The Evolving Role of Government: Migration and Education Trends in Europe

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1 UNIVERSITY OF DUBLIN TRINITY COLLEGE Department of Sociology UNIVERSITY OF CALIFORNIA BERKELEY Department of Sociology Migration and Education Trends in Europe Dr. Daniel Faas Fulbright Schuman Fellow, UC Berkeley Assistant Professor in Sociology, Trinity College Chief Justice Earl Warren Institute on Race, Ethnicity and Diversity May 4, 2009

2 Overview 1. American and European multiculturalism 2. Immigration related demographics in Europe 3. Responses to diversity: Convergence or divergence? 4. Migrant student performance and educational challenges 5. What can the US learn from Europe? The role of languages Dr. Daniel Faas 2

3 American multiculturalism US policy deals poorly with the needs of immigrants and centered on race and civil rights rather than language or culture Focus on group differences and mainly Christian communities Theoretical focus on empowerment of ethno cultural groups but state neutrality towards religion (e.g. Will Kymlicka) Canadian policy of multiculturalism with a stronger state interest in integration through public recognition of cultural and ethnic diversity (greater signs of political integration since 1970s) Source: Bloemraad, I. (2006) Becoming a Citizen: Incorporating Immigrants and Refugees in the United States and Canada, Berkeley: UCP. Dr. Daniel Faas 3

4 European multiculturalism Focus on the consequences of immigration and the presence of large Muslim populations (15m or 4% of the population in Europe); Theoretical focus on democratic citizenship and ethno religious diversity, multiculturalism a form of integration (e.g. Tariq Modood) Emphasis in Europe has shifted from phenotype to the religious dimension associated with multiculturalism. Multiculturalism and/or interculturalism in Europe? (social cohesion, less groupist, dialogue and communication) Source: Modood, T. (2007) Multiculturalism: A Civic Idea, Cambridge: Polity Press. Dr. Daniel Faas 4

5 Change in immigration in Europe (2002=100%) Source: Eurostat estimates 2008 Dr. Daniel Faas 5

6 Immigration per 1000 inhabitants in 2006 Source: Eurostat Migration Statistics 2008 Dr. Daniel Faas 6

7 Immigrant student shares in schools (%) Second generation First generation Source: OECD Thematic Review on Migrant Education 2008 Dr. Daniel Faas 7

8 Changes in immigrant student shares Old Old Old Source: OECD Thematic Review on Migrant Education 2008 Dr. Daniel Faas 8

9 Distribution of migrant students across schools USA GRC CAN BEL AUT SWE NLD AUS DNK GER LUX GBR FRA NZL CHE PRT ITA NOR ESP IRL Inclusion Index PISA 2006 Source: OECD Thematic Review on Migrant Education 2008 Dr. Daniel Faas 9

10 European convergence or national divergence? Civic integration courses and tests introduced in a variety of countries (e.g. Netherlands, Denmark), focus on learning of the host language Headscarf debates lead to total ban of religious symbols in French schools and teacher headscarf ban in several German states Liberalisation of naturalisation laws (e.g. Germany in 2000), but tightening of regulations in other member states (e.g. Ireland in 2004/05) Different pathways to immigrant integration, different legacies lead to different status quo across EU member states. Dr. Daniel Faas 10

11 Governmental responses to diversity Ius sanguinis Monocultural Multicultural Ius soli Source: Koopmans, R. et al. (2005) Contested Citizenship: Immigration and Cultural Diversity in Europe, Minneapolis: University of Minnesota Press. Dr. Daniel Faas 11

12 Challenge: balancing diversity and cohesion Common EU (and transatlantic) challenge: How to promote cultural diversity and social cohesion? Large numbers of children from a migrant background in schools who are in a weak socio economic position. National responses given the different legacies: old hosts with a monocultural vision (Denmark, Germany) old hosts with a multicultural vision (UK, Netherlands) new hosts with a multicultural approach (Ireland, Portugal) new hosts with a monocultural approach (Poland, Greece) Dr. Daniel Faas 12

13 Example 1: Ireland Mass immigration following May 1 st, 2004 EU enlargement (Poles) Towards 2016: Ten Year Framework Social Partnership Agreement, National Development Plan , National Action Plan for Social Inclusion , Statement on Integration Strategy and Diversity Management 2009 Intercultural Education Strategy BUT Training of English Language Support Teachers inadequate Discontinuation of National Consultative Committee on Racism and Interculturalism (NCCRI) and Integrate Ireland Language and Training services (IILT) 500+ ESL axed, 2 ESL teachers per school from 2009 Dr. Daniel Faas 13

14 Example 2: Germany 1996 Intercultural Education at School document 1999 Reform of naturalisation/citizenship law 2005 Immigration Act following paradigm shift under Schröder 2006 First Integration Summit, separate Islam summits (Turks) 2007 National Integration Plan at second summit: Promoting German language from the very start one of 10 priority policy areas. Aktion zusammen wachsen ( Growing Together Initiative ) sponsorship BUT Integration a precondition for naturalisation (CDU) vs. SPD Integration courses up to 900 hours language and 30 hours cultural, political, historical, legal aspects. Test at end (17/33 questions correct) Dr. Daniel Faas 14

15 Example 3: United Kingdom Over twenty race and immigration legislations since Schools are obliged to educate for community cohesion 2008 Secondary Curriculum Review introduced global dimension as one of seven cross curricular dimensions (cultural diversity and identity; community participation; enterprise; healthy lifestyles are others) GCSE exams available in community languages (e.g. Turkish, Urdu) BUT MFL ceased to be compulsory at Key Stage Four (age 14 16) in 2005 Number of pupils taking community languages (and other languages) continue to fall teach Mandarin, Bengali (Dearing Review, 2007) Community language teachers often lack Qualified Teacher Status Dr. Daniel Faas 15

16 Destination: United Kingdom 1. Invasions Romans (from 43 AD), Anglo Saxon tribes (from AD), Vikings (from 800 AD) Norman French (in 1066) 2. Migration and Ethnicity White 52, 481,000 Asian 2,329,000 (or Asian British) Black 1,148,000 (or Black British) Chinese 243,000 Mixed 674,000 Largest minority ethnic group are the Indians with 1,052,000 (Census 2001) Dr. Daniel Faas 16

17 Example 4: Greece 1990 Mass immigration following fall of Iron Curtain (Albanians) 1996 Greek Education Abroad, Intercultural Education and Other Provisions established intercultural schools (45% threshold) 1999 Ministerial Decree on Intercultural Education: establishment and functioning of reception and support classes 2001 and 2005 Immigration Acts Article 72 optional mother tongue teaching and culture upon request, not implemented BUT Recognition of diversity but societal homogeneity based on Orthodoxy, citizenship (10 years for naturalisation!) and Greek language Intercultural schools can provide heritage language courses 4 hours per week, little concern for heritage language/culture except progressivists Dr. Daniel Faas 17

18 Migrant Integration Policy Index (MIPEX) Measures migrant integration in 28 countries (EU 25 plus Canada, Switzerland, Norway) using 140 policy indicators across 6 policy areas : Labour market access, family reunion, long term residence, political participation, access to nationality, anti discrimination Favourable/partially favourable: Sweden favourable (top on labour market access in every indicator), 9 partially favourable (Nordic countries, Western Mediterranean, Benelux, Canada and the UK). Partially unfavourable/unfavourable: 5 countries partially unfavourable (LV, CY, GR, SK, AT). 10 lowest scores are the Baltic Republics, the countries of the Eastern Mediterranean and Central Europe, and DK. Source: Dr. Daniel Faas 18

19 Latest European initiatives and documents CoE: 2002 The New Challenge of Intercultural Education; 2003 Intercultural Education: Managing Diversity, Strengthening Democracy; 2005 Policies and Practices for Teaching Socio Cultural Diversity Council of Europe s Language Policy Division including 2001 Common European Framework of Reference for Languages (CEFR): EU: 2008 Green Paper on Migration and Mobility; 2008 European Pact on Immigration and Asylum 2008 European Year of Intercultural Dialogue Dr. Daniel Faas 19

20 Migration and educational challenges Importance of education for construction of national identity, social inclusion and building society s future citizens In several European countries, up to 15% of the student population now has an immigrant background; and countries like Ireland, Italy and Spain have seen threefold increase in migrant pupils since Average deficit of one year of study between students with an immigrant background and their native peers in OECD countries (cf. PISA). In Germany, deficit is three years of study between second generation Turkish students and native German students (cf. PISA 2003, 2006). Consequence: focus on language learning language as a key factor! Source: European Commission (2008) Migration and Mobility: Challenges and Opportunities for EU Education Systems. Available online at: Dr. Daniel Faas 20

21 Reading performance of primary school pupils Source: 2006 PIRLS data set Dr. Daniel Faas 21

22 Reading performance at secondary level Source: OECD PISA 2006 Dr. Daniel Faas 22

23 Reading performance EU vs. NZL, CAN and AUS 550 OECD Average ITA PRT ESP BEL DNK GRC NOR CHE LUX DEU SW E NLD FRA AUT GBR IRL NZL CAN AUS Native students First generation immigrants Source: OECD PISA 2006 Dr. Daniel Faas 23

24 Effects of speaking a foreign language at home 60 IRL PRT ITA BEL GRC DEU NZL AUT GBR DNK CHE CAN AUS NLD LUX NOR SWE FRA ESP Second generation First generation Unstandardised coefficient, statistically significant effects are marked in darker tones. Source: OECD Thematic Review on Migrant Education 2008 Dr. Daniel Faas 24

25 Maths performance of students in Europe (PISA) Source: OECD PISA 2006 Dr. Daniel Faas 25

26 Science performance of students in Europe Source: OECD PISA 2006 Dr. Daniel Faas 26

27 Early school leavers aged by nationality Source: Eurostat Labour Force Survey 2005 Dr. Daniel Faas 27

28 2008 Green paper on migration and mobility Based on earlier Directive 77/486/CEE; applies to children for whom school attendance is compulsory under the laws of the host Member State, and who are dependants of a worker who is a national of another Member State. It provides that Member States should: Teach an official language of the host State; and Teach the mother tongue and culture of the country of origin (heritage language) in coordination with normal education. Dr. Daniel Faas 28

29 Examples of positive policy responses in Europe Host language as key to integration: all member states stress this and have all put in place specific provisions to support this. Efforts to promote learning of the heritage language, sometimes within the framework of bilateral agreements with other Member States. Promotion of adult language training among migrant communities to help to break the intergenerational transmission of disadvantage. Pre school education often focuses on language development: can be of particular help in equipping migrant pupils for later schooling. Dr. Daniel Faas 29

30 What can the US learn from Europe? Identification of the main challenges at EU level and formulation of policy recommendations via the Open Method of Coordination. Primary focus on learning host language and secondary focus on promoting heritage language/ 2 of 8 key competences Policies matter: Segregation, ability grouping/tracking, teacher awareness. Student background (linguistic, socio economic) matters too Effectively mitigate the negative impact of segregation and/or selfsegregation (school networking, housing policies) Source: Council of the European Union (2006) Key Competences for Lifelong Learning. Available at: lex.europa.eu/lexuriserv/site/en/oj/2006/l_394/l_ en pdf Dr. Daniel Faas 30

31 What can the US learn from Europe? Language matters: Provide systematic language support for both children and their parents. 1. Provide an early start in language learning 2. Integrate language and content learning 3.Encourage schools to offer special language programmes (but encourage transition to mainstream classes after one year) 4. Provide special resources (financial or additional teachers) to schools with high proportions of immigrants who need language support 5. Make language support systemic with clearly defined goals and standards 6. Improve access to learning in mother language 7. Train teachers in second language acquisition Source: OECD Thematic Review on Migrant Education 2008 Dr. Daniel Faas 31

32 What can the US learn from Europe? Teachers matter: Make the teaching workforce responsive to linguistic and cultural diversity. 1. Design teacher education/ training programmes so that teachers can: Solve problems of explicit/implicit racism peers Manage classroom and deal with cultural conflicts peers Take a supportive and mentor s role Have high expectations for students regardless of their backgrounds Adopt their teaching methods to better meet the needs of students Motivate those students who are in a vulnerable situation 2.Hire more teachers with immigrant backgrounds (cf. Germany) 3. Provide additional teachers to work with immigrant students or students at risk in general Source: OECD Thematic Review on Migrant Education 2008 Dr. Daniel Faas 32

33 What can the US learn from Europe? Schools matter: Make school culture more responsive to linguistic and cultural diversity 1. Mainstream intercultural education into school curriculum balancing diversity (heritage language) and cohesion (host language) 2. Adopt curriculum to respond to the linguistic and cultural diversity 3. Train school leaders 4.Provide more learning opportunities (homework centres, after school classes, summer schools, remedial courses, language supplementary courses, etc) to those who are in need, especially those who lack parental support at home and who lag behind in studies; and ensure that information about such opportunities will reach them. Source: OECD Thematic Review on Migrant Education 2008 Dr. Daniel Faas 33

34 Contact details Dr. Daniel Faas Assistant Professor in Sociology Trinity College Dublin Department of Sociology 3 College Green, Dublin 2, Ireland Phone: E mail: daniel.faas@tcd.ie Web: Dr. Daniel Faas 34