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ASYLUM SEEKERS IN SCOTLAND

CHAPTER ONE: BACKGROUND AND RESEARCH METHODS

1.1 BACKGROUND

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.

The Immigration and Asylum Act 1999 is now amended by the Nationality, Immigration and Asylum Act 2002, but this study focuses on the workings of the 1999 Act. Immigration and asylum are matters reserved for the Westminster Parliament. The Immigration and Asylum Act 1999 provides for quick processing of asylum seekers, for their support via the National Asylum Support Services and via housing provision negotiated with local authorities. The sole Scottish local authority involved in these arrangements to date is Glasgow City Council, though three other councils (Edinburgh, Fife and West Dunbartonshire) were negotiating contracts at the time of writing. The YMCA in Glasgow also has a contract with NASS. More than 5,000 asylum seekers are currently (summer 2002) accommodated in Glasgow.

Research in this field cannot ignore the sensitivity of issues attached to asylum seekers in Scotland today. Press coverage has been extensive and often controversial; welcome committees were established to counter perceived negative reactions to asylum seekers; and there is evidence of racial attacks on asylum seekers and refugees. These sensitivities have necessitated careful negotiation with research contacts, and a long process of negotiating access and consent, both with service providers and with asylum seekers themselves. The research has been conducted in a collaborative fashion with service providers and users commenting at various stages in the design and progress of the work, in an effort to ensure a focus on the real experiences of both service providers and asylum seekers themselves.

1.2 AIMS AND OBJECTIVES

The central aim of the research 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 were as follows:

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.

1.3 THE REPORT

The report begins by outlining previous research on asylum seekers in the UK. We then describe the methods used in the study. Chapter Two describes the arrangements for dispersal in Scotland and the roles of the various agencies involved. We then review, in turn, each of the sets of perspectives that were collected during the course of the research. We begin with the service provider perspectives (Chapter Three), then move on in turn to the asylum seekers (Chapter Four), the groups which were interviewed about community relations (Chapter Five), and the other local authorities which were in the process of negotiating contracts with NASS (Chapter Six). Chapter Seven discusses the outcome of the media monitoring exercise. Chapter Eight, on good practice, brings together the material collected in the Scottish study and examines it in relation to good practice lessons from elsewhere, including those arising from the study conducted by the Oxford Brookes team. The final chapter of the report (Chapter Nine) summarises the main findings and discusses key cross-cutting issues in relation to all the datasets and the contributions to the stakeholders seminar, which focussed on their implications for policy and practice.

1.4 PREVIOUS RESEARCH

The existing research record on asylum seekers is unsurprisingly limited, though growing quickly, with the most detailed work having been carried out in London, where 85% of asylum seekers in the UK are located (Audit Commission 2001), and also across England and Wales (e.g. Audit Commission 2000, Delahunty 2000, Kings Fund 2000, Oxford Brookes 2003, Parker 2000, Zetter and Pearl 1999). The work has tended to concentrate on the migration process, including international comparisons, implementing legislation and provision of services, and there have been limited attempts to focus on the experiences of asylum seekers themselves. Much of the work has been funded by government to inform the implementation of various pieces of legislation, or by local service providers seeking to inform local service provision. Also relevant to the present work is recent research on minority ethnic groups in Scotland and their experiences of racism and exclusion.

1.4.1 Migration

Migration is a complex and historic set of processes, and Glover et al (2001) argue that it necessitates a range of policy responses. They argue that the policy responses to migration in the UK require review, as processes of migration are changing. They note for example that in recent years, asylum seekers have become a much more significant population of migrants to the UK than formerly, and that there is insufficient knowledge of this group for effective policy responses. Whilst Glover et al (2001:viii) emphasise the regulation of migration 'in the interests of social stability and economic growth', others, such as Morris (2002:418) emphasise the contraction of rights for asylum seekers represented by the 1999 Act, and the lack of choice and 'implicit surveillance' it entails.

Recent work has started to research the process of migration of asylum seekers in more detail. Robinson and Segrott (2002) for example, explored with 65 asylum seekers in the UK their motivations for migrating to the UK. Overwhelmingly, they found that people had left their own countries to escape persecution and to reach a place of safety. Many had little choice about where they would find this, and were constrained by lack of money and dependence on agents. Most of those interviewed had little knowledge of UK legislation relating to asylum seekers, and were unaware of any entitlement to benefits. They did not know about differences between one possible destination and another. Koser and Pinkerton's (2002) study, which examines how asylum seekers get information about possible destinations, emphasises that many do not have information, or acquire it en route, sometimes from smugglers. Most people in Robinson and Segrott's (2002) study wanted to work to support themselves though had little knowledge of the availability of work or the possibility of working. Where people did have some choice about destination, factors which attracted them to the UK included friends or relatives living in the UK, beliefs about the UK as safe and democratic, former links between their own country and the UK and either knowing English or wanting to learn. These studies serve to question some of the prevailing assumptions about asylum seekers, which we will consider later in the report.

This most recent UK research complements some wider international findings. For example, Havinga and Böcker (1999) also identify a large element of chance in the eventual destination of asylum seekers, and highlight the significance of agents and former colonial ties between countries of origin and destination. They emphasise that 'no single or even restricted number of factors can explain the patterns of origin and destination for asylum seekers' (Havinga and Böcker 1999:59). Like Morris (2002), Düvell and Jordan (2002) see developing European asylum and immigration policy as emphasising control of migration rather than the welfare of migrants.

1.4.2 Implementing legislation

Services for asylum seekers and refugees prior to the 1999 Act attracted some interest from researchers. Studies of particular settlement programmes, such as for Vietnamese (Robinson and Hale 1989) or Bosnian refugees (McFarland 1994) were completed, some of which identified examples of good practice and some of the issues involved in integrating minority ethnic refugee groups. Zetter and Pearl's (1999) major study of access to housing for asylum seekers and refugees is strongly orientated towards the recommendation of good practice, and recommends national co-ordination of housing access. In their preliminary comments on the workings of the 1999 Act (Pearl and Zetter 2002), they note that the new system appeared set to repeat many of the problems of the former arrangements. Similarly, Carey-Wood (1997) identifies a number of effective initiatives for refugee integration, which offer lessons for future work

More recently, researchers have focused on aspects of the 1999 Act and its implementation. Examples include Anon (2002), an evaluation of the voluntary assisted returns programme, an element of the Act which facilitates 'dignified and orderly' returns by asylum seekers to the countries of origin. A study of the workings of the voucher scheme (NASS 2001) concluded that, contrary to widely held opinion, vouchers were causing few problems, and only practical improvements to the existing scheme were needed. That the voucher system was nevertheless phased out soon after the publication of this report perhaps serves to emphasise the political imperatives, which may influence the reception of research findings in this area.

A study by Oxford Brookes University (2003) is parallel to the present study, examining the impact of the current dispersal policy on asylum seekers and local communities in other parts of the UK.

1.4.3 Delivering services

Much of the research covering issues of service delivery has been locally based, though national studies have included reviews of local initiatives and local practice (e.g. Carey-Wood, Zetter and Pearl 1999). Later in the report (Chapter Eight), we will examine some of the good practice recommendations which have emerged from such studies. It is worth noting at this stage that the principles of good practice in delivering services to asylum seekers are not dissimilar to those involved in delivering services to socially excluded groups in general and minority ethnic groups in particular. Elements such as anti-racist working, cultural sensitivity, the proper use of interpreters, the provision of accessible information, the promotion of mutual support, inter-agency co-operation and communication are all relevant.

1.4.4 Asylum seeker perspectives

Recent work has included consideration of the views and experiences of asylum seekers themselves, using qualitative interviewing techniques. Ferguson and Barclay (2002), Oxford Brookes (2003), Robinson and Segrott (2002), and Zetter and Pearl (1999) have all included asylum seeker perspectives, to develop better understanding of migration processes, or to explore service use from a consumer perspective, as well as to identify the kinds of difficulties asylum seekers may experience and the support they might need. The findings of such work suggest mixed experiences. For example, Zetter and Pearl (1999) found that about half the 46 people they interviewed were satisfied with their housing. Others identified problems with the condition of the house, overcrowding, bureaucratic procedures, and personal finances. Ferguson and Barclay (2002) identified a range of difficulties faced by asylum seekers, such as poverty and bad housing, which, for many, threatened mental well-being. The present study includes the systematic collection of the views and experiences of a representative sample of asylum seekers in Glasgow.

1.4.5 Racism in Scotland

Research on minority ethnic groups in Scotland has recently been comprehensively reviewed by Netto et al (2001). One of the key cross-cutting themes which emerged from this review was that of racial disadvantage, discrimination and harassment. The review identified much evidence of racial disadvantage in housing, social care, health and health care and employment. The reviewers felt that the incidence of racial harassment was increasing, and later work by Clark and Moody (2002) identified that there was much unreported harassment. In Netto's (2001) review, there was already evidence that refugees and asylum seekers were experiencing racial harassment. Throughout the present report, we note evidence of continuing harassment experienced by asylum seekers, whilst also drawing attention to anti-racist and community development initiatives which have aimed to address this issue. Towards the end of the process of the research, the Scottish Executive launched its 'One Scotland. Many Cultures' advertising campaign to raise awareness of racist attitudes and behaviour and highlight the negative impact this has on individuals and communities. The campaign aims to highlight the positive features of diversity as well as tackling negative behaviour.

1.5 METHODS

1.5.1 Data collection

The main method of data collection was in-depth, semi-structured interviews with a range of stakeholders. The identification of good practice involved a comparative element, completed in collaboration with Oxford Brookes University, who were conducting a study of the system in England. Media issues were explored partly through media monitoring and content analysis. Community relations issues were explored in all the datasets, and there was also a specific set of interviews which focused on this issue.

In the outline of research methods which follows, numbers in brackets refer to the objectives listed in paragraph 1.2 which were covered using particular techniques. The interview schedules used are available on request.

i) Interviews with service providers:

In addition to NASS and the Scottish Asylum Seekers Consortium, this group of interviews covered a wide range of agencies, including social work, housing, education (including community education), health, police, voluntary sector groups, and legal services, which were providing services to asylum seekers. For these agencies, interviews at managerial level, as well as front line worker level were conducted, in order to explore policy, practice and experience in the implementation of the Act. Thirty two interviews were completed in total.

These interviews explored

• the impact of the Act on these services, with reference to policy, practice and experience (1).
• links and co-ordination between the various services (2), including access to interpreting services (4) and effectiveness or otherwise of multi-agency working (2).
• examples of good practice under the Act (8) (good practice will also be examined from other points of view - see below).
• the impact of media (5), and
• issues of community relations (5).

ii) Interviews with asylum seekers:

Sixty three adult ¹ asylum seekers were interviewed, forming a representative sample ² of the population in terms of ethnicity, gender, age and household composition (3). These interviews concentrated on the asylum seekers' own perceptions and experiences. They were conducted in the respondent's own preferred language, using professional interpreters in 12 cases.

The topics covered in these interviews included

• what services had been used, and specific exploration of the services received and their effectiveness (3), (6),
• experiences of community life, including community relations (5),
• experiences of using interpreters (4),
• respondents' qualitative assessments of the services they had used, to contribute to the identification of good practice (8), (2).

iii) Comparative work on good practice (8), (2):

To assist in the identification and assessment of good practice, a small comparative exercise was undertaken, involving the collection of information from service providers in other UK towns and cities which host asylum seekers. The Oxford Brookes team provided relevant material for this part of the work. We explored the relevance of examples of good practice identified in this way for the Scottish context.

iv) Media monitoring and content analysis (5):

In order to provide context for the study, and to explore potential media impacts while the study was in progress, media coverage was monitored through the period of research by systematic review (using the Lexis-Nexus database) and content analysis of a sample of media coverage. All interviewees were asked about their views on the role of the media.

v) Community relations interviews (5)

Community relations issues were covered in all the interviews with stakeholders, as noted above. In addition, nine interviews were carried out with local community organisations based in areas in which asylum seekers are living. They were asked for their assessments and experiences of community relations, drawing on their knowledge of community networks and activities.

vi) Work with other authorities (9)

During the course of the research, three other Scottish local authorities were in the process of negotiating contracts with NASS, as the dispersal policy continued. These authorities were proceeding in ways which attempt to learn lessons from the experiences of other authorities, including Glasgow, and authorities elsewhere in the UK. Key personnel in each of these three authorities were interviewed about their preparations for the arrival of asylum seekers and particularly how these drew on experiences elsewhere, learning from existing good practice.

vii) Stakeholder seminar

Following identification of the key issues in the initial draft of the report, a stakeholders seminar was held to review the main issues emerging from the draft findings and provide an opportunity for stakeholders provide feedback for the final report. Representatives of service providers from the statutory and voluntary sectors were invited, as were asylum seeker representatives.

1.5.2 Data analysis

Data were managed using SPSS for quantitative data and NUD.IST for qualitative data. Both types of data were combined using NUD.IST, to produce complementary analyses.

Analysis of quantitative data concentrated on producing descriptive statistics on the topics covered by the interviews. Relevant cross tabulations were carried out as noted in the report, but complex statistical analysis was not appropriate because of the size of the sample.

The qualitative data allowed interview topics to be explored in depth, and for the operation of services under the Act and their effectiveness or otherwise to be comprehensively analysed. Questions explored in the analysis of interview data included:

• The impact on services of the dispersal policy and the support system (1);
• Multi-agency working (2)
• The experiences and expectations of asylum seekers (3);
• The effectiveness of a range of services, as listed, including particularly interpreting, legal aid, legal representation(4);
• English language teaching and FE issues (4);
• Perceptions of the role of the media (5);
• Community relations issues, including harassment, but also positive community relations (5);
• Gaps and potential improvements in provision, in the changing policy context (6);
• More detailed questions such as the effect of local concentration, or the potentiality for homelessness (7).

Analysis and identification of good practice (2,8) involved triangulation of data from the service provider and asylum seeker interviews, examining their various perspectives on good practice. These were also considered in relation to the comparative work on good practice from other parts of the UK, with a view to identifying best practice in Scotland, as well as any lessons from elsewhere.

The media monitoring (5) provided a systematic record of the media context in which the research had been conducted. Analysed with reference to the comments of interviewees, it also permitted a basic assessment of the impact of media coverage during the period of the research.

1.6 ETHICAL CONSIDERATIONS

The research covered a high profile issue, and a most vulnerable population. It was conducted in accordance with the British Sociological Association's Statement of Ethical Practice, maintaining confidentiality of information, anonymity and protection from harm for respondents. The asylum seekers interviewed were in a particularly vulnerable position, and careful negotiation was essential to ensure genuine informed consent.

All our respondents were assured that none of their comments would be attributed to them as individuals. To protect confidentiality as far as possible, we do not include a list of service provider respondents.

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