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ASYLUM SEEKERS IN SCOTLAND
EXECUTIVE SUMMARY
INTRODUCTION
This research was commissioned by the Scottish Executive to explore the effects of the Immigration and Asylum Act 1999 on asylum seekers and devolved services in Scotland. It was conducted in parallel with research in England carried out for the Home Office by a team of researchers from Oxford Brookes University.
BACKGROUND
The 1999 Immigration and Asylum Act (the Act) provided the legal basis for the dispersal of asylum seekers. It is now amended by the Nationality, Immigration and Asylum Act 2002. Immigration and asylum are matters reserved for the Westminster Parliament.
AIMS AND OBJECTIVES OF THE STUDY
The overall aim of the study was to assess the effect of the implementation of the Immigration and Asylum Act 1999 on asylum seekers and devolved services in Scotland. The specific objectives of the study included:
1. To consider the effects for devolved services such as housing, education, health, social work, the police and the voluntary sector of a) the dispersal policy and b) the new asylum seekers support system;
2. To identify issues relevant to multi-agency working and identify characteristics of good practice;
3. To assess the experiences of various categories of asylum seekers since arriving in Scotland with a view to lesson learning;
4. To assess the provision of interpreting services and English language classes;
5. To consider media and community relations issues;
6. To consider existing service provision to pinpoint gaps and suggest necessary improvements;
7. To investigate any unanticipated consequences of asylum seekers being concentrated in certain areas, particularly where this happens to be deprived areas;
8. To identify examples of good practice in all areas of operation under the 1999 Act;
9. To explore the policies and practices pursued by other local authorities in Scotland as they entered into contracts with NASS.
RESEARCH METHODS
The following qualitative research methods were employed:
- Thirty two interviews with a cross section of agencies providing services to asylum seekers, from statutory and voluntary sectors, including both managerial and front-line staff. The interviews explored policy, practice and experience in implementing the Act;
- Sixty three interviews with asylum seekers of varying ethnicity, gender, age, household composition and residence in Glasgow. These interviews concentrated on people's own experiences of services and community life in Glasgow;
- Nine interviews with local community organisations not directly involved in providing services to asylum seekers, to explore wider aspects of community relations;
- Interviews with three local councils, in the process of negotiating contracts with NASS;
- Monitoring of the content of newspaper coverage during the fieldwork period;
- A stakeholders' seminar to discuss some key research findings to inform the final report.
MAIN FINDINGS
1. Perspectives On Services
(a) Service Providers
Service providers emphasised the 'steep learning curve' experienced in their work with dispersed asylum seekers. For some, expertise and resources were initially stretched to the limit, though over time service provision was believed to have improved. Pressure on resources however remained. Areas of strength identified included multi-agency working which, though challenging, was felt to operate smoothly and effectively. Cultural sensitivity and a holistic approach were considered essential for responsive services. Community development work was seen as key to good local relations, especially to combat racism and harassment. Problems for service providers came from the centralisation of NASS, pressure on resources, unhelpful media coverage and community relations difficulties, especially earlier on in the dispersal process.
(b) Asylum Seekers
Asylum seekers had experienced both good and bad in all the services covered, though education services generally came across as particularly good. Asylum seekers emphasised the vital importance of the initial advice and introductions to the various relevant agencies. A key problem was interpreting: lack of interpreters or poor interpreters made access to services, gaining correct information and getting help particularly difficult. There were indications that for many, advocacy support would also be beneficial. There are continuing problems with racism and harassment directed at asylum seekers, whilst there are also areas in which effective community development work has helped to build up good relations among asylum seekers and between asylum seekers and local communities.
2. Community Relations
The community groups interviewed reiterated concerns about asylum seekers being placed in deprived communities, and the need to work with wider communities in all areas to promote good community relations. They felt there was a reservoir of goodwill in many communities, however deprived, and that this could be nurtured and supported. Integration and good relations required work and investment. This group was particularly critical of media activity in promoting hostility towards asylum seekers
3. Other Local Authorities
Although negotiations for the new contracts were not proceeding smoothly at the time of interview, there was evidence that these councils were learning from the experiences of others, and that they had identified good practice which they planned to replicate, taking account of local circumstances. Learning had involved the Scottish experience, as well as work from other parts of the UK. The councils highlighted particularly the community relations work which others had argued was essential, and they were also planning from the start for 'move-on'.
4. Media Coverage
Asylum seekers attracted extensive and continuing media interest, and it was often difficult to see why asylum seekers had been seen as relevant to some stories. Much of the specific coverage of asylum seekers was negative, confirming the feeling of respondents. Agencies were working to promote positive images of asylum seekers and adopting media strategies to counter the continuing negative coverage.
5. Good Practice
Good practice in the implementation of dispersal, the provision of services to asylum seekers, community relations, and media strategy undoubtedly exists, both in Scotland and in other parts of the UK. Where it is implemented, dispersal works, good, effective services are provided, and people live in welcoming communities, in the 'safe haven' they need.
6. Key Issues and Implications for Policy and Practice
(a) Good Practice - There is evidence from this and other studies that good practice is being disseminated. For example other Scottish local authorities considering new contracts are developing individual approaches based on this good practice learned from Glasgow and other councils in England and Wales. More effective mechanisms need to be developed to share and learn from this good practice. The work of SRIF and the forthcoming Action Plan will play an important role in informing this process.
- This research demonstrates the benefits of multi-agency working for service providers and users alike, as it promotes better services, 'ownership' of issues and solutions and sharing of good practice between organisations. The promotion of joint working requires good communication, commitment from all agencies, time and resources. Effective multi-agency working should be facilitated where possible.
- Interviews with asylum seekers and service agencies demonstrate that cultural sensitivity is essential to the delivery of services. All agencies need to recognise diversity, individual needs and cultural preferences when planning and delivering services.
- Holistic approaches to service provision were seen as essential, as they allow for greater flexibility and the ability to deal with the diverse needs of asylum seekers. All agencies should aim to promote a holistic approach to service provision where appropriate.
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(b) Community Relations - Community relations work is repeatedly identified as an integral element of good practice in this and other studies reviewed by the researchers. There is a clear need to incorporate community relations work into preparations for asylum seekers' arrival, into ongoing work with communities following arrival and into work to promote integration of refugees once they have been granted a decision.
- Community organisations, and in particular, asylum seekers themselves, identified those groups formed by and/or drawing upon the skills and experience of asylum seekers as being especially effective in building good community relations as well as providing a valuable source of mutual self-help and support. Resources to enable development of asylum seeker-led activities are required, particularly for smaller nationality or language groups who are dispersed widely across an area.
- The study demonstrates that the provision of local community-based services, where asylum seekers are assumed to be part of the service client group, allow different groups to meet and engage with each other and help aid integration. Local community activities such as crèches, drop-in centres, meeting facilities etc. need to be adequately promoted and resourced to ensure access to these services is as wide as possible.
- This and other research highlights the way in which anti-racist community development work can help promote good community relations. There is a clear need for the expansion of anti-racist training and awareness activity amongst community organisations and more widely.
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(c) Information Needs & Interpreting - The study highlights the need for service providers, and in particular advice agencies, to ensure the information provided to asylum seekers is as accurate and accessible as possible. The remit of key services should be made clear so that asylum seekers know what they can/cannot expect from these services.
- Good communication between services and between service providers and users is shown to be the essential foundation for effective services, especially at the initial stage of dispersal. Communication can be facilitated by effective multi-agency working. Greater partnership working with NASS should be pursued in order to improve information flows in this crucial area.
- The information provided to asylum seekers at the initial stage of dispersal is seen as critical by both service providers and users. Examples of good practice such as Glasgow City Council's Welcome Pack need to be disseminated and developed within a local context by other local authorities.
- This report and others show the role of interpreting services to be crucial in achieving excellent communication. The study highlights a central difficulty for service providers and users alike in relation to interpreting for asylum seekers. Continuing service improvement in relation to interpreting is essential.
- Research interviews demonstrated a clear need to tackle issues of interpreter availability and quality. Interpreter availability should be addressed through improved planning and resourcing of interpreting services, and issues of interpreter quality through improved training and monitoring of interpreters.
- Examples of good practice identified in this report include the development of training for refugees and asylum seekers in order to gain accreditation in language skills. This may be an approach that could be considered within the Scottish context.
- Advocacy services were considered helpful by some study respondents. There is a need to explore the added contribution that advocacy services can provide to asylum seekers and to promote the development of these services where appropriate.
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(d) Devolved Services - Service providers were critical of the centralised operation of NASS. Decentralisation of NASS is to be welcomed, but agencies need to work in partnership and to develop shared approaches with NASS in the future.
- Key statutory and voluntary agencies have faced significantly increased demands on their services as a result of dispersal and have received no, or limited, additional resources to fund this provision. These resourcing issues need to be addressed in order to enable effective development and delivery of devolved services.
- The report demonstrates both the foreseen and unforeseen impacts of dispersal on devolved services. Devolved services in Scottish local authorities considering new contracts need to learn the lessons from Glasgow and recognise the need to plan, and resource, service provision at the earliest stage in the process.
- Continuity of support from service providers once asylum seekers have received a decision is seen as key to effective integration . The development and provision of devolved services in relation to refugee integration and asylum seeker dispersal should be considered in tandem wherever possible.
- This study revealed limited staffing resources in key service areas and the presence of qualified professionals in the asylum seeker population. There is a need to consider the existing skills of asylum seekers and refugees and the ways in which this resource could contribute to the work of devolved services in areas such as health.
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(e) Voluntary Sector - The important role of the voluntary sector is clearly demonstrated in the report, and is likely to continue to be a key element in the implementation of dispersal. The special qualities of the sector such as its greater flexibility and responsiveness, need to be recognised and resourced if the sector is to work effectively .
- The report provides evidence of the extra pressures placed on the voluntary sector as a result of dispersal but highlights the lack of extra resources to meet increased demands. There is a need to consider resourcing issues in relation to mainstream and minority ethnic voluntary agencies, as well as those focusing specifically on asylum seekers
- The report reviews a range of examples of good practice, particularly in relation to voluntary and statutory agencies working together. There is a need for Glasgow and those Scottish authorities considering new contracts to share information on, and learn from, available good practice in this area.
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(f) The Media - Nearly all study respondents felt that the media played a particularly negative role in coverage of asylum seekers issues. Many service providers had therefore developed media strategies to counter this persistent negative media coverage. There is a need to assess the effectiveness of these media strategies and develop strategies which can counter negative coverage and promote positive coverage.
- Media images of asylum seekers were thought to have an impact on asylum seekers themselves as well as on community relations. There is a need for the promotion of positive images through the provision of factual information, community development and awareness raising work and anti-racism strategies.
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(g) Moving-On - There was a widespread feeling amongst study respondents that issues related to 'move-on' of refugees needed to be more widely discussed. Work on refugee settlement and integration needs to be considered alongside plans for services for asylum seekers.
- Many of the aspects of good practice identified in relation to service provision for asylum seekers will also apply to refugees. There is a need for good practice dissemination and learning to continue, with those authorities considering new contracts taking into account these issues at as early a stage as possible in the process.
- Some differences in the support and service needs of refugees have been identified. The specific service needs of refugees, as distinct from other sectors of the population, need to be addressed and equality of access to services promoted.
- The voluntary sector has a continuing role in relation to refugees and the process of integration. Resourcing of the voluntary sector, and in particularly the minority ethnic voluntary sector needs to be considered within this context.
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