Robert D. ‘civil society’ – the area between implications of social capital in the ‘community’ is not a concept Putnam, Bowling the market and the state – in form of a discussion paper regarded as a universal public Alone. New York: Simon & Schuster, 3 other words, the voluntary and published in Spring of last year, good, but rather a selective 2000. community sectors. Here, the and further momentum has been remedy to the problem of poor, Government sees increasing provided by Putnam himself who unruly neighbourhoods. For many 3. Performance opportunities for partnership in has been on a European lecture middle-class people ‘communities and Innovation public service delivery. Civil tour. [I caught the UK leg of this in of place’ have no particular validity, Unit, Social Capital: a discussion paper. Renewal is another term which Birmingham in the spring, and with ‘communities of choice’ or London: Cabinet has gained in ascendancy, found him an engaging and ‘communities of interest’ having Office, 2002. particularly at the Home Office, persuasive performer.] much greater cogency. where the Home Secretary himself Having said that, inevitably But to return to ‘social capital’. 4. Iris Marion has published a personal manifesto Putnam is not without his critics, Whilst the idea is undoubtedly Young, Justice and the Politics of 1 on the subject. A key component and the debate triggered by gaining momentum in government Difference. of the civil renewal process is seen Bowling Alone has a number of policy circles, it remains a tricky Princeton, NJ: to be the development of similarities with the disputes concept, similar to ‘community’ in Princeton something known as ‘social capital’, engendered by communitarian that respect. Described by Barbara University Press, and it is this concept that I wish to theorists such as Francis Fukuyama Misztal as a form of 1990; Jock Young, The Exclusive 5 explore. and Amitai Etzioni. Essentially, all institutionalised trust, it Society. London: three have been accused of being emphasises that relationships Sage Publications, Investing in rose-tinted in their vision of the matter; but as Michael Woolcock’s 1999. ‘the good society’ potential of community, and of helpful typology demonstrates (see Social capital (in essence, invoking romantic images of the over), there are clearly different 5. B.Misztal, Informality. membership of networks with a past rather than practical solutions types of social capital, and these – London: shared set of values) is a term that for the present. In fairness to as with financial and physical capital Routledge/Taylor has been in use in academic circles Putnam, he does recognise that – can have negative as well as & Francis, 2000. for a decade or so, but which has totally new forms of social capital positive consequences, and can be come to prominence only with the may emerge rather in the way that exclusionary as well as inclusive.6 6. John Field, Social Capital. publication in year 2000 of Bowling occurred in 1890s America, and Whilst authors such as London: Alone by a hitherto fairly obscure slightly earlier in Britain; but his Raymond Williams and Geoffrey Routledge/Taylor Harvard-based professor, Robert own diagnosis of contemporary Pearson have successfully & Francis, 2003.

RUNNYMEDE’S QUARTERLY BULLETIN SEPTEMBER 2003 15 Definitions of Social Capital according to Woolcock (2001) the effects of collective poverty, its (a) bonding social capital, which denotes ties between like people downside involves prejudice and in similar situations, such as immediate family, close friends and discrimination towards those of neighbours; different ethnic origin. So the (b) bridging social capital, which encompasses more distant ties of rhetoric about building ‘strong like persons, such as loose friendships and workmates; and communities’ may be misplaced, CIVIL (c) linking social capital, which reaches out to unlike people in and cohesive communities RENEWAL dissimilar situations, such as those who are entirely outside the characterised by sufficient levels of community, thus enabling members to leverage a far wider bridging social capital may not range of resources than are available within the community.7 necessarily constitute ‘integrated’ Vic McLaren communities. was a Policy New Labour policy strategists Adviser to the Runnymede debunked the myth that the past apathy. But the real test of utility have seen social capital as a useful Trust in was invariably a more peaceful and for the concept of social capital concept in a progressive public 2002/3.This socially ordered place, 8 will not be in re-invoking the past, policy, with the state cast as an paper was nevertheless, that is not the but in unlocking a vision of the enabler or capacity builder. But the prepared general public perception.To give future. issue of how social capital might be during his just one example, despite A useful test might be to apply promoted through public policy, period of significant falls in the volume of the concept to the potential and the relative merits and secondment. crime over the past decade, a implementation of the CFMEB (or demerits of different forms of telling proportion of the general Parekh) Report, for example.9 In social capital, have been left public (particularly tabloid the context of social cohesion, it hanging in the air. It seems that the 8 R.Williams, The newspaper readers) still believe would seem that the idea of vision set out in the Parekh Report Country and the City. London: crime to be on the increase, much ‘bridging’ social capital could be of Britain as ‘a community of Chatto & Windus, to the chagrin of ministers and very useful were its policy communities, and a community of 1973; G. Pearson, chief constables nationally. implications to be fully developed. citizens, not a place of oppressive Hooligan: A History In that context, it is not difficult On the other hand, some poor uniformity based on a single of Respectable to see why Robert Putnam’s neighbourhoods, it could be substantive culture’ 10 effectively Fears. London: Macmillan, 1983. analysis in Bowling Alone touched argued, have a surfeit of ‘bonding’ throws down the gauntlet to so many buttons in terms of public social capital, to the detriment of Putnam and other communitarians 9 CFMEB,The concern – whether about alleged newcomers to the community to demonstrate the validity of the Future of Multi- loss of ‘community’, perceived loss such as asylum seekers. So whilst concept of social capital to a Ethnic Britain:The of ‘civility’, declining civic bonding social capital could be modern multi-ethnic and multi- Parekh Report. 11 ❑ London: Profile engagement or general voter perceived as positive in staving off cultural society. Books for the Runnymede Trust, 2000. Civil Renewal, Diversity and Social Capital in a Multi-Ethnic Britain In January 2004, Runnymede publishes an invited paper by David Faulkner, under the above title, as the first in a series of 10 Ibid, p. 56. occasional papers – Runnymede Perspectives. In this paper David Faulkner examines how a civil renewal agenda will have implications for race equality, and that these can 11 Taking the debate be interpreted and usefully examined in terms of diversity, social capital and racial justice, and related to ‘current understandings on to another of race equality’. stage, see the From the Runnymede point of view, this paper reinforces how we intend to structure the next phase of our work in Runnymede 2004/5: Perspectives • engaging promptly with new policy agendas, pamphlet published • exploring the use and development of concepts in policy-making; and with this issue of • analysing their potential for contributing to the creation of a successful multi-ethnic Britain. the Bulletin. Civil As an approach, it mirrors the one we developed throughout 2002/3 in helping define the concept of community cohesion Renewal, Diversity during its emergence as a key element of social policy.And as with community cohesion, the potential for utilising the concepts and Social Capital of civil renewal and social capital through policy may be great; but, again, overt or even ’quiet’ references to the impact that in a Multi-Ethnic these ideas are having or could have on issues of anti-discrimination and promoting racial justice are few at this stage. Britain by David Faulkner can be In his June 2003 paper, the Home Secretary noted that ‘we need to think much more broadly about the practical implications [of read at or this policy framework] for all areas of government and the delivery of public services’ and invited agencies, think-tanks and downloaded from voluntary bodies to help develop ideas further. Runnymede’s This paper is our first word, so to speak, on the subject. David Faulkner rightly notes that ‘[t]here are still instances of racism in website [www. Great Britain which need to be dealt with firmly and decisively, both when they occur and to prevent them from happening in runnymedetrust.org], the first place’. But beyond the concrete issues ‘there lies a range of larger sets of questions about the changing nature of British or ordered as a society, its social composition and dynamics, the sources of power and influence, and the distribution of wealth.Those questions printed document come together in the conceptions of citizenship and social capital.’ from Runnymede. Michelynn Laflèche See the back cover of this Bulletin for A printed copy of Civil Renewal, Diversity and Social Capital in a Multi-Ethnic Britain has been provided with this our regular contact issue of the Runnymede Bulletin. If you would like another copy, contact us at Runnymede (tel: 020 7377 9222; details. email: [email protected]), or read the full text shortly on our website [www.runnymedetrust.org].

16 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 Human rights – (p.101).They quote the then Home Secretary, Jack Straw, who commented: time to embrace Consider the nature of modern British society. It’s a society enriched by different cultures and a new agenda? different faiths. It needs a formal shared understanding of what is fundamentally right as EQUALITIES Rob Berkeley looks at how the well as what is fundamentally wrong if it is to government’s announcement of a single work together in unity and confidence . . .The Human Rights Act provides that formal shared body for equality and for human rights understanding.2 cannot avoid prompting a renewed recognition of the commonalities between The report also notes that: equality strands. Equality and diversity principles will thus necessarily be a central part of human rights In November 2003 the long-awaited announcement on culture.This is not to say that equality and the new single equality body was made – with two diversity should be seen only as human surprises.There was no surprise that the announcement rights issues, but it does mean that human was silent on a Single Equality Act.Yet,the Queen’s rights have much to offer in the realisation Speech, introducing legislation for the 2004 parliamentary of these principles. (p.100) term, included a range of activity on equality, including a new disability discrimination bill, a children’s Race equality issues in the UK, the report’s authors commissioner for England, and a civil partnerships bill. It argue, have not usually been addressed through a human would appear that the government would rather approach rights perspective, too often seen as a minor problem equality legislation in this piecemeal fashion. Let us hope rather than as a challenge for society as a whole. So that any new Single Equality Body will not reap the human rights and equality are compatible, but how do whirlwind as a result of this approach. they best complement each other? The first surprise was the lack of detail. Given a In her timely book Social Inequality and Social consultation process that began in October 2002 and Injustice,3 Evelyn Kallen attempts to elucidate the links included 10 ministerial regional roundtables, a between human rights and social equality. She reflects on conference, 150 responses to questionnaires, longer her 30 years of research and teaching on human rights written submissions, and online consultation, the issues to offer an analysis of how social inequalities are announcement included the decision to ‘establish a constructed and how human rights approaches can be 1 CFMEB (2000) taskforce’ as ‘the government has reached no conclusions used as a tool to create equality. The Future of on key issues such as the governance of the body and its Her book is a response to what she refers to as ‘two Multi-Ethnic Britain: internal structure’.While the government’s commitment serious lacunae in the prevailing social scientific The Parekh Report. to an ‘open and transparent process’ is commendable, approaches’: first that there have been differing theoretical London: Profile there is some urgency as new employment legislation approaches to social inequality developed by those Books for the (age, sexual orientation, and religion/belief) comes on looking at ethnic or non-ethnic populations (i.e. Runnymede Trust. stream with little or no institutional support. A 2006 start differences in approach between those considering gender date for the new commission leaves only sketchy interim and race); and second that: 2 Building on a arrangements for these groups. Human Rights The second surprise was the decision that ‘the new Traditional approaches to the study of Culture – Jack body’s remit should cover the promotion of human rights subordinate populations were decidedly negative Straw, address to together with its equality responsibilities’.The working in thrust; emphasis was placed on socially the Civil Service name for the single equality body is the Commission for constructed invalidation and disadvantage. But no College Equality and Human Rights (CEHR).What exactly have positive lever was offered which could enable December 1999. human rights and equality got to do with each other? members of subordinate human populations to What are the links between these agenda, where do they take steps to gain equitable treatment as full 3 Evelyn Kallen complement each other and where is the potential for and equal members of humankind. (p.2) (2004) Social conflict? Inequality and One of the major recommendations in the report of Professor Kallen builds a conceptual framework which Sociel Injustice: A the Commission on the Future of Multi-Ethnic Britain1 endeavours to use human rights frameworks to deliver Human Rights is to work towards ‘building a pluralistic human rights positive change for subordinate groups. Perspective. culture’.The authors were keen to express the importance This book provides a very useful introduction to Basingstoke and of human rights both as underpinning shared human rights perspectives.Written in an accessible New York: understandings of our society, and as a route to building manner, it distils the often legalistically complex Palgrave Macmillan links between the different equalities agenda ‘recognising principles and relates them to the language of activism. (ISBN: 0-333- what unites them as well as their own distinctiveness’ The work is impressive in its inclusiveness – it gives a 92428-2 pbk)

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 17 range of international examples, ranging from gay and The Equalities Coalition is a network of lesbian groups in Japan, to the aboriginal peoples of organisations with an interest in equalities and Australia, to children in Burma.This worldwide view non-discrimination issues in the UK. It is funded does not, however, make the book unwieldy, as Kallen by the Joseph Rowntree Charitable Trust and uses these examples to develop and exemplify a universal managed by the Fawcett Society, with a cross- strand advisory group. model.The breadth of her view only helps to emphasise EQUALITIES the commonalities between subordinate groups and helps Equalities Coalition membership is open to: to pinpoint the experiences and disadvantages that are • organisations or individuals with an interest held in common and those that are unique to the in equalities and non-discrimination in the characteristics of particular groups.With specific chapters UK; • those working on issues related age, on movements for gay and lesbian rights, women’s rights disability, gender, race, religion and belief, and new nationhood movements, this should provide a sexual orientation or equality more useful primer for those whose work does not focus generally; primarily on these groups, and a reminder of the • grassroots, local and national organisations; universality of the struggle for those whose work does. • voluntary sector organisations, trades Kallen concludes the book with a critique of the unions, and employers’ forums. current human rights system; important in that it The Equalities Coalition exists to: highlights the contested nature of our understandings of • foster broad debate around the future of human rights. As efforts continue to improve the ways in equalities, involving member organisations, which we move towards cohesion, equality and diversity, government departments and policy- we will also have to be mindful of the need to improve makers; their underpinning – our human rights. • provide information on legislation, policy It is worth quoting Kallen at length when she changes, events, resources and lobbying discusses the means of building coalitions among different opportunities; subordinate groups: • make possible the sharing of expertise and views; The first and essential element of coalition • facilitate partnerships between member building is the mutual identification of different organisations for lobbying and other work. subordinate populations as groups (albeit for Members can be involved in the Coalition’s different reasons) disadvantaged and work to whatever extent they choose, from subordinated by dominant agencies in the society. attending meetings and discussion groups to The second element is for members of different simply viewing material on the website subordinate groups to recognise that they share [www.equalities.org]. a common goal; that of transforming the structure of society from one based on group inequality to one based on group equality. A third element, directly related to the second, is for members of different subordinate groups to Back to the drawing board? It appears that the new citizenship tests referred understand that it is the same mainstream to in the September Bulletin are unlikely to political and economic elites who are responsible progress in the form envisaged by the committee for the inferiorization and disadvantaged status on ‘Life in the UK’. A report in the Daily Mail on 10 common to all subordinate groups. A fourth December said that ‘yesterday the Home Office element, critical for coalition building, is the claimed the tests were still being considered, fuelling recognition that most subordinate group speculation that the scheme would stay on the back members experience subordinate status on burner permanently’.We understand that the Mail is multiple grounds.This fact enables the not infallible, but there was no mention of the development of caucuses of internal minorities resources that would be necessary to fund the that facilitate the development of links with other effective delivery of these tests in Gordon Brown’s subordinate groups. (p. 184) pre-budget report. It may be that the tests will not happen and the committee led by Bernard Crick The CEHR is currently building a coalition of groups will have wasted their energy. A slimmed-down, representing subordinate groups on the grounds of race, cut-rate version of the tests and support for gender, sexual orientation, disability, age and religion or language learning would be unacceptable, and belief (see opposite). I am not sure how many of the would not achieve the laudable objectives set out elements Kallen suggests have yet been met; I do not for them in the committee’s report.We may have underestimate the challenges ahead in bringing these to make do with the citizenship ceremonies – elements together.The inclusion of a human rights welcoming new citizens with the oath of allegiance perspective may be the basis on which to build a coalition and a blast of the national anthem – that will go for equality, and the surprise that could make the single ahead from January 2004. equalities body a success. ❑

18 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 New Commission for Equality and Human Rights Task Force On 30 October 2003, Patricia Hewitt and Lord Falconer announced, in a joint DTI and DCA statement, the bringing together of the existing equality commissions – the Commission for Racial EQUALITIES Equality (CRE), the Equal Opportunities Commission (EOC) and the Disability Rights Commission (DRC) – to combat discrimination, and promote equality and diversity. Taskforce membership: A task force has now been set up to canvass views 2004 Meetings Programme for the CEHR Lucy Anderson,TUC and coordinate opinion in preparation for a White (location for all meetings is the DTI Conference Centre) Amanda Ariss, EOC Mohammed Aziz, Paper on a single equalities commission. Tuesday 6 Jan 2004 - Meeting to address: British Muslim Governance Research Council Runnymede’s Director, Michelynn Laflèche, has just • role and constitution of the board been appointed to membership of the Commission • accountability of the board to stakeholders and communities Neil Bentley, CBI of interest Frances Butler, for Equality and Human Rights (CEHR) Task Force, • independence of the board British Institute of which held its first meeting on 16 December, with • accountability of the board to Parliament and Government Human Rights • real and meaningful mechanisms for stakeholders and Katie Ghose, full attendance. communities of interest to participate in the CEHR The Task Force is made up of experts from Age Concern Scotland & Wales Lorraine Gradwell, current equality commissions and organisations, • the CEHR’s response to Scottish and Welsh political, social, Small Business Council communities who will be covered by the CEHR, economic and cultural circumstances (DTI) human rights, trades unions, business and academia, • how to reflect the devolved constitutional settlement in the Patrick Grattan, work of the CEHR Third Age who will explore and develop options for the new • relationship of the CEHR to institutions operating in devolved Employment Network nations body, including its role, functions, priorities, Ros Hardie Ejiohuo, governance arrangements and structure. Thursday 22 January 2004 - Meeting to address: London Borough of Enforcement and Other Powers Croydon It is chaired by Jacqui Smith, the Deputy Minister • the CEHR’s approach to enforcement Tessa Harding, for Women and Equality. • the effectiveness of current investigation powers and how they Help the Aged The Process envisages the members of the Task could be improved Rev. John Kennedy, • the effectiveness of current litigation powers and how they Churches Together in Force providing their own views and consulting with could be improved Britain and Ireland • development of Codes of Practice others in their area of interest, and feeding in their • alternative dispute resolution tools - their role and scope Francesca Klug, LSE views over the meetings programme, with a White • other powers to help deliver the CEHR’s functions Michelynn Laflèche, Paper for publication in Spring 2004. Runnymede Tuesday 3 February 2004 - Meeting to address: Nick O’Brien, Terms of Reference for the Task Force specify that Support of Individuals Disability Rights • their information and advice needs on equality and human Commission it will, after meeting over a period of 12 months: rights • Advise government on the role, functions, • role of CEHR in meeting these needs Colm O’Cinneide, • role of other service providers in meeting these needs UC London priorities and activities of the proposed • relationship between the CEHR and other advice providers Brian Pearce, Commission for Equality and Human Rights, in • how to develop/retain CEHR’s ‘centre of excellence’ capacity Interfaith Network on legal expertise and on casework furtherance of the government’s statement of Katherine Rake, Fawcett Society 27 October on future arrangements for Support of Communities • role of ‘good relations’ in the CEHR Teresa Rees, equality institutions in Great Britain; • relationship between community cohesion, equality and human University of Cardiff • Provide such advice in preparation for a White rights Andy Rickell, • where the CEHR could and should add most value British Council of Paper; • relationship to the voluntary and community sector, including Disabled People • Provide ongoing policy advice, including the RECs Pam Smith, CRE assessment of responses to the White Paper, Thursday 26 February 2004 - Meeting to address: Sarah Spencer, on the range of issues described above. CEHR’s Role in Support of the Public Sector and Promoting University of Oxford The Meetings Schedule and breakdown of areas Human Rights Hanne Stinson, • promoting human rights British Humanist for discussion at each meeting are listed on this page. • delivery of its human rights remit Association • relationship to public bodies The first meeting (16 December) looked at • delivery of its enforcement functions on public duties Ben Summerskill, constructing a vision for the CEHR, and the next • effective mainstreaming of equality and human rights Stonewall John Wilkes, (scheduled for 6 January) is on governance, and CEHR’s Role in Support of Business Equality Coordinating relationships with devolved administrations.With • relationship to the private sector and to SMEs Group meetings due to happen in close order, Michelynn • in support of employers and service providers in the private Mandy Wright, sector Employers’ would like people to contact her with ideas on and Organisation for Local Tuesday 2 March 2004 - Meeting to address: Government reactions to the content of the programme and future Review and Planning of Further Work outcomes (which will be minuted on the • overview and evaluation • issues for revisiting government’s website) so she can take them forward. • identifying further work Task force membership is listed in the narrow Further meetings are then diarised for: column. Further information on both the task force Thursday 1 April 2004 and its membership is available on the government’s Thursday 13 May 2004 Thursday 10 June 2004 website [[email protected]]. Thursday 22 July 2004

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 19 University Top-up Fees: Paying for froth or flavour? The government’s plans for top-up fees of up to £3000 a year for university students have dominated the discussion of Labour’s legislative plans for the parliamentary sessions of 2004.Whatever one’s views on charges in general, we thought it advisable to consider the reasons for and against the proposal, particularly from the viewpoint of black and minority ethnic students.The following chart is a summary by Omar Khan and Rob Berkeley of some of the relevant reasons, PARLIAMENTARY both generally and from a race angle. Hardly a comprehensive list, but it gives an indication of the issues at stake, both for MONITOR the education system and for BME students and their parents.

General Issues on top-up fees Pros Cons • Expansion of university education will be good for • Fear of debt will dissuade working-class students even from applying to Britain, both socially and economically. university. • Those who don’t go to university will no longer pay • Variable fees will dissuade students from pursuing courses not obviously towards providing a service they are unlikely to use linked to higher-salaried careers. (thus removing a ‘subsidy’ paid by the poorer members • Decrease in enrolments for certain courses that lack obvious economic of society to the middle and upper classes). prospects will reduce the number of faculty members employed to teach • Increased income for universities will ensure their them, and might even see the closure of departments such as Anthropology, overall quality and maintain their international Art History, African and Asian Studies, Drama, Education, Foreign Languages, competitiveness. History, Literature, Music, Philosophy, Sociology, etc. Even where such • Fees will give universities greater control and courses continue, a newfound emphasis may be placed on their ability to independence in determining their finances, making train students to be successful in the economy, thus altering the rationale for them less reliant on government. such courses and requiring the transformation of graduate training, a costly • Variable fees will ensure that the costs applied to and long-term endeavour. students have some relationship to the advantages • Top-up fees may undermine the idea of education ‘for its own sake’, they accrue from their particular course and university; foregrounding the vocational worth of the degree at the expense of the the reason for such variation is that certain degrees learning experience. afford greater advantages, particularly material, for • Graduates may be less likely to seek or accept employment in the public or some graduates. voluntary sectors, as future earnings prospects cannot match those offered • If variable fees are implemented, there will probably be in the more lucrative zones of the private sector. increased numbers of students studying Business, Law, • There is a danger of a ‘two-tier’ university system becoming entrenched with Medicine, Pharmacology and various professional and employers and potential students judging courses (and the quality of vocational degrees.This may improve the health of the graduates) on their price. Russell Group and other ‘older’ universities start British economy. with a market advantage, newer universities may struggle to establish • There will no longer be any upfront fees. For those themselves in this market.The outcomes may be under-funded courses and from lower-income families grants may be available. lack of resources leading to lower quality teaching and learning – a vicious • Universities will be encouraged to offer bursaries for circle. More vicious given that it is the newer universities that have to date students from lower-income families. been at the forefront of efforts to widen participation among social groups that traditionally have had little access to Higher Education.

Issues on top-up fees that may adversely affect minority ethnic candidates Pros Cons • Insofar as certain parts of the BME population are less • Evidence suggests that even given the same course at the same university, likely to attend university, they will not be paying for a BME students get less advantage career-wise from their degree than their public good that advantages the better-off. white counterparts. If this is true, then it may be unfair to expect them to • Expansion of university education will offer new pay according to the ‘average’ benefit provided by a particular university opportunities for BME students. course. • Inasmuch as BME students are currently more likely to • Relatedly, if the rationale for variable fees is that certain degrees provide enrol in professional and vocational courses, the cost greater (material) advantages than others, then it would seem to follow that of their course will better reflect the advantages they if certain groups of students (whether BME or working-class) get fewer stand to gain. advantages compared to their colleagues, then they should pay lower fees. • Many students from BME communities will not have to • While the relative over-representation of BME students in professional and pay anything given that they are more likely to come vocational courses might signal their lower costs, it is possible that the from lower-income families. Many will also be eligible ‘average’ (material) advantages provided by such courses could drive up for grants and/or bursaries. fees. • Variation in fees may lead to an entrenchment of hierarchies in HE.The universities that are most likely to be at the wrong end of these hierarchies are also those with the highest proportions of students from Black and • minority ethnic communities.

With newspaper reports that Tony Blair has put Attitudes to debt. School leavers and John Carter, Steve Fenton and Tariq his authority on the line over winning the vote further education students’ attitudes to Modood, Ethnicity and Employment in on tuition fees, the stakes could not be higher. debt and their impact on participation Higher Education (London: Policy Any policy that will have such a huge effect on public services will inevitably have an impact in higher education – Executive Studies Institute, 1999). on those from minority ethnic communities. In Summary. A report for UUK and M. Shiner and T. Modood (2002) ‘Help or the debate so far about the rights and wrongs HEFCE by Professor Claire Callender Hindrance? Higher Education and the of fees, there has been little discussion of what of South Bank University. February Route to Ethnic Equality’, British Journal the reform might mean for students from 2003. of Sociology of Education 23(2): Black and minority ethnic backgrounds.What Stephen J. Ball, Diane Reay and Miriam 209–32. we have done here is simply attempt to tease out what some of the main issues might be, to David (2002) ‘Ethnic Choosing: White Paper:The Future of Higher feed into such a discussion. and offer Minority Ethnic Students, Social Class Education (Cm 5735). suggestions for further reading to help you and Higher Education Choice’, Race, Race Impact Assessment [www.dfes.gov.uk] deliberate on this crucial reform. Ethnicity and Education 5 (4). 20 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 Religious Discrimination in the European Union

This article by Mohammed Aziz draws on • Prohibition of indirect discrimination – this the author’s participation at a conference comes into force where an apparently EUROPE neutral policy, procedure or practice would on ‘Religious Discrimination in the European put persons of a particular religion or belief Union’, organised by the European Network at a particular disadvantage compared with Against Racism (ENAR) on 24–25 October others. Again, an exception can be made to this provision where the discrimination has a 2003, in Amsterdam. legitimate aim and where the means of achieving that aim are necessary and The EU is home to large minority faith proportional. communities. On the whole, the record held by • Prohibition of harassment – where unwanted these communities is a strong one: they are law- conduct related to religion or belief takes abiding communities, maintaining stable families place that violates the dignity of a person and living decent and moderate lives; they are and creates an intimidating, hostile, degrading, diverse and vibrant, enriching local arts and humiliating or offensive environment. cultures; they contribute to, and often sustain, • Prohibition of victimisation – where an many public services; they help to ensure the employee is discriminated against or harassed well-being and prosperity of Member States in because they had made a complaint or numerous ways. And yet, far from celebrating the allegation, or given evidence against someone contributions these communities make in relation to a complaint of discrimination, throughout the EU—resulting from a failure to on the grounds of religion or belief. understand their religious beliefs and • Allowance of positive action – to maintain or observances, cultural differences, social norms adopt specific measures to prevent future, or and habits—they have often been seen as compensate for past, disadvantage linked to a ‘problematic minorities’, and consequently suffer religion or belief with a view to ensuring full from prejudice and discrimination. Such equality in practice. treatment of these religious minority The correct and complete transposition of the communities is only just beginning to receive the Directive in Member States would, therefore, attention of the law. provide a significant level of protection against Based on the competence provided by Article religious discrimination throughout the EU.This 13 of the EC Treaty, as adopted by the Treaty of is very welcome, particularly for religious Amsterdam in 1997, on 27 November 2000 the minorities in the European Union who have so EU adopted a general framework Employment far been at the sharpest end of such religious Directive for equal treatment.The Directive discrimination. However, there is much concern seeks to guarantee equal treatment on the that the Directive simply does not go far grounds of religion or belief, amongst other enough. It is possible to argue this case on at grounds, in both ‘horizontal’ relationships least four grounds. between individuals and ‘vertical’ relationships First, the scope of the Directive is restricted between public authorities and individuals. to areas of employment only, and thus can be The deadline for the transposition of the significantly less extensive than its sister directive Directive into national law by Member States on race and ethnic origin (the Race Directive). was set for 2 December 2003. Most, if not all, Even after full transposition of the Directive, Member States have at least made an effort to therefore, where Member States have decided meet this deadline. not to go beyond its minimum requirements, The key provisions of the Directive, from a minority faith communities will still not be religion or belief perspective, are as follows: protected from discrimination in areas such as • Prohibition of direct discrimination—this social security and health care; education; goods operates where one person is treated less and services available to the public (including favourably than another in a comparable housing); and social advantages (e.g. housing situation, simply on the grounds of their benefit, student maintenance grants and loans, religion or belief. An exception is made to bus passes for senior citizens, etc.). In practice, this provision where discrimination is based this will leave obvious gaps in the law against on a ‘genuine and determining occupational religious discrimination and place religious requirement’ for the job or the particular minorities in a vulnerable position with regard to religious or belief ethos of the employer. very significant areas of daily life. Consider some

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 21 concrete examples: Second, even if the Employment Directive • A hospital surgeon can refuse to operate on covered the additional scope of the Race members of a particular faith, and a local Directive, there would still be a significant doctor can refuse to take on patients from shortfall, in that the provisions would not extend particular faith communities on the basis of to discrimination in law enforcement, regulatory their faith practices. and control functions.This is fast becoming a EUROPE • A local school can refuse admission to pupils critical concern in many areas, not least, the of certain faiths or introduce rules that following: would discriminate against certain minority • National security and anti-terrorism activities. It faith communities – e.g., ‘short hair for boys is argued that whilst EU states must do all and short skirts for girls’. that is required to protect against terrorist • A shop, restaurant or hotel can refuse service activities, they must still refrain from to a person because he or she is from a unnecessary abuse of human rights, particular minority faith group. Similarly an particularly where this results in unjustifiably airline, a car hire company or any other disproportionate indirect discrimination on service provider can refuse service to the grounds of race or religion. members of particular faith communities or • Policing crime and treatment by the criminal treat them differently. justice system. There is some evidence now Answering • A housing authority can have an unofficial that in some Member States people affiliated questions at a policy to accommodate all members of a to a particular religion or belief are less likely UKREN meeting in Glasgow, held particular faith community in one run-down as victims to get a good service from the in conjunction area, and the local town hall can refuse to police; more likely to be over-policed, policed with BEMIS, are (L-R) Fariha hire out its facilities to a particular religious unfairly or heavy-handedly; more likely to be Thomas, of the group. charged, and at higher levels, by prosecution AMINA-Muslim Women’s • A fitness club or a golf club can refuse authorities; more likely to be given longer Resource Centre, membership to members of a particular custodial sentences by the courts; and more Fraser Campbell religion. likely to receive an unsatisfactory service of SEMPER Scotland, and Moreover, this limitation in the Employment from probation authorities. Damir Duheric of Directive has the potential of providing a • Immigration and asylum. Here, it is again the Scottish Refugee Council. loophole in, perhaps even making a mockery of, argued that serious discriminatory practices At this 8 the Race Directive.The fascist may hate Black on the basis of religion or belief are genuine December gathering the and Asian people just as much as before, but and real possibilities, but presently there are UKREN knowing that there are laws relating to the few safeguards against them. Management delivery of goods and services that proscribe his In order to address these areas of concern, the Committee met in the morning, and hatred and activities on the grounds of race and provisions of the Employment Directive must presentations ethnicity, he may smartly but falsely claim that his not only be extended to the delivery of goods, from these three named speakers treatment of certain minorities is based not on facilities and services, but also to law in the afternoon those grounds but on religion—‘It is not because enforcement, regulatory and control functions. were followed by an open they are Indians, but because they are Hindus’ or Third, the Employment Directive requires discussion on ‘It is not because they are Black or Somali, but Member States to impose only a negative duty the subject of because they are Muslims’.Thus, the target and ‘not to discriminate’ on the grounds of religion whether government and those affected may remain the same, although or belief. Of course, this will help to bring about devolved bodies the marker may be different. Religion would a certain amount of ‘equal treatment’—the were doing enough about then be a perfect surrogate for undertaking with primary objective of the directive—across faith racism and impunity activities already proscribed by the communities. However, such an approach is inequality. Race Directive. unlikely to result in a culture of ‘equal

22 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 opportunities’ across faith communities, which experience in many Member States, however, it would require a positive duty imposed on all is strongly argued that anti-discrimination organisations ‘to eliminate religious initiatives work best where legislation is backed discrimination and promote equality of access by campaigns to raise awareness, resources to and opportunity for all’. It is only through such provide advice and support (including legal an approach that the specificity of minority support) to victims, powers to investigate and religions will be considered—and, therefore, effect change, and institutional arrangements to EUROPE those faith communities alienated in the margins monitor, evaluate and seek change in policy and of society, through historic and structural legislation. Where such backing is not provided, discrimination, will over time be brought into the the relevant legislation results in very limited Mohammed mainstream. actual impact. Aziz, is the And fourth, the Directive places very limited We may conclude from the above, then, that Chief emphasis on promotional work and is almost whilst the transposition of the Employment Executive of silent on stipulations for institutional Directive by Member States will introduce the British arrangements to assist enforcement.The clauses significant new protection against religious Muslim on dissemination simply state that ‘Member discrimination, there is far more that needs to Research States shall take care that the provisions … are be done to protect vulnerable faith communities Centre and a brought to the attention of the persons in the EU. One way of moving forward would be member of concerned by all appropriate means’, and the to establish what level of protection against the UK Race & stipulations on institutional arrangements to religious discrimination is required by Europe assist enforcement rely too heavily on existing international human rights law, and then to use Network provisions, requiring only that, where they exist, the competence provided by Article 13 of the Management they be empowered to support and represent EC treaty to achieve this in practice throughout Committee. complainants of discrimination. From past the EU. ❑ Information on and papers presented at the ENAR ENAR: European strategies to combat racism and xenophobia as a crime Conference (24–25 Authors: M. Bell,A Coomber,T.Hutchinson, R Nickel and K. Zahi October ‘European strategies to combat racism and xenophobia as a crime’, the latest of a series of publications 2003) on produced by the European Network Against Racism, looks at the issue of racism and xenophobia as a ‘Religious criminal offence.The report can be categorised under three broad headings: Discrimination 1. A review of the current standards of protection through criminal legislation in different EU member in the states, at European and International levels. European 2. Thoughts on a framework and strategy to combat racism and xenophobia using EU legislation. Union’ can all 3. A useful conclusion, focussing on the way forward with practical policy and strategies – for NGOs in be read at: particular – to engage in this debate. www.enar- eu.org. Copies of the report can be ordered by emailing ENAR [[email protected]] or ordering it at the ENAR website [www.enar-eu.org].

Religious Discrimination in the workplace in the UK Labour Research, in its December issue, carries an article on discrimination in the UK against workers on grounds of religion or belief – now unlawful under the Employment Equality (Religion or Belief) Regulations 2003. Under the title ‘Faith bias is outlawed’ (pp. 12-14) the article discusses the possible beneficiaries of this piece of legislation, but points out the difficulties of working with a loose definition of a ‘religion or belief’.The ACAS code suggests that to qualify under the Regulations a ‘religion or belief’ must include a collective worship, a clear belief system and ‘a profound belief affecting the way of life or view of the world’. Making these interpretations will be demanding, and with more than three-quarters of the UK population having categorised themselves in the 2001 census as having a religious belief, there would seem to be plenty of scope for tribunals to work towards fuller definitions. As yet, there appears to be no employment protection offered to those professing no religion or belief. A study conducted for the Home Office by the University of Derby on Religious Discrimination in England and Wales reported in 2001.The 216-page report (HORS 220) can be read as a pdf on the Home Office’s website [www.homeoffice.gov.uk].

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 23 Bangladeshi educational underachievement – is religion to blame? EDUCATION Mohammed A. Lais, the author, is a research officer at Imperial College, University of London. His doctoral research 1 C. Peach (1990) ‘Estimating the Growth of (thesis submitted), conducted as a part-time student at the Bangladeshi Population of Great Middlesex University, is on: Attitudes towards and the Britain’, New Community Factors of 19(1): 75–98. effectiveness of work-related learning within the Bangladeshi underachievement 2 Swann Report (1985) Education for All:The Community.This article is based on parts of his thesis. Studies (see for example Quader Report of the Committee of Inquiry into the 1992 and Haque 1999) Education of Children from Bangladeshi pupils’ underachieve- or White peers.The Home Affairs supported the HAC Report Ethnic Minority Groups. 3 London: HMSO. (Two ment in education has been Committee (HAC) highlighted in findings (1986) that language is Runnymede Research Reports were also recognised for at least two 1986 that Bangladeshi pupils were one of the major barriers to consulted:‘Education for All’: A Summary of the decades. Studies have suggested underperforming in education and achievement for many Swann report on the language and religion as main participating less in formal Bangladeshi children.Yet, the education of ethnic minority children (1985); causes in this underachievement. examinations than any of the schools involved in this research and ‘Education for Some’: A summary of the This article reflects on these other recorded ethnic groups. have suggested that whether or Eggleston Report on the educational and conclusions in reference to recent Further studies supported these not pupils are born and/or vocational experiences of research by questionnaire findings. Nuttal4 in 1990, Quader5 brought up in Britain, and speak young black people (1986).) (involving 288 participants) and in 1992, the London Borough of good English; they fail to meet the 6 3 HAC (Home Affairs 25 participants in group Camden in 1996, Modood and demands of the curriculum. Committee) Report 7 8 (1986) First Report from interviews in Camden, North Berthoud in 1997, Ofsted in Other important factors the Home Affairs London.The research participants 1999, Haque9 in 1999 and the noted in the research literature Committee, Session 1986–87. Bangladeshis in were Bangladeshi low achievers 2001 Census10.The Census included racism within society, Britain. London: HMSO. from years 10 and 11 in highlighted that underachieve- racism in education, 4 D. Nuttal and A. Varlaam (1990) secondary schools in Camden, ment persisted: 78% of boys and inappropriate support from the Differences in Examination Performances, ILEA their teachers, parents, careers 63% of girls underachieved at National Curriculum, crowded Research and Statistics, pp. officers and members of the local GCSEs (less than 5 A*–C grades), and cramped housing, lack of 1277–90. London: ILEA. Bangladeshi community. and 40% of the Bangladeshi parental involvement in their 5 D. A. Quader (1992) ‘Second Language young people ‘aged 16 to 24’ children’s education, teachers’ Development and the Content-based Decades of were unemployed (see Fig 1). low expectations of them and Classroom: Bangladeshi under-performance learners in London Schools’, unpublished Bangladeshi pupils under- PhD thesis, Institute of perform in education and are Fig 1.Analysis of performance in GCSE exams (by percentage) of 5 Education, University of A*–C grades of pupils aged 16 (England and Wales) since 1989. London. under-represented in 6 Camden Equalities Unit employment.This educational and the Institute of 70 Education (1996) Valuing under-performance was not Pakistani Diversity: Camden Bangladeshi Bangladeshi Residents a concern until the 1980s, 60 60 60 Survey. London: Camden Indian Council. prior to which studies Black 54 focussed on the performance White 7 T. Modood and R. 50 48 Berthoud (1997) Ethnic 50 50 of ethnic minorities as a 45 47 Minorities in Britain. 45 Diversity and the whole, or combined the 43 Disadvantaged:The fourth 40 38 39 national survey of ethnic performance of Bangladeshis 37 37.5 minorities. London: Policy 35 33 Studies Institute. with that of Pakistanis. 29 29.5 30 30 Bangladeshis were regarded 26 29 8 Ofsted (1999) Raising 24 25 1 the Attainment of Minority as a concealed community Ethnic Pupils. London: ????. 20 23 21 23 20 with the result that 19 9 Z. Haque (1999) 18 ‘Exploring the Validity and consideration of their 14 Possible Causes of the performance was neglected 10 Apparently Poor Performance of for years. Bangladeshi Pupils in 2 0 British Secondary The Swann Report 1989 1991 1992 1994 1996 1998 2000 2001 Schools’, unpublished revealed in 1985 that PhD thesis, University of (Source: LFS, and Census 2001) Cambridge. Bangladeshi pupils’ perform- Note. The GCSE performance of Pakistani and Bangladeshi pupils is shown as the lowest of all ethnic 10 The UK Census (2001) ances were poorer in groups measured. London: National Statistics. comparison with other Asian

24 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 the taking of extended holidays. However, there have so far not appropriate provision at 16. However, some authors been any studies suggesting Neither were they supported include religion as an important reasons why some Bangladeshi appropriately by the National barrier to the successful uptake of parents encourage their Curriculum while in school, nor at education, particularly for daughters to actively pursue their transition from school were they Bangladeshi young women.The educational goals whilst others encouraged to access college, next section will focus briefly on are reluctant. Is Islam training or employment.19 Where EDUCATION the barrier of religion in the light encouraging some and opposing should they send their daughters? of relevant results from my own others? Research throws some What options are available to 11 A. Brah and S. recent research. light on the matter. them? Fears about the dangers of Shaw (1992) Working I put this question to the society, such as addiction to drugs, Choice: South Asian Young Muslim Women Influence of Bangladeshi participants in this were expressed. It was argued and the Labour religion on education research.The participants that responsible fathers keep their Market. A report for the DfEE by the and stereotyping attitude indicated that Islam encourages girl children at home rather than Centre for Extra- Many Islamic principles are part both males and females to search risk the potential onslaught of mural Studies, Birkbeck College. and parcel of Bangladeshi cultures for education and knowledge, and drugs and other social dangers University of and strongly influence community that education is an important outside the home. London. 11 behaviour. Marriage and a stable instrument for economic and Several parents commented 12 H. Abd al Ati family life are fundamental to social development.They believed that the Local Authority blamed (1998) Islam in Focus. USA: Amana Islamic society.The Islamic education to be the backbone of parents for not sending their Publications. ideology strongly upholds the a nation that brings success in life. children, particularly girls, to take 13 H. Siddiqui (1991) concept of izzat meaning honour One parent recited a Bengali up post-16 opportunities, but the ‘Winning Freedoms’, or reputation, and the family’s verse: parents claimed that LEAs do not Feminist Review, 37: honour or reputation is directly provide suitable options for those 78–83. related to the behaviour of ‘Lekha Porha Kore Je, Gari who do not perform well in 14 T. Basit (1997) Eastern Values, members of the family, especially ghoora chore she.’ (Male: GCSE examinations.They argued Western Milieux: the women.This was a prime parent) [Meaning: Life that there should be better Identities and Aspirations of concern of the Bangladeshi chances are plentiful for the provision. Speaking personally, Adolescent British Muslim families in the study, and educated people] they believed that no parent Muslim Girls. was nurtured amongst family would either evade or miss out Aldershot: Ashgate members. For example, from an This theme is consistent with on an opportunity to bring 15 Tower Hamlets 17 (2000) Analysis of early age the protection of a Cross (in Coffield 2000) who success and social development 2000 GCSE results, woman’s virginity until marriage concluded about education: into the lives of their children. London Borough of must be maintained; the concept They viewed culture as human Tower Hamlets of ‘boyfriend and girlfriend’ is not ‘Of all of the variables that capital and they claimed that 16 London Borough of Camden (2002) recognised within Islam; sex have been related to Bangladeshi culture hinders Analysis of National outside marriage is strictly educational interest and neither education nor the Curriculum assessments and forbidden and regarded as a great participation, amount of possibility of widening life’s GCSE results by sin which damages family izzat. formal schooling has more opportunities. One female parent ethnicity.

Although Islam does impose influence than any other… In (school teacher) claimed that: 17 F. Coffield (2000) restrictions on social mixing short, learning is addictive; the The Necessity of Informal Learning:The between the sexes, it never, more education people have, ‘Culture is human capital. For Learning Society. however, precludes men and the more they want, and the education and widening life Bristol: Policy Press. women from receiving education; more they will get’ (pp. opportunities … Bangladeshi 18 T. Basit (1997) rather, it grants equal status to 54–5). culture and religion would not Eastern Values, Western Identities and them in pursuit of education and be a problem.’ Aspirations of knowledge.12 Other studies, for The Bangladeshi participants Adolescent British 13 14 Muslim Girls. example Siddiqui and Basit , claimed that their daughters do She further claimed that the Aldershot: Ashgate. suggest that parental restrictions enter into further and higher reason for young women being 19 Iqra Trust (2000) hardly ever obstruct the careers education and also pursue various forced to stay at home was lack Disaffection Amongst and educational choices of their occupational routes, including of appropriate provision and Muslim Pupils: Exclusion and Truancy. daughters; rather, they are able to those of health, social services, certainly not because of culture London: Iqra Trust. match their religious and cultural retail and the law. In their view, or religion. She went on to say 20 P.Desai (1999) values with those of western parents do not put obstacles in that neither culture nor religion ‘Spaces of Identity, culture and make progress the way of their progress in the teaches parents to treat Culture of conflict: 18 The Development of without in any way going against interests of religion or culture . daughters differently; rather it New Asian the teachings of Islam. In fact, Regarding low achievement teaches equal opportunity and Masculinities’, 15 16 unpublished PhD LEAs have highlighted that among Bangladeshi girls, their treatment for all children. If Thesis, Goldsmiths Bangladeshi girls are performing responses were that low Bangladeshi parents can send one College, University of better in school than boys. achievers did not have any daughter to higher education, the London.

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 25 other one can also be sent. been made to recognise the potential of those Parents were understandably proud of their Bangladeshi children whose skills are practical rather children and noted that they were not untalented; than academic in nature.Their language of ‘mouth’ is also that they often possessed very practical skills. In heard but their language of ‘hand’ (their ‘practical their opinion the education system neither skills’) is being ignored. It became evident that for recognised their skills nor honoured their Bangladeshi these groups of parents, Islam is a strong supporter EDUCATION cultures.The parents noted that due to their fears of education for both boys and girls and does not for the personal safety of their daughters in what create a barrier for its followers in their pursuit of they perceived to be crime-ridden and dangerous the benefits of education. Mohammed Lais neighbourhoods, they were likely to encourage their The respondents had strong positive attitudes would like to acknowledge the daughters to stay at home, especially those towards work-related learning.They believed that Research & daughters who were not involved in education, their children could reverse decades of educational Documentation training or employment.20 underachievement by going through a work-related Committee of the learning option at Key Stage 4 (yrs 10 and 11) and, Muslim Council Conclusion on leaving school, be able to choose an option of Britain for their advice and The respondents in this research noted that, instead including going to a college or training course or into support. of having been offered appropriate options by LEAs employment.They accepted work-related learning as to utilise their full potential, many Bangladeshi pupils a blessing for their children that could reduce the have been labelled as underachievers in education, rate of unemployment and increase integration of and as held back by their religion. Few attempts have Bangladeshi young people into the labour market. ❑

frequently attached to those from this ethnic group. Aiming High: The final chapter of the guide draws on the CRE’s Learning for All framework by providing brief audits at the end of each subsection.This is a useful addition for the national teachers who are committed to raising African Caribbean attainment but who may not have the time strategy to read the document in its entirety, and will also be of use to schools when reviewing their Race Equality Policies. 1 Including African To date there has been no single coherent policy that As well as specific checklists for governors and the and Mixed has addressed the under-achievement of African senior management team, there are a number of Heritage pupils. Caribbean pupils.The statistics, published earlier this suggestions for facilitating positive relationships with year, that only 30% of African Caribbean pupils parents and community groups.These include achieved five or more A* to C grades at GCSE (DfES, establishing a parental hotline with guaranteed same- 2003) are but a stark and depressing corroboration of day response and providing clear information about what many academics, parents and many policy- staff and their responsibilities so that parents know to makers have known for years: the education system is whom they can direct their queries. Department failing a large number of Black1 pupils. Whilst considerable and necessary attention is paid for Education It is in this climate that the DfES has launched the to the importance of the relationship between pupils, and Skills national Aiming High strategy, of which this publication parents and teachers, Aiming High also offers ideas on (2003) Aiming is part, aimed at raising the achievement of how the curriculum content can be developed so that High: Raising underachieving minority ethnic pupils, specifically those it reflects the diversity of the population it serves. the Achieve- of African Caribbean heritage and bilingual pupils. Ideas are offered for English, Mathematics, Science, ment of The guide offers some practical advice for History and Geography while Runnymede’s African- supporting African Caribbean students through Complementing Teachers and the QCA’s Respect for All Caribbean teaching and learning practices and a host of website are suggested as avenues for exploring further Pupils. London: additional wider school issues, which includes an examples of work in this area. DfES. examination of governors’ roles and how to establish Schools may also find useful the section describing Further positive, mutually beneficial relationships with parents. which learning styles tend to be most effective for information on The opening chapter of the guide provides statistical African Caribbean pupils, along with the detailed the DfES justification for the need to focus on African lesson plan in the appendices, which lists specific Aiming High Caribbean pupils, and as such examines academic learning outcomes for African Caribbean pupils. strategy can attainment, exclusion data and the roles of gender and Consideration is also given to the multiplicity of be found at social class. Strategies for dealing with teachers and identities that Black students may occupy and how the website parents who might question the need to focus on schools can support the development of positive [www.standard African Caribbean students as a group are delineated identities. The guide concludes with some advice on s.dfes.gov.uk/et in the following chapters alongside a number of recruiting Black teachers and on ensuring that there is hnicminorities]. challenges to commonly held stereotypes and myths representation across all levels of management. ❑

26 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 Black Scientists and Inventors, Book II Michael Williams and Ava Henry London: BIS Publications, 2003 Pp. 40 (A4); £7.99; ISBN: 1-903289-02-5

In this second book of the series,Williams and Henry although this may be REVIEWS provide further accounts of the lives of Black scientists and too limited in scope inventors from the UK,America,Africa and the for students, parents Caribbean. Each biography is accompanied by a series of and teachers wishing BIS Publications comprehension-style questions, the answers to which can to research specific Ltd can be be found at the back of the book. individuals in any contacted at PO Rather excitingly there are some basic, interesting depth. Box 14918, practical experiments that readers might wish to explore. The book includes scientists and London N17 8WJ The publication also offers quite an extensive glossary of inventors and significant events from 2980BC to the late [email: key terms and words, though some of the language is too 1990s, and though it is not clear how the authors have info@bispublicatio advanced for the younger age group, at which the book is selected those for inclusion, they can be commended for ns.com]. aimed, to read without assistance. drawing attention to a frequently dormant area of Black The timeline provides a useful one-page summary of history. ❑ key events described throughout the book and the Nicola Rollock bibliography lists some suggestions for further reading, Runnymede

Black Women’s Experiences of Criminal Justice. Race, Gender and Class: A Discourse on Disadvantage By Ruth Chigwada-Bailey Winchester: Waterside Press, 2003, 2nd edn Pp. xviii + 160. £18.00. ISBN: 1 872 870 52 X

Ruth Chigwada- and judges.The author was concerned to explore ‘whether Bailey’s Black Women’s any differences in treatment accorded to women of Experience of Criminal different races might be attributed to rules, policies or Justice (2003) is a directives within organisations, or to institutional or welcome follow-up to individual racism’. the first (1997) edition The book raises awareness of issues around of the book.At the time of first publication it was one of discrimination that are not instantly identifiable, and this few academic authorities in this area, and its explorations of revised version brings into the picture all relevant Home race, gender and class were widely used by students and Office research and initiatives up to early 2003. Its academics alike.This revised, extended and updated edition extensive bibliography is an excellent starting-point for is also a good source of comparative information for any further reading and research, but the strongest voices, the changes that have taken place since 1997. ones still demanding to be heard, remain those of the The book examines the way in which black women women ‘trapped in the system’. ❑ interacting with the criminal justice system are doubly Natasha Conhye disadvantaged by their being women and black:‘the Runnymede Intern unique social, cultural and economic experience of black women has been overlooked’ as for most purposes they ‘remain subsumed within those of black men or are Criminology in the New Millennium Conference homogenised with those of white women’. XIV: Race, Gender and Criminal Justice Process Ruth Chigwada-Bailey looks at why and how black women end up on the wrong side of the law – examining St Alban’s Centre, Baldwin’s Gardens, Holborn, London EC1 statistics, problems in policing, sentencing, courts and 28 May 2004 lawyers. But most of all she focuses on the sometimes Organised by Ruth Chigwada-Bailey, the 2004 conference in the CNM traumatic experiences of the women themselves within series, will be chaired by Michael Gordon, and addressed by Courtnay the prison system of England and Wales.A substantial Griffiths QC, Deborah Coles of Inquest, UK, Professor Yaw Ackah of amount of the material for the book is derived from Delaware State University, Dr Dele Olajide of the Maudsley Hospital, London and Annell Smith of the London Probation Area. extensive interviews with black women who had been in prison, and who were able to speak of their first-hand For further information and booking details, contact: experiences with the police, customs officers, solicitors, Ruth Chigwada-Bailey at 98 Aldridge Avenue, Stanmore, Middx HA7 1DD prison officers, barristers, probation officers, magistrates [Tel/Fax:020-8204-9587; email: [email protected]]

RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 27 CONTENTS The Real Histories Directory Arts & Society: Unlocking the UK’s diverse cultural heritage. A Sense of Place Michelynn Lafleche 1 Arts for Social Change Marion Vargaftig The website for the new Real Histories Directory is now well + Comments from Alex Rotas 3 BLACK under way. Users will be able to access information on culturally Migration: HISTORIES relevant organisations across the UK by searching by age (Key Old Boots and New Brooms Stage), subject area, local education authority or resource. Users Liza Schuster 5 are also invited to submit resources that they feel may be of National Census: interest to others. In this way we hope that the directory will Comment from Dipak Nandy 7 continue to grow and be of direct benefit not only to teachers Constituency First Omar Khan 8 and pupils interested in diversity issues but also to the wider Jim Rose Lecture & Runnymede Archive: community. At the Jim Rose Inaugural The Real Histories Directory provides a unique opportunity Address by Anthony Lester 12 to encourage teaching and learning about diversity for all ethnic Civil Renewal: communities across the UK. It will be formally launched at the Invoking Community joint GLA, LMAL and Runnymede Trust conference – The Black Vic MacLaren 15 British History Experience? - on Wednesday 28 January 2004 (see Equalities: below). Human Rights – Time to Embrace We are grateful to LWT and The Calouste Gulbenkian a New Agenda? Rob Berkeley 17 Foundation for their support of this project. Back to the Drawing Board? 18 New Commission for Equality and Human Rights Task Force 19 Runnymede Parliamentary Monitor: Team: University Top-up Fees The Black British Omar Khan & Rob Berkeley 20 Michelynn Europe: Laflèche History Experience? Religious Discrimination in the EU Director Mohammed Aziz 21 Rajiv Anand Education: The Role of Museums, Archives and Libraries Project Bangladeshi Educational Underachievement Coordinator Wednesday 28 January 2004 (Youth and Arts) Mohammed A. Lais 24 Committee Room 4, City Hall Aiming High 26 Robert Reviews 27 Berkeley The Queen’s Walk, London SE1 2AA The Real Histories Directory 28 Senior Research and Policy Analyst This venue will host a conference which aims to explore way of developing and making accessible a critical body of Bulletin No. 336, December 2003 Filiz Caran ISSN 1476-363X Projects Officer Black History. In particular it will discuss and try to provide answers to some of the recent debates around the role of Sarah Isal In 2004,The Bulletin, Runnymede’s Research and Black History Month as a vehicle for museums, archives Quarterly newsletter,will be Policy Analyst and libraries and the wider cultural sector. published in the months of March, (Europe) June, September and December by: With speakers and panellists that include: Lee Jasper, Omar Khan Stella Dadzie, Dr Hakim Adi, Darryl McIntyre, S.I Martin, The Runnymede Trust The London Fruit & Wool Exchange Policy Researcher Mike Phillips and Celia Watson, this event will look at Suite 106, Brushfield Street, (Consulting) ‘Putting the British back into Black History‘, ’Revealing London E1 6EP Tel: 020 7377 9222 Fax: 020 7377 6622 Nicola London’s Black History’ and ‘Evaluating Black History Email: [email protected] Rollock Month: history versus heritage?’ Url: www.runnymedetrust.org Research and Policy Analyst Annual subscription in 2003 is £25.00 (Education) This one-day conference, at which Runnymede’s Real Histories Ros Spry Directory will be formally launched, is an LMAL Cultural The Runnymede logo was Publications Diversity Network Event, with the Network being supported by designed by Four IV Design Consultants. Other design Editor Resource, through LMAL, to ‘encourage the development of elements were originated by Four IV and developed Kings Mill better and more relevant services for minority ethnic by St. Richards Press. Partnership communities within libraries, museums and archives‘. Typeset and printed by: Accountancy St Richards Press Ltd. Services Leigh Road, Chichester, West Sussex PO19 2TU. 28 RUNNYMEDE’S QUARTERLY BULLETIN DECEMBER 2003 Tel: 01243 782988 Copyright © 2003 Runnymede Trust and individual authors. The opinions expressed by individual authors do not necessarily represent the views of the Runnymede Trust.