MEMORANDUM SUBMITTED BY JANE LANE
The following
comments are made from a perspective of racial equality. I make them as a
result of my long experience of working on racial equality in the early years
field. (*see below for details).
I strongly
endorse the response made by the Black Voices Network.
I have written
a longish introduction because I wanted to set the context, as I see it, first.
A. Summary
These comments draw attention to the implications of the specific
Inquiry points and the importance of children's centres in
· recognising and taking account of
their statutory duties under the Race Relations Act (RRA)
· implementing racial equality for all
staff, children, their families
· taking specific action with children
to promote the learning of positive attitudes and behaviour to differences
between people and the unlearning of any negative ones
· recognising the need to really
understand what racism is (including institutional racism), in order to be able
to fulfil their duties
· accessing or intiating effective
training for all workers to unpack the myths about racism and its implication
for their work
· considering ways of providing serious
opportunities for workers to talk openly and honestly about racism in the
context of wanting the best for every child - and the implications of that for
every worker.
It suggests
that government should consider how an understanding of the reality of racism
might best be facilitated across the early years field.
B. Introduction
1. The
majority of the issues that the Committee is investigating about Sure Start
children's centres have implications for racial equality. Equality, including
racial equality, is a fundamental and integral part of the work of all
children's centres. There cannot be good quality provision without it.
Statutory
duties on racial equality
2. Children's
centres have a particularly important and significant role in the field of
early years provision, with regard to ensuring racial equality, in that,
compared with voluntary, independent and private (VIP) sector provison, they
have a statutory duty to comply with the requirements of the Race Relations
(Amendment) Act 2000. This duty requires
them to eliminate unlawful racial discrimination and promote equality of
opportunity and good relations between persons of different racial groups.
While all early years settings (in all sectors) must not discrimnate unlawfully
on racial grounds, this specific duty has particular implications for the
policies, procedures and practices of children's centres.
Role
of children's centres to ensure racial equality
3. Complying
with the Race Relations Act is but one aspect, although a critically important
one, of ensuring race equality in children's centres. Wherever children's
centres are sited and however they are organised, the quality and effectiveness
of what they offer and what they do in all aspects of their work determines
whether they are putting racial equality into practice. It determines whether :
· black and other minority ethnic
children and their familes are accessing and benefitting equally from what the
centre offers
· members of black and other minority
ethnic communities are treated equally in recruitment and employment (including
promotion, access to training, career advice and other benefits)
· all children learn positive attitudes
and behaviour to those whose cultures, ethnicities, skin colours, appearances,
languages or religions/beliefs are different from theirs.
4. There
is substantial research evidence over 50 years showing that children notice
skin colour differences by the age of 3 and, unless specific countervailing
action is taken, white children are likely to place negative values on skin
colours different from their own (references to the research listed in Lane
2008). They are learning to be racially prejudiced. In similar ways, some black
and other minority ethnic children may learn to see their own skin colours as
less valued, less worthy than those of white people (see evidence cited in the
response to this Inquiry from the Black Voices Network).
5. Hierarchies of skin colour differences, white generally being
regarded as superior and more desirable, are a worldwide phenomenon. A critical
task for children's centres, in order to put racial equality into practice, is
therefore to counter this negative learning process with young children and
their attitudes to skin colour and other ethnic/cultural differences -
unlearning as referred to in the EYFS.
The
cause of racial inequality : racism
6. Racism is
the underlying cause of the racial inequality in our society. In order to
address the points identified in paragraph 3 above, it is therefore essential
to understand the direct relationship between racism and racial inequality.
Some aspects of what is necessary to be done are covered in the Early Years
Foundation Stage (EYFS).
But, like many
other people, many workers in children's centres neither understand nor accept
that racism, the cause of racial inequality in the first place, is deeply
entrenched in our society. Although it is not surprising, given Britain's history,
this lack of understanding has implications for their work. They are more
likely to see racism as external to their lives - overt violence, harassment,
abuse and racist organisations/marches - none of which they support or take
part in. They know that racism, in principle, is unacceptable in their work
situations. But they are largely unaware of the more subtle and damaging
aspects that might exist in their centres - assumptions, sterotypes, judgements
and (as the Stephen Lawrence Report states in its definition of institutional
racism), 'unwitting prejudice' and 'thoughtlessness'. Importantly, they
are seldom aware of what institutional
racism itself means. They do not make the link between it and its implications
in their work situations.
7. This is not
in any way about blame. It is one of the inevitable legacies of Britain's
history - many facets of racism remain unknown and often misunderstood or
denied. A detailed discussion of what racism is, and is not, in the early years
field is given in Lane (chapter 2, 2008)
Consequently,
it is understandable, if regretable, that some workers (leaders, managers and
practitioners) may see the statutory duties of the Race Relations Act, among a
range of many other requirements with which they must comply, as being an
unnecessary burden. But complying with these duties, while initially perhaps
being perceived as burdensome, is an essential part of the basis of good
childcare/education practice. There cannot be good quality without equality
being put into practice. Once the principles of what is required are
established they can be seen as a fundamental part of what is done to ensure
every child, every family, every member or potential member of staff or
volunteer is treated equally. As such they can then be seen as no more
burdensome that any other aspect of the centre's practices.
8. There is,
however, a real difficulty for many workers in understanding what racial
equality means in practice. They can see why it is important to incorporate
certain practice into their work - including, for example, dealing with racist
incidents, having resources that accurately reflect our society, appointing
staff from black and other minority ethnic communities - but they may not deal with these issues
constructively or appropriately because of their lack of understanding of how
they are manifestations of the wider aspects of racism in the first place. They
do not see the connection between the racism in our society and what is
happening in their centre.
In similar ways
to their viewing of compliance with the statutory duty under the Race Relations
Act as burdensome, and for the same reason - the lack of understanding of what
racism is - they may see specifically creating an antiracist approach to their
work as meaning that somehow they are not already caring deeply for every
child. Understandably, their defence mechanisms about their present practice
may come into play.
It is,
therefore, a vital task for workers in children's centres to understand racism
in order to be in a position to get rid of it and its damaging consequencse for
all children and their families.
Getting
rid of racism in children's centres
9. Getting rid
of racism is much more than addressing examples such as those cited above,
paragraph 8, important as that is.
In order to get
rid of racism it is essential to first understand what it is, what its origins
are and how it manifests itself in present day society, particularly
institutionally. (In this sense, children's centres are institutions). Only
then can workers really know how to deal with its consequences realistically
and know why it is an issue of concern for them. With this knowledge and
understanding comes a confidence of how to deal with all the facets of racism
that the Race Relations Act, the EYFS and OFSTED require to be addressed. It
removes the burden of not knowing what to do and being apprehensive about
putting racial equality into practice. I wrote my book to try to make these
links and facilitate this knowledge and understanding. (It has had excellent
reviews from all parts of the early years field [see attached]).[1]
10. The gap
between understanding and not understanding what racism is, is manifested
across the whole early years field including national and local government,
higher and further education instituitions and children's centres. This is
epitomised by a report from the DfES, about racial equality and black
exclusions from school, distinguishing between those that 'get it' and those
that 'don't get it' (Wanless and others, 2006). Significantly those who 'don't
get it' view policies (on racial equality) as an 'unfair/pointless/bureaucratic
burden'. In this sense the early years field is similar.
11. The reality
of racism is seldom seriously discussed in society. Discussing it has a history
of making many people, especially white people, feel guilty, apprehensive and
fearful of having fingers wagged at them amid accusations of 'being called a racist' - racism awareness courses
in the eighties and the present day controversies about the use of 'racist'
words are examples of this. Early years workers are no different from most
other people - they are likely to avoid any potential confrontations and, so
far as possible, leave the topic alone. For a variety of reasons - the
influence of the media, their own knowledge that racism is wrong and the myths
surrounding it - the subject, for whatever reason, is almost taboo. This means
that racism and all its consequences are not addressed in any strategic and
serious manner (see Lane 2006 for an analysis of the present situation and the
barriers to racial equality at all levels).
Understanding
racism - existing training courses and policies are seldom effective?
12. Resulting
from legislation and a recognistion that British society is multicultural,
various training courses have been run to support workers in implementing
racial equality. Although they have not been critically evaluated, their
effectiveness in enabling participants to understand racism and hence be more
effective in their work situations has not, as yet, been substantiated.
13. It is well
known that in-service training courses about racial equality have low
attendance rates. Where courses are mandatory, participants (unless very well
prepared beforehand) often attend reluctantly, possibly feeling 'got at' and
thereby creating barriers to receptivity and making serious consideration of
the issues less likely.
Even high level
training courses that the government has so rightly initiated - early years
professional status, leaders and managers and integrated centre leadership and
early childhood studies courses - themselves rarely address racism or
institutional racism.
Most courses,
if anything, are one-off sessions that may help those who are receptive. But
there is little evidence that they facilitate the possibility of understanding
racism.
Although there
has been a vast improvement in government policy guidelines, seldom do they
address racism. Similarly very few books used on training courses define the
Race Relations Act accurately or discuss racism. A few early years journals
bravely tackle the subject but most avoid it.
14. This gap
across all training and government
policies reinforces the lack of understanding about racism overall. In
children's centres I think the reason for this gap is that they have never had
a serious opportunity to talk about issues of racial equality - either in their
initial training or in the context of their work. They have never had an
opportunity to reflect on it, and its implications for them personally and to
talk openly and honestly with one another, within an ethos of trust, no blame
and sensitive awareness of individual potential vulnerablity.
15. Everyone
comes to work in the early years field with their own attitudes, personal
identity and experiences, life history, educational and family background,
economic and living circumstances, language, ethnicity and culture. People with
such a range of differences cannot be expected to come together to discuss and
resolve complex and historically implicated issues of racial equality with
equanimity in a short period of time. What is needed is an opportunity, over
time, to break down misunderstandings and discuss the varities of experiences
that influence lives in Britain
today.
16. It is
becoming more and more apparent to me and to many others working for racial
equality in the early years field that the vast majority of training courses
and seminars, given their very limited duration, cannot be expected to provide
participants with a key to an understanding of racism. Time to reflect, to
consider and to unlearn long held attitudes is the essence to this
understanding. This is a salutory conclusion because time is a limited comodity
for early years workers and trainers.
17. It is
essential to identify the problem before being able to suggest a solution. If,
as I (and others) believe, understanding racism is the key to implementing
racial equality, then one solution must be in more effective opportunities to
talk about it. There are a few courses that give participants opportunities to
re-evaluate their perceptions. One is More is Caught Than Taught - an innovative programme, over a period of
time, that provides such opportunities in a safe and sensitive context to
explore what wanting the best for every child means for each person working
with young children. Inevitably the constraints are time and cost. But over the
ten years of running such courses, the course evaluations have exceeded all
expectations in enabling participants to better understand institutional
discrimination generally, including the critical importance of an antiracist
approach to their work.
18. The barrier
to recognition and acceptance of the reality of racism across the
childcare/education field (in training and provision) has significant
implications for children's centre work. A vital task in order to put racial
equality into practice, a statutory duty, in all children's centres is
therefore to address this barrier. The reality of racism has first to be
understood in order to remove the feelings of discomfort, anxiety, guilt and
apprehension - feelings that are so readily apparent in children's centres.
C. Issues briefly identified in
order for children's centres to comply with their 3 statutory duties under the
Race Relations Act
19. Eliminating unlawful racial discrimination
· identify and remove any racial
discrimination
· monitor by ethnicity all recruitment,
employment and promotion practices and access to any other benefits
· evaluate the data and take action with regard to any apparent
discrepancies
· observe and record children with
regard to their access to the available learning resources and activities.
20. Promoting
equality of opportunity
· deal with all forms of prejudice
constructively and sensitively
· address racial hierarchies of skin
colour, language, culture, ethnicity
· use the National Strategies/DCSF
publication focusing on Black children to implement racial equality
· provide resources and reading material for workers to
instigate discussion on racial equality
· involve family members and members of the local
community in discussions about racial equality practice
21. Promoting
good relations between persons of different racial groups
· plan strategies to talk and discuss
differenceswith children in positive ways, including in mainly white and rural
areas
· develop ways to work with children on
learning positive attitudes and behaviour to differences between people and
unlearn any negative ones that they may have already learnt - for example, by
using Persona Dolls
· work with all children to break down
concepts of tracil prejudice
· wherever possible, engage with
families and local community members/groups, monitoring groups to break down
barriers caused by prejudice and to support those subjected to prejudice and
discrimination.
D. Questions posed by the Select
Committee
Do
children's centres promote early childhood development?
22. Such
development is limited when racial prejudice and discrimination are present. To
ensure opportunities to the best developmental circumstances, prejudice and
discrimination must be removed so all children and their familires can benefit.
Racist attitudes are damaging both to those subjected to them and those holding
them.
Are
children's centres an effective response to deprivation?
23. Those
families who are 'deprived' can only benefit from what the centre has to offer
if they are identified and are able to participate. Ethnic monitoring of
communities and links with local authority data are essential for this to be
possible.
Is
the 'policy' being delivered?
24. One measure
of whether racial equality is being delivered/practiced results from ethnic
monitoring. This must be stringently excecuted. With regard to the workforce,
the hugely improved Children's Workforce Development Council (CWDC) audit tool
is not yet mandatory to complete. It is essential that the CWDC devise
mechanisms to ensure effective data collection in order to identify any racial
discrepancies and discrimination. Only by having such data can local
authorities comply with their statutory duties under RRA.
The
range and effectiveness of services
25. As with
para 24, only by comprehensive ethnic monitoring and analysis can services be
assessed for their effectiveness in removing and countering racial prejudice
and discrimination and identifying any racial disadvantages.
Funding,
sustainability and value for money
26. Only by
ensuring racial equality can a centre be sustainable. If black and other
minority ethnic families and their children are not benefiting equally from the
services then it is not possible to describe it as of equal value for everyone
in the communities.
Staffing,
governance, management and strategic planning
27. As above,
comprehensive ethnic monitoring, analysis and evaluation must be implemented.
Strategies to put racial equality into practice should be devised - strategies
that include programmes to involve workers in talking about racism and its
implications for their work.
Whether
services are being accessed by those most in need and how effective they are
for the most vulnerable
28. As
discussed above, the issue of access can only be assessed by comprehensive
ethnic monitoring, in association with the local authority's data bank. Taking
sensitive account of people's cultures as to their understanding and acceptance
or apprehension about attending a centre is important. Experiences of racism
may deter attendance.
E. Conculusion
The task facing
centres in implementing racial equality must be taken seriously. Government
must support them by addressing issues of racism more effectively than at
present by, for example, initiating effective training courses on an
understanding of racism. While children's centres alone cannot get rid of the
racism in our society they can give children and their families a chance to
grow up not racially prejudiced.
F. References
Black Voices Networks
(2009) Response to the Select Committee Inquiry into Children's Centres.
Early Childhood Unit, National Children's Bureau
DCSF (2009) Building
Futures : Believing in children - a focus on provision for Black children in
the EYFS. The National Strategies.
Lane, J (2006) Right From the Start: A
commissioned study of antiracism, learning and the early years. Focus
Institute on Rights and Social Transformation (FIRST). www.focus-first.co.uk
Lane, J (2006) Some suggested information/resources that may be helpful in working for
racial equality in the early years. See
www.childrenwebmag.com/articles/child-care-articles/racial-equality-information-for-early-years-workers
Lane, J. (2008) Young children and racial justice :taking action for
racial equality in the early years - understanding the past, thinking about the
present, planning for the future. National Children's Bureau
Wanless, P,
Dehal, I and Eyre, R (2006) Getting it. Getting it right: Exclusion of Black
Pupils - Priority Review. DfES. Formally published by DfES in March 2007
* details of my work :
· as a volunteer in my local community
· as an education officer at the
Commission for Racial Equality
· as the coordinator of a national
organisation (Early Years Equality)
· as the author of Young children and
racial justice published by the National Chidren's Bureau in 2008 and
contributor to government policy, guidelines, advisory groups and curriculum
material, especially with regard to the Race Relations Act and anti racist
practice, and
· as an adviser/trainer in early years (local authorities,
settings, children's centres), a writer and as a speaker at conferences,
seminars etc
October 2009
[1] Not published on Committee website.
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