Immigrant Council of Ireland O N S PEAKING T On Speaking Terms ERMS examines models for introductory and language programmes for migrants in the Republic of Ireland. I The report considers approaches to introductory and language NTRODUCTORY AND programmes which have been implemented in countries such as ON the Netherlands, Germany, Sweden, Austria, and Canada and examines how these approaches might be relevant SPEAKING TERMS to Ireland’s future integration strategies. Some recommendations are presented for introductory and language programmes in Ireland that would enable migrants L to participate more fully in Irish society and continue to contribute to ANGUAGE INTRODUCTORY AND the development of Ireland as a successful country of immigration. LANGUAGE PROGRAMMES FOR MIGRANTS IN IRELAND The Immigrant Council of Ireland is a national, P ROGRAMMES FOR independent non-governmental organisation that promotes the rights of migrants through information, legal advice, advocacy, lobbying, research and publications, as well as training work. The organisation was set up by Sr Stanislaus Kennedy in 2001 in response to a need to support migrants coming to Ireland for purposes such as work, study, family reunification, self-employment or to visit. M IGRANTS IN IMMIGRANT COUNCIL OF IRELAND 2 ST ANDREW STREET, DUBLIN 2, IRELAND I RELAND Information & Support Service: Tel: +353 1 674 0200/Email: [email protected] Administration: Tel: +353 1 674 0202/Email: [email protected] Website: www.immigrantcouncil.ie On Speaking Terms Introductory and Language Programmes for Migrants in Ireland Dr Claire Healy Written by: Dr Claire Healy Research Consultant Published by: Immigrant Council of Ireland 2 St. Andrew Street Dublin 2, Ireland Information & Support Service: Tel: +353 1 674 0200 E-mail: [email protected] Administration: Tel: +353 1 674 0202 E-mail: [email protected] Website: www.immigrantcouncil.ie Edited by: Orla Parkinson Cover design by: Dermot O’Connor & Associates Ltd Cover Photographs: Derek Speirs Printed by: Four Print Ltd ISBN: 0-9545496-5-1 © Copyright 2007. Immigrant Council of Ireland. No part of this book may be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopying, recording, or by any information storage and retrieval systems, without written permission from the publisher except for brief quotations used in critical reviews. The information in this publication is provided in good faith and every effort has been made to ensure that it is accurate and up to date. The Immigrant Council of Ireland (ICI) disclaims any responsibility for errors and omissions in the text. Any person relying upon this publication or using it in connection with any legal matter shall be deemed to have accepted these terms of use and shall not hold the ICI liable for the use or misuse of this publication or of any of the information contained therein. About the Author Dr Claire Healy has a BA (International) in History and German, and was awarded a PhD in History by the National University of Ireland, Galway, for her dissertation on Migration from Ireland to Buenos Aires, 1776-1890. In 2004, she was awarded the Eoin O’Mahony Bursary by the Royal Irish Academy, and the Irish Argentine Historical Society Research Grant. She is Associate Editor of the electronic journal Irish Migration Studies in Latin America. Claire currently works as a Research Consultant, with experience in researching immigration, and migration and refugee policy. She also works as a translator and interpreter in German, Spanish, French, and Portuguese. TABLE OF CONTENTS Foreword vii Preface ix Acknowledgements xi Executive Summary 1 Introduction 7 Chapter 1: Context 9 Irish Policy Developments 9 Integration 11 Chapter 2: Rationale 15 Quality of Life of Migrants 15 Irish Society 17 Chapter 3: Economic Investment: ‘Downstream Savings’ 21 Benefits to the Irish Economy 21 Scale of Programme 24 Clients for the Programme 27 Chapter 4: Experiences Abroad: Europe 31 Migration, Language and Integration in the EU 31 The UK 34 The Netherlands 35 Sweden 37 Norway 38 Denmark 39 Finland 40 iii Austria 41 Germany 42 France 45 Spain and Portugal 46 Chapter 5: Experiences Abroad: North America and Australasia 49 Canada 49 The US 51 New Zealand 52 Australia 54 Chapter 6: Existing Capacity in Ireland 57 Overview 57 1. CÉIM at Spirasi, Dublin 7 60 2. Integrate Ireland Language and Training, various locations. 61 3. Vocational Education Committees (VECs) 62 4. Pavee Point, Dublin 1 65 5. SIPTU Basic English Scheme, Dublin 1 66 6. Access Ireland Refugee Social Integration Project, Dublin 1 66 7. The Friends Club, Galway City 67 8. Warrenmount Community Education and Development Centre, Dublin 8 67 9. Catherine McCauley Centre, Dublin 4 68 10. Polish Information and Culture Centre, Dublin 1 68 11. NASC - The Irish Immigrant Support Centre, Cork City 69 Chapter 7: Recommendations 71 General Recommendations 71 Conclusion 93 iv Appendix A: Consultation 95 Appendix B: Glossary 97 Appendix C: Bibliography 101 Appendix D: Endnotes 125 v vi FOREWORD According to the FÁS Quarterly Labour Market Commentary, First Quarter 2007, ‘[i]mmigration continues to be a major source of labour supply, with non- nationals now accounting for almost 11% of the labour force and over half of the increase in last year’s jobs. The ability of the labour market to absorb the large inflow of migrant workers bears testimony both to the strength of the labour market and the employability of the migrants’. The presence of migrant workers and their families is perhaps one to the most obvious signs that Ireland is a modern pluralistic society. In this context, participation and integration are significant challenges facing Irish society. The use of English as a common language is to the forefront of these challenges. Knowledge of the language of the country in which individuals have chosen to reside, regardless of the length of their residency, is crucial to their successful participation and integration into the new society. Providing an opportunity to acquire even a basic knowledge of English language assists this process. Under the National Action Plan Against Racism 2005–2007, the Irish Government has committed itself to developing an ‘integration strategy’ within an intercultural framework. It defines integration as a two-way process, ‘that places duties and obligations on both cultural and ethnic minorities and the State to create a more inclusive society’ (DJELR: 2005). This is reinforced in Towards 2016, the ten-year framework for Social Partnership, which includes as a shared overall goal ‘deepening capabilities, achieving higher social and economic participation rates and more successfully handling diversity, including immigration’. Consequently, the integration of migrants, including those for whom English is not their first language, is a challenge that Irish society is beginning to address. This report draws on a wealth of national and international research, policy, and experience on integration, language, and migration. It presents research analysis on the necessity for introductory and language programmes with reference to the practical implications of a lack of linguistic and general knowledge for long-term and temporary migrants. It describes programmes that have been undertaken by a number of countries, including the Netherlands, Germany, Sweden, Australia, and Canada. Its development also involved broad consultation among service providers, representatives of migrant groups, statutory representatives, trade unions, and experts in the field of migrant integration. It concludes that language development in Ireland demands new tools, new interagency commitments (to ensure durable solutions), new strategies, new thinking, and new partnerships, and offers many practical recommendations to assist this process. This is a valuable and comprehensive work that provides analysis and insight into the language and integration agenda. Its analysis and recommendations provide rich material for consideration by all stakeholders on some of the vii complexities around language provision for those for whom English is not their primary language. It is a significant contributor to this debate, and I would like to thank the ICI and Dr Claire Healy for undertaking it. Shira Mehlman Director Social Inclusion FÁS May 2007 viii PREFACE According to the most recent census in Ireland, migrants account for ten per cent of our population. Today’s migrants play a vital role in our society, fuelling our social, economic, cultural, and civic life. However, despite their vast contribution to Ireland today, some migrants may face challenges that prevent them from becoming full, contributing members of society. Limited English proficiency is recognised by policy-makers as a key challenge facing some migrants and their families. Through our services, the ICI is aware of how limited proficiency can result in the isolation of migrant families from the larger community, preventing them from interacting with their neighbours, engaging in civic life, and becoming integrated into their new community. In addition, as highlighted in international research, we have seen a correlation between limited proficiency in the language of the country of residence and the vulnerability and exploitation of migrants. Limited language proficiency prevents migrants from accessing their social and legal rights, particularly in situations of maltreatment and abuse. These situations can be exacerbated