Memorandum by the Advisory Board on Naturalisation
and Integration
1. The Advisory Board on Naturalisation
and Integration (ABNI), is an advisory non departmental public
body established in November 2004 to advise the Government on
the implementation and assessment processes of the requirements
set out in Nationality Immigration and Asylum Act 2002, that applicants
who apply for settlement and British Citizenship should show an
understanding of English and Life in the UK.
1.2 ABNI agrees with the definition of community
cohesion adopted by the Commission on Integration and Cohesion
and believes that knowledge of English can play a positive influence
on integration and community cohesion. We have agued that a flexible
and adequate provision of ESOL is needed to achieve these policy
aims.
1.3 Whilst, the focus of ABNI's work has
been on aspirant British citizens and people seeking to settle
permanently in the UK, the journey a person takes before settlement
and citizenship will impact on their integration and consequently
on the communities in which they live. This is particularly the
case in relation to the English language, where evidence shows
that learning English soon after arrival is more effective than
doing so at a later stage.
1.4 Whilst the focus of publicly funded
ESOL resources should continue to be on migrants planning to remain
in the UK long term, it is important that creative solutions are
found to ensure that all migrants with English language needs
have the opportunity to access classes. For example, the employers
of migrant workers should bear a greater responsibility for supporting
the English language needs of their workers.
2. THE EFFECT
OF RECENT
INWARD MIGRATION
ON COMMUNITY
COHESION, AND
PUBLIC CONCERNS
ABOUT THE
EFFECTS
2.1 At the level of public services, demand
for ESOL classes has soared leading to competition for classes
and long waiting lists in many areas. Practitioners in Cardiff[1]
report that due to the inability to access the most appropriate
provision, migrants have sought to access courses at a less appropriate
level with the resulting mismatch causing disengagement by fellow
learners. Whilst this issue has been recognised and action has
taken to ensure that learners are placed in classes appropriate
to their needs the impact of this is only to increase the waiting
lists as there is not the level of ESOL provision to meet the
demand.
2.2 In a recent report about the impacts
of migration in local authorities across England by the Local
Government Association (LGA)[2]
language was identified as one of the key issues faced by local
authorities. This related to basic information needs, translation
and interpretation, supporting complex advice needs and communicating
in emergencies. The report also pointed to an insufficient provision
of ESOL (English language teaching) to meet the increasing demand,
stemming from a shortage of teachers and funding rules.[3]
Councils surveyed for this report also commented on the inability
of A8 nationals to qualify for free lessons.
The diversity of some areas has increased significantly,
In Kensington, Liverpool the BME population increased from 4.7%
in 1991 to 18% in 2004 and now estimated to be over 22%. The new
arrivals are mostly migrant workers and asylum seekers.
Under the new funding arrangements, migrant workers
don't have access to free provision, and asylum seekers only after
six months if their asylum claim is still pending.
Recently arrived asylum seekers who are not allowed
to work or attend ESOL classes are therefore unlikely to be able
to relate to the local community, where they must spend all their
time.
Migrant workers, many of whom are on minimum
wage and working long hours, are unable to access ESOL classes,
which they cannot anyway afford, and for which there are waiting
lists, and therefore they are inclined to mix only with their
own language community.
The cultural and linguistic diversity of the
community is continually evolving. The range of educational and
employment experience is also increasing. (The local Liverpool
born community has generally lower education and employment levels).
This has caused tensions in the local community, which is identified
as one of the poorest areas in Europe.
2.3 Whilst many local authorities have been
able to demonstrate flexible and responsive approaches to new
migration, there is an urgent need to address the issue of appropriate
levels of funding to enable them to meet the changing needs and
demands; in turn, services need to keep pace with changing demographics
and population.
3. THE ROLE,
RESPONSIBILITIES AND
ACTIONS OF
DIFFERENT BODIES
ON COMMUNITY
COHESIONS AND
MIGRATION, INCLUDING
THOSE OF
LOCAL AND
CENTRAL GOVERNMENT
AND OF
EMPLOYERS
3.1 Many local organisations have a vital
role to play in contributing towards community cohesion and integration.
This role has been explicitly recognised as regards public authorities
as they have specific duties under the Race Relations (Amendment)
Act 2000.
3.2 Local FE colleges as the centres of
ESOL training are in the "front line" for new arrivals
in particular, as they are often the first official agency encountered.
ESOL teaching-staff give support and help to new arrivals and
referral to other agencies, and we believe that this should be
recognised in funding. Along with schools they provide opportunities
for social interaction and joint activities amongst adults and
young people from different communities.
3.3 Given the vital importance of employment
in the integration process, we also consider that employers should
do more both to recruit and train people from excluded communities,
and in the case of new immigrants, to provide or facilitate language
training and other integrative support.
3.4 Citizenship ceremonies currently organised
by local authorities provide an excellent opportunity to link
new and existing British citizens and could be broadened to involve
a wider representation of the local community.
3.5 Local authorities can also play an also
important role through Citizens' Days by linking new migrants
to their local communities by providing information about the
local area, including services and opportunities for local volunteering.
3.6 ABNI believes that some of the pressure
for English language classes could be alleviated by employers
taking responsibility for the language needs of migrant workers.
3.7 Some employers have demonstrated good
practice with regard to supporting the English language needs
of migrant workers:
3.8 Moy Park, a poultry processing manufacturer
in Northern Ireland ensures that documents such as instructions,
handbooks, induction and training records and contracts are translated
into first languages. English classes are provided free of charge
on site and provision of free English classes off site is advertised.
3.9 Noon Products (whose Chairman Sir Gulam
Noon is an ABNI member) manufactures ready-made Indian meals for
supply to supermarkets. The company holds free ESOL classes on-site.
3.10 Bernard Matthews Foods Ltd, is the
largest turkey processor in Europe and based in East Anglia employs
a large Portuguese workforce, employs bi-lingual interpreters
and provides language training on site.
3.11 ABNI believes that large employers
of migrant workers should be encouraged to follow the example
of the organisations cited above. We argued in our response to
the proposed points based immigration system ("A points-Based
System: making Migration Work for Britain" Home Office. TSO
March 2006) that the provision of language training should be
one of the criteria for being rated as a Grade A sponsor.
3.12 In a survey of 223 employers of migrant
workers for a report about the economic impact of migrant workers
in the West Midlands,[5]
the majority of employers cited English language skills as important
when employing migrant workers. Over three-quarters of employers
in the sample indicated that migrants' English language skills
were adequate or better than needed to do the job that they were
employed for. This could help to explain why the majority of employers
did not provide English for Speakers of Other Languages (ESOL)
training or provide other help with English language skills for
those workers whose English language skills needed further development.
However, the report also found that migrant workers were interested
in improving their English and in learning and skills development
more generally. It also noted that English language skills were
important for employment progression, engagement and social integration.
4. THE ROLE
OF THE
ENGLISH LANGUAGE
AS A
TOOL IN
PROMOTING THE
INTEGRATION OF
MIGRANTS
4.1 ABNI believes that language is essential
for economic and social integration and that exposure to language
training as soon after arrival as possible is the most effective
means of achieving this.
4.2 Meaningful social interaction between
different ethnic groups is more effective at building good relations
and fostering understanding between different groups than other
more formal means yet language is cited as one of the reasons
why this does not happen more often.[6]
4.3 In addition, lack of proficiency in
English impacts on the entire family group. Children's levels
of educational achievements are directly correlated with parents'
ability to communicate in English and their levels of educational
achievements. The current low levels of achievement among some
ethnic minority groups are a cause for concern for the government
and education providers across the UK.
4.4 Due to the role reversal that can result
where children who become proficient in English become advocates
for adults with poor English, this can lead to social and cultural
issues that can manifest as cultural clashes between generations
within families and in the wider community.
4.5 Lack of sufficient levels of ESOL perpetuates
the high level of need for interpreting and translation services.
The rising cost of translation and interpreting services has been
recognised by many public authorities.
4.6 Given the importance of English language
as a tool for promoting integration and cohesion, ESOL funding
needs to maintained and increased to support stable and sustainable
improvements in quality provision. This should be part of the
Government Skills for Life commitment to level 2 for all.
4.7 In addition, local Learning and Skills
Council's need to continually re-assess local needs with reference
to demographic changes and needs. The Government programme, Train
to Gain, should be extended to include ESOL tuition.
4.8 The ancillary costs of training need
to be addressed for example child care and travel as well courses
in literacy and numeracy.
5. ACTIONS TAKEN
TO FORWARD
THE COMMISSION
ON INTEGRATION
AND COHESION'S
RECOMMENDATIONS RELATING
TO MIGRATION
5.1 In their final report,[7]
the Commission on Integration and Cohesion recommended "that
there is a national body to manage the integration of new migrants,
sponsored by the DCLG, but independent of Government. The model
might be that of ABNI, sponsored by the Home Office, but an independent
voice in the debate".
5.2 The report envisaged that this body
would:
5.3 Clarify the objectives of a strategy
for new migrants (ie temporary and permanent, family members,
labour migrants, refugees and students) to focus on employment,
social and democratic engagement, good community relations, access
to essential services, and cultural diversity.
5.4 Baseline the evidence, clarifying current
evidence and building an evidence base of local population changes.
Working with ONS and others to improve understanding of migrants'
motivations and address issues of information.
5.5 Consolidate and take forward the good
practice work being developed by IDeA, setting up a helpline for
local practitioners to access advice, and staffed with specialist
support teams who could be called out to areas to offer support.
5.6 Provide guidance on how to work with
settled communities in areas experiencing high immigration.
5.7 Explore whether asking new migrants
(from EU or elsewhere) to attend the local town hall on arrival
to register at the local town hall.
5.8 Secure the buy-in and joined up policy
making from Whitehall and the Third Sector; acting as a catalyst
for policy development, and an independent voice for new migrants
and those in settled communities experiencing rapid change.
5.9 ABNI believes there could be a role
for a new body. The particular strengths of the new body would
be in its ability to coordinate and communicate with local authorities
and advise on good practice on matters of community cohesion.
The new body should not duplicate existing arrangements but rather
act as a medium for communication from the existing bodies through
to local areas and back.
5.10 The new body could advise local authorities
in relation to:
— Information, for new migrants and
existing communities.
— Resources for service providers.
— Intercultural dialogue.
— Community Safety and Policing.
5.11 The new body could collect and disseminate
good practice with regard to the above and share information about
relevant national and other local contacts.
5.12 ABNI has recommended to the DCLG, that
a draft strategy is produced for consultation which sets out policy
and structural options for taking this recommendation forward.
ABNI believes the Migration Impacts Forum which is chaired by
the Home Office and DCLG should be tasked with this responsibility
for developing the strategy.
1 ABNI Board member Samina Khan and Helen Adams, Cardiff
Essential Skills Service. Back
2
Estimating the scale and impacts of migration at the local level,
LGA November 2007. Back
3
Estimating the scale and impacts of migration at the local level
pg 45, LGA November 2007. Back
4
Comment by Jan Luff, ABNI Board Member and Former head of ESOL
at Liverpool Community College. Back
5
Migrant workers in the West Midlands, West Midlands Regional Observatory,
November 2007. Back
6
Mori 2006, CRE 2006. Back
7
A Shared Future, Commission on Cohesion and Integration 2007. Back
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