Many asylum seekers and refugees in Northern Ireland currently experience great difficulty in accessing English language classes. This paper makes the case for the provision of free accredited ESOOL [1] classes in Northern Ireland. The information in this paper has been jointly provided by NICRAS and Bryson House and has been compiled by Law Centre (NI). The paper was initially drafted in 2010 and was updated in May 2011.

Benefits of English language for asylum seekers

There are a great number of benefits associated with adult asylum seekers being able to speak English.

For individuals, there are clear benefits. The ability to communicate is essential for everyday living tasks such as shopping and using public transport. Increased language skills assist communication with medical professionals, social workers and the UK Border Agency.  Increased language skills would also enable asylum seekers with school-age children to play a more active role in their children’s education by being able to engage with their children’s teachers and other education professionals.

The mental health organisation MIND has identified English language skills as a key factor in preserving mental health. A lack of language skills can lead to profound isolation and increased social exclusion. This both causes mental distress and exacerbates existing mental health problems.[2]

Enhanced English language skills also brings broad economic benefits to the government. Increased language skills may reduce the costs of providing interpreting and translation services. The National Institute of Adult Continuing Education (NIACE) argues that asylum seekers with English language skills are better placed to move straight into employment if their application is successful.  This results in an estimated tax payer saving of approximately £8000 in each instance through a saving on social security costs.[3]

For the wider community there are benefits as the ability to communicate improves social cohesion across communities. [4]

These objectives are reflected in the Scottish and Welsh administration’s approach to ESOL. Scotland’s ESOL strategy underscores the necessity of ESOL:

The importance of supporting the acquisition of English language skills for those for whom English is a second or other language is at the core of participation in a democratic society.  Without adequate language skills, people can neither fully participate in their local and national communities nor are they given the opportunity to meet their full potential.[5]

The Welsh approach also reflects the importance of a shared language for stronger communities:

The ability for everyone to communicate using a shared language is very important in helping to promote shared understanding and respect within local communities.[6]

Indeed, the Welsh Assembly describes the lack of good communication skills as ‘one of the biggest barriers’ to achieving cohesive and integrated communities.[7] However, the Welsh Refugee and Inclusion Strategy notes that the main barrier to higher and further education for refugees and asylum seekers is financial.[8] This reflects the Northern Ireland experience where NGOs have witnessed a considerable desire on the part of asylum seekers to learn English, and also, a considerable frustration that financial difficulties obstruct learning.

International human rights standards recognise that access to education is a human right.[9] Education is an essential tool for achieving goals of equality, development and peace.[10]

ESOL in Great Britain

In England, adult asylum seekers become eligible for free ESOL classes after being in the country for six months.[11] Those with refugee status (and other forms of protection status) are immediately eligible for free ESOL classes.[12]

 

In Scotland, asylum seekers are eligible for free English classes without having to meet any periods of residence requirements. The Scottish Funding Council waives fees for asylum seekers who are attending college undertaking full or part-time ESOL courses.[13] Refugees are eligible to apply for a fee waiver and discretionary bursary support for Further Education courses is also available, which includes ESOL courses. In addition, hardship funds are available on a national basis that can assist students meet the cost of course materials and travel expenses. For asylum seekers in particular, this is extremely important: most adult asylum seekers are prohibited from working and receive just £35 a week in NASS support to cover living costs.[14] As a result, even a bus fare may be a prohibitive expense.

ESOL is free for all asylum seekers and refugees in Wales. This has been the case for a number of years and costs are primarily met by the Welsh Assembly Government.[15]

ESOL in Northern Ireland

There are no publicly funded accredited English classes for adult asylum seekers in Northern Ireland. Asylum seeking children are generally able to access English language support through their schools. The Department of Education runs the Inclusion and Diversity Service which provides toolkits and materials for teachers supporting newcomer children. Schools should be able to attract additional funding for newcomer children,[16] which can be used on extra ESOL provision if required.

Some free English classes are available informally through support groups, such as NICRAS or North Belfast Ethnic Minority Support Network, or through church initiatives such as those provided by City Church. However, while these English classes provide an extremely valuable service for asylum seekers, they are not a substitute for publicly-funded accredited classes.  First, the classes cannot easily accommodate different ability students. Secondly, the classes are usually run by volunteers and are often under-resourced with limited access to learning materials. Thirdly, the classes are not accredited; this is important as some of UKBA’s application criteria require attendance at an ‘accredited provider.[17]

In addition to the free classes provided by the voluntary sector, GEMS NI Ltd (GEMS) also conducts English language training programmes called Learning Language for Work that is employment based and free of charge. This is an excellent service, however, GEMS cannot accept beginners and therefore many asylum seekers are not eligible.

Belfast Metropolitan College (BMC) and International House also provide free classes as part of their teacher training programmes or to new arrivals. However, these classes are limited to particular levels and are not accredited.

Difference in policies

It appears that the key difference between Northern Ireland and GB is that ESOL is not designated as an Essential Skill in Northern Ireland.[18] The practical effect of this is that colleges do not receive the necessary funding to offer free ESOL classes. No justification has been offered for this policy.

The process in Northern Ireland

Given the absence of free classes, adult asylum seekers in Northern Ireland must obtain funding if they wish to study English. Bryson and NICRAS are the main organisations that assist asylum seekers with funding applications in Northern Ireland.[19] Both organisations note a recent reduction of available charitable funding and have found that funding criteria has become more restrictive. Applicants must carefully identify their eligibility for meeting the criteria required by different funding bodies. In some instances, applicants may have to make more than one application. The predominant providers are as follows:

-       Family Action requires applicants to provide a detailed personal statement;

-       Ruth Hayman Trust can provide part funding only;

-       Prisoners of Conscience can fund individual asylum seekers who have personally suffered persecution;[20]

-       Princes Trust can fund individuals aged between 14 – 25 years;

-       Buttle Trust funds can fund individuals aged under 19 years and is limited to one grant per person only;

-       Other specialist funders may be able to fund refugees in particular academic areas.

In order to apply for funding, an asylum seeker must first demonstrate that a college place is available. Thus the applicant must approach the college and request an initial language assessment to identify the correct language level. A £5 fee is payable for the initial assessment. To be eligible to enrol, adults must have been in Northern Ireland for at least six months. The college must complete a letter to accompany the funding application and must fill out an enrolment form. Some individuals report difficulties at this first stage of the process as they are unable to secure a place at college until the fees have been paid. Colleges are often reluctant to reserve a place for a student where there is a possibility that the funding will not be awarded, especially for courses which are oversubscribed. Generally colleges require advance payment, which poses additional difficulties for the applicant and for the funding bodies.

Once the college has provided the necessary paperwork, the individual completes the funding application. This stage requires considerable input and support from Bryson/NICRAS. Each funding body requires different information and each has its own procedure. Some funding bodies accept online applications, thus requiring the applicant to have access to a computer and also presupposes that the applicant has IT literacy skills. Some funders require applicants to produce a personal statement and one funder requires applicants to produce a chronological statement about their past persecution including detailed accounts of detention and torture.[21]

Applications are usually processed in six weeks although delays are not uncommon.[22] Delays in processing may mean that the course has already commenced by the time the applicant is eligible to attend classes. Thus the applicant loses the place and has to begin the whole process again six months later.

Some colleges offer Hardship Funds for their students that can help meet course fees and travel fees. However, strict eligibility criteria apply and many asylum seekers will not succeed in their application.[23] For example, the BMC Hardship Fund is only available for individuals who have already enrolled at BMC, and as outlined above, it is difficult for students to enrol without having secured funding. Furthermore the BMC Hardship Fund cannot be awarded to students in receipt of any other form of funding assistance.

Problems for asylum seekers

There are a number of difficulties associated with the current system.

The requirement that each potential student is individually assessed for funding is disproportionately time-consuming. For example, NICRAS estimates that it spends approximately three hours per application. This includes time spent liaising with the college, assisting with form-filling, writing covering letters, monitoring applications, etc. In 2008/2009, NICRAS processed approximately 40 applications, which equates to 120 hours.  In addition, the process is time-consuming for the colleges. A BMC employee noted that, on average, it takes an additional 1 – 1 ½ hour of administrative time to process a funded student compared to a privately-paying student.

Secondly, both NICRAS and Bryson report that it is becoming increasingly difficult to secure funding. For the semester January - June 2010, NICRAS notes that only 16 out of 40 funding applications were approved. This is demoralising for applicants and it also results in additional work for the support organisations as they must amend and resubmit the applications. The fact that each funding body has different eligibility criteria (which is subject to change) creates additional obstacles.

Thirdly, the funding that asylum applicants currently obtain is limited. Most of the funding bodies limit the amount of funding available to each applicant. In general, students choose between a one semester course (5 days a week, 3 hours a day) or a two semester course (2 days a week, 3 hours a day). This can result in a ‘disjointed’ and inconsistent language learning experience, which may hamper progress.

Problems for refugees

In Northern Ireland, refugees may be eligible for concessionary fees for ESOL courses if they are in receipt of a means tested benefit. However, the costs associated with integration can be high. Many refugees have spent years living on a very low income as asylum seekers. Such individuals may suddenly be faced with expenses relating to housing, utility bills, transportation, education, training as well as costs associated with entering employment, etc.[24] As highlighted above, it makes good economic and social sense to facilitate English language skills so that refugees can move quickly into the labour market. We therefore believe that there is a strong policy imperative for providing free ESOL classes for refugees.

Current demand and costs

Exact figures of the total number of asylum seekers requesting ESOL classes are unknown. However, Belfast Metropolitan College[25] estimates that approximately 140 asylum seekers request English classes each year. Of this figure, approximately 50 – 70 applicants succeed in enrolling; the other individuals are unable to secure funding.

Costs for ESOL classes vary depending on the level of course and the time length. However, a basic entry-level ESOL course costs approximately £120 per year.[26] Meeting the current demand of asylum seekers (i.e. 140) would cost approximately £16,800 per year. We are unable to accurately estimate the cost of meeting demand from refugees, however, the cost is also likely to be very modest. As we have highlighted above, there would be many benefits associated with such investment.

Recommendations for Northern Ireland

-       Free accredited ESOL classes for all asylum seekers and refugees resident in Northern Ireland and for their dependants

-       Eligibility for free ESOL classes should begin on arrival

-       For the next academic year 2011, we recommend that DEL ring-fences money to fund ESOL classes

-       As a long term policy change, we recommend that ESOL is designated as an Essential Skill

For further information about this paper please contact: Policy Unit                                                                             Tel: 028 90 24 44 01 Law Centre (NI)                                                                    Fax: 028 90 23 63 40 124 Donegall Street                                                            Text phone: 028 90 23 99 38 BELFAST BT1 2GY

 

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[1] English for Speakers of Other Languages ('ESOL”)

[2] MIND, A civilised society: Mental health provision for refugees and asylum-seekers in England and Wales, 2009

[3] Times Educational Supplement (FE Focus), English classes for asylum seekers may help economy, 5 December 2009

[4] HM Treasury commissioned Leith Review of Skills, Prosperity for all in the global economy – world class skills, December 2009

[5] Scottish Executive, The Adult ESOL Strategy for Scotland, March 2007, Ministerial Foreward. Available here: http://www.esolscotland.com/documents/ESOLstrategy.pdf

[6] Welsh Assembly Government, Getting on Together – a Community Cohesion Strategy for Wales, November 2009, pg 29. Available here: http://wales.gov.uk/docs/dsjlg/publications/commsafety/091130ccstraten.pdf

[7] Welsh Assembly Government, Getting on Together – a Community Cohesion Strategy for Wales, November 2009, pg 30

[8] Welsh Assembly Government, Refugee Inclusion Strategy, June 2008, p46

[9] E.g. see Universal Declaration on Human Rights, Art.16; International Covenant on Economic, Social and Cultural Rights, Art 13; Convention on the Elimination of all forms of Discrimination against Women, Art. 10 and Art.14; Convention on the Elimination of all forms of Racial Discrimination, Art. 15.

[10] Beijing Platform for Action, 1985 paras. 69, 80, 81, and 82

[11] See Skills Funding Agency (SFA) Agency Funding Guidance: 2010/11: Learner Eligibility Guidance (especially paragraph 22) accessible here: http://readingroom.lsc.gov.uk/YPLA/Agency-LEG2010-11-Version1aon12-04-2010.pdf

[12] We are mindful that the government has announced cuts to ESOL funding but it remains to be seen how these cuts will be applied. The Refugee Council is currently lobbying to ensure that asylum seekers do not lose their eligibility for free classes.

[13] Scottish Government, Helping you meet the costs of learning. Asylum seekers, refugees, migrant workers and EU nationals: A guide to funding 2009-10 for practitioners giving advice, November 2009. Available here: http://www.learndirectscotland.com/NR/rdonlyres/4C70BC37-65A5-4092-AB68-88DB9657E022/0/HelpingyoumeetthecostsoflearningAsylumSeekersLeaflet200910.pdf

[14] S.95 NASS support consists of accommodation and £35.13 a week for a single adult asylum seeker.

[15] Details can be found in HEFCW Circular W10/13HE, Widening Access to Refugees and Asylum Seekers, 26 March 2010. Available here: http://www.hefcw.ac.uk/documents/publications/circulars/circulars_2010/W10%2013HE%20Widening%20Access%20to%20Refugees%20and%20Asylum%20Seekers.pdf The National Basic Skills Strategy for Wales confirms that all basic skills provision is free of charge. ESOL is listed as a Basic Skill. Available here: http://wales.gov.uk/docrepos/40382/4038232/403829/4038293/403829/basicskills-e.pdf?lang=en

[16] Newcomer students need to be recorded on the October school census to ensure that funding is available

[17] From 7^th April 2010, settlement applicants must meet additional ESOL criteria that requires students to complete their ESOL studies at an ‘accredited college’. Although UKBA has not yet published guidance specifying which colleges qualify as an ‘accredited college’, it is understood that this will apply to Foyle Language School, Queen’s University Belfast, Ulster University and BMC. The change in policy is available here: http://www.ukba.homeoffice.gov.uk/sitecontent/newsfragments/25-kol-settlement1

[18] See DEL, Essential Skills for Living: Strategy and Action Plan for Adult Literacy in Northern Ireland, 2002

[19] Bryson assists individuals who are in receipt of NASS whereas NICRAS assists in other instances.

[20] This means that an individual who is a member of a persecuted group but who has not personally been persecuted does not qualify. Similarly, dependents may not be eligible.

[21] Prisoners of Conscience require this information. Obtaining this information can be extremely distressing for the applicant and for the person assisting the applicant. Sometimes a number of appointments must be made.

[22] Reasons for delays are varied and can include delays on the part of the college, e.g. not issuing the confirmation promptly or delays on the party of the funding body e.g. not processing cheques quickly.

[23] Criteria include residence requirements. See Education [Student Support] Regulations No. 2(Northern Ireland) 2009.

[24] Indeed, the UKBA recognises that new refugees may require financial support to assist their integration into the UK and acknowledges that new refugees face a ‘critical period’, during which time they may have to find accommodation, train or re-qualify and seek employment. See the section on Integration on the UKBA website and specifically, the information about the Integration Loan.

[25] Belfast Metropolitan College (BMC) is by far the biggest FE ESOL provider to asylum seekers. This is because the majority of asylum seekers are provided accommodation in Belfast through NASS support.

[26] This is the cost of a BMC Entry Level 1 course, two day a week for one year, including £18 examination fee