The Education of Asylum Seeker and Refugee Children: A Study of LEA and School Values, Policies and Practices - M. Arnot and H. Pinson (2005)

Faculty of Education
The Education of
Asylum-Seeker &
Refugee Children
A Study of LEA and School Values,
Policies and Practices
Madeleine Arnot
Halleli Pinson
This report was developed for the Research Consortium

on the Education of Asylum-Seeker and Refugee Children
General Teaching Council for England, National Union of Teachers,
Refugee Council, Faculty of Education University of Cambridge
July 2005
DESIGN:
Clare Yerbury, Faculty of Education, University of Cambridge
Designed and printed by Cambridge Printing,

the printing business of Cambridge University Press.
www.cambridgeprinting.org
© Madeleine Arnot and Halleli Pinson, Faculty of Education University of Cambridge
This project was sponsored by:

The General Teaching Council for England (GTC) and the Faculty of Education,
University of Cambridge.
For more information about the GTC, please visit:

www.gtce.org.uk
For more information about the Faculty of Education, please visit:

www.educ.cam.ac.uk
Table of Contents
Acknowledgements 2 Part 4: The Survey — Local Education Authority

Executive Summary 3 Responses 31
Part 1: Outline of the Project 9 4.1 LEA approaches 32

1.1 Aims 10 4.2 Asylum-seeker and refugee education policy 32
1.2 The project 10 4.3 Data collection strategies and models 34
1.3 Research design 10 4.4 The organisation of support services 36
4.5 Summary 38
Part 2: The National Context — Challenges for
Schools 13 Part 5: Educational Models and Values —
2.1 The background to UK Asylum System 14 Exemplification of three LEAs and
their Schools 39
2.2 Schooling and the dispersal policy 15
5.1 Conceptual models 40
2.3 The integration of new arrivals 16
5.2 Holistic models of good practice 41
2.4 Devolving responsibility: from central to
local government 18 5.3 Particular strengths of the LEAs 48
2.5 Summary 22 5.4 Characteristics, practices and values
underlying a holistic model 50
Part 3: Research on the Educational Experiences 5.5 Summary 57
of Asylum-Seeker and Refugee Children 25
3.1 The impact of immigration policy on Part 6: Commentary 59
asylum-seeker and refugee children 26 6.1 Challenges for schools and LEAs 60
3.2 Access to services 27 6.2 Conceptual models 62
3.3 The perspectives of asylum-seeker and 6.3 Policy and Research Agendas 63
refugee children 27
3.4 Raising awareness of asylum-seeker and Appendix A: Case Study Interviews 65
refugee pupil needs 28
3.5 Summary 30 References 67
Table of Contents |1
Acknowledgements
We would like to express our gratitude to the LEA representatives, the

Headteachers and staff in schools, officials, inspectors and
representatives of NGOs who participated in the research. We would
particularly like to thank the LEA officials, school staff and pupils
involved in the case study research who shared with us their insights
and experience. Our colleagues Angela Pollentine, Clare Yerbury, Philip
Vale and Janet Gibson offered us excellent administrative, design and
secretarial support and James Lee gave us valuable assistance on the
conduct and the analysis of LEA telephone survey.
This project was developed by the Research Consortium on the

Education of Asylum-Seeker and Refugee Children that comprises the
representatives of the GTC, NUT, the Refugee Council and the Faculty
of Education, University of Cambridge. The Research Consortium was
set up with the aim of developing research in partnership. Members of
the consortium participated in the steering group for the project. We
are grateful for their professional advice and engagement in the project
and for the financial support given to the project by two participating
members of the consortium, the GTC and the Faculty of Education,
University of Cambridge. The views expressed in the report are those of
the authors alone, and are not necessarily those of the organisations
involved in the steering group and Consortium.
2 | The Education of Asylum-Seeker and Refugee Children

Executive Summary
Executive Summary
Introduction The Research Project

This report is a result of a small-scale research project initiated by the The research was conducted in three phases.
Research Consortium on the Education of Asylum-Seeker and Refugee
The first phase investigated the national context through government reports,
Children. The Research Consortium currently consists of the following
secondary sources and interviews with some government and NGO officials.
participating organisations: The Faculty of Education, University of
Cambridge, The General Teaching Council for England (GTC), the National The second phase of the project collected data from 58 English LEAs through
Union of Teachers (NUT), and the Refugee Council (RC). The aim of the an exploratory telephone survey. A stratified sample of 62 LEAs was drawn
consortium is to promote effective teaching, learning and integration of from the information about the number of asylum-seeker and refugee pupils
asylum-seeker and refugee pupils by undertaking and disseminating research provided by a recent Refugee Council survey. This information was cross-
on the needs and experiences of asylum-seeker and refugee pupils and on referenced with the Home Office dispersal areas. The sample included LEAs
the work of professionals who support them. in dispersal and non-dispersal areas, with high through to small numbers of
asylum-seekers and refugees, including LEAs who, according to the Refugee
This report outlines the national and local context in which schools have
Council survey, did not collect data. Of the 62 LEAs contacted, only four
attempted to address the education of asylum-seeker and refugee children.
declined to participate. The sample is indicative of the diversity of provision
It investigates how LEAs provide for such pupils, the support offered to
for asylum-seeker and refugee children.
schools and the underlying assumptions and approaches associated with LEA
and school policies, practices and strategies for the inclusion of this group. The third phase of research focused on three case study LEAs which were
It highlights, by exemplification, the good practice that already exists, and selected on the basis of their expressed commitment to developing a holistic
offers some ways forward for both policy and research. The basis for this model of good practice. Interviews were conducted with officials,
study was a survey of 58 LEAs and a case study investigation of three LEAs. Headteachers, senior members of the teaching staff responsible for provision
for asylum-seeker and refugee pupils and focus groups with such pupils
The Aims of the Research provided qualitative data on the development of a holistic framework and
the values associated with it.
The specific aims of the project were to:
examine the national context in which schools and LEAs are required National Context for Schools and LEAs
to address the education of asylum-seeker and refugee children
Estimations for 2003 have suggested that there were 98,929 asylum-seeker
elicit and review the different responses of LEAs especially those with and refugee children in schools in the UK.
large asylum-seeker and refugee populations and those in dispersal
areas Negative images and representation of asylum-seekers and refugees in Britain
restrict the possibilities of social inclusion of asylum-seeker and refugee
identify different conceptual models that underpin educational
children. Images of asylum-seekers and refugees as the unwelcome ‘other’,
responses to the needs of asylum-seeker and refugee pupils
or associations with criminality, racial conflict and economic dependence on
the state provide a challenging context for mainstream schools seeking to
integrate such children and to offer them their full entitlement to education.

Research on the educational experiences of asylum-seeker and refugee Only 10 LEAs (17% of the sample) referred to the DfES guidance for supporting
children has identified a number of concerns around access to and asylum-seeker and refugee pupils, as a source which influenced the
awareness of, service and educational entitlements. The perspectives of development of their policies and support services.
asylum-seeker and refugee children highlights the complexity of their
educational, social and psychological needs and the desirability of Asylum-Seeker and Refugee Education Policy
addressing such needs through practices such as multi-agency approaches,
LEAs are encouraged to develop local policies and procedures to provide for
home-school links and community-school links.
the education of asylum-seeker and refugee children. Lack of policy
documentation, however, does not necessarily indicate an underdeveloped
Since 2000, the government has implemented a dispersal policy according to
support system since some LEAs preferred not to develop explicit policies
which asylum-seekers are housed outside Greater London, away from cluster
but focused on provision. Five different types of policy were identified:
areas. Accommodation rather than educational considerations were
prioritised in the decisions about where to disperse asylum-seeker families, Specific category within a broader policy (28% of the sample)
with consequences for the level of preparation in schools. A comprehensive targeted policy (26% of the sample)
Language policy (16% of the sample)
LEAs have a legal obligation to provide education for asylum-seeker and
refugee children. Guidance for good practice has been issued by the DfES School guidance (16% of the sample)
which encourages schools and LEAs to welcome such children, to establish General policy in relation to special vulnerable groups (16% of the
strong links with asylum-seeker and refugee families and communities and to sample)
address the potential underachievement of these children.
LEA respondents most commonly preferred to refer to asylum-seeker and
refugee pupils under other educational policies rather than developing a
There is no specific funding arrangement to support the education of
separate policy for asylum-seeker and refugee pupils.
asylum-seeker and refugee children. LEAs support provision for asylum-
seeker and refugee children by drawing funds from the Vulnerable Children
Data Monitoring
Grant (VCG) and the Ethnic Minority Grant (EMAG).
Out of 58 LEA respondents in the survey, 50 (86%) said they were involved in
Ofsted investigated the effects of asylum-seeker and refugee children on some form of data collection on asylum-seeker and refugee pupils. Four data
schools and argued for the importance of addressing their needs through collection strategies can be identified:
mainstream approaches to inclusion and racial equality. LEA support for
Monitoring strategy (45% of sample)
asylum-seeker and refugee pupils is included in the inspection framework on
Partial database (24% of sample)
social inclusion.
Deductive strategy (17% of sample)
Local Authority Strategies Not collecting data (14% of sample)
LEA practices, support services and approaches to the education of asylum- LEAs face the dilemma of balancing between the desirability of collecting
seeker and refugee pupils vary greatly in relation to (a) data monitoring, (b) information about asylum-seeker and refugee pupils in order to meet their
the development of policy in this area, and (c) the type of support and the needs and the dangers of stigmatising them as a problem. Many LEAs in the
ways in which support is offered to schools and directly to asylum-seeker sample point out the difficulty of maintaining an accurate up-to-date
and refugee pupils and their families. database. Three different types of models of data collection were identified:
Executive Summary |5
An Extensive Data Model with different types of educational and (c) ongoing support of asylum-seeker and refugee pupils and schools. These
social data (languages, ethnicity, educational data, welfare categories are not mutually exclusive. The 58 LEA were found to have the
information, immigration information and community links) following types of support services:
A Learning and Language Data Model focusing on English as Additional
Language needs and progress Targeted Partial Non-Specific
A Minimal Data Model using basic information about country of origin, Admission 46.0% 28.0% 26.0%
languages and ethnicity Training 49.0% 29.0% 22.0%
Ongoing Support 39.5% 52.0% 8.5%
There was considerable diversity in the relationship between the data
collection strategies and the types of data collected and no necessary
association between the choice of strategy and types of data used. Of the Educational Models and Concepts of Good Practice
LEAs which used the full monitoring approach, 10 used an extensive model
Six different conceptual models were developed by the research team as a
of data, 7 used a language and learning model and 9 a minimal model. 14
way of understanding the strategies of the 58 LEAs. These were not
LEAs only had a partial database with 7 of those adopting a minimal model
exclusive as some LEAs combined approaches — the most prevalent LEA
(see Part 3).
frameworks are the EAL and the holistic models:
Support Services EAL model (22 LEAs)
The support services in 58 LEAs appeared to be organised in the following ways: Holistic model (18 LEAs)
Responsibility lies with EMAS officers who are line managed through Minority ethnic model (13 LEAs)
school improvement structures, and are seen as ‘raising the New arrivals model (8 LEAs)
achievement’ agenda (22 LEAs — 37%) Race equality model (7 LEAs)
An asylum-seeker and refugee pupil support officer/co-ordinator who Vulnerable children model (2 LEAs)
is part of the EMAS, EAL, Inclusion or Race Equality team (20 LEAs —
34%) The three case study LEAs which employed a holistic model to address the
Responsibility resides with Race Equality/Diversity or the Multicultural education of asylum-seeker and refugee children suggested that there are
Team (8 LEAs — 14%) different ways of realising this conceptual approach in practice. They
nevertheless shared strong notions of good practice in relation to policy
An asylum-seeker and refugee pupil support team that includes
development, the organisation of data collection and support services for
several officers, usually line managed by EMAS (4 LEAs — 7%)
the education of asylum-seeker and refugee children. Examples of good
Responsibility resides with the EAL service or the New Arrivals Team practice in these authorities included: (a) parental involvement; (b)
(4 LEAs — 7%) community links; and (c) a multi-agency approach.
The organisation of support services depends largely on funding The positive characteristics, practices and values underlying holistic
arrangements. The support services can be differentiated in terms of approaches to the education of asylum-seeker and refugee pupils were:
providing ‘targeted’ services, ‘partial’ services with some specific
responsibilities and services or ‘non-specific’ services in relation to Existing experience with minority ethnic and EAL pupils
(a) admission procedures in schools (b) training of LEA and school staff and Promoting positive images of asylum-seeker and refugee pupils

Establishing clear indicators of successful integration
An ethos of inclusion and the celebration of diversity
A holistic approach to provision and support
A caring ethos and the giving of hope
Future Research and Policy Agendas

This report identifies some of the gaps in research on the education of
asylum-seeker and refugee children. It recommends that the different
conceptual models employed by LEAs could be a useful tool with which to
assess LEA and school practices and teacher approaches and track the
different experiences of asylum-seeker and refugee pupils.
Key issues raised in the report include:
the extent to which the needs of asylum seeker and refugee pupils
should be explicitly, and visibly, targeted by LEAS, rather than
integrated within other LEA strategies and priorities.
the requirement for both monitoring and consistent data on the
progress and treatment of pupils in these two categories; and,
the need for sufficient funding resources to enable LEAs and schools
adequately to meet these pupil’s particular needs.
Executive Summary |7
Part 1:
Outline of the Project
Part 1: Outline of the Project
This report explores the national and local context in which schools have defined, the range of policy approaches that have been developed to
attempted to address the education of asylum-seeker and refugee children. provide for asylum-seeker and refugee children in schools and the
It investigates how LEAs provide for such pupils, the support offered to relationship between these strategies and existing policy frameworks used to
schools and the underlying assumptions and approaches associated with LEA support vulnerable children in the educational system. The first stage of this
and school policies, practices and strategies for the inclusion of this group. project also focuses on the conceptualisations of good practice currently
found in the educational sector.
1.1 Aims
The report is divided into six parts. Following this introduction, Part 2
The specific aims of the project were to:
outlines the national context in which LEAs, schools and teachers are
examine the national context in which schools and LEAs are required expected to frame their response to the education of asylum-seeker and
to address the education of asylum-seeker and refugee children refugee children. Part 3 describes the findings of research on how this
elicit and review the different responses of LEAs especially those with context impinges on the experiences of asylum-seeker and refugee children
large asylum-seeker and refugee populations and those in dispersal areas in the school system. Part 4 describes the local policy context in which
identify different approaches that underpin educational responses to teachers are currently working by drawing on the findings of a survey of 58
the needs of asylum-seekers and refugees LEAs. The results of this investigation indicate the diversity of policy
frameworks used to interpret and address the needs of asylum-seeker and
1.2 The project
refugee pupils and the forms of provision developed by LEAs to prepare and
This report is a result of a small-scale research project initiated by the support schools catering for such children. Schools are asked to participate
Research Consortium on the Education of Asylum-Seeker and Refugee in a range of initiatives in relation to such children, in some cases in order
Children. The Research Consortium currently consists of the following to mainstream their needs, in others specifically to address their particular
participating organisations: The Faculty of Education, University of needs. Part 5 offers insights into the location of asylum-seeker and refugee
Cambridge; the General Teaching Council for England (GTC); the National children in existing educational agendas and the diverse values which are
Union of Teachers (NUT) and the Refugee Council. The aim of the associated with concepts of good practice in relation to the inclusion of such
consortium is to promote effective teaching, learning and integration of children. It focuses especially on the experiences of schools in three case
asylum-seeker and refugee pupils by undertaking and disseminating research study LEAs which adopt a holistic approach to the integration of asylum-
on the needs and experiences of asylum-seeker and refugee pupils and on seeker and refugee pupils in mainstream schools. Evidence from Headteachers,
the work of professionals who support them. teachers with special responsibility for this area of work, and a small sample
This project represents the first stage of a wider project that will explore of asylum-seeker and refugee pupils indicate the different ways in which a
the schooling experiences of asylum-seeker and refugee children in the UK. ‘holistic approach’ has been developed in these three localities. Part 6
The first stage of the project aims to understand the national and local presents the project conclusions and recommendations.
context in which schools and teachers are asked to provide for the
educational needs of asylum-seeker and refugee children. The aim is to 1.3 Research design
identify the different local responses of LEAs and schools to this agenda, the The research was conducted in three phases. It first analysed the national
ways in which the various educational needs of such children have been policy context which frames the education of asylum-seeker and refugee

children. Whilst national statistical evidence on the presence of asylum- Telephone interviews were conducted with representatives from 58 out of 62
seeker and refugee children is not available, national responses can be LEAs. Four LEAs declined to take part in the study. Each interview focused
found in a range of different contexts: immigration policy and educational on the policy responses and strategies of local authorities especially in relation
policies which relate to minority ethnic pupils, vulnerable children as well to the responsibilities of schools. They lasted about 30 to 45 minutes. LEAs
as specifically to asylum-seeker and refugee children. A range of secondary nominated individuals as responsible for asylum-seeker and refugee children
sources was also valuable in providing a discussion of the issues. The second across a range of different roles (e.g. Head of Ethnic Minority Achievement
phase of the research investigated local authority approaches to the Support Services (EMAS) or EMAS team member, Asylum-seeker and Refugee
education of asylum-seeker and refugee children. A telephone survey of 58 Pupil Support Officer, English as Additional Language (EAL) officers, inclusion
English LEAs conducted in the Spring and Summer of 2004 explored local team members, and Education Co-ordinator).
approaches to the education of asylum-seeker and refugee children.
The third phase of the research investigated in more depth three LEAs which
Three policy aspects were identified by the consortium as the themes for had participated in the survey and which had been identified as committed
the LEA survey: to developing an integrated and holistic approach to the education of asylum-
policy and guidelines developed by LEAs seeker and refugee children. The aim was to explore at school level how the
presence of such children in school was understood, the ways in which their
data and information collected by LEAs
needs were addressed and the values which underpinned these school
LEA support services for asylum-seeker and refugee pupils for schools approaches. The three localities selected for the research are described below:
The sample of LEAs contacted was drawn from the data collected by the LEA A located within a dispersal area with relatively high numbers of
Refugee Council (RC) survey1 and the Home Office data on dispersal areas asylum-seekers and refugees who had arrived in the last three to four years
(Home Office, 2002). The LEA respondents in the Refugee Council’s survey of
LEA B located in a non-dispersal area which is also a destination for
data monitoring of asylum-seeker and refugee children were divided into the
asylum-seekers and refugees
following categories:
LEA C in a London Borough with high numbers of asylum-seeker and
LEAs which responded to the RC survey and indicated that they have refugee pupils
high numbers of asylum-seekers and refugees
The three case studies varied in terms of the numbers of asylum-seeker and
LEAs which responded to the RC survey and indicated that they have
refugee pupils catered for, LEA experiences of working with this population
small numbers of asylum-seekers and refugees
and the reaction of the local population to the arrival of asylum-seekers and
LEAs which responded saying they did not collect data refugees (more details are given in Part 5 of the report). A two-day visit in each
LEAs which did not respond LEA was carried out in which key people involved directly in supporting asylum-
These data were cross-referenced with the Home Office dispersal area data seeker and refugee pupils as well as senior management were interviewed.
and a sample of 62 LEAs that included representation of the above categories Each LEA was asked to select the officers and the schools that would be
was identified and contacted. visited. The guideline given to LEAs was that this should reflect LEA practice.
A selected number of schools were visited in each LEA in which interviews
were carried out with Headteachers, support teachers and asylum-seeker and
refugee pupils (see Appendix A for detailed list of the data collected in each
1
During 2003 the Refugee Council surveyed LEAs in order to establish the number of asylum-seeker and refugee
LEA). The data collected in each LEA throws light on a wide range of practices
children in each LEA and in which LEAs collected specific information about these children. and interpretations of the issues being addressed by teachers in schools.
Part 1: Outline of the project | 11

Part 2:
The National Context —
Challenges for Schools
Part 2: The National Context —
Challenges for Schools
In 2003, 60,045 asylum applications, including dependants, were received in eighth in Europe in terms of asylum applications per head, and in 32nd place
the UK. in the world (UNHCR quoted in IPPR, 2003). However, The Times Populus Poll
In 2003 estimations have suggested that there are 98,929 asylum-seeker and suggested that nine out of ten adults in Britain believe that the number of
refugee children in schools in the UK. asylum-seekers and refugees in Britain is a serious problem (quoted in IPPR,
2003: 36).
2.1 The background to UK asylum system Among the 60,045 applications in 2003, 3,180 were unaccompanied
In recent years there has been a growth in the numbers of asylum-seekers children under 18 and of the 10,640 applications with dependents, 81%
and refugees in Britain. In the last decade, with the exception of 2003, the were children under 18. There are no accurate national or local statistical
number of asylum-seekers and refugees arriving in the UK has increased data of the number of asylum-seeker or refugee children in the British
every year (IPPR, 2003). According to the Home Office in 2002, about educational system. By cross-referencing different resources such as
103,000 applications for asylum (including dependants) were received in the refugee surveys conducted by LEAs and the Refugee Council, PLASC (Pupil
UK. The recent statistical report produced by the Home Office (2004) shows Level Annual Schools’ Census), the information produced by NASS
that, whilst numbers dropped by 42% in 2003, it has been estimated that (National Asylum Support System), and language surveys, Jill Rutter (2004)
some 60,045 applications (including 10,640 applications with dependants) estimated that there were 98,929 asylum-seeker and refugee children in
were received in Britain that year. This decrease is attributed to stricter schools in the UK in 2003, out of which some 65,734 were located in
immigration controls2. In the last decade the main countries of origin of Greater London.
asylum-seekers and refugees in the UK were, in order of significance: Recent legislation has tightened the control over those entering the UK and
Somalia, Iraq, Sri Lanka, FRY (Former Republic of Yugoslavia), Afghanistan, receiving refugee status, adding more restrictions to the entitlements of
Turkey, Pakistan, China, India and Iran (IPPR, 2003). Although numbers of asylum-seekers and refugees and their access to different social services. In
asylum applications are high, only a minority receive refugee status or the context of popular representations of the growing numbers of asylum-
exceptional leave to remain. For example, in 2003 only 5% received refugee seekers and refugees as a national ‘crisis’, the main concern of publications
status and an additional 11% were granted exceptional leave to remain such as the White Paper Secure Borders, Safe Havens (Home Office, 2002),
(Home Office, 2004). and the Home Office immigration reports, is understood to be one of
The high numbers of asylum-seekers and refugees in general and of asylum- reducing the numbers of asylum-seekers and refugees in the UK. For
seeker and refugee children in particular have attracted considerable example, a recent Home Office report (Home Office, 2004) stresses the
attention in the press and in the public even though when the highest success of the government in reducing the numbers of those seeking asylum
number of asylum applications were received in the UK, it was only ranked in the UK and those receiving asylum. In the summary the report states that,
while the numbers of asylum-seekers and refugees in Europe fell by 19%
during 2003, in the UK they fell by 42%. A section of the report focuses on
2
For example: new visa requirements which made it more difficult for people to come to the UK; placing
the measures taken by the government to ensure numbers of asylum-seekers
more restrictions on asylum seekers accessing support; and, introducing systems such as detention. and refugees are reduced.

Researchers have indicated some of the difficulties faced by asylum-seekers filed in reasonable time after their arrival to the UK) on accommodation and
and refugees as a result of current immigration, dispersal and integration subsistence payments. These latter payments stand at the rate of 70% of
policies and the challenges this represents for teachers and schools in trying benefits for adults and 100% for children (NASS Policy Bulletin, No. 52,
to help such children access an appropriate form of education and develop 2004). NASS offers two types of support: (a) only subsistence or (b)
their confidence in themselves. Below we identify some of those challenges. accommodation and subsistence where accommodation is provided in
dispersal areas (i.e. outside London and the South East, mostly in Northern
2.2 Schooling and the dispersal policy England, Scotland and the Midlands). Asylum-seekers and refugees who wish
Schools are differentially affected by the dispersal policy. Voluntary organisations to take up their entitlement to accommodation are dispersed and have no
such as Save the Children, UNICEF, and the Children’s Society, as well as choice as to where they are going to be housed4. Family or community
researchers in the field (e.g. Hardwick and Rutter, 1998; Rutter 2001b; Rutter networks are not recognised as sufficient reason for a person not to be
and Jones 1998) warn that recent immigration legislation has far-reaching dispersed. As a result, asylum-seekers and refugees are often housed away
effects on asylum-seeker and refugee children. Even though legally all asylum- from their prospective communities in predominantly white English areas
seeker and refugee children should have access to education, the new where housing is available and which are, in many cases, also socially and
restrictions (such as dispersal) and the new support arrangements affect the economically deprived areas.
possibility of these children making full use of their right of access to education.3 Many studies of immigration stress the importance of social capital which
One of the main arguments voiced by these organisations and researchers is can enable immigrants to gain access to societal resources (Coleman, 1988;
that asylum-seeker and refugee children are treated first and foremost as Pallon et al.; 2001, Kao, 2004). Access to social capital (i.e. community and
asylum-seekers and refugees rather than as children. As a result their family networks) is particularly important for the long-term integration of
educational and social needs can become invisible. Of particular concern to those immigrants who might suffer isolation in the wider society, because of
schools are the effects of the Home Office dispersal programme which was language, cultural and other barriers (Kao, 2004, Pallon et al, 2001). Social
introduced in the 1999 Immigration and Asylum Act. This programme has capital can help immigrant communities to cope with and achieve in
major consequences for the location and nature of asylum-seeker and schools. It can also help them benefit from schooling without the risk of
refugee children’s education. The purpose of this programme was to reduce losing their unique identity and cultural heritage (Zhou, 1997). Kao (2004)
cluster areas mainly in Greater London and to some extent in the South suggests that parents who may have difficulties understanding the education
East. Gedalof suggests that certain assumptions are built into this system of the new country, communicating with professional staff and
programme — within the logic of dispersal ‘there are limits to how much accessing education, could use social capital to overcome these barriers.
difference the home community should be expected to tolerate’ (2004, p.11). The lack of presence or absence of such social capital may explain the
diversity of educational attainment in immigrant communities5.
The 1999 Immigration and Asylum Act also established the National Asylum
Support Service (NASS) whose responsibility is to provide asylum-seekers and 4
A request to receive housing and not to be dispersed is very unlikely to be authorised. The NASS Policy
refugees who are waiting for a decision (subject to their application being Bulletin states that: ‘An asylum-seeker may request to be allocated accommodation in London or South East
because they have relatives there…But in the absence of exceptional circumstances, dispersal will generally
be appropriate. For, example, if a person asked to be housed in London because they have an adult son
there, then this would not normally be entertained. Asylum-seekers may ask to be accommodated in
3 London or Kent because the area has an ethnic community there, which does not exist in the dispersal
For example, in analysing the UK immigration policy in light of the UN Convention on the Rights of the area…this would not normally be accepted as sufficient reason to depart from the dispersal policy’ (NASS
Child, Candappa (2002) points out that the UK ratified the conventions, but reserved the right to prefer its Policy Bulletin No. 31, 2004).
nationality and immigration legislation (especially in relation to entry to the UK), over the rights of children
5
for humanitarian protection: ‘This reservation clearly discriminates against refugee children. It is clear that Many asylum-seekers, who were to be housed in deprived areas with no social networks and where they
refugee children can never be entitled to the same rights as other children in the UK until withdrawal of may experience hostility, have therefore chosen to opt out of the NASS system preferring to stay close to
the above reservation’ (pp.224—225). their communities, even at the cost of losing state subsistence and accommodation.
Part 2: The National Context — Challenges for Schools | 15

LEA responses to the survey and interviews suggest that, as a result of the funding, and therefore we do not have enough staff or
dispersal policy, insufficient notice was given about the arrival of asylum- resources really to address their needs. Moreover, no-one
seekers and refugees. There was a perception therefore that the educational looks at the impact on the local communities. Local
needs of asylum-seeker and refugee children have tended to be marginalised communities are becoming very resentful, and then they
or ignored in the context of dispersal. According to one Ofsted school have a greater difficulty in integrating these children. Families
inspector, ‘in reality what happened, the driver was the accommodation and are being housed not necessarily in suitable areas, for
the one aspect that wasn’t really looked at is education’.6 As a result, example they are mainly housed in poor white working class
asylum-seekers and refugees with families could be dispersed to areas where areas, not supportive areas where they won’t have a problem
there may not be any school placement for the children, where the schools to be integrated (EMAS Officer, LEA in a dispersal area).
may not have adequate resources to meet their educational needs (such as
I think the government’s response has been cheap skate
schools in predominantly white areas with no funding frin the Ethnic
really. Dispersal was a gut reaction, it was implemented
Minority Achievement Grant (EMAG) and where schools may have very little
quickly and without due care and attention paid to this idea.
experience with non-white, EAL or new arrival pupils. The DfES or LEAs
It was about getting people out of London because of the
appear to have very little involvement on dispersal decisions.
housing prices and votes and all sorts of things. The London
Ofsted (2003b) and NCB (Remsbery, 2003) in their respective reports on the boroughs have far higher payments per capita per child than
education of asylum-seeker and refugee pupils suggest that many of the asylum- we do up here anyway …Sadly, I think the government is driven
seeker and refugee families have been dispersed to areas where schools and by public opinion (Asylum-seeker and Refugee Officer, LEA A).
teaching staff are unprepared to cater for them and where the impact on
LEAs and schools in dispersal areas has not been carefully thought through: It is not clear yet what the long term consequences of this policy are for
asylum-seeker and refugee children, their self esteem and their educational
[dispersal] presented new challenges to areas with little or achievement. However, the challenges faced by schools in relation to the
no history of assisting refugees, and in some cases, little asylum-seeker and refugee child are likely to be considerable. The responsibility
experience of multi-cultural communities (Remsbery, 2003:6). for developing appropriate responses to such challenges has been delegated
One of the biggest challenges was for those schools that had to local educational authorities, both in dispersal and non-dispersal areas.
no background, experience or expertise, or anybody that could
deal with children on Monday morning when they arrive. 2.3 The integration of new arrivals
They had to learn some of the basic strategies to cope on a
…asylum has been an active area of government policy…
day by day basis (Interview with an Ofsted inspector).
but one where policy has had the effect of generating social
This apparent lack of educational planning and consideration of the ability exclusion, rather than preventing or ameliorating it
of schools and LEAs to cater for the needs of these children is regarded with (Burchardt, 2005:210).
concern by some LEA officers. For example:
In recent years, a range of legislation in the UK has represented the official
There is a mismatch between the government dispersal reaction to the entry of asylum-seekers and refugees. New immigration and
programme and the funding we get, there is no additional asylum legislation was introduced in 1993, 1996 and 1999, and in 2002 the
White Paper Secure Borders, Safe Havens was published. It is beyond the
6
Since August 2004, there has been one exception: an asylum-seeker family who had a child in their final scope of this report to discuss in-depth such changes in the UK immigration
year in school or college leading to GCSEs or A-Levels, who had been already enrolled at a school for the
significant part of the previous academic year, could ask for their dispersal to be postponed. policy. However, some of the main issues emerging from these changes

which have affected the educational integration of asylum-seeker and predominantly from communist countries, and white, were granted almost
refugee children are highlighted. free entry. Control of asylum-seekers and refugees only began during the
The recent immigration legislation has the explicit aim of ensuring that 1970s with the increase of asylum-seekers and refugees from Asia and Africa
control over migration is more effective (Cohen, 2003). As such it is not who were ‘more black’. It therefore became more difficult to dissociate the
directed at supporting asylum-seekers and refugees. Britain, as many other issue of asylum-seekers and refugees from issues of racial conflict and racial
European and North American countries (Gallagher, 1999; Nickels, 2002) is prejudice (Bloch, 1999, Cohen, 2003). In this context, schools could find
caught between its humanitarian obligations of providing asylum for those themselves needing to prevent local expressions of racial hostility against
seeking it, and concern in the media and the public about the impact of asylum-seeker and refugee children and to find new ways of encouraging
immigration on society. As a result of investigating the assumptions pupils to recognise and celebrate diversity.
underlying the calls to adopt a European asylum system, Nickels (2002) A major challenge for schools and teachers in this field is how to address the
suggests that the commitment to assist asylum-seekers and refugees is not effects of such negative representations of asylum-seekers and refugees on
denied but only selected elements are delivered. community relations and public support. Even though refugees are assumed
The challenge for schools faced with the integration of new arrivals from to ‘have a contribution to make to the economy’ (Home Office, 2002: 4—5),
diverse countries, is to address the negative images which might be associated whilst asylum-seekers seek safety as a result of persecution in their own
with them. One danger, identified by Bauman (2004) is that asylum-seekers country (ibid), both groups may be seen as competing with the local
and refugees come to represent ‘the Other’. A distinction can be made indigenous population over economic and societal resources. Cohen (2003)
between ‘us’ and ‘them’, creating an impression, in his words that refers to this view as economic nationalism. Both these groups are likely to
receive restricted levels of social and community support. Asylum-seekers
There are always too many of them. ‘Them’ are the fellows and refugees face new hurdles in accessing different services and resources
of whom there should be fewer — or better still none at all. (such as restriction on housing, cuts in subsistence payments and the
And there are never enough of us. ‘Us’ are the folks of whom banning of the right to work), which are designed to act as a deterrent to
there should be more (p.34). ‘unlawful’ asylum-seekers and ‘bogus’ refugees arriving in the UK.7 Critics
This language can be found in the White Paper Secure Borders, Safe Haven have argued that the restriction on welfare entitlements for asylum-seekers
(Home Office, 2002). Gedalof (2004), for example, points out that the title of and refugees, introduced by recent legislation, is likely to be a ‘recipe for
the White Paper Secure Borders, Safe Haven implies a discourse of ‘Otherness’ social exclusion’ (Burchardt, 2005).
which suggests that first ‘we’ need to secure ‘our’ identity, ‘our’ borders,
High levels of poverty and considerable economic disadvantage are
before we can let ‘them’ in. Phrases in the report such as: ‘those coming into
experienced by asylum-seeker and refugee families, newly arrived in the UK —
our country’ (p.4, emphasis added), or ‘around 191,000 of them came
a context which is likely to have a major impact on the ability of such
here…’(p.40) are commonly used. Fear of the ‘Other’ and the need to secure
families and their children to participate fully in schooling. In order to
‘our’ borders if transmitted in schools could be translated into a fear that
receive asylum or refugee status, asylum applicants need to convince the
uncontrolled immigration could encourage those ‘who would seek to stir up
hate, intolerance and prejudice’ (Home Office, 2002:4).
7
Studies funded by the Home Office show that the main factor in the decision of asylum-seekers to choose
Schools also can be faced with increasing racial tensions in the wake of new Britain as their destination is having family and networks in the UK, while considerations such as their
entitlements and the support they might receive as asylum-seekers are only minor factors in their decision-
immigration. Bloch (1999) argues that, until the 1980s, immigration control making (Robinson and Segrott, 2002; Koser and Pinkerton, 2002). Moreover, a recent analysis of patterns of
in the UK focused on controlling the immigration of non-whites from the asylum-seeking in Europe and the UK suggests that asylum-seekers’ departure from their country of origin
‘is correlated with the timing of conflicts. The patterns are not consistent with the hypothesis that asylum-
Commonwealth — asylum-seekers and refugees who, at that time, were seekers are economic migrants by another name’ (Burchardt, 2005:221).

Home Office that they are ‘genuine’ asylum-seekers or refugees. Until they and Ademi add that asylum-seeker and refugee children in mainstream
have done so, they are subject to a range of restrictions as to where they education ‘have the best chance of building a new life here, by developing a
stay, their ability to work and the support they receive from the sense of belonging to an institution run by the host community’ (1998, p.12).
government. In addition, if the Home Office suspects that their application LEAs, schools and asylum-seeker and refugee parents have been given the
might not be genuine, they might be detained. prime responsibility for fulfilling the legal obligation to provide asylum-
The challenge facing schools is deciding how to promote the integration of seeker and refugee children with access to mainstream education. As the
new arrivals in this complex legal, economic and community environment. guidance given by the DfES to schools on the education of asylum-seeker and
According to the recent consultation paper Integration Matters: A national refugee children states:
strategy for refugee integration, (Home Office, 2004) integration is Parents are obliged to ensure that their children receive an
understood to apply only to those who are defined as genuine asylum- education and LEAs must offer school places in accordance
seekers and refugees and, therefore, have been granted refugee status. As with their published admissions arrangements and must
stated in the consultation paper: ensure that all children resident in that local authority
This integration strategy does not cover asylum-seekers… receive fulltime education. The obligation of an LEA to
While the Government does accept that the experience of provide a school place is outlined in Section 14 of the
asylum-seekers before they are recognised as refugees will Education Act 1996 (DfES, 2002a:17).
affect their later integration in a number of ways, it believes The DfES guidance also states that: ‘LEAs should ensure that there are no
that integration in the full sense of the word can take place unreasonable delays in securing the admission of asylum-seeker and refugee
only when a person has been confirmed as a refugee and can pupils to school’(10). Neither the guidance nor the School Admission Code of
make plans on the basis of a long-term future in the UK Practice (DfES, 2002c) which describes the entitlement of asylum-seeker and
(Home Office, 2004:10). refugee children to receive school placement as quickly as possible, offer
On the other hand, schools and local authorities are inspected on their any time framework as to how quickly asylum-seeker and refugee children
success in reducing social exclusion and promoting the inclusion of all should receive a school placement and what might be considered
children in learning. ‘unreasonable delays’. The admission of asylum-seeker and refugee children
is left to the discretion of LEAs and schools who are also responsible for the
2.4 Devolving responsibility: from central to local government decision about whether (and how) to develop an appropriate policy in
The official government line is that children of asylum-seekers or refugees relation to asylum-seeker and refugee pupils.
are given the same opportunity to benefit from education as any other child At present, there are three people in the DfES with responsibility for the
in the UK. Under the Children Act 1989, all children, regardless of the status education of asylum-seeker and refugee children. One is responsible for
of their parents, are eligible for health care, education and support from policy and development, another for children in care and a third for
social services. According to section 14 of the Education Act 1996, local unaccompanied children. Advice to schools and LEAs is contained in the
education authorities have a legal obligation to provide education for all three main relevant DfES publications which are: Good Practice Guidance on
children ages 5—16 including children of asylum-seekers or refugees, with the Education of Asylum-Seeking and Refugee Children (2002a), Aiming High
the exception of those who reside in accommodation or detention centres (2003a) and Managing Pupils’ Mobility (2003b). Jill Rutter, then Education
(in which case education would be provided by the centre). Advisor for the Refugee Council, was commissioned to write the guidance.
For many children ‘the school serves as a second security base outside the Interview data from this project suggests that, despite its being online,
home, or perhaps their only security base’ (Candappa, 2002, p.229). Black many schools are not aware of the guidance. The guidance emphasises the

need to ensure the educational achievement of asylum-seeker and refugee collecting such data and the potential inaccuracy of such information
pupils. Induction into a welcoming environment is important if such students because of the high mobility of these students.
are to ‘settle into a new school and become effective learners’ (p.17).
The lack of specific data about the numbers of asylum-seeking and refugee
Schools and LEAs are also directed to the importance of working with
children, however, has considerable implications for schools and LEAs
asylum-seeker and refugee pupils’ families and communities: ‘Establishing
especially in relation to the development of appropriate educational and
strong links with parents is an essential part of raising the educational
social service provision. The Children’s Legal Centre points out:
achievement of asylum-seeker and refugee pupils’ (p.29). In the DfES
guidance on managing pupils’ mobility, in which asylum-seeker and refugee Knowing how many refugee and asylum-seeking children are
pupils are mentioned as one of the most mobile group in the UK, the aim of in an area is an important part of determining the services
the guidance is defined as follows: ‘we recognize that high levels of mobility that are likely to be needed by them… (2003:10).
can be a major fact in underachievement of pupils, and we set up the Pupil
In recent years one of the main challenges in terms of meeting the needs of
Mobility Project to try and counter that underachievement’ (p.3). Central to
asylum-seeker and refugee children has been to secure their legal right of
this advice is the importance of addressing the achievement of asylum-
access to education. Asylum-seeker and refugee children, in a competitive
seeking and refugee pupils. This raises issues around monitoring educational
situation, might be regarded by schools as a potential threat to school
achievement and funding, which we discuss below.
standards and record of achievement (McDonald, 1998). However, schools
Educational Achievement have been given the option of excluding from their examination results,
asylum-seeker and refugee pupils (or any pupil with English as an additional
The lack of information about this group of pupils, nationally and often language) if they have been less than two years in the country8. This policy
locally, has direct bearing on the educational achievement of asylum-seeker may have a positive effect if it encourages schools to accept and welcome
and refugee pupils. Statistical data on the presence, dispersal and such students without worrying about how they would affect school
admission of such pupils in schools can facilitate appropriate educational performance, as one LEA officer in the study commented:
support and provision and such data can also help to monitor pupils’
progress. However, at present, no official figures are published indicating The other thing I think that’s helped is not having to include
how many asylum-seeker and refugee pupils attend schools in England and new arrivals in the league tables because all our schools
Wales. Current figures on asylum-seeker and refugee children are the result obviously are very, very worried about their results and their
of initiatives set up by voluntary organisations, such as the Refugee position in the league tables and I think that the fact that we
Council. These data represent an informed guess rather than accurate don’t have to include the new arrivals means that they are
statistics. The stance adopted by the DfES in relation to collecting welcomed into schools where perhaps they wouldn’t be if it
information about asylum-seeker and refugee pupils is significant. The DfES was thought that they would be included (Asylum-seeker and
has recently made it obligatory for all schools to collect detailed data Refugee Pupils Officer, LEA C).
(PLASC) about the ethnic origin of their students: ‘This information will However, there are potentially negative implications of such a decision to
help authorities to identify barriers to achievement, to establish strategies omit asylum-seeker and refugee pupils from league tables. Schools might take
to raise standards to comply with equal opportunities’ (DfES, 2002b). away the message that they have limited responsibility towards these children
However, only relatively fixed categories, such as ethnicity and country of
origin, were included in this database. Asylum-seeker and refugee status
are not included in the list of categories which schools are asked to collect, 8
It is important to point out that, despite the optional omission from league tables, schools are still obliged
reflecting the fact that these are liable to change, the difficulty of to include exam results of newly arrived pupils in their reports to Ofsted.

and that they are not entitled to the same opportunity as other pupils. Such and existing policy frameworks and financial resource lines. There is no
concerns were articulated by LEA officers who took part in this study: dedicated funding line to support schools and LEAs who have admitted
So if we are going to take out those who have been in the asylum-seeker and refugee pupils but they can draw resources from EMAG
school less than two full years, do we ever make a report on and the Vulnerable Children Grant (VCG). However, neither of these funds is
how those youngsters have actually performed compared to designed specifically to support the complex forms of provision required to
other similar youngsters elsewhere and I think that’s one of address the needs of asylum-seeker and refugee pupils. EMAG, as stated in
the difficulties, that there isn’t actually any good the DfES guidelines, is intended to close the gap between minority ethnic
government data on performance of refugees and asylum- and non-minority ethnic pupils and to raise the achievement of the former.
seekers (Head of Inclusion, LEA C). The aim of this grant is also to meet the cost of additional support for
bilingual learners. The grant devolved to schools is based on the number of
Youngsters that arrive before the end of Key Stage 2 and Key
EAL students, the number of ethnic minorities and the number of those
Stage 4 can be excluded statistically from the performance
receiving free school meals. As EAL pupils, asylum-seekers and refugees
table and statistics. Again that says more about the
might enjoy this grant, but it does not support them directly and does not
government’s drive for standards and league tables (Head of
cater for other emotional, social, health and economic needs9.
EMAG, LEA A).
The Vulnerable Children Grant — Guidance for financial year 2004—2005
Some associate the decision to exclude asylum-seeker and refugee pupils
describes its purposes:
from league tables with the risk that such pupils may only be perceived as
temporary and therefore have less status in the school. Their integration To support attendance, integration or reintegration into
may only be perceived by schools to be relevant once they ceased being school…and to provide additional educational support to
asylum-seeking. It is also the case that this policy ‘leaves unaddressed the enable vulnerable children to achieve their potential.
principal issue of resourcing as effectively as possible those schools facing In contrast to EMAG, the intention is that this grant will also cover pastoral
the challenges of providing for these new arrivals’ (Mott, 2000, p.7). aspects of support for vulnerable groups of pupils. The VCG therefore allows
more flexibility to LEAs and encourages an holistic approach to addressing
Funding Arrangements
the needs of different groups of vulnerable children (Kendall et al., 2004).
There have been calls for more central government support for schools Asylum-seeker and refugee pupils are listed as one of the seven groups who
(Mott, 2000) in order to address inconsistencies in the delivery of support at might benefit from this grant. Funding is diverted to LEAs based on number
local level. For example: of pupils out of school, the number of students receiving free school meals
The Refugee Council believes that the inconsistencies in the and the number of traveller/gypsy pupils.
ways in which language support is delivered, plus the lack of Currently, schools and LEAs have discretion on how to use EMAG funds and
debate about how much EAL support a child should receive is to decide whether asylum-seeker and refugee pupils are beneficiaries. They
caused by a lack of central government policy guidance on have to choose between supporting the needs of various groups of pupils
the rights of children from ethnic minority communities…the facing difficulties in the educational system. Remsbery (2003) and Reakes
DfEE needs to be the lead agency in formulating such a and Powell (2004) found that schools voiced their concern that using EMAG
national language strategy (Rutter, 2001a:44).
There is debate about whether the asylum-seeker and refugee children’s 9
In the current academic year 2004—2005, more restrictions and cuts have been introduced by the DfES to
educational needs are marginalised or rendered invisible within mainstream EMAG and consequently LEAs have generally less money to support EAL pupils.

as the main source of supporting asylum-seeker and refugee pupils could DfES is arguing now that that has been incorporated into the
come at the expense of other groups. The report Aiming High (DfES, 2003a) Vulnerable Children Grant, but you know, how much of it is
recognised that, where EMAG has increasingly been used to meet the needs being recognised within that pot? There is a whole range of
of asylum-seeker and refugee pupils, this gave ‘less flexibility to focus on groups of pupils including Gypsy pupils, you know … there is
raising achievement of British-born minority ethnic pupils’ (p.38). Some LEAs a limit to how far this particular fund will go. So it only gave
and schools which participated in this study had similar concerns. For example a marginal relief in that sense to some of the schools
a Headteacher in one of the schools visited in LEA A (dispersal area) stated: (Interview with an Ofsted Inspector).
Obviously support for these children is always an issue. You When the DfES commissioned an evaluation of the implementation of the
feel you are pulling the support for one group of children to VCG, the authors, (Kendall et al. 2004) found that, despite the flexibility of
meet the needs of another group and you know the thinner this grant, LEAs tend to use it to facilitate and maintain existing strategic
you spread it, the less impact it has (Headteacher, LEA A). approaches, services and support strategies. Therefore, the three main
groups that benefit from this grant are ‘looked after’ children, children with
There are a number of other issues associated with the distribution of funds medical needs and Gypsy/Traveller children. However, the evaluation also
for asylum-seeker and refugee pupils. LEAs, especially in dispersal areas noted the improved ability of LEAs to provide holistic support across
where the local population is predominantly white and therefore their EMAG vulnerable groups and reported that some had used the fund to develop
funding is very small, felt they had inadequate funding to draw upon in work with unaccompanied asylum-seeker and refugee pupils (including work
supporting asylum-seeker and refugee pupils. There are concerns too, on mental health issues) and to fund college places for asylum-seeker and
around pupil numbers. EMAG is devolved to schools and LEAs once a year refugee pupils arriving late in KS4.
based on the pupil census — which means that, even where data about the
Survey data from 58 LEAs in 2000 found that, while the majority of EMAG is
ethnicity and EAL needs of asylum-seeker and refugee pupils are being
devolved to schools, many LEAs feel that the needs of asylum-seeker and
collected, it does not cater for the majority of these pupils who tend to
refugee pupils would have been better addressed by having a central
arrive mid-term (Rutter, 2001a). Also, EMAG started as EAL support for
support system (Mott 2000). Surveys of LEAs suggest that the existing
pupils originally from the Commonwealth, and it has been progressively
funding arrangements for helping asylum-seeker and refugee pupils are seen
reduced over the years. In contrast, the numbers of asylum-seeker and
as limited, inflexible and inadequate, especially when considering the
refugee pupils has increased and EMAG arrangements have not increased
complex needs of this population (Mott, 2000; Reakes and Powell, 2004).
accordingly. Rutter suggests, and the findings of this project confirm, that:
Their [asylum-seekers’ and refugees’] reception is presently The Impact of Asylum-Seeker and Refugee Pupils on Schools
a matter of educational debate. In England, the failure of Ofsted has taken a different more pro-active approach towards the
the Ethnic Minority Achievement Grant (EMAG) to deliver education of asylum-seeker and refugee pupils. It initiated a two-year
support to refugee children, particularly those outside London, research project on the impact of asylum-seeker and refugee pupils on
is a key component of this debate (Rutter, 2001a, p.29). schools which was conducted between 2000 and 2002 and followed with a
report in 2003 on The Education of Asylum-seeker Pupils. The decision to
The difficulties associated with a fair distribution of existing resources have
take a pro-active approach appears to have been a response to dispersal.
therefore been recognised at a number of different levels. The Vulnerable
As the Ofsted ex-Inspector we interviewed commented:
Children Grant has come to be seen as a solution to the problem of catering
for asylum-seeker and refugee pupils. However there continue to be …the other aspect that generated the report is that, at that
concerns about its impact: time, the Home Office was implementing a dispersal

programme… We also wanted to look at LEAs that haven’t got seeker and refugee pupils. It is not clear the extent to which such criteria
this long established tradition, who were part of the are being used by Ofsted inspectors.
dispersal areas. We wanted to see how they are coping, how
they are getting up to speed…. 2.5 Summary
The focus of this report was to examine the effects of asylum-seeker and Schools and LEAs face a considerable number of challenges in relation to the
refugee pupils on schools, rather than the integration of such children. education of asylum-seeker and refugee pupils.
Asylum-seeker and refugee pupils were related here to inclusion and race A range of different factors affect the dispersal, arrival and admission
equality agendas. Thus: of such pupils into the school system. Some central support for the
It is very much part of the inclusion agenda in terms of what development of appropriate responses to the issue is available, but
we are looking at. So it wasn’t a one-off exercise: it was very schools and LEAs still face major decisions in terms of financing and
much part of looking at issues of race equality, issues to do organising adequate support and provision.
with inclusion, very much current in education, part of the There are political and cultural issues associated with immigration and
inspection framework, and these two themes seem to focus which have repercussions in schools and communities. The ways in
on two groups which are perhaps at the margins, the which asylum-seeker and refugee children are regarded and treated
periphery. We needed to take a closer look to see how it is by society has an effect on the responses of pupils, teachers, parents
going. What do we know? What are the good things that are and communities. In this context, schools have the difficult task of
happening? What are the issues, and what are the areas that ensuring that asylum-seeker and refugee children are offered a safe
still need to be addressed in terms of meeting the needs of environment and promoting their integration even if only temporarily.
these two particular groups? (Ofsted Inspector interview).
The transient nature of asylum-seeker and refugee pupils’ status in
Issues around the education of asylum-seeker and refugee pupils have also the UK, the diversity of their ethnic origins and hostile public images
been integrated into the Ofsted inspection of LEAs support for ethnic of their communities, make major demands of schools and authorities
minority groups and approaches to inclusion. The inspection framework only some of which were prepared in advance for such a scenario. The
(Ofsted, 2003a) defines the following classification framework for examining dispersal policy does not appear to prioritise educational placement or
LEA support for asylum-seeker and refugee pupils: integration in the location of asylum-seeker children.
Good: the LEA has a comprehensive policy; the provisions are co- No central database is available to monitor the location and
ordinated with other department and agencies; the LEA monitors the educational achievement of asylum-seeker and refugee pupils and
use of funding and the level of attainment; the LEA keeps up-to-date their progress in mainstream education. This strategy renders such
data on numbers pupils invisible but may also protect them from adverse responses to
their admission in schools.
Satisfactory: the LEA has a strategy; it monitors the use of funding
and attainment and has access to data Schools and LEAs have the responsibility of ensuring that all children,
regardless of their immigration status, receive their full entitlement
Poor: the LEA has no strategy and no access to reliable data
to education and that they are offered opportunities to develop.
These criteria suggest that Ofsted regards a comprehensive policy with However, the resource costs of such entitlements, especially given the
appropriate strategies as important for the successful support of asylum- diversity of needs of newly arrived groups of pupils, may have to be

met from existing sources since only limited central funds are
available. Schools and LEAs are asked to use their discretion to
distribute such limited resources to a range of vulnerable groups.
The next section outlines research findings of the impact of this national
policy context on the educational experiences of asylum-seeker and refugee
children.

Part 3:
Research on the Educational
Experiences of Asylum-Seeker
and Refugee Children
The impact of immigration policy
Part 3: Research on the Educational Access to services
Experiences of Asylum-Seeker The perspective of asylum-seeker and refugee children
and Refugee Children Raising awareness of asylum-seeker and refugee pupils’ needs
3.1 The impact of immigration policy on asylum-seeker and

Teachers in schools with asylum-seeker and refugee children are on the front refugee children
line in relation to national immigration and dispersal policies. The effects of
One of the main concerns of contemporary social and educational research
community conflict and aggressive or hostile reactions to the presence of
in the field has been the effects of different government policies and
asylum-seeker and refugee pupils can be felt by all in the school. Negative
services on the integration of asylum-seekers and refugee children in the
images and media reporting also create difficulties for schools.
UK. Concerns, for example, have been expressed about the negative
Schools could get a cash ‘bribe’ to take asylum children… consequences of immigration policy on asylum-seeker and refugee children’s
The Government’s plan to offer cash incentives to ease the education. Rutter and Jones (1998) in their edited collection, Refugee
problem emerged weeks after the watchdog Ofsted warned a Education: Mapping the Field, for example, argue that the restrictions on
huge influx of asylum-seeker children was threatening the access of asylum-seekers and refugees to benefits and housing introduced by
education of tens of thousands of other pupils. Inspectors the 1996 Asylum and Immigration Act have had a significant effect on
found they disrupted lessons because they were often placed asylum-seeker and refugee children and their integration into mainstream
in schools with little notice and have a poor grasp of English schooling. They warn that, as a result of this legislation, asylum-seeker and
(Daily Mail, 5/3/03). refugee children are more likely to be mobile, to live in temporary
accommodation and therefore to attend less popular schools, and to have a
Struggling schools ‘swamped with asylum-seekers’…
more disrupted education.
Not surprisingly, pupils at the schools in Hammersmith and
Fulham that help educate the would-be refugees are more than Hardwick and Rutter (1998) present the concerns of the Refugee Council
three times as likely to fail their GCSEs (Daily Mail, 5/5/02). regarding the effect on asylum-seeker and refugee children of the 1998
White Paper Fairer, Faster, and Firmer which introduced further restrictions
Despite the large numbers of asylum-seeker and refugee children in
on the access of asylum-seekers and refugees to the welfare system, including
mainstream schooling and the salience of the issue in public debates in
the voucher system10. Its implementation could mean schools have to deal
recent years, research into asylum-seeker and refugee children in general,
with increasing stress among asylum-seeker and refugee children and their
and their education in particular is still relatively underdeveloped. The
families. The authors criticise the voucher system for not catering for children’s
work, for example, of Jill Rutter, previously Education Advisor of the
needs, such as toys and books, and hence denying them aspects of a normal
Refugee Council and that of Candappa (2002), Closs, Stead and Arshad
childhood. Changes in asylum procedures introduced, for example by the 1996
(2001), Hyder (1998) and Richman (1998) laid the foundation for schools
Act and the implementation of the l998 White Paper could also mean that
working with asylum-seeker and refugee children. Research initiated by
asylum-seeker and refugee children will experience more uncertainty in
NGOs (for example, Save the Children, the Children’s Society and the
National Children’s Bureau) comprises another small but important body of 10
The voucher system meant that the benefits to which asylum-seekers were previously entitled, were
work. Research on the educational experiences of asylum-seeker and replaced by vouchers that could be exchanged for certain goods, only in specific shops. This system has
refugee pupils has mainly focused on four themes: been abolished.

relation to their future, which in turn might affect their ability to concentrate research projects conducted by the Refugee Council and the Children’s
on their education (Rutter and Jones, 1998; Hardwick and Rutter, 1998). Society (2002) and the Children’s Legal Centre (2003). Using interviews and
The educational experiences of asylum-seeker and refugee pupils and their focus groups with asylum-seeker and refugee children, both reports
families are also affected by local authority policies. Closs, Stead and concluded that, despite the legal obligation to provide these children with
Arshad (2001) and Stead, Closs and Arshad, (2002) researched this issue in education, many had to wait sometimes for long periods of time before
Scotland, using surveys of different educational authorities and interviews accessing schooling. The Children’s Legal Centre (2003) found that
with asylum-seeker and refugee children and parents. The study drew difficulties in gaining access to schooling reflected not just a lack of
attention to the lack of educational and school policies in relation to available school placements but also the ability of schools to offer language
asylum-seeker and refugee pupils. Many LEAs appeared not to be aware of support, and sometimes their reluctance to admit high numbers of asylum-
the numbers of asylum-seeker and refugee pupils in their schools, or of their seeker and refugee pupils in case exam results were affected. The report
specific needs (ibid). The lack of information about asylum-seeker and also suggests that asylum-seeker and refugee families often find it difficult
refugee pupils and the general failure of schools and educational to access education without assistance.
authorities to keep records about these students, contributed to their
Accessible information about education provision, as well as a mechanism
invisibility.
for advising and assisting asylum-seeker and refugee families on the process
of school admission was also an important factor in determining the extent
3.2 Access to services
to which 14 to 19 year old asylum-seekers and refugees enjoyed access to
The extent to which asylum-seekers and refugees are aware of existing education provision. Based on interviews with 14 to 19 year old refugee
services and their ability to make full use of them has been the focus of children, McDonald (1998) suggests that, ‘For many refugee students such
investigation, mainly by NGOs. An example of this type of research is patterns of disruption and discontinuity [of their education] are also a major
Refugee Children in the Early Years: issues for policy makers and providers feature of their educational experience after their arrival in the UK’ (p.
by Rutter and Hyder (1998) — a publication of the Refugee Council and Save 158). These studies illustrate the importance of a multi-agency approach,
the Children — which examined the extent to which such children enjoy home-school links and special admission mechanisms in supporting asylum-
equal access to early years education. The report’s findings are drawn from seeker and refugee children.
a four-phase study which includes the analysis of Early Years Development
Plans, 110 responses to questionnaires about early years provision by a 3.3 The perspectives of asylum-seeker and refugee children
sample of LEAs and other providers of early years provision, visits to 7 LEAs
Given the invisibility often of asylum-seeker and refugee children in the UK,
and voluntary sector projects, and focus groups with Somali and Kurdish
the small, but growing body of research which focuses on their experiences
refugee parents. The study suggests that, despite the need of asylum-seeker
and voices is particularly important. Some of these studies were supported
and refugee children for early years provision, many of these children do not
by Save the Children (Save the Children, 2000, 2001). ‘I didn’t come here
have access to the range of early years services, nor are their parents aware
for fun’ (Save the Children, 2000) describes the experiences of a small
of them. Access of asylum-seekers and refugees to early years provision
sample of asylum-seeker and refugee children in Scotland. The report
could be improved if LEAs were to put more stress on co-ordinating their
suggests that the majority of these children, who suffer trauma, still feel
services and making information more accessible to parents, for example, by
disoriented and unhappy. Many of these children attribute the feeling of
consulting more and by providing translated material (Rutter, 1998b).
disorientation to the fact that they are housed in disadvantaged areas where
Research on the access of asylum-seeker and refugee children to the range they have no community links and where they often suffer racial harassment
of different services including education was also the focus of small-scale by local youths. They would have preferred to be located next to people
Part 3: Research on the Educational Experiences of Asylum-Seeker and Refugee Children | 27

who share their experiences. Within this context the majority of the Another major theme that emerged from the findings of research conducted
children who were interviewed for this project attributed great importance with 14 asylum-seeker and refugee families in Scotland is that these parents
to schooling and saw it as an opportunity to meet people and to learn often feared being stigmatised and therefore chose not to disclose their
English. Some of them reported that they did not always feel welcome and status to the school. Such disclosure only took place when they came to
experienced difficulties in adjusting to a new language and a different trust the school and the school staff (Closs, Stead and Arshad, 2001). The
education system. interviews with children suggest that most experienced bullying and
These small-scale studies based on testimonies play an important role in encountered difficulties in creating peer relationships. Drawing upon these
bringing the voice of asylum-seeker and refugee children into the public experiences, many of the children also tended not to share with other
domain. Another Save the Children project ‘Cold and Comfort: The lottery students or with school staff, their experiences of having to fly from their
of care for young separated refugees in England’ (Save the Children, 2001) country of origin and of seeking asylum (Stead, Closs and Arshad, 2002). The
presents the findings of a study of 129 unaccompanied asylum-seeker and importance of developing practices (such as home-school liaison) and
refugee children resident in England. It examined the experiences of these creating opportunities for asylum-seeker and refugee children within the
children in relation to accommodation, education, health, social services school and the curriculum to share their life experiences was emphasised in
and immigration procedures. The level of support these children received this research. Stead, Closs and Arshad, (2002) concluded that ‘we need to
and their experiences were found to vary greatly across local authorities, provide refugee pupils with the choice and opportunity to be safely visible:
although many of them felt that they had not received adequate support. only then will their visibility be acceptable’ (p.55).
Asylum-seekers’ and refugees’ experiences can throw light on the ways in 3.4 Raising awareness of asylum-seeker and refugee
which policies are working as Candappa (2000, 2002), Closs, Stead and pupils’ needs
Arshad (2001) and Stead, Closs and Arshad (2002) have shown. Candappa,
for example, explored the extent to which asylum-seeker and refugee Refugee students are special because they have typically
children acquired the rights accorded to children in the UN Child Convention experienced both displacement and trauma and now face the
(2002). Using in-depth interviews with 35 asylum-seeker and refugee task of adapting to a new environment, frequently involving the
children and a survey of 300 asylum-seeker and refugee and non-refugee simultaneous acquisition of new language (Anderson et al.,
children in two London schools, Candappa illustrated the important role 2004:1).
schools can play in helping these children adjust to life in the UK. Schools Raising the awareness of teachers and practitioners to the background and
were the main source of support for many of them but this varied greatly the complex needs of asylum-seeker and refugee pupils has been a major
from area to area. Starting school was found to be a difficult experience for goal of researchers. Many publications that fall into this category attempt to
such children in this project, like those in the Save the Children’s project, identify good school practice in relation to the complex needs of these children.
and many asylum-seeker and refugee children felt isolated. They also saw Richman’s In the Midst of the Whirlwind: A manual for helping refugee
the learning of English as a high priority. children (1998) provides a manual for teachers and practitioners and a
According to the UN Child Convention, these children have the right to an framework for understanding the situation of asylum-seeker and refugee
adequate standard of living — but many asylum-seeker and refugee children children as well as offering useful ideas on how to assist them. Supporting
reported that they experienced an unsatisfactory standard of living including Refugee Children in 21st century Britain: A compendium of essential
financial hardship and inadequate accommodation (Candappa, 2002). These information (Rutter, 2001b) is another manual to help practitioners. One of
experiences of poverty and exclusion could have far reaching effects on the strongest themes in these publications is the importance of understanding
their ability to enjoy their right to education. the multiple complex needs of asylum-seeker and refugee children.

Many of these children have experienced war and loss and are The need to adjust to a new education system and a new school
suffering from trauma (Richman, 1998; Rutter and Stanton, 2001) culture (Hamilton, 2004; Marland, 1998). This includes the difficulties
which might lead to what can be interpreted as behavioural problems asylum-seeker and refugee parents experience in familiarising
(Candappa, 2000). Some might also harbour guilt feelings about having themselves with the culture of the new education system (Rutter and
to escape, leaving family members behind (Richman, 1998). Stanton, 2001).
On arrival at the country of asylum, these children have to cope with Many have experienced interrupted education or have very limited
displacement, and have to develop a familiarity with, and attachment educational experience (Rutter and Stanton, 2001).
to a new place (Anderson, 2004). They have to adjust to a new
Marland (1998) when talking about her experiences as a Headteacher
culture, language (Rutter, 2001b) and to construct a new sense of
working with asylum-seeker and refugee pupils states: ‘each of their needs
identity/belonging (Richman, 1998).
challenges one of our continuing weaknesses, and often challenges it in an
Asylum-seeker and refugee children often have to cope with changes acute way’ (p.17). Acknowledgment of the complex educational, social and
in familial relationships, when their parents become more vulnerable emotional needs of asylum-seeker and refugee pupils is now coupled with an
and depend on their children, or more protective and authoritarian awareness that creative and comprehensive educational solutions are
(Candappa, 2000; Rutter, 2001b). needed, building on teachers’ and practitioners’ experience in the field.
Asylum-seeker and refugee children often have to deal with anxiety as In the last few years Multicultural Teaching Journal11 (see volumes: 16:1,
a result of the asylum process and the uncertainty of their future 17:1, 19:1, 19:2, 19:3, 20:1) has been an important source of sharing
(Richman, 1998). information about good practice across Britain. It publishes short articles by
Asylum-seeker and refugee children have multiple social needs and practitioners, teachers and researchers about their experiences of working
often suffer from poverty and poor housing (Richman, 1998; Rutter with asylum-seeker and refugee children and reports successful initiatives
and Hyder, 1998; Rutter and Stanton, 2001). and projects, highlighting different aspects of good practice. These
publications illustrate the importance of, for example, home-school liaison
In the UK, as a result of dispersal and of avoiding dispersal many of
(Beard and Bradely, 2001; Bolloten and Spafford, 1998; Cable, 1997);
these children experience high mobility (Rutter and Stanton, 2001).
community links (Iszatt and Price, 1995), maintaining home language
Asylum-seeker and refugee children might have special or more (Rutter, 1998b; Hyder, 1998); ensuring access to the school curriculum
frequent health problems (Rutter and Hyder, 1998). (Bolloten and Spafford, 1998) and addressing children’s emotional needs
Finally, many of these children are subject to racial harassment and (Black and Ademi, 1998; Richman, 1998; Rutter, 2001b).
bullying (Rutter and Hyder, 1998; Rutter and Stanston, 2001). Beard and Bradely (2001) use their experience as asylum-seeker and refugee
Raising awareness of these diverse needs is essential as they affect the ability education support officers in one north London LEA to suggest that a
of asylum-seeker and refugee children to enjoy their right to education and successful way of tackling high mobility among these pupils is to develop
to make the most of their school experience. There is also a need to find strong home-school links and encourage parental involvement. Cable (1997)
ways of addressing their specific learning needs. These are described as: describes a home-school liaison project in Merton, London where a school
assigned three teachers to act as home-school liaison officers who were
Language needs: The importance of language support both for EAL
responsible for telling mainstream teachers about the background and needs
(English as additional language) and for maintaining their mother
tongue (Candappa, 2000; Jones and Rutter, 1998; Rutter, 2001a; Rutter
11
and Stanton, 2001). Now called Race Equality Teaching
Part 3: Research on the Educational Experiences of Asylum-Seeker and Refugee Children | 29

of the children. This initiative recognised that asylum-seeker and refugee The need for social and emotional adjustment to the new
children’s needs are bound up with the needs of their parents or carers. environment, previous, often traumatic experiences, learning how to
Kahin (1998) and Vincent and Warren (1998) separately examined the cope also with changes in families and uncertainty about the future.
importance of parent-school relationships through in-depth interviews with Multiple social, physical and economic needs in relation to poverty
asylum-seeker and refugee parents. Vincent and Warren also observed and economic disadvantage, poor housing, high mobility, health
meetings between these parents and school staff. The difficulties asylum- problems and isolation in the local community.
seeker and refugee parents encounter in getting involved in their children’s
Experiences of racial harassment and feelings of, and being
education was found to be related to language and cultural barriers.
unwelcome in schools. They report suffering racial harassment by
Successful home-school links could help remove such barriers and get the
local youth and in some cases, the lack of available support from their
parents involved.
own community because of their dispersal.
Similarly, a project which established co-operation between education
Language needs and the need for stability in schooling after an
psychologists and professionals in a refugee community in London was found
interrupted education, possibly limited educational experience, and a
by Iszatt and Price (1995) to illustrate the benefits of community-school
likely distance between the culture of the home and school.
links. The professional experience of the refugee communities and their
cultural knowledge helped these practitioners successfully address the The next section explores the values, policies and practices adopted by LEAs
emotional needs of asylum-seeker and refugee pupils in schools. and schools.
Hamilton (2004) summarises some of these aspects of ‘good educational
practice’:
Schools need to develop specific policies and procedures that
focus on ensuring the creation of a mutually adaptive
relationship between the refugee child, his or her parents,
schools, and surrounding community and helping services (88).
3.5 Summary
Research on the educational experiences of asylum-seeker and refugee
children in the UK extends professional awareness of the issues involved in
working with them. The accounts of the personal experiences of
professionals working in the field and a limited amount of research have
begun to illustrate the difficulties many asylum-seekers and refugees
encounter in accessing different services including education. However,
reports such as the NCB’s study (Remsbery, 2003), the Ofsted report (2003b)
and the two NFER studies (Mott, 2000; Reakes and Powell, 2004) also
indicate the positive LEA and school reactions to asylum-seeker and refugee
pupils. When designing their responses, local authorities and schools have
found themselves needing to address some or all of the following pupil needs:

Part 4:
The Survey — Local Education
Authority Responses
asylum-seeker and refugee pupils as well as LEAs which provide for more
Part 4: The Survey — Local Education than 5,000 asylum-seekers and refugees.
Authority Responses In line with other studies (e.g. Remsbery, 2003), one of the main findings of
this study is the great variation in the types and level of support offered to
asylum-seeker and refugee pupils and the diversity of policy approaches
School responses to the education of asylum-seeker and refugee children are employed by local authorities. Considerable differences were found in the
greatly affected by the approach, levels and type of support offered by local organisation of the support services, data collection, policy development,
authorities. Data from the survey demonstrates the diversity of LEA policy and the ways in which admission and induction are managed. Underlying this
approaches in England and the sorts of school provision they encourage. diversity are the different ways in which LEAs conceptualise asylum-seeker
and refugee pupils and their needs.
4.1 LEA approaches
This section explores the assumptions by investigating the variation in
There have been a number of investigations of LEA and school responses to practices and approaches employed by LEAs across England in relation to
the education of asylum-seeker and refugee children. These include: three areas and sets of questions:
Ofsted’s research report The Education of Asylum-seeker Pupils Policy: Has the LEA developed policy/guidance?
(2003b) which examined the support for asylum-seeker and refugee
Data collection: Does the LEA collect data and if so, what sort of data?
pupils in 37 schools in 11 LEAs.
Support: How is support organised? What sort of support is offered by
The report produced by the National Children’s Bureau (Remsbery,
the LEA to schools and directly to asylum-seeker and refugee pupils?
2003) The Education of Refugee Children: Policy and Practice in the
Education of Refugee and Asylum-Seeker Children in England which 4.2 Asylum-seeker and refugee education policy
identified good practice in relation to the support offered by several
The DfES recommends but does not require LEAs or schools to develop a
LEAs, particularly those in dispersal areas.
specific and appropriate policy indicating how they will support asylum-
The NFER studies: Mott (2000) surveyed 58 LEAs to investigate the seeker and refugee pupils. It recommends that the LEA could include
extent to which they had specific policies and practices to address the reference to the education of this group either under its Education
needs of asylum-seeker and refugee pupils. The Education of Asylum- Development Plan (EDP) or other policies:
Seekers in Wales (Reakes and Powell, 2004) presented the findings of
a case study research in 3 Welsh LEAs. To ensure that the education needs of these children are
properly taken into account, LEAs are encouraged to develop
One of the aims of this study was to identify different conceptual local policies and procedures… (DfES, 2002a:10).
approaches to the educational and social needs of asylum-seeker and
refugee pupils. The 58 LEAs which participated in the survey conducted for LEA respondents suggested a variety of responses to this recommendation:
this project included London authorities which were highly experienced in the following types of LEA policy approaches were identified:
policy development in relation to minority ethnic groups and which already Specific category within a broader policy
had high numbers of asylum-seeker and refugee pupils, and LEAs which were Specific references to the education of asylum-seeker and
located in a dispersal area and which for the first time found themselves refugee pupils are made in other polices such as: EMA, EAL,
having to deal with high numbers of EAL or minority ethnic pupils. The LEAs new arrivals, race equality, vulnerable children and EDP. 16
in our sample included LEAs which provide education for less than 100 LEAs (28%) fell into this category.

Comprehensive targeted policy Usually, asylum-seeker and refugee pupils were referred to in other policies
A separate comprehensive, well-developed policy with an (such as that for race, vulnerable children or equality). When references
emphasis on social inclusion and challenging popular were made to asylum-seeker and refugee pupils in other policies, it was
stereotypes. This policy approach usually includes usually under one of the following:
information about the educational, emotional and social
Education development plans
needs of asylum-seeker and refugee children, legislation,
services, criteria for good practice and inclusion of these Ethnic minority achievement policies, in which case the emphasis was
pupils into mainstream education. 15 LEAs (25.5%) fell into on raising achievement
this category. Policies related to race equality or inclusion
Language policy New arrivals and mid-term admission policies where the emphasis was
Separate policy which focuses on particular aspects such as setting a policy for admission and induction
EAL. 9 LEAs (15.5%) fell into this category. In some cases, references were also made in the vulnerable children
School guidance policy, in which case the emphasis was on collaborating with social services
The provision of short guidance for schools that gives basic
In a survey of 58 LEAs in England and Wales, Mott (2000) argued that only a
information and criteria for good practice. 9 LEAs (15.5%) fell
few LEAs at that time had developed policies or made specific references to
into this category.
asylum-seeker and refugee pupils in existing policies. In that respect, our
General policy in relation to vulnerable groups study suggests that there have been significant developments in that area.
No specific reference is made to the education of asylum- The following explanations were articulated by LEAs as reasons why a
seeker and refugee pupils and they are seen as no different separate policy for asylum-seeker and refugee pupils was not required:
than minority ethnic EAL, new arrivals, or vulnerable
A focus on ‘doing’
children. 9 LEAs (15.5%) fell into this category
One LEA, for instance, in a dispersal area, with a highly
Some LEAs which had developed a comprehensive targeted policy, language developed support system, explained that ‘We are good at
policy or school guidance policy used the services of outside consultants to issues of support but not on the paper side of it, we deal
put together the policy, whilst others relied on publications such as NGOs’ with support not with creating policies’.
publications (mostly those of the Refugee Council and Save the Children).
A lack of resources
Other LEAs, especially those in dispersal areas, reported that they used
policies or guidance developed in more experienced LEAs, especially A few LEAs referred to the problem of resources and funding
London, to write their own documents. We did not ask LEAs specifically as the reason why they had no policy. An LEA in a dispersal
whether they were aware of the DfES guidance for supporting asylum- area explained that they were in the process of putting
seeker and refugee pupils (DfES, 2002b). However, when asked about the together a policy, but since they did not have a designated
sources from which they drew in developing their services and policies, only officer, and the responsibility for asylum-seeker and refugee
ten LEAs (17% of the sample) made any reference to the guidance. Nine pupils resided with the EMAS officer, they lacked the time
LEAs mentioned it as a source which they drew upon when developing their and resources to make progress.
services or policies, and one LEA reported finding this guidance confusing Too many policies
and vague about the kind of support LEAs and schools should provide for One LEA in a dispersal area, with a relatively developed
such children. support system, felt that schools were overwhelmed with
Part 4: The Survey — Local Education Authority Responses | 33

policies — so preferred to integrate the issue into already Very low numbers
existing compulsory policies such as EMA or race equality. Not a relevant category in terms of the services provided
These reasons for not developing specific policies in relation to the Too sensitive to ask directly for their status
education of asylum-seeker and refugee pupils suggested that the lack of Too transient a population
such a policy did not necessarily mean lack of awareness and
underdeveloped services. Among the 50 LEAs that collected data of some sort, 26 (45%) maintained a
separate database (monitoring strategy); 14 (24%) LEAs collected partial
4.3 Data collection strategies and models data and 10 (17%) LEAs used a deductive model. The eight LEAs which did
not collect any specific data on asylum-seeker and refugee pupils stated
Four different strategies of LEA data collection were found and are
that they did not see any relevance in monitoring and maintaining a
described below:
separate database on asylum-seeker and refugee pupils. Officials in an LEA
Monitoring strategy (45% of sample) in a dispersal area with high numbers of asylum-seeker and refugee pupils
The number of asylum-seeker and refugee pupils is explained that, although they collected extensive data about minority
monitored by establishing a specific category on the local ethnic pupils and new arrivals, they did not have a separate category for
authority database or a separate database is set up. The LEA asylum-seeker and refugee pupils since:
either relies on one source of data, such as NASS, or creates
It is not relevant for the school practice to know whether
a network of information that usually includes NASS, housing
someone is an asylum-seeker. From the school’s point of view
providers, social services, schools and voluntary
it does not serve any purpose to ask about asylum status, it
organisations. This network ensures that these pupils are not
doesn’t attract additional funding.
missed out. The database is updated regularly.
Partial database (24% of sample) These LEAs raised concerns about the sensitivity of the issue and the
This strategy refers to LEAs where data are collected by dilemma of catering for asylum-seeker and refugee pupils’ needs without
schools mainly upon admission. As a result, children who stigmatising them as ‘problems’. The difficulty they faced was creating a
were not offered a school place can be missed out. Partial safe form of visibility. For example, a London Borough argued that they ‘did
databases also refer to LEAs that collect data once a year not see the status of asylum as relevant and fear that the term ‘asylum-
which does not record movement and mid-term admission. seeker’ is now part of ‘scare terminology’. The authority therefore decided
Deductive strategy (17% of sample) to down play the issue, highlighting instead aspects related to minority
There is no specific category for asylum-seeker and refugee ethnic and EAL provision. Similar concerns were raised in a study of Welsh
pupils but numbers are deduced from other databases mainly LEAs (Reakes and Powell, 2004). These concerns were also the reason why
EAL, new arrivals and PLASC. Sometimes the LEA cross-references some LEAs, for example, chose a ‘deductive’ model of data gathering. For
two or more databases. The main reason for not collecting example a London Borough that used a deductive model claimed that it
data directly is a desire not to single out asylum-seeker and would be a ‘bad practice’ to ask someone for their citizenship status. Case
refugee children. Alternative ways of monitoring are found. study LEA C used a mainly deductive model for the same reason.
No collection of data (14% of sample) In contrast, those LEAs which had developed strong data collection
LEAs do not collect specific information about asylum-seeker strategies, (like LEA B), suggested that the purpose of data collection was
and refugee pupils. Three main reasons were found: that asylum-seeker and refugee pupils

…may have particular needs that are not being addressed are no records of movement of asylum-seekers within the UK,
simply because you want to treat them the same as everyone particularly if they opted out of the NASS system (Head of
else. So you can understand that as an instinct but it’s not EMAS, LEA B).
necessarily the best professional response because you really
Three different models of data collection could be identified in LEA
need to know a fair bit about any child to see how you
responses. The particular clusters of variables produced a different range of
respond to them. There may be certain behaviours that can
information about asylum-seeker and refugee communities and pupils. The
be misinterpreted if you don’t know what has happened to
models and types of variables were:
the family or you don’t know the circumstances the family
are living in (Advisory Support Teacher, LEA B). An Extensive Data Model
There are some schools now where there’s almost a sense of The database includes different types of information such as:
we don’t want to identify these pupils as asylum-seekers Languages, country of origin, ethnicity
because it identifies them as a slightly different group,
EAL needs, prior education, attainment and attendance
different to others and I think there’s some confusion in their
Welfare information: social services support, emotional
minds between the agenda for inclusion and the need to be
support, school meal grants etc
aware of the differences (Senior Advisory Support Teacher, LEA B).
Immigration information: e.g. NASS numbers and status
Of the LEAs which set up a separate database and monitoring strategy, the
Information about community links
decision to use and cross-reference different sources of information was
often derived from the experience, especially in dispersal areas, that data Learning and Language Data Model
provided by NASS was not sufficient. Remarks such as ‘NASS does not inform The database focuses mainly on issues of EAL, attainment and
us quickly enough’ or ‘NASS information is inaccurate’ were repeated in the learning. It includes:
LEA survey. For example, the LEA officer in LEA A who was responsible for
Information about country of origin, ethnicity etc
data collection explained:
Extensive information about EAL needs, prior education,
When I get the papers from NASS with the ages etc., …it attainment and attendance
gives me the language which isn’t always correct and the
Update on progress
country which isn’t always correct either (Asylum-seeker and
Refugee Pupils Officer, LEA A). Minimal Data Model
Similar comments were offered by Ofsted (2003b) in its report The The database includes only very basic information such as country of
Education of Asylum-seeker Pupils. The problem of acquiring accurate data origin, languages and ethnicity
clearly poses a considerable challenge for many LEAs. Indeed quite a few There were not obvious connections between the ways in which data were
LEA officials interviewed for this project felt that the task of maintaining an collected and the models of data collection (extensive, EAL focus and
accurate database was extremely difficult, as one commented: ‘it is hard to minimal models). There were various combinations of data collection
maintain and very frustrating’. Because of the mobile nature of this strategies and data models among the 50 LEAs which were engaged in the
population, the data were either inaccurate and/or out of date. Thus: task of data collection, as the following table illustrates:
We have about 40 known asylum-seekers. But we don’t know
about all of them. Because it is not a dispersal area, there

Table 1: Data collection strategies and models I check with the accommodation provider, look up the
address, check who the accommodation provider is. I check
Monitoring Partial database Deductive
that they are Angolan, Russian or whatever. I try to find out
strategy strategy strategy
whether they are Catholic, Christian, Muslim, Buddhist,
Extensive data model 10 LEAs 3 LEAs 1 LEA whatever. Check the language they speak…and then all of
(20%) (6%) (2%) those factors are taken into account before I look for a
Learning and language 7 LEAs 4 LEAs 6 LEAs school place (Asylum-seeker and Refugee Pupils Officer, LEA A).
data model (14%) (8%) (12%)
4.4 The organisation of support services
Minimal data model 9 LEAs 7 LEAs 3 LEAs
(18%) (14%) (6%) Rutter (2001a) identified three different forms of LEA support services.
These were: (a) a Refugee Support Team, (b) a specialist support teacher
N=50 and (c) support given by EAL officer/teacher. Mott (2000) suggested that the
LEA officers described three main uses of data: majority of LEAs tend to designate an officer or a team as asylum-seeker
Monitoring admission and refugee officer/team. The findings from our research suggest that LEAs
tend to organise their services in an even greater variety of different ways:
Better planning of support including decisions such as giving extra
support and funding to schools that admitted large numbers of Responsibility resides with EMAS officers, usually line-managed
asylum-seeker and refugee pupils through school improvement and therefore often focused on the
Collecting information at the initial assessment of asylum-seeker and ‘raising achievement’ agenda. (22 LEAs — 37%)
refugee pupils and using the database to monitor attainment An Asylum-seeker and Refugee Pupil Support Officer/Co-ordinator who
LEAs who used an Extensive Model for the database, such as two of the case is part of the EMAS, EAL, Inclusion or Race Equality team. (20 LEAs — 34%)
studies in this project (LEA A and LEA B) also stated that they maintained Responsibility resides with the Race
and used the database to examine how they could cater better for the Equality/Diversity/Multicultural team. (8 LEAs — 14%)
needs of asylum-seeker and refugee pupils and foster their integration. An Asylum-seeker and Refugee Pupil Support team: a team which
The following extracts illustrate this approach: includes several officers, usually line-managed by EMAS. (4 LEAs — 7%)
I think the hardest part for us as a staff is the background of Responsibility resides with the EAL service or the New Arrivals team.
these children and what they come with and try and, (4 LEAs — 7%)
because if you know what’s gone on in the past, you have
more of an understanding of how to help in the future. So To a large extent, LEA approaches to organising their services were informed
that’s the difficult part (Headteacher, primary Catholic by the extent of available funding. The most frequent arrangement used by
school, LEA A). the sample of LEAs was that of designating one of the EMAS officers to support
the asylum-seeker and refugee pupils, whether in the capacity of a specific
…we didn’t have any data about asylum-seekers and refugees
Asylum-seeker and Refugee Pupils Support Officer, or as an EMAS officer.
in schools and that’s sort of become apparent that you need
to know about these pupils in order to identify their needs or Those LEAs which were able to afford an asylum-seeker and refugee pupil
pinpoint what schools need to do to offer more help (Asylum- support team or an officer were usually the ones which were able to keep a
seeker and Refugee Pupils Officer, LEA B). significant part of the EMAG money centrally, rather than devolve it to

schools. Others managed to secure additional support from the LEA or Table 2: Different LEA Approaches to Admission, Training and Pupil Support
successfully bid for external funding. Some LEAs in the survey decided to
dedicate the VCG primarily to meet the needs of asylum-seeker and refugee
Targeted Services Partial Services Non-specific services
pupils.
Very well rehearsed The team/officer who There is no involvement
Admission procedures
LEAs who were unable to secure this funding reported a struggle to keep up admission procedure has the responsibility in the admission
an adequate level of service and to address the needs of asylum-seeker and which is facilitated by for asylum-seeker and procedure and there is
refugee pupils. If the government did not take into account the fact that the support services refugee pupils can be no special admission
some LEAs were in a dispersal area, it was unlikely to divert more resources and not the LEA’s involved in some procedure for asylum-
to allow the LEA to meet the needs of these pupils. Another LEA in a admission service. aspects of admission, seeker and refugee
Admission procedures for example home- children in place.
dispersal area (which originally had only 2% of minority ethnic pupils and
might include the school liaison,
hence had a very small EMAG) with high numbers of travellers who also following: accompanying the child
needed to benefit from the VCG, talked about the difficulty of having very • home visits by home- to his/her first day at
limited resources to draw upon in supporting asylum-seeker and refugee school liaison officer or school or producing
pupils. meeting with parents materials for parents or
• interpreting services schools.
In our survey we also distinguished between ‘targeted services’ (which • accompanying the child
offered extensive focused support), ‘partial services’ (with some specific and the family to their
responsibilities and support) and ‘non-specific services’ in three categories first day at school
• conducting special
of provision:
assessment that is
Admission procedures and responsibilities designed to overcome
language barriers and
The training of teaching and support staff assisting the school in
Ongoing pupil support for their learning and pastoral needs writing an action plan
• producing special
The level of support LEAs developed to meet the needs of asylum-seeker welcome kit for the
and refugee pupils under each of these headings varied greatly. child, the school and
information pack for
parents
The LEA provides a Mainly INSET training or No specific training.
Training
wide range of central specific reference to
training and INSET asylum-seeker and
training that covers, for refugee pupils in other
example, raising training such as race
awareness, supporting equality or EAL
asylum-seeker and training.
refugee pupils in
classrooms, emotional
needs, and so on.

Table 2 continued procedures and delineated responsibilities did not necessarily imply that the
LEA also offered extensive training to teachers and support staff, or that it
Targeted Services Partial Services Non-specific services had a targeted and ongoing support system for asylum-seeker and refugee
pupils’ learning and pastoral needs. For example, out of the 58 LEAs only
Support covers a range The support is focused No specific provisions
Ongoing pupil and school support
ten indicated they had targeted and comprehensive services in all three
of issues: on one or two areas, for asylum-seeker and
• EAL support usually EAL. refugee pupils exist. categories of admission, training and ongoing support for schools; only three
• After-school activities They receive support LEAs demonstrated non-specific service provision in all three categories.
• Access into mainstream under EMAS or EAL
The survey data revealed that, while developed policy and sophisticated
curriculum based on their EAL
• Special provisions for needs. systems of data collection and analysis usually suggested that the LEA also
post 16, or early years had a well defined and targeted support system, the lack of policy or simple
• Supporting refugee models of data collection did not necessarily indicate low level or non-specific
communities though support systems. There were examples of LEAs which had no formal policy
supplementary schools but had highly developed admission procedures, offered extensive training
• Psychological support
• Pastoral support
for teachers and covered a range of issues under its ongoing support system.
• Raising awareness
through citizenship 4.5 Summary
education.
In line with other studies (Mott, 2000; Ofsted 2003b; Rutter, 2001b), the
• Liaison with other
agencies analysis of the survey data suggests that the ways in which English LEAs
• Home-school liaison support asylum-seeker and refugee pupils and the schools they attend vary
greatly. Differences were found between LEAs in relation to strategies of
collecting data, the type of data collected, policy, and the nature of school,
The distribution of these types of support services in the 58 LEAs who
family and pupil support services and the extent to which teachers and
participated in the survey, was as follows:
schools and other support staff are offered ongoing help.
Table 3: LEA Support Services
Implicit in these provisions are conceptual differences in the ways in which
LEAs address the education of asylum-seeker and refugees. Such is the
Targeted Services Partial Services Non-specific Services
complexity and range of these needs that LEAs have had to consider the
Admission 27 LEAs 16 LEAs 15 LEAs sorts of approach they wish to take. In the next section we explore the ways
46.0% 28.0% 26.0% in which LEAs conceptualised asylum-seeker and refugee children and how
Training 28 LEAs 17 LEAs 13 LEAs their needs might be addressed.
49.0% 29.0% 22.0%
Ongoing support 23 LEAs 30 LEAs 5 LEAs
39.5% 52.0% 8.5%
There was not necessarily any coherence found between the three components
of LEA support services. In other words, having highly developed admission

Part 5:
Educational Models and Values —
Exemplification of three
LEAs and their Schools
particular characteristics of these pupils such as being EAL
Part 5: Educational Models and Values — pupils, as well as the needs which emerge from having
Exemplification of three LEAs experienced interrupted education, being new to the British
education system and being admitted to school mid-term.
and their Schools Policy and support systems are designed to tackle these
issues and usually focus on school admission and the
induction of these pupils.
The aims of Part 5 are twofold:
to identify the different conceptual models underpinning the different EAL model
strategies and practices employed by LEAs Asylum-seeker and refugee pupils are seen primarily as EAL
pupils. Therefore the main data which are collected focus on
to outline the values underlying one of these approaches — the
their languages, their competence in English and English
holistic model exemplified in three LEAs and their schools
acquisition. The support offered to these pupils is aimed at
and focused on improving their English.
5.1 Conceptual models
As we have seen, LEAs differ in terms of data collection strategies, policy Minority ethnic model
development and support services offered to schools with asylum-seeker and Asylum-seeker and refugee pupils are understood to be first
refugee pupils. Underlying these differences of policy and provision are and foremost minority ethnic pupils. As such they are at risk
different conceptual models which define asylum-seeker and refugee pupils of underachieving. LEAs which adopt this approach offer
in particular ways. Below we identify six conceptual models: support for these pupils as part of the ‘raising achievement’
agenda and their school improvement strategy.
Holistic model
LEAs that employ a holistic conceptual model perceive asylum- Race equality model
seeker and refugee pupils as pupils with multiple, complex Asylum-seeker and refugee pupils are seen as a possible
needs (learning, social and emotional). This understanding target for racial harassment and as a subject for race
informs their support system, not only in terms of the different equality policies or multicultural education. The main focus
aspects of support they cover, but also in terms of the ways is raising the awareness of their cultural differences and
in which they construct the purpose of the support put in place. their vulnerability in that respect.
The prime aim of the policy, data collection and the support Vulnerable children model
system is to contribute to the social inclusion, the well being These approaches represent asylum-seeker and refugee
and the development of these pupils. LEAs which adopt this pupils as vulnerable children, as another group which might
model see EAL provision not as an aim in itself but as a be at risk of dropping out of mainstream education, or who
means to promote the pupils’ ability to fulfil themselves as might experience difficulties in gaining access to education
learners, to access the curriculum and to be socially included. and making full use of their right to schooling. Support is
New arrivals model organised to ensure their access to education and that
Asylum-seeker and refugee pupils are defined as new information about their rights and the services they are
arrivals. LEAs which employ such an approach focus on entitled to are made available to them.

These conceptual models are not exclusive and the language employed by asylum-seeker and refugee pupils. Yet they all offer a holistic model of
LEAs and the support offered suggests that these are ‘ideal’. In practice addressing the needs of asylum-seeker and refugee pupils. They share a number
many LEAs employ more than one conceptual model and move between of features. For example, they all appear to have taken account of the complex
them. The prevalence of the LEA different conceptual models was as follows: needs of these pupils (learning, social and emotional needs), they foster home-
Table 4: The Distribution of Conceptual Models school links and community links, they employ a multi-agency approach, and
they all take a child-centred approach towards the education of these pupils.
EAL pupil Holistic Minority New arrivals Race Vulnerable The aim of this section is to illustrate how this model works in different
model model ethnic model equality children contexts and the factors which encouraged the development of practice.
model model model
Below we describe each of the local contexts:
22 LEAs 18 LEAs 13 LEAs 8 LEAs 7 LEAs 2 LEAs LEA A is an urban Northern LEA in a dispersal area which serves a relatively
diverse population with large minority ethnic communities, especially those
The importance and usefulness of these conceptual models is that they with an Asian heritage.
suggest the logic that lies behind different practices and the support offered
Significant numbers of asylum-seekers and refugees first arrived in 2000—2001
by an LEA or a school. For example, employing a ‘minority ethnic approach’
in the town. In 1998—1999, a small group of Kosovan refugees also arrived.
can explain why some LEAs focus on collecting data about attainment.
Currently there are around 850 asylum-seekers and refugees in the county
Alternatively, a highly developed admission procedures and induction
(high numbers in comparison to other towns in the area) from which 280 are
programme can suggest that the LEA has adopted a new arrivals model. Each
children at school age. They come from 67 different countries, the main
conceptual model offers opportunities for good practice. In our study the
ones being: Somalia, Czech Republic, Iran and Afghanistan. The schools we
two most popular models appear to be that of EAL language provision and
visited had between 10 to 30 asylum-seekers and refugees at any one point.
the holistic model. Despite the involvement of EMAS funds and support
officers, only a few LEAs appear to locate the issue of asylum-seeker and The reaction of the local population and the local media tended to be
refugee education within the context of race equality policies — rather more positive with a very supportive local council.
LEAs employed the minority ethnic policy approaches which was not We probably avoided the problem and hopefully in the future
surprising given EMAS funds. Only two LEAs provided their services within the issues that have affected other northern towns…our
the context of the vulnerable children agenda. county is bigger and perhaps a little bit more cosmopolitan
The model which recognises the complexity of the needs of asylum-seeker and than these towns where there have been problems…partly by
refugee pupils is that which is described as ‘holistic’. This conceptual model is the nature of the [local] population…partly by strategy and
now associated with the development of multi-agency structures and works in policy and I think that comes from the council and the chief
line with current thinking behind the Children Act 2004. The next section executive (Head of EMAG, LEA A).
focuses on the types of good practice associated with the holistic model on the LEA B is a small shire in the Midlands which, despite the fact that it is not
basis that here was an expressed commitment to providing a comprehensive part of the dispersal plan, has relatively high numbers of asylum-seekers and
and targeted approach to the needs of asylum-seeker and refugee pupils. refugees mainly settling in towns in the county. Since it is not a dispersal
area, those who arrive make their own way to the county rather then being
5.2 Holistic models of good practice directed by NASS. It is also the host of one of the asylum-seeker and refugee
The three LEA case studies that were chosen for this study differ in relation removal centres. 16% of the local population are minority ethnic pupils from
to their local context, background and experience in terms of working with diverse communities.
Part 5: Educational Models and Values — Exemplification of three LEAs and their Schools | 41
Asylum-seekers and refugees first arrived at the end of the 1990s in small
numbers. A sudden increase in numbers occurred in 2000. There are about
300 known asylum-seekers and refugees, but since it is not a dispersal area,
the numbers may be much higher than reported. Main countries of origin are
Croatia, Zimbabwe, Lithuania, Kosovo and Somalia. The school visited over
the years had between 20 to 30 asylum-seeker and refugee pupils at any one
point.
The LEA and the support services have to deal with working within a context
of a local community and media which are often very hostile towards
asylum-seekers and refugees. However, the LEA and the EMAS service in
recent years have enjoyed support at a county council level.
LEA C is a London Borough with a very diverse local population. Schools in
the Borough often have 70% or more minority ethnic pupils, with a few
dozen languages spoken by the pupil population. They also experience very
high levels of mobility. Therefore the LEA has wide experience of working
both with minority ethnic pupils and new arrivals. LEA C is also signed up to
the ‘raising achievement’ agenda after inspections in recent years described
it as ‘a failing authority, it’s one where we have got very low results’ (Head
of Inclusion, LEA C).
LEA C has at least a decade of experience with asylum-seeker and refugee
pupils. Some 16.9% of its school population are asylum-seekers and refugees,
LEA C has one of the highest numbers of asylum-seekers and refugees in
London and in the country. The three schools visited in LEA C have between
8% to 30% of asylum-seeker and refugee pupils.
The local population in the borough is not only diverse, but are also very
used to the presence of asylum-seekers and refugees. As one of the LEA
officers stated: ‘If you look at the history of [the Borough] it’s always been
continual coming and going of people so it would be very strange if
councillors were to do anything but welcome people’.
Employing the same criteria as those used for analysis of the survey data,
i.e. organisation of the support service, data collection, policy and ongoing
support, the profiles of good practice in the three LEAs are described below:

Table 5: LEA A’s Holistic Model Support LEA A operates a targeted system of support for asylum-seeker
services and refugee pupils and schools that includes:
Policy LEA A does not have a policy as such. It provides guidance for • Training: the LEA runs training and ‘raising awareness’
Development schools for the support of asylum-seekers and refugees and sessions for schools, governors, teachers, non-teaching
their families (written by the consortium), guidance provided by staff, PGCE students and other county services
EMAS on late arrival pupils (which are mostly focused on asylum- • A special arrangement for post-16 asylum-seekers and
seekers and refugee pupils) and information packs for schools refugees with the local FE college
about asylum-seekers and refugees. The emphasis in the • A special ‘life skill programme’ for late arrivals in year 11
guidance and information packs is very clearly focused on the • Welfare/pastoral support is one of the emphases of the
social inclusion of this group, facilitating their integration into support system in LEA A. This includes, for example,
schools and enabling them to rebuild their lives. The perspective assisting asylum-seeker and refugee parents with
obtaining free school meals and free uniforms, using a
fostered by LEA A is that services such as EAL are there as a
special grant to provide bus passes for asylum-seeker and
means of inclusion for asylum-seekers and refugees rather than
refugee pupils, and providing each new arrival with a
as an end in itself. Asylum-seeker and refugee pupils also come
starter kit that includes a school bag, notebooks and
under EMA policies such as Strategy for Supporting EAL Needs
other essentials
and Ethnic Minority Pupils.
• Managing the admission process and considering the
different needs of the asylum-seeker and refugee families,
Organisation of The LEA support for asylum-seeker and refugee pupils comes such as the need for social network, in the process of
the service under EMAS. EMAS has designated one of its Deputy Heads as finding a school placement:
Asylum-seeker and Refugee Officer. The Deputy Head who has We try to find them the culturally appropriate place,
been assigned this responsibility is also leading the multi-agency religious-wise or shared culture within the school
forum entitled The ‘[county] Asylum-Seekers Inclusion Consortium’. (Asylum Seeker and Refugee Officer).
The support services offered to asylum-seeker pupils and schools • Induction: an extensive induction package that includes an
are funded mainly by EMAG but also by the Vulnerable Children in-class teaching assistant for 6 weeks; classroom resources
Grant and external funding obtained through the consortium’s for EAL students in mainstream classroom and other dual
bids. The services are centralised which means the LEA support languages resources
asylum-seeker and refugee pupils and schools directly. Many • On-going support: EMAS staff and bilingual support
schools buy back services from the LEA which means the LEA teachers, schools can use their EMAG money to buy back
employs and trains support teachers and teaching assistants. those services from the LEA
• Developing programmes for a citizenship education and
Data collection The LEA has collected data since 1999, but a comprehensive refugee week which focuses on raising awareness of the
database was only put in place in 2004. The main emphasis in the school population to issues of asylum seeking
data being collected are the social/welfare elements such as • Support in schools focuses on meeting the needs of asylum-
accommodation provider, status and so on, although information seekers and refugees to make sure they have access to the
about languages and country of origin is collected as well. There mainstream curriculum:
is a good system in place for sharing information between housing We’re here first and foremost to make sure that all
providers, social services and the LEA and information sharing is pupils access the curriculum and that their lack of
done on a weekly basis. One of the main reasons for the emphasis proficiency only becomes a barrier if they haven’t got
given to sharing information across services is the experience of the cognitive ability to access the curriculum (EMAS
the Asylum-seeker and Refugee Officer of the inaccuracy of the teacher, secondary school).
information received by NASS. LEA A uses the monitoring strategy • Many schools also provide after-school activities such as
of data collection with an extensive model of data collection. homework clubs
Table 6: LEA B’s Holistic Model Data collection Being a non-dispersal area in which asylum-seekers and
refugees arrived voluntarily and mostly went unreported,
Policy Using the work of the multi-agency strategy group, LEA B has LEA B has had a rather difficult time in maintaining an accurate
Development developed a separate policy for the education of asylum-seekers database — it nevertheless puts a lot of effort into maintaining
and refugees which was published in 2002. The aim of the as comprehensive a database as possible. It has collected data
policy as stated in its preface is to set out ‘the LEA’s policy for since 2001. The database is maintained by the Asylum-seeker
the education of asylum-seeker and refugee pupils. It is and Refugee Pupils’ Officer who shares information regularly
intended to raise awareness within the LEA of the needs of with other services such as housing, social service and voluntary
refugees and asylum-seekers…provide information and guidance service. The database includes information about languages,
to schools and promote social inclusion’. The policy document nationality, school placement, pastoral support and status. LEA
gives information about asylum-seekers and refugees in the UK, B employs a monitoring strategy and an extensive model of
the LEAs’ and schools’ responsibility towards them and the data collection.
support system which exists in the county. The policy defines
the responsibility towards asylum-seeker and refugee pupils in Support LEA B operates a targeted system of support for asylum-seeker
terms of providing school placements as well as ensuring their services and refugee pupils and schools, that includes for example:
needs are met and they are socially included. • Training: INSET and central training for teachers which
focuses on raising awareness, meeting the needs of
Organisation of The LEA’s support for asylum-seeker and refugee pupils comes asylum-seeker and refugee pupils and making the
the service under EMAS which is line managed by school improvement. curriculum accessible for them
EMAS has recently moved from client services to school
improvement — a change that has been criticised by the EMAS • Facilitating admission
officers: • Making school uniform grants and free school meals
We’ve moved from education and client services…into available to asylum-seeker and refugee pupils who are
school improvement. We now find ourselves within a not supported by NASS
group who do not necessarily have a real understanding • Addressing the issues of trauma and emotional needs: music
of how we work, what we do, what our objectives are therapy project, emotional literacy workshops and more
(EMAS senior advisory support teacher).
• Providing schools with translated school letters in
EMAS includes the head of service, senior advisory support different languages
teacher, primary and secondary advisory support teachers,
Asylum-seeker and Refugee Pupil Support Officer and • Advisory support teachers for primary and secondary
cultural mediators (many of which are refugees themselves). schools work with mainstream teacher on how to
The role of the Asylum-seeker and Refugee Pupil Officer is integrate asylum-seeker and refugee pupils and how
to maintain the database, to liaise with other county to make the curriculum accessible to them
services, to keep the service updated with changes in
‘[I] work alongside a teacher in a classroom for a
legislation and to manage the admission of these pupils.
number of weeks or a number of lessons to look at
LEA B is also part of a multi-agency strategy group which
planning together and make suggestions as to things
was established by EMAS. The advisory support teachers’
that might be tried out in the classroom’ (Advisory
main focus is advising schools on supporting asylum-seeker
Support teacher — primary).
and refugee pupils. The Asylum-seeker and Refugee Pupil
Officer and the cultural mediators work directly with these • Cultural mediators: their role is to provide asylum-seeker
children and their families. and refugee pupils and parents with the opportunity to

share their concerns with someone with whom they share
the same language and culture. The cultural mediators
facilitate the communication between the schools and the
families, provide advocacy for the family and also provide
in-class support and first language support for the children
Support in school:
• Schools run induction programmes, assessment, maintain
progress profiles, and provide EAL support and in-class
support
• Pastoral support which in the case of the school visited
also included the tutoring system
• Lunch time and after school clubs in the EMAS centre act
as a safe space for the children
• Courses in community languages
• Raising awareness of refugee issues through the citizenship
and religious curricula
• Information sharing about the child’s progress across
departments in the school to ensure adequate support
Table 7: LEA C’s Holistic Model needs and languages. More pastoral oriented information is kept
by the EWO. LEA C employs a deductive strategy for data
Policy Building upon almost a decade of extensive experience of collection and collects data using a language and learning model.
Development working with asylum-seeker and refugee pupils, the Asylum-
seeker and Refugee Pupil Support team of LEA C has recently Support LEA C has a targeted system of support for asylum-seeker and
completed the work on an all-embracing of LEA’s guidelines for services refugee pupils and schools, that includes for example:
working with these pupils. The guidance covers different
• Training: one of the major parts of the LEA support system.
aspects in the education of asylum-seeker and refugee pupils,
They offer both central and INSET training for teaching
from admission, through induction to supporting their learning
staff that covers areas such as initial assessment, meeting
and other needs in mainstream education. The guidance will be
the needs of these pupils, working with interpreters,
made available for schools in this school year.
training for administrative staff about how to approach and
welcome asylum-seeker and refugee pupils, training for
Organisation of LEA support for asylum-seeker and refugee pupils comes under
teachers in community supplementary schools. They also
the service EMAS. It is line managed by the Inclusion Strategy manager
hold training on how to encourage parental involvement of
which is part of school improvement. LEA C has a team
asylum-seeker and refugee parents
comprised of two Asylum-seeker and Refugee Pupils Officers,
one for primary schools and one for secondary. The decision to • Resources and dissemination of information: the asylum
appoint a refugee team was taken as a result of research team maintain an active website which includes examples
conducted in the mid 1990s that identified the need in LEA C of good practice in the Borough, information from the
for such a team. Initially the team should have included 4 DfES, NASS and examples of letters supporting families who
primary and 4 secondary officers, but budget restrictions meant are facing deportation. Also EMAS publishes a bulletin
the LEA could only afford a team of two officers. In the LEA, twice a year which provides information about asylum-
there is also an Education Welfare Officer (EWO) who seekers and refugees and their communities
specialises in asylum-seeker and refugee pupils and works • Partnership with the local FE college for providing ESAL
alongside the asylum team and is also involved in the admission courses
process. Since the numbers of asylum-seeker and refugee pupils
in LEA C are very high, it employs a decentralised approach and • A tuition centre has been set up for late arrivals until a
the asylum team focuses primarily on advising and supporting placement is found
schools in their work through training and developing courses. Most of LEA C’s support focuses on involving asylum-seeker
Most schools use the EMAG money to employ an EMAS officer or and refugee parents in, for example:
a team of officers that holds the responsibility for these pupils.
The LEA asylum team takes part in the Borough multi-agency • Weekly surgery to assist asylum-seeker and refugee parents
forum that includes social services, housing and education. with the process of admission
• Multi-lingual information booklets for parents, including
Data collection Schools collect their own data upon admission, and there are information about the education system and the LEA are
schools that keep a refugee register. The asylum team also available in schools. This information is also available in
keeps a central database. However, since the LEA consider audio-visual forms (i.e. cassettes and DVD)
pupils’ status to be a sensitive issue, pupils are not asked to
• Parent Aid:
state whether they are asylum-seekers or refugees and the
database is mostly deductive, using Rutter’s framework of cross- ‘we’ve developed a directory of services called
referencing information about languages, country of origin and Parent Aid. We surveyed a number of schools… and
EAL needs. The focus of the database revolves around EAL logged every single concern that parents brought to

the school and when we actually examined them it
covered a huge range of issues you know, from how
do I register with a GP to can you help me with the
housing department or I need an immigration lawyer,
I need to get in touch with NASS and so we built the
directory around those concerns that we’ve got, ten
sections…they’re all local contacts’ (Asylum-seeker
and Refugee Pupil Officer)
Examples of support offered by schools:
• Induction: effort is being made to involve parents in the
process
• Assessment and progress: Some of the schools visited
maintain both a refugee register and a progress profile
for each pupil that includes both elements of EAL and
academic progress as well as social inclusion and
integration factors
• Running lunchtime and after school clubs and summer
schools — creating a safe space for the children within
the EMAS department
• Emotional therapy sessions
5.3 Particular strengths of the LEAs We run a share group here so we can do work with parents
The case study LEAs had particular strengths in relation to: and bring them in and do parent workshops to empower the
parents to help their children as well and to understand how
Parental Involvement the curriculum and the school system works here…but also to
Community Links develop their own skills. Like we have an ESL class, we have
Working with other Agencies computer classes, you know we try, sometimes, well not
sometimes, we have coffee mornings where the parents are
We discuss each of these in turn below. invited to those sessions and we invite somebody in, like the
Parental Involvement education welfare officer, education psychologist, the school
nurse. We run a share group where we were working with
Kuhin (1998) and Vincent and Warren (1998) in two different studies
just fathers one term which was quite challenging. We work
demonstrate the importance of school-parent relationship for the successful
with the parents on an area of literacy or numeracy work to
integration of asylum-seeker and refugee pupils, especially to counter the
help them to understand the curriculum that their children
difficulties that some parents might have in understanding the ways in which
are doing because, for many of our parents, culturally the
the British education system works. School-parent relationships are also
system is very different (Head of EMAS, primary school, LEA C).
mentioned as an important factor in raising the achievement of these pupils
in the DfES (2002a) Good Practice Guidance. The parents’ thing, that’s one of our big things. We started
off a few years ago just running a parents’ drop in where the
LEA C attributes great importance to school-parent relationships and seems to
mums could drop in for a drink and a chat with the parental
have particularly highly developed practices in this respect. LEA C puts a lot of
involvement teacher and that’s developed into quite a solid
emphasis on school-parent relationship as an important part of integrating
little club where we now have other activities going on. So
children. ‘If the parents are included, the children are [included] too’ (Head of
there is English language teaching for parents, there is basic
EMAS, secondary school, LEA C). An example of this LEA’s practice is the
adult literacy…that is organised around the needs of the
partnership established between the LEA and the local FE college which
school so that the parents learn how to write a note in the
provides ESOL courses for refugee parents in schools where: ‘parents can get
child’s school journal if they are away from school, so that
accreditation for their own learning as well as helping their children’ (Asylum-
parents learn how to fill in the forms that they need to for
seeker and Refugee Pupil Support Officer, LEA C). Schools in LEA C are
parents’ evening. It does two things — it helps the parents
encouraged to invest in these relationships as part of LEA policy. At the time of
understand and participate in the education that their child
the research, 17 schools in the Borough were involved in a special school-parent
is receiving, but it also helps the parents develop some very
partnership project and many schools employed a home-school link teacher:
early literacy in English which they can then use in situations
We’re very good in some ways at involving parents because that they come across. It helps the parents get to know each
we’ve actually got a home school links teacher (Deputy other (Head of EMAS, secondary school, LEA C).
Headteacher, secondary school, LEA C).
LEA C and its schools focus on school-parent relationships to inform parents
The following extracts from interviews with the Heads of EMAS in primary about the British education system. They also see the role of this relationship
and secondary schools give examples of the support which schools in this as empowering asylum-seeker and refugee parents to help them help themselves
LEA offer to asylum-seeker and refugee parents and the partnership they and their children. This approach is based on the understanding that the
establish with them: integration of the child is also dependant on the integration of the whole family,

and a holistic approach to asylum-seeker and refugee children that works and organisation and we liaise with them (Headteacher
with a notion of the whole child rather then focuses merely on his/her secondary school).
learning needs. LEA C and its schools appear to emphasise the importance of If such links are not found, the school sees its role as giving the asylum-
social capital for the successful integration of these children into mainstream seeker and refugee pupils an alternative community.
schooling. This was evident in the response of the Head of EMAS in the secondary By acknowledging the importance of community links and the social capital
school, who suggested that one of the aims of the parents’ club is that they they might entail for asylum-seekers and refugees, LEA A also tries to
will have a chance to meet with other parents and find a network of support. support community activities. It understands that developed community
Community Links links, and social networks can only contribute in the long term to the
LEA A and its schools stress in particular the importance of community links. integration of the community in the wider society in the county:
Out of the three LEAs studied, it has the most developed relationships with When we see (community activities) beginning to develop we
local minority ethnic communities in general and refugee communities in say do you need any help? Perhaps you’d like to join in our
particular. The County’s Consortium for the Inclusion of Asylum-seeker and grant application and maybe put a bit of funding their way or
Refugees, which is led by the LEA’s Asylum-seeker and Refugee Pupil Support offer them opportunities for photocopying. However
Officer, includes representatives of some refugee communities in the area. mundane, sometimes this can make an enormous difference.
Other forms of consultation with refugee communities exist both at county (We ask) would you like to use one of our rooms to meet in?
and school level. Council members as well as the LEA senior management You know, it’s just making things available but you’ve got to
have made it customary to visit minority ethnic communities and refugee let it develop how they see it, it’s their community.
community organisations to allow them to voice their concerns and give Hopefully they become part of the wide community [in the
their input into life in the county. Otherwise, schools and colleges have country] as well (Asylum-seeker and Refugee Pupil Officer).
reported that they often seek the assistance of these communities especially Working with other Agencies
when admitting a new family to the school. For example: On the education side, probably it is the LEAs really, the better LEAs
The Somali community is one in particular where we’ve are certainly co-ordinating the work of these agencies and working
worked very closely with representatives from the Somali with some of the regional planning groups that NASS has in place to
community, particularly to identify other issues that are look at all aspects of health education and so on (Ofsted Inspector).
affecting those students. It’s working like a focus group to All three LEAs acknowledged the importance of working with other agencies to
some extent. We’re getting feedback from them, we’re meet the needs of asylum-seeker and refugee pupils. Especially prominent in
trying to change the provision that we offer, the pastoral that respect was LEA B in which the support service leads the multi-agency
support that we offer (Deputy Head, FE College). group. With the arrival of significant numbers of asylum-seekers and refugees to
Some of the schools in LEA A reported having made an effort to link new the county, four years ago, the Head of EMAS initiated the establishment of a
asylum-seeking and refugee families to existing communities in the county. strategy group for the education of asylum-seeker and refugee pupils. It is a
Considerable benefit for these families can be gained from such links: multi-agency group that meets once a term and is comprised of an educational
…you may have asylum-seekers who are coming in who don’t psychologist, representatives from the social services, health and housing
have a community to support them in the same way and department in the LEA, and other departments such as music therapy, as well as
therefore the role of the school is perhaps important. But we Headteachers of schools with high numbers of asylum-seeker and refugee pupils.
always try and liaise, and do liaise with any community. It is called a strategy group, but it is practitioners who would
Because I know the Somali, there’s a sort of community group actually be leading on the appropriate strategies for dealing with
particular pupils. So it is a sharing of information, building on 5.4 Characteristics, practices and values underlying
people’s specialist knowledge and the use of this knowledge a holistic model
collaboratively to be most effective (Head of EMAS, LEA B).
Some common values and experiences can be found, especially with respect
The multi-agency strategy group was also the drive behind the LEA’s policy to the approaches and thinking that underpin the development of these
for the education of asylum-seeker and refugee pupils as well as behind three LEA support systems for asylum-seeker and refugee pupils. Interviews
changes in the reception of asylum-seekers and refugees at county level: in schools and the authorities suggest these common characteristics,
The county council I think is very supportive [at the moment] practices and values have contributed to the development of a positive
for wanting to make provision for asylum-seekers and refugees holistic approach and the conception of good practice:
but not pro-active in addressing issues. There was good Existing experience with minority ethnic and EAL pupils
planning and multi-agency work particularly between us and
Promoting positive images of asylum-seeker and refugee pupils
social services which the [Head of EMAG] would have initiated
and driven. So I suppose the county council and parts of the Establishing clear indicators of successful integration
hierarchy benefit from the fact that [the Head of EMAG] and An ethos of inclusion and the celebration of diversity
her colleagues were pro-active (Head of Inclusion, LEA B). A holistic approach to provision and support
This emphasis on information sharing with other services and agencies, and A caring ethos and the giving of hope
the thinking behind establishing a multi-agency system, is embedded in the
Existing Experience with Minority Ethnic and EAL Pupils
three LEAs’ understanding that asylum-seeker and refugee children have
complex needs which stretch beyond education and must be addressed, The Ofsted Report (2003b) The Education of Asylum-seeker Pupils argues
therefore, in collaboration with other agencies. Examples of some of the that LEAs in dispersal areas, which have had little experience with asylum-
other practices adopted by these LEAs to support asylum-seeker and refugee seeker and refugee pupils in particular and EAL pupils in general, struggled
pupils are presented diagrammatically below: at the beginning to address their needs adequately. Reakes and Powell
(2004) investigating school provision in three Welsh LEAs also confirmed that
having a multicultural school population appeared to help schools integrate
asylum-seeker and refugee pupils. Previous experience either in working
More Psychological aid: Bilingualism: Welfare support: directly with asylum-seeker and refugee pupils or with minority ethnic pupils
examples We have a unit… We like to hear We have a small was suggested by all three LEAs as a valuable resource which the LEA and
called ‘the groups of students fund that we
of good schools could draw upon. A positive approach to such pupils is created by
cottage’ and chatting in different provide Bus
practice they do various languages… passes… it lasts 7 previous contact with diversity as the following quotes indicate:
therapies, they do students are asked days and not just 5 …. having had a very positive experience with the Kosovars
behavioural to use their first so they can use it (because we took sort of half a plane load here) …when we
therapy, anger language… and to go shopping
management… they are also with their mum… it
took the Kosovars we tested the emergency plan…There was
drama therapies, asked to write in gives them access a strong learning curve …but again it was a rich experience
music therapies. their first to wider society… for the schools and for the children and for the staff so I
(LEA C) language. (LEA C) it is more about think quite a lot of preparation was done at different stages
integration (LEA A) before we even had the Kosovars (Asylum-seeker and Refugee
Pupil Support Officer, LEA A).

I think in a school like ours where it’s not a one off thing pupils are Asian heritage. Because of that we have a team
that happens, our intake is made up of children who have that is funded through the EMAG grant and therefore the
English as an additional language or children who have school has staff who are used to working with pupils and
recently arrived. It’s not something that’s an uncommon their families for whom English isn’t their first
thing; it’s embedded really in the culture of the school (Head language…Certainly in the initial stages it has helped to
of EMAG, primary school, LEA C). divert resources into supporting these pupils (Headteacher,
I think that one of the issues is that we are a school which secondary school, LEA A).
has been multi-cultural, multi-ethnic, multi-lingual for such a
long time that it’s just part of what we are… and therefore, Promoting Positive Images of Asylum-seeker and Refugee Pupils
in a way we’re not the sort of school who says, oh, we’re One of the major common values associated with the holistic approach of all
getting a refugee next week, we’ve got to do something three LEAs and the schools visited was their exceptionally positive attitude
special for them because, you know, we welcome all from towards asylum-seeker and refugee pupils, especially in light of negative
whatever background. I think there are some schools for media images and concern over exam results:
whom it is a real problem (although it is) not necessarily a
Generally, they’ve [schools] been excellent. Most of them regard
problem — you are getting something special (Headteacher
it as a positive, enriching experience, an educational experience
and Head of EMAG, secondary school, LEA B).
for the other children, both linguistically and culturally. And
Schools and LEAs noted that previous experience of an ethnically diverse they celebrate more festivals now in schools than they ever did
school population made them more prepared professionally to cater for before (Asylum-seeker and Refugee Pupil Support Officer, LEA A).
asylum-seeker and refugee pupils. Their integration into the school
community was faster and smoother: The LEAs and schools in general do not perceive these pupils as a ‘problem’:
I have to say part of the reason why the asylum-seekers that We don’t have ‘pains in the arse’ or ‘little buggers’ opposed
have come to this school have fitted in so quickly is because to learning. We’ve got barriers to learning and we
they tend to follow the same religion as the majority of the systematically find out what those barriers are and find out
pupils here, Muslims (Head of EMAG, secondary school, LEA A). ways to overcome them (Headteacher, secondary school, LEA B).
I think at this school we’ve got children, we’ve often got a lot of I know that some schools think that those students are
movement, children coming and going. It’s very multi-cultural so problematic but we tend to find that the advantages of
they fit in straight away really. There’s not an issue, the children having those children outweigh any disadvantages (Head of
accept there is somebody new (Teacher, primary school, LEA A). EMAS, secondary school, LEA C).
Previous experience of a high percentage of minority ethnic pupils also Linked to this attitude is the positive image of asylum-seeker and refugees
contributed to the schools’ ability to meet the needs of asylum-seeker and that these LEAs and schools hold. Expressions such as ‘dedicated learners’
refugee pupils because of knowing how to divert resources from already and ‘committed students’ were repeatedly used, as these quotes illustrate:
existing funding for such purposes:
A lot of my children have been fast learners so, after a while
Well we are quite fortunate in the school because we have a of settling in, they just kind of pick up with the rest of the
high proportion of minority ethnic pupils anyway. 70% of our work you are doing (Teacher, primary school, LEA A).
That was a group of people that had very high expectations about the Another example can be found in a booklet published by the secondary
education they were going to get. Their expectations push our standards up school visited in LEA A entitled Valuing Cultural Diversity. The booklet
(Deputy Director, LEA A). presents the support system available in the school for asylum-seeker and
Demonstrably they do very well, we can point out examples refugee pupils and introduces the asylum-seeker and refugee pupils in the
of extraordinary achievement from pupils who have come school listing their achievements under the title ‘The success of inclusive
here with very little education and experience (EMAS teachers, partnership’. For example, ‘Rim arrived in England Summer 2001, Prefect,
secondary school, LEA C). June 2002’; ‘Alex arrived in England 2001, Star basketball player and expert
dancer’. These findings also resonate with the images used by schools and
I don’t think schools feel anything but joy in seeing new LEAs to describe asylum-seeker and refugee pupils in Wales (Reakes and
pupils coming because they need pupils. Also they recognise Powell, 2004).
that these pupils quite often are more focussed in their
achievement to try and get on (Asylum-seeker and Refugee Establishing Clear Indicators of Successful Integration
Pupil Support Officer, LEA C). This school ethos and the agendas of inclusivity and celebrating diversity is
linked to the LEA’s and schools’ conceptualisation of the indicators of
The Headteachers and teachers in these case studies talked about asylum-
integration. In the national context, successful integration of refugee
seeker and refugee pupils as a welcomed addition to their schools and even
children with respect to education is their ability to achieve in school.
as a factor that contributes to a better learning environment for all:
Integration is represented at national level as applicable only to those who
What I would say is that the children that we have got in already received refugee status. The three case study LEAs and schools
have brought many qualities to school and to a large extent articulated different understandings of the indicators for the integration of
set an example to our own children because many of them asylum-seeker and refugee pupils. Some of the officials and teachers were
are desperate to learn, keen to make something of themselves critical of the goals that were set by the government in terms of the
and keen to please, eager to please and want to work hard integration of refugees, as the following extracts suggest:
and learn (Headteacher, Catholic primary school, LEA A). The Home Office has got indicators for integration, and for
Those interviewed for the study in LEAs and schools were able to recognise education. I think it is appalling. I told them so myself,
the possible contribution of these pupils to the school and its community because it is basically down to SATS results, GSCEs results,
and made an effort to highlight their value. numbers of student going on to higher education, and that is
fine, but this is not integration. You can achieve
…they bring an added dimension to the school population academically, and not necessarily be integrated as a person.
and, in terms of our language profile, it increases that and So it is things like not just the quantitative but the
makes the school a richer environment (Head of EAMS, qualitative indicators, which are often ignored — things like
secondary school, LEA C). whether actually the parents feel safe to come to the school
Ultimately their courage in the face of almost unimaginable and question and talk to the teachers, find out more, that
hardship and trauma is an inspiration to us all, and without they are empowered (Head of EMAG, LEA B).
exception, they bring us far more than we ever give to them It’s not just about doing well in school, they can be
(from the Headteacher speech for the new intake of parents, successful in other ways, you know. I mean if they are doing
secondary school, LEA B). well it’s a bonus, but if you aren’t happy, you’re never going

to be successful (Asylum-seeker and Refugee Pupil Support actually didn’t notice her at all, she was just breezing along,
Officer, LEA A). laughing and joking with the other girls and as she walked by
You know I could pore over their results and what they’ve got me, like that, she stopped and turned round and said, hello
in school, but that’s not necessarily going to tell me a lot. I miss, what are you doing here? That’s integration, when she’s
think, especially in their first two years, the social element is the just one of the other kids, you know, she’s happy, she’s got
big indicator. The most important to me … are they participating friends, she’s joining in the after school activities (Asylum-
in clubs, getting involved in choirs, in music and other extra seeker and Refugee Pupils Support Officer, LEA A).
curricular things? (EMAS teacher secondary school, LEA C). Well if I see a happy child who feels safe, is able to interact
with people, his peers and with adults and he’s settled in
All three LEAs and schools that were visited described successful integration
school and able to communicate his feelings and his thoughts
using very different criteria to those used by central government. The main
and ideas then I think we’ve done a good job…You know we
emphasis was on (a) the social aspects of integration (b) whether the
have to be careful that integration doesn’t always mean
children feel safe and secure in school and (c) whether their needs were
about the other person changing because that isn’t
being met so that they could fulfil their potential. We describe these below.
integration (Head of EMAS, primary school, LEA C).
Social integration
Meeting their needs and fulfilling their potential
Well I think if they can join in school activities, parents will
They may have particular needs and those needs are being
turn up on parents’ evening because that’s another important
met but they don’t feel that they are different in any way.
issue isn’t it…it’s just taking part in normal everyday life I
It’s almost as if they don’t feel like asylum (Headteacher,
think, that’s what they need to provide the opportunities for
secondary school, LEA A).
(Deputy director, LEA A).
Criteria such as attainment were referred to as a means of integrating
They need to be settled well within a group of friends, they
children rather than as a tool for measuring their integration:
need to be achieving at their potential or at least working
towards it. They need to be involved in as many extra- When they come into school we make the best assessment
curricular activities as they want to be (Head of EMAS possible of where they are actually at, what their educational
secondary school, LEA B). level is and then as quickly as possible integrate them into
If by the end of 6 weeks the child has settled and made mainstream classes so that they are learning alongside other
friends …If they are attending clubs which are not our clubs children (Headteacher, secondary school, LEA A).
that is a success marker. If they are taking part in school Finally, the following extract from an interview with the senior advisory
life… So if I see them taking part in other aspects of school support teacher in LEA B, sums up the common values used in the these
life, they are gaining recognition for that, I see that as LEAs to frame a concept of integration:
successful (Head of EMAS, secondary school, LEA C).
I would see a family who was comfortable with connecting
Being happy and feeling safe and secure with the school first of all and have an understanding of what
I went into [a school] last week and there’s … 15 kids all at the school was seeking to achieve. And I would see a pupil
the same time. One of the girls that started at that time…came who was comfortable with their own identity, had a sense of
waltzing down the corridor with a girl on either arm, and I value about their own experiential background… was well
socially, and emotionally well integrated, had a good sense of The school policy is to include all children regardless of their
self-esteem both in the school and outside in the community background and their previous experiences and that all children
and was able to access the curriculum and develop their own come with their own experiences and to value that, to value
skills, whether they are academic, social or linguistic to the their culture and their language (EMAS teacher, secondary
highest possible level, who felt safe and secure obviously not school, LEA C).
just within the school but within the community (Senior
A speech delivered by the Headteacher of the secondary school visited in LEA
Advisory Support Teacher, LEA B).
B to the new intake of parents emphasised that being an all-inclusive school and
welcoming asylum- seekers and refugees was part of what the school stood for:
An Ethos of Inclusion and the Celebration of Diversity
We are a genuine multi-class, multi-cultural comprehensive
Another characteristic value held in common by the three case study LEAs
school. Every child here has equal value, and one way we
and schools was an ethos of inclusion and valuing diversity. This ethos
make that absolutely clear is by opening our doors to
contributed to the positive attitudes of these LEAs and schools to asylum-
refugees and asylum-seekers. We have more than any other
seeker and refugee pupils and the perception that they are adding value to
school in the county — in fact we almost have more here
the schools. LEA A, in particular could draw on a strong tradition across the
than all the other schools in the county put together. Many
county of celebrating diversity.
schools don’t want them — we welcome them and have
Over many decades, the citizens of [the county] have created a special induction programme to help them to
welcomed people from all around the world…Each new influx settle into the school as quickly as they can. We are a global
of immigrants has brought to [the county] the diversity of village school. But if you don’t want your child to be sitting
culture that we enjoy today. All have contributed to the beside such students in class, befriending them, accepting
economy of our town in different ways. It is important that them, making them welcome, but above all learning from
we know something about the cultures of our newer them, then perhaps it is definitely not a good idea to come
communities and the geography of the countries from which to [our school] (Headteacher’s speech, LEA B).
they have originated (From the county’s sixth form college
The Head of Inclusion in LEA B saw the ethos of inclusion as making the
booklet — foreword by a County MP).
difference between a school that welcomes and caters for these pupils and
The council has, as part of its policy, valued diversity and a school that struggles to do so.
that principle of valuing diversity permeates through
I think actually the biggest challenge is for schools that don’t
everything. I think people are genuinely signed up to it.
have an inclusive ethos. If you have an inclusive ethos then
So when you get asylum-seekers and refugees, there is a
basically you’ve got a routine for meeting the needs of any
genuine and not a patronising view that they have a
child whether they are asylum-seeker or refugee or not
contribution to make to this. This is a new benefit to you
(Head of Inclusion, LEA B).
as a community, rather than it being seen as a challenge
and difficult. I think this notion of valuing diversity makes A Holistic Approach to Provision and Support
a difference, so instead of accommodating the difference
We were very aware that this was not just an educational
I think we promote the differences (Deputy Director, LEA A).
issue and that we need to look at this pupil group in a very
A strong commitment to inclusion was also found in the other two LEAs. holistic way (Senior Advisory Support Officer, LEA B).

As we have seen, the research highlights the fact that asylum-seeker and So you know, through those actual links that you develop
refugee pupils have multi-faceted and complex needs and cannot be seen with social services housing, all of those things that have an
merely as EAL pupils or newly arrived pupils (Rutter and Stanton, 2001; impact on education — they actually work in a much wider
Rutter, 2001b). The case study LEAs and schools appeared to have fully way than some aspects of school improvement services (Head
embraced this holistic view of the child: of Inclusion, LEA C).
It wasn’t the fact that there was a sudden increase in groups Adopting a holistic approach also informs practices such as home-school links:
of children coming from more disparate ethnic backgrounds
or language backgrounds. It was an awareness that some of We do home visits as well so we get to meet the parents in
these children actually brought with them some very distinct their own space and also find out what the parents’ needs
needs which we were not necessarily addressing within our are because again, some of our families have all sorts of issues
normal support mechanisms (Advisory Support Officer, LEA B). that affect the children’s ability to settle, access the curriculum,
that are wider than just learning issues. So you know, you get
Some of our families have all sorts of issues that affect the
a wider picture (Head of EMAS, primary school, LEA C).
children’s ability to settle, access the curriculum, that are
wider than just learning issues, you know (Head of EMAS, The holistic framework employed by this LEA and schools encouraged a
primary school, LEA C). maximal approach, stretching their responsibility towards asylum-seeker and
Some of those schools have actually assigned a support refugee pupils beyond the legal obligation to provide such pupils with
person of their own to work purely just with asylum-seekers education and even beyond the duty to welcome them and give them
so they have recognised that there is an additional need additional teaching and classroom support.
other than just EAL, that there is a support need (Asylum- It’s about a lot more than educational support, it’s the whole
seeker and Refugee Pupil Support Officer, LEA A). support of starting something new, and in their case…It’s the
The Head of EMAS in LEA B explained the need to develop a multi-agency new house, the new food, the new clothes, the new sometimes
group and to work with other agencies as part of the understanding that it is very impoverished lifestyle to what they’ve left behind. It’s
not sufficient in the case of asylum-seeker and refugee pupils to address the new reduced family if they’ve lost a parent on the way…so
only their learning needs: the induction to the course is about being a carer, a mentor,
a teacher, a supporter, it’s all those things rolled up into one
If we just concentrate on education we would actually be on (Asylum-seeker and Refugee Pupil Support Officer, LEA C).
a hiding for nothing, in so far as, yes we can provide
teachers and schools and instructors. But if for example they Schools and LEAs adopting such a maximal approach see schooling as an
have a theoretically absentee parent…the child does not important factor in creating for those children a ‘safe base’ and helping
have support that they should have. Still our central focus is them to rebuild their lives. The case study schools and the LEAs took it upon
the child and their education, but in order for the child to themselves to assist asylum-seeker and refugee pupils in various ways. For
feel secure or safe, and valued, they’ve actually got to have example the Asylum-seeker and Refugee Pupils Support Officer in LEA B
that parent in some way or shape or form so you have to described how the LEA assisted asylum-seeker and refugee families with
work alongside health, social services (Head of EMAS, LEA B). liaison with other services:
Similarly Head of Inclusion in LEA C explains the need to work with other I try to liaise with other agencies to try and sort out other
agencies as embedded in the need to address the complex needs of these pupils: needs as well. So it’s really complex in a sense that you try
to sort out that they would go to a GP or find a GP because define the indicators of their integration and above all the maximal way in
if something worries them, the education of their children which they understand their role and responsibility towards them, suggest a
won’t necessarily be the highest thing on their agenda different ethos. Expressions such as: ‘welcoming’, ‘creating a secure
(Asylum-seeker and Refugee Support Officer, LEA B). environment’ and ‘caring’ were some of the most frequently used phrases
Or the Head of EMAS in a secondary school in LEA C who described the aid LEA officers and teachers have used when discussing the education of
the school provided asylum-seeker and refugee families in their dealings asylum-seeker and refugee pupils. Below are some examples:
with the Home Office and especially with deportation: It is all about welcoming them, caring about them
For example we’ve got a Pakistani boy at the moment whose and making them feel secure…
family are in the process of being deported and the school It seems to me from my position as a senior manager, it
has intervened and helped the family write letters, help seems to be a position of welcoming and then caring and
them canvass MPs and so on. That’s something we would then we obviously run programmes that help them to develop
normally do with asylum-seekers (Head of EMAS, secondary (Head of Inclusion, LEA B)
school, LEA C). Just welcome them to the school really, just know that
These LEA officers also saw the role of the LEA and more specifically of the people care for them (Governor, primary school, LEA A)
support services to raise the awareness to asylum issues in the local I like to think, by and large, the asylum-seekers and refugees
population and the county council and to counter the negative media are made to feel welcome in the school and they feel
stereotypes: supported. That’s probably the most important thing…. Good
We also have a role of informing a wider audience. So, for practice is about welcoming in young people to the school
example, during refugee week we put displays up within the (Headteacher, secondary school, LEA A)
council area, and within the senior officers’ area, because We try to ensure that they’re welcomed into the school and
there is a lack of awareness of the issues in this particular they feel safe and secure (Headteacher, primary school, LEA A)
field (Head of EMAS, LEA B).
…you work here because you care about them and you want
The press are guilty of quite a lot of imbalance there and we something positive to happen [to them] (Asylum-seeker and
do try to have positive press releases from time to time, we Refugee Pupil Support Officer, LEA B)
have a marquee on the town hall square for refugee week for
[a good practice is when] asylum-seeker and refugee pupils
one day and we have an awareness raising exhibition
or families are actually welcomed into the school and then
(Asylum-seeker and Refugee Pupil Support Officer, LEA A).
supported (Senior Advisory Support Teacher, LEA B)
A Caring Ethos and the Giving of Hope The school just wrapped its arms around him [an asylum-
seeker pupil], welcomed him into the school family, and we
The image of asylum-seekers and refugees as potential criminals as a threat
all got on with it. He is simply one of us (Headteacher,
to the social cohesion of British society can be counter-posed by
secondary school, LEA B)
humanitarian discourses that treat asylum-seekers and refugees with
compassion (Bauman, 2004). As the data have demonstrated, the three LEAs The case study LEAs and schools see their role as catering for the needs of
emphasise an ethos of care and compassion. What the case study LEAs put in asylum-seeker and refugee children in the best way they can — by giving
place to support asylum-seeker and refugee pupils, the ways in which they them a better future:

Schools can play a pivotal role in providing refugees with not The concerns of asylum-seeker and refugee pupils described in section 3.3
only a new beginning, but also a very real sense of the suggest that there is a need to ensure that experiences of racial hostility are
future. Inadequate or inappropriate provision runs the risk of addressed both in school and the local community. Only 7 LEAs in the study
compromising the future life chances of asylum-seeker pupils saw a race equality framework as central to its strategy of supporting
who fought so hard to hold on to those chances (EMAS asylum-seeker and refugee pupils, another 13 LEAs located such pupils
bulletin, LEA B, 2004). within the concerns of minority ethnic achievement and school
From my perspective, well I think from the LEA’s perspective improvement. It is not clear, however, the extent to which those LEAs that
I think very much that they have a right to education, no adopted one of the other conceptual frameworks addressed issues of racial
matter how long they are going to be here for, they have a harassment and prejudice specifically and pro-actively.
right. We can’t assume that they aren’t going to be here very The other main LEA approach was a holistic model which incorporates
long so let’s not bother. From my point of view is to let them possibly all the other approaches since the emphasis here is not on just on
access that right, to integrate them to school, to society at educational needs but on the child’s emotional, social and medical needs
large as quickly as possible. If they get permission to stay, (described in Part 2). The assumption is that the values of both social
you’re aiding that transition into becoming UK citizens. If inclusion and educational achievement should apply to both asylum-seeker
they don’t and they are deported…we have to think about and refugee pupils and that EAL provision, induction and admission
the positive things that we gave to that child and the family strategies, and strategies to promote cultural diversity would all be
while they were here. If they end up speaking English, it’s a subsumed under this broad agenda.
gift that they can use forever. You’ve given them an insight The investigation of holistic approaches in three very different LEAs reveals
that all of humankind isn’t like that, that there is a way to a some common understandings about how to provide for the broad range of
better life and if they go on to be the citizen that goes on to pupil needs (see Part 3). The policy approaches of the three case study
create that better life in their state or their country then all LEAs, (both in dispersal and non-dispersal areas) were found to place a
to the good, you know, but to give them the possibility to strong emphasis on developing social capital through school-parent
move on to better things (Asylum-seeker and Refugee Pupil relationships and community-support. Successful help for asylum-seeker and
Support Officer, LEA A). refugee children appears to be dependent on actively supporting their
parents’ involvement in their education and their community. These
5.5 Summary strategies are facilitated by close working relationships between schools and
This part of the research explored the value assumptions which lay behind other agencies (e.g. health, social services, housing, psychological services).
LEA policy, support strategies and provision, funding and data collection There is evidence here of the development of multi-agency approaches
arrangements. The aim was to uncover the ways in which the educational which addresses the needs of the ‘whole child’.
needs of asylum-seeker and refugee pupils are conceptualised by The values which underlie such holistic models reveal positive
practitioners. The LEA survey revealed that the needs of asylum-seeker and understandings of what asylum-seeker and refugee children can contribute
refugee pupils and strategies to address those needs were mainly located to the school and community. Interviews with teachers and officials imply
within existing educational frameworks. Most LEAs were found to compassion and caring about the children and the need to ensure that
conceptualise the needs of such pupils as that of learning English — 22 out others in the school community see the advantage of having the children
of the 58 LEAs in the sample located their support structure within the attend the school. The criteria for success refers to both educational and
framework of EAL provision. social integration.
Part 6:
Commentary
Part 6: Commentary
This project was based on interviews and telephone survey data, together In policy terms, LEAs and schools need to come to a view on a number of
with an overview of the relevant literature. The data collected by these different issues. These are:
methods enables us to offer some suggestions for consideration.
Developing a targeted policy
6.1 Challenges for schools and LEAs The form of data monitoring
How to monitor educational achievement
Under the UN Convention of the Rights of the Child (1989) asylum-seeker
and refugee children are entitled to receive sufficient support to be able to Funding priorities
flourish as individuals, and to develop their abilities and potential even if
only a temporary resident. In England, the responsibility for delivering this Targeted policy or separate provision?
entitlement and support has been devolved to teachers, schools and LEAs. One of the major tensions found at all levels of the educational system that
Although they have discretion on how to handle that responsibility, they can is associated with this particular group of vulnerable pupils is whether to
also be inspected on the quality of their provision in relation to the goals of make the presence and needs of asylum-seeker and refugee pupils visible or
social inclusion, integration and the celebration of diversity. This project, whether to treat all pupils as equal without any special targeted policy and
along with others, has identified a range of challenges which LEAs and provision. Stead, Closs and Arshad (2002) suggest that invisibility can be
schools face in addressing the needs of asylum-seeker and refugee pupils. damaging:
For example, although some support for the development of appropriate Invisibility can be expressed as not being understood, not
responses is available, schools and LEAs are left to decide how to best being acknowledged, not being valued, and of having feelings
respond to the presence of asylum-seeker and refugee children in the of non-existence, with these experiences of difference and
community and their admission into mainstream education. These decisions negative identity gaining analytic strength when placed
are set in a highly charged environment in which immigration policy creates, alongside questions of social and structural marginalisation
together with the media, negative images of the character, motivations and and isolation (p 49).
intentions of asylum-seekers and refugees. The stranger is often represented LEAs commonly located asylum-seeker and refugee pupils under existing
as something ‘other’, hence alien, as potentially criminal, disruptive or educational policies. However, when compared with the results of earlier
dependent. Their presence can be associated with an increase in racial studies of LEA provision (Mott, 2000), the findings of this study suggests that
tensions and they can experience a hostile reception in local communities. there has been an increase in the number of LEAs developing a
Schools need to negotiate these tensions and offer such children their comprehensive and targeted policy to meet the needs of these students.
entitlement to education. At the same time they need to address the Still only a minority of LEAs in this survey (26% of the sample) appear in this
personal and social needs of such children. Although legally the temporary category, with 28% of LEA respondents specifically referring to this group of
nature of asylum-seekers’ and refugees’ stay in the UK is emphasised, pupils within their broader policy approaches.
schools are expected to address the suffering the children have often faced
28% of LEAs employed a specific category within a broader policy
in their own country, the trauma of displacement and loss of country and
often family, and the difficulties of settling in a new home, community and 26% of LEAs developed a comprehensive targeted policy
school. 16% of LEAs used language policy

16% of LEAs used school guidance and suggest that there is no systematic national framework for the
16% of LEAs used the general policy in relation to vulnerable groups monitoring of such pupils.
The structures employed to support asylum-seeker and refugee pupils were Of the 58 LEA respondents, 86% reported some form of data collection on asylum-
largely located within the frameworks of EMAS, EAL, Inclusion or Race seeker and refugee pupils. Three strategies for data collection were identified:
Equality Teams. Monitoring strategy (45%) of the sample)
37% of the LEA sample located responsibility with EMAS Partial database (24% of the sample)
officers, who were line managed through school Deductive strategy (17% of the sample)
improvement structures which emphasised educational
One of the main reasons given for not collecting data, by 14% of the LEA
achievement
sample, was the difficulty of wanting to collect adequate information about
34% of the sample employed an Asylum-seeker and Refugee the needs of such pupils but not incurring any hostility to special provision,
Pupil support officer or co-ordinator who was part of the or of negative labelling of such pupils as ‘problems’.
EMAS, EAL, Inclusion or Race Equality team and had
Local authorities use a range of data collection models.
responsibility for this group
14% of LEAs in the study placed responsibility for the group The Extensive Data Model draws on different types of educational and
within race equality/diversity or multicultural teams social data (languages, ethnicity, educational data, welfare
information, immigration information and community links)
7% of the LEA sample had set up a support team, usually
managed by EMAS, or solely within EAL or New Arrivals A Language and Learning Data Model which focuses on EAL needs and
student progress. This information is particularly useful for EAL provision
The organisation of support services and structures depends largely on
A Minimal Data Model which uses basic information about country of
funding arrangements. These can be differentiated in terms of whether they
origin, language and ethnicity
are targeted, partial or non-specific.
There was no necessary connection between the data collection strategy
Targeted policies were associated with admission in 46% of the LEA sample,
and the data model employed. Only 14 out of 58 LEAs in the sample used
with training in 49% of the LEAs, and with targeted ongoing support for
the extensive model; 17 used the language and learning model and 19 LEAs
asylum-seeker and refugee pupils and for teachers working with them in
used the minimal model. The extensive model fits well with a holistic
39.5% of the LEA sample.
approach and practices such as multi-agency approach. In these cases,
However, as the survey found, lack of an identifiable asylum-seeker and schools are likely to be well informed about the conditions under which
refugee educational policy may not indicate an underdeveloped support asylum-seeker and refugee pupils have joined the school community and the
system, since there are both advantages and disadvantages of developing an wider social conditions necessary for their successful integration, whether
explicit policy in a potentially hostile climate. temporary or long term. However only 10 out of the 26 LEAs which
employed the full monitoring strategy collected this wide range of data.
Data Monitoring
Monitoring Educational Achievement
The identification of the various needs of asylum-seeker and refugee pupils
is also difficult without national data bases. LEAs have to decide whether The educational achievement of asylum-seeker and refugee pupils is understood
and at what level to collect their own information on asylum-seeker and by central government to be a major indicator for successful integration of,
refugee pupils. LEA data monitoring procedures and practices are diverse and support of these students (DfES, 2002a), and that concerns with the
Part 6: Commentary | 61
achievement of asylum-seeker and refugee pupils have been integrated into EAL pupil approach (22 LEAs)
mainstream policies (DfES, 2003a, 2003b, 2004a). However, as indicated above, Holistic approach (18 LEAs)
no official data are collected to monitor the achievement of these pupils.
Minority ethnic Approach (13 LEAs)
Schools and LEAs have to decide whether to enter the achievement of such New arrivals approach (8 LEAs)
pupils into the school and LEA performance results. This creates a further
Vulnerable children approach (2 LEAs)
dilemma. The absence of data on the presence and achievements of asylum-
seeker and refugee pupils can have the beneficial effect of reducing The most prevalent LEA frameworks were that of EAL and what we called
uncertainty and even hostility towards accepting such students into schools. the ‘holistic’ approach. In our project we focused on the different ways in
On the other hand, without such data, the educational achievements and which the holistic approach was understood since this model exemplified the
progress of asylum-seeker and refugee pupils cannot be assessed and monitored. most explicit emphasis on the specific educational and social needs of
asylum-seeker and refugee pupils.
Funding Priorities
Holistic Approaches
This study, in line with other studies, suggest that one major challenge that
LEAs and schools face when supporting asylum-seeker and refugee pupils is The case study LEAs and schools which had adopted a holistic approach to the
the lack of adequate funding. Funding arrangements are not themselves education of asylum-seeker and refugee pupils appear to have developed their
targeted at addressing the complexity of asylum-seeker and refugee pupils own criteria for integration. These include notions of social inclusion, safety and
needs. There are two main sources of funding which LEAs and schools draw the happiness of the child. In order to support these broad ranging ideals, they
upon to support these children: the Vulnerable Children Grant and EMAG. While have tended to establish strong parent-school and community relationships, and
asylum-seeker and refugee pupils are listed as one of seven groups to benefit to develop a multi-agency approach. The schools and officials in the three LEAs
from the Vulnerable Children Grant, there is no specific mention of this group appeared to want to offer such pupils the prospect of a ‘better future’, and in
under EMAG. There is little public information about the financial requirements some cases used these practices to offer them a form of social capital.
for ensuring the support of these children and whether the lack of specific The importance of achieving the well being of asylum-seeker and refugee
funds has held back the development of LEA and school responses. communities is given a high priority in a range of social and educational
initiatives. The multi-agency approaches appeared to be on their way to
The costs of targeted support strategies to cope for example, with complex achieving some of the goals of the Children’s Act 2004 and Every Child
admission, induction, mid term entry, mobility of such pupils, training Matters (DfES, 2004b) in ensuring all round support for some of the most
programmes for professionals working with these communities and ongoing vulnerable children. The proposals for Children’s Trusts may well provide
support for schools compete with the costs of targeted programmes for better opportunities for such a multi-agency approach, establishing new
other ‘vulnerable’ groups of pupils. services (and reviewing existing provision) for asylum-seeker and refugee
communities, families and children. By bringing together the knowledge of
6.2 Conceptual models the various practitioners who engage with vulnerable asylum-seeker and
In meeting the various challenges discussed above, LEAs have adopted a refugee children, there is an opportunity to address their complex
variety of conceptualisations of the education of asylum-seeker and refugee emotional, psychological, medical as well as educational needs.
pupils. The different conceptual models, which although not mutually Central to the development of these holistic approaches were a number of
exclusive, have implications for the types of educational response to such pupils’ characteristics, values and practices associated with good practice. These
education. The policy models used by 58 LEAs were found to be the following: were identified as:

Existing experience of ethnic minority and EAL pupils The experiences of teachers and schools
Promoting of positive images of asylum-seeker and refugee pupils More information is needed to assess the ways in which different conceptual
frameworks shape different images of asylum-seeker and refugee pupils
Establishing clear indicators of successful integration
(e.g. as language learners, as minority ethnic) and the extent to which these
An ethos of inclusion and the celebration of diversity images affect teachers’ perceptions and practice.
A holistic approach to provision and support How do teachers, in different local contexts (i.e. LEAs in dispersal, non-
A caring ethos and the giving of hope dispersal areas, LEAs that employ different conceptual frameworks),
understand and address the needs of asylum-seeker and refugee pupils, and
6.3 Policy and Research Agendas how do they describe their experience with these pupils? What do they
We believe this research raises a number of issues which require further understand as the main issues and challenges? How do such images shape
investigation and policy development teachers’ perception of the indicators of successful integration in the
classroom and in relation to learning?
Policy Evaluation
The experiences of asylum-seeker and refugee pupils
Assessing the effectiveness of LEA strategies is difficult not least because of the
lack of appropriate data bases and insufficient research. One possible route Whilst there is now a reasonable body of evidence concerning the
for further research would be to use the different conceptual models employed development of LEA education policy in relation to asylum-seeker and
by LEAs, which this project identified, in order to assess the effectiveness of refugee pupils, there is far less research on the experiences of these pupils
LEAs strategies. What are the longer-term educational and social consequences in school and the impact of different support system on their lives. There is
of the approaches taken by schools and LEAs on the educational experiences even less research-based evidence on the most appropriate forms of
and achievements of asylum-seeker and refugee children? teaching, learning and evaluation of the work of pupils who enter the school
system from very different educational backgrounds, with different cultural
The lessons learnt from the LEAs and schools which have developed asylum- expectations, levels of prior learning and pastoral and learning needs.
seeker and refugee educational policy and practices need to be shared. It is Judging the effectiveness of the different strategies, frameworks and
not clear from this project the extent to which such intercommunication concepts of good practice is now urgent, especially in light of the provisions
between schools and local authorities takes place, whether there is of the Children Act 2004 and Every Child Matters, (DfES 2004b).
sufficient sharing of suitable strategies and approaches in relation to
different groups of asylum-seeker and refugee pupils and in the context of The participation of asylum-seeker and refugee communities
different types of community responses.
Asylum-seeker and refugee young people and their families need to
This study focused on values and ethos that underpin ‘holistic approach’ to participate actively in processes involved in, for example, multi-agency
the education of asylum-seeker and refugee pupils. There is a need also to structures. This project does not establish the extent to which these
explore the assumptions and values that underlie other conceptual models. vulnerable groups are helping shape and adapt existing policy developments,
To what extent are LEAs aware of the consequences of preferring one the choice of support services and the development of ‘good practice’. The
framework over the others and what is the relationship between each problem for asylum-seeker and refugee communities is that they are not
conceptual model and the different support services developed by LEAs? To necessarily aware of their entitlements and gaining full access to services.
what extent do LEAs’ conceptual models inform school policy and This suggests that considerable effort will be needed to ensure their active
practices? development in, for example, Children’s Trusts and its procedures.
Part 6: Commentary | 63
Cultural diversity and social integration
The reported experiences and perspectives of asylum-seeker and refugee
children suggests that more needs to be done to address what they describe
as their experiences of displacement and hostility (Candappa, 2000; Save
the Children, 2000, 2001). Their experiences of racial harassment and
prejudice in local communities are indicators that the strategies designed to
ensure that such children acquire their entitlement to education will need
to address more than the specific educational needs of such pupils. There is
a need for more research to investigate the ways in which schools and LEAs
can counter racial hostility in the school and in the broader community. To
what extent do the different conceptual frameworks counter experiences of
hostility and displacement?
Schools and LEAs who have experience of dealing with the issues associated
with race equality and minority ethnic achievement, and especially those
who have developed a commitment to celebrating cultural diversity,
understand the need to address the whole range of issues concurrently. They
recognise that change in the situation will involve not just asylum-seeker
and refugee pupils but the whole school community. The celebration of
cultural diversity in a diverse globalised world and the moral values of
caring and inclusivity are values which are at the heart of education. A
positive approach towards strangers, in this case asylum-seeker and refugee
children, should be a central element in all children’s learning. In this
context the asylum-seeker and refugee child is a litmus test of the ethos of
schools. In other words, school and LEA policy towards asylum-seeker and
refugee pupils could be used to assess the broader issue of school and LEA
approaches to cultural diversity.
Interviews with teachers and officials in the three case studies imply a depth
of compassion and caring about these children based partly upon the rights
of the child. The criteria for success offered by those schools and LEAs
developing a holistic approach to the education of asylum-seeker and refugee
pupils combine the goals of educational and social integration and educational
achievement. The ‘giving of hope’ and the creation of a safe and welcoming
environment for asylum-seeker and refugee children indicates the level of
compassion which schools can offer all children. More work is required to
develop the concept of social integration that is relevant to such newly
arrived and often transitory pupils and to the school community as a whole.

Appendix A:
Case Study Interviews
Appendix A: Case Study Interviews
LEA A LEA B LEA C

(Dispersal area) (Non-dispersal area) (London Borough)
officer
LEA Senior
The LEA Head of Inclusion Head of Inclusion

Deputy Director
• Head of EMAS • Head of EMAS • Asylum-seekers and

LEA support
officers
• Deputy Head of EMAS • Deputy Head of EMAS Refugee Officer —

acting as Asylum- • Asylum-seeker and primary
seeker and Refugees Refugee Officer • Asylum-seekers and
Officer • Advisory support refugees officer —
teacher — primary secondary
• Advisory support • Education and
teacher — secondary Welfare officer for
• Cultural mediator asylum-seeker and
refugee pupils.
Schools
School 1 — Secondary: School 1 — Secondary: School 1 — Secondary:

• Headteacher • Headteacher • Deputy Headteacher
• Head of EMAS • Deputy Headteacher • EMAS teacher
• Focus group with • Head of EMAS • Focus group with
asylum-seeker and • Deputy Head of EMAS asylum-seeker and
refugee pupils • Focus group with refugee pupils
School 2 — Primary: asylum-seeker and School 2 — Secondary:
• Headteacher refugee pupils • Head of EMAG
• Mainstream teacher School 3 — Primary:
• Focus group with • Headteacher
asylum-seeker and • Head of EMAG
refugee pupils • Focus group with
School 3 — Primary: asylum-seeker and
Catholic school: refugee pupils
• Headteacher
• Governor
Sixth Form College:
• Deputy Headteacher

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Acknowledgements 2 Part 4: The Survey — Local Education Authority

Part 1: Outline of the Project 9 4.1 LEA approaches 32

We would like to express our gratitude to the LEA representatives, the

This project was developed by the Research Consortium on the

2 | The Education of Asylum-Seeker and Refugee Children

Introduction The Research Project

4 | The Education of Asylum-Seeker and Refugee Children

6 | The Education of Asylum-Seeker and Refugee Children

Future Research and Policy Agendas

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Part 1: Outline of the project | 11

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Part 2: The National Context — Challenges for Schools | 15

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Part 2: The National Context — Challenges for Schools | 17

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Part 2: The National Context — Challenges for Schools | 19

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Part 2: The National Context — Challenges for Schools | 21

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Part 2: The National Context — Challenges for Schools | 23

3.1 The impact of immigration policy on asylum-seeker and

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Part 3: Research on the Educational Experiences of Asylum-Seeker and Refugee Children | 27

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Part 3: Research on the Educational Experiences of Asylum-Seeker and Refugee Children | 29

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Part 4: The Survey — Local Education Authority Responses | 33

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Part 4: The Survey — Local Education Authority Responses | 35

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The LEA provides a Mainly INSET training or No specific training.

Part 4: The Survey — Local Education Authority Responses | 37

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LEA A LEA B LEA C

The LEA Head of Inclusion Head of Inclusion

• Head of EMAS • Head of EMAS • Asylum-seekers and

• Deputy Head of EMAS • Deputy Head of EMAS Refugee Officer —

School 1 — Secondary: School 1 — Secondary: School 1 — Secondary: