a shared future for northern ireland: the challenge of … · 2012. 9. 10. · september 2012 a...

Jessica Caldwell Benji Clarke Jonny Elliott Ben Mallon Kirsty McClay Lewis Mooney Sarah Mulcahy Fintan Phelan Ciaran Roddy

Volume 2

Paper 2

September 2012

A Shared Future For Northern Ireland: The Challenge of Immigration and the

Inclusion of Ethnic Minorities

A Shared Future for Northern Ireland

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Table of Contents

Introduction

Section 1: Addressing Cultural Threat Page 4

Introduction

Cultural Threat

Media Campaign for Inclusion

Shared Future Event

Section 2: A Shared Future for Healthcare Page 7

Introduction

Effective Communications in Healthcare

Immigrant Registration in Healthcare

Section 3: Education and a Shared Future Page 9

Introduction

English as an Additional Language (EAL)

Parental Involvement

Promoting Multiculturalism in the Classroom

Conclusion Page 12


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Introduction

During the Troubles immigration was a word that was rarely associated with Northern Ireland;

emigration was a more common occurrence. In the years following the 1998 Agreement Northern

Ireland has become a more attractive location in which to live. Exterior factors such as the 2004

expansion of the European Union will mean that the influx of immigrants coming from Eastern

Europe and elsewhere will have a more permanent presence in Northern Ireland. Northern Ireland

will have to be ready and willing to deal with difference in order to create an environment where

fear and exclusion is not only eradicated between the two traditional communities but also ethnic

minorities.

In 2010, the Labour Force Survey estimated that there were 80,000 persons born outside the UK and

Ireland living here. It is important to understand that immigration is a long-term development and it

will alter the structure of Northern Irish society. The 2005 Shared Future policy framework does not

provide adequate discussion or protection of the rights of ethnic minorities and immigrants.

Previous narratives have placed sectarianism and racism in the same category, as if trying to combat

one will eradicate the other. The Racial Equality Strategy for Northern Ireland has laid out aims in

relation to the protection of minorities, however the goals set out are not specific and the action

points are not ambitious enough. Our objective is therefore to attempt to direct a discussion that

will lead to a more coherent and inclusive idea of shared future that is both realistic and achievable.

The daily hurdles that migrants and ethnic minorities face makes Northern Ireland a less welcoming

place to live, it makes these populations feel alienated and isolated. In order to ensure that a

repetition of conflict does not occur, strategies must be put into place and there must be more

ethnic diversity around the negotiating table at Stormont. However targeting racial abuse and

migrant inclusion alone will not remedy the problem. Unemployment, poverty, economic inactivity

and a lack of education in traditional communities will fuel violence and segregation even more.

These areas must also be addressed more stringently.

This paper will be divided into three main parts; the first section will address issues surrounding

culture, there will be an analysis of the perceived cultural threat felt by Northern Irish citizens in

communities. It will demonstrate how more can be done to ensure migrants are incorporated in the

shared future strategy. The second area will deal with problems relating to the accessibility of

healthcare, for example in terms of language barriers and making GP appointments. Finally there

will be a discussion surrounding education. It will highlight the importance of support for English as


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an Additional Language (EAL) students, having multiculturalist teaching in Northern Irish classrooms

and the need for the inclusion of ethnic minority pupils and their parents in the educational

experience.


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Addressing Cultural Threat

Introduction

It is well known that across Europe, there has been a rise in anti-immigrant attitudes, which has led

to unrest, violence and conflict in European communities. A study entitled ‘Anti-Immigrant Attitudes

in Europe: Out-group Size and Perceived Ethnic Threat’ carried out in 2006 by Schneider has

highlighted that anti-immigrant attitudes are not based on fear of economic competition, but rather

on a ‘fear of conflict over values and culture’. This can be termed ‘cultural threat’.

Cultural Threat

The concept of cultural threat is central when considering the way in which immigration poses a

challenge to the creation of a shared future within Northern Ireland. Cultural threat is a worldwide

phenomenon that arises in response to immigration. A group may experience “cultural threat” in

response to exposure to foreign and unfamiliar nationalities’ way of life. Cultural threat can be

understood as the fear that an out-group is diluting or impeding the expression of in-group values or

identity. Cultural threat will be more likely to arise when a group feels unsure about the state and

strength of their traditions. In Northern Ireland, the phenomenon of ‘cultural threat’ is particularly

salient as it has a history of conflict that has centered on differences in culture and identity.

Northern Irish society continues to be divided along cultural-political lines between Catholics and

Protestants. Protecting traditions from potential, outside influences remains a prominent concern

for many communities.

The existence of feelings of cultural threat is a likely predicator of anti-immigrant positions. Much

effort needs to be applied to the creation of a shared future in Northern Ireland. Taking steps to

eliminate cultural threat being felt amongst the indigenous people of Northern Ireland is vital to the

implementation of a shared future.

Cultural threat has been identified as a key factor in shaping negative attitudes towards immigrants.

For example, some perceptions of Polish migrants demonstrate how processes of social

categorisation can impact the degree to which a specific immigrant group is perceived as being

culturally threatening. Catholic Eastern European immigrants, for example, can be perceived to be

part of the Catholic Nationalist community in Northern Ireland. Cultural clashes which have

traditionally existed between unionist and nationalist communities are now being applied to

immigrants. The effect of this is that serious violence may ensue and lead to the further destruction


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of a shared future.

Pehrson, Gheorghui and Ireland’s 2012 study has shown that Protestants are more likely to perceive

immigrants negatively, due to feeling a greater sense of cultural threat. Many Protestant

communities feel that their British identity is increasingly under threat in the face of a strong and

visible Irish identity that centres on Irish language, music and sport. Thus, the perceived sacrifice of

past Unionist hegemony and a thriving nationalist-Irish identity has contributed to feelings of

vulnerability within Protestant communities. Furthermore, the Protestant consciousness can be

pervaded by the sense that strong expression of Unionist identity may be unwelcome, due to past

Protestant dominance. These factors have contributed to a Protestant identity that is lacking in

confidence and that is more likely to be suspicious of the growth of foreign cultures within Northern

Ireland. In this way, the cultural divide that exists between Catholics and Protestants has a negative

impact on the degree to which immigrants are welcomed into Northern Irish society.

It is essential to Northern Ireland’s shared future that diverse identities can co-exist confidently and

unashamedly. Increasing exposure with different cultures will go some way to meeting a need to

improve self-confidence and reduce suspicion. A process of mutual learning about other

nationalities and traditions that exist in Northern Ireland acknowledges the legitimacy of difference

and reduces the suspicion that accompanies that which is unfamiliar.

Media Campaign for Inclusion

To begin to alleviate the cultural suspicion in Northern Ireland we propose the implementation of a

widespread media ‘immigrants and a shared future’ campaign. The campaign would aim to provide

more information on the cultural traditions of immigrants within Northern Ireland, whilst also

facilitating a greater sense of cultural security and confidence. The campaign is inspired by the

successful ‘mind your head’ campaign in Northern Ireland and the striking HIV awareness campaign

in Washington DC. Our campaign would promote and acknowledge the cultures that exist within

Northern Ireland, but are not included within the traditional British-Irish narrative. These posters

should contain images and messages which normalise a multitude of expressions of language and

culture whilst promoting the benefits of learning from this. Furthermore, the campaign should

emphasize individuals enjoying cultures that are not their own. The shared future campaign should

be carried out with the help of the Department of Education; the Department of Culture Arts and

Leisure; and the Community Relations Council.


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Shared Future Event

A high profile success of celebrating culture can be seen in South Belfast with the celebration of

Chinese culture through events such as Chinese New Year. There is a need to extend this to other

immigrant communities in Northern Ireland. The majority of these events took place in

overwhelmingly Protestant working class areas. Thus, despite the aforementioned challenges for

Protestants, there is a willingness in the community to participate in these events. However, there is

a deficit of opportunities to engage with other cultures.

We propose a “cultural shared future” event that will complement the media campaign. This event

would provide an opportunity to celebrate the range of diverse cultures that exist within Northern

Ireland. Giving more focus to these events will contribute to establishing a truly inclusive shared

future through the enjoyment of different traditions. It also would provide a platform for a wide

range of cultures to be experienced: celebrating these individually would not be feasible.

Furthermore, the success of the last year of events in Northern Ireland show that a market exists to

promote Northern Ireland as a place of inclusivity and cultural diversity.


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A Shared Future for Healthcare

Introduction

Due to the growing number of migrant workers that are settling in Northern Ireland, effective

communication in health care is becoming a more prevalent issue. According to Barriers to Health,

between 2004-2010, requests for interpreter services throughout the Northern Ireland Care Trusts

has risen from 1,850 to 42,516. Third party interpretation is a useful tool but without running in

parallel with other training programmes, it is not a sufficient solution to the language barriers that

exist between health care providers and service users. For example, it is reported that some

practitioners are unsure of how to use such services and that such interpreter consultations need to

be pre-booked. This can cause unnecessary and harmful delays. In some instances within small

migrant communities patients felt uncomfortable releasing personal medical information as they

were forced to use an interpreter that they knew.

It is reasonable to conclude that the vast majority of such professionals are not proficient in Chinese,

Polish, Lithuanian and Portuguese – the languages spoken by the majority of those seeking

interpreters when being treated in primary care trusts. The increased presence of multilingual

medical professionals within Northern Ireland hospitals would greatly enhance the efficiency of the

service of care experienced by those who are not proficient in English. This would also provide a

more inclusive health care service.

Effective Communication in Healthcare

At present there is no option to study languages as part of a medical degree programme in Northern

Ireland. As a medium to long-term solution to this problem it is suggested that medical students (of

medicine, dentistry, nursing and allied health professional courses) should be encouraged to learn a

second language throughout their studies at university. Students should have the option of taking a

module in one of the previously mentioned languages as part of their university course. In addition,

students should have options to spend an Erasmus year or an elective in a country where they can

improve their proficiency in their language of choice.

The language courses should be honed to a medical context and attaining proficiency should be

rewarded in light of the employee’s increased utility. This approach would enhance European

integration and therefore funding should be sought from the European Union to facilitate salary


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bonuses.

Furthermore, a key improvement in services for migrants should also include a welcome pack and

orientation course for new arrivals. At present our Health and Social Care system is burdened by an

increasing number of migrants who can’t access basic primary care through their local GP due to

unfamiliarity with the system. This leads to large numbers of non-emergency cases attending

hospital clinics for routine care that could and should be dealt with at local practice level.

Immigrant Registration in Healthcare

While a ‘One Stop Service’ for migrants should be available, a more coherent framework to register

service users must be set up. There should be a requirement that all patients complete NHS

registration forms upon treatment and are given assistance by service providers during this process.

The Northern Irish health system should take lessons from our NHS partners in London where

‘Project London’ has been set up by a volunteer organisation called Doctors of the World. Their aim

is to provide information, advice and practical assistance to vulnerable people to help them to

access health and social services. The clinic provides healthcare in the interim period until services

users are fully integrated into the NHS and other support services. This is a key service as it

promotes health and wellbeing of marginalized communities and detects conditions much earlier

which could lead to serious ill health, absence from employment and welfare payments to the ill

party. The centre would be easily accessible and close to migrant populations. Whilst this list is not

exhaustive, it would involve the following stakeholders: The housing sector, social services, health

visitors, interpreters, medical officers and education sector, as well as a central coordinator.


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Education and a Shared Future

Introduction

Since the enlargement of the European Union in May 2004 there has been a dramatic increase in the

number of migrant workers, particularly from the A8 countries, into Northern Ireland. As a result,

changes have been made to the Northern Ireland Primary Curriculum to emphasise the importance

of the changing multicultural nature of Northern Ireland. However, more must be done in this

regard to ensure that migrants feel a part of a shared future in Northern Ireland.

If the education system does not target and assist children from ethnic minority backgrounds

directly, in later life these individuals will be ostracised further and there will be a failure in

incorporating them into a shared future. It is on that basis that this section will consider how to

improve the educational experience of these children in the primary sector. We will address the

issue through the following sub headings; English as an Additional Language (EAL), parental

involvement and promoting multiculturalism in the classroom.

English as an Additional Language (EAL)

There has been a significant increase in the number of English as an Additional Language (EAL)

students. According to the 2010 Northern Ireland School Census there were 7,470 primary and post-

primary EAL students, this represents 2.5% of the total school population. Between 2007 and 2008

there was a 22% increase in the number of EAL students in the Primary Sector. This puts significant

strain on the education system. There are currently supports in place and resources provided for

schools with EAL students. However 'serious shortcomings’ have been identified in relation to such

provision, as reported in the Equality Commission for Northern Ireland’s New Migration, Equality

and Integration report.

The 2.5% of the Primary Sector that are EAL students will continue to grow and in order to ensure

our future is shared we must create provisions for these children. It is entirely feasible to address

the problem at this juncture due to the small part of the population that it affects

Significant steps have been made in the Northern Ireland Primary Curriculum to address these

issues. Personal Development and Mutual Understanding emphasises the celebration and

exploration of different cultures as a key theme. However, it is important that additional funding is

given to these projects which support ethnic minority children.


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We propose that all teachers should be trained in Teaching English as a Foreign Language (TEFL).

Such training courses provide teachers with additional skills in enabling ethnic minority students to

gain the most from their education. As a result teachers shall be more knowledgeable in

incorporating the cultures of immigrants into the classroom. Understanding and respecting each

other’s culture and identity is key in living peacefully together.

Parental Involvement

It has been reported in the Equality Commission for Northern Ireland’s New Migration, Equality and

Integration report ‘that schools face difficulties in communicating with parents of children whose

first language is not English.’ This is a situation that impedes parental involvement in the school

environment and their child’s education.

Communicating notices and helping children with their homework are key aspects of parent’s

participation. Interaction becomes difficult between some schools and ethnic minority parents

whose English is limited. This is an impediment to the child’s education and also inhibits many

parents from understanding the cultures and traditions in Northern Ireland. As a result the aim of a

shared future for all will not be achieved. A shared future can only be advanced when all cultures in

Northern Ireland understand one another.

In an effort to promote parental involvement in education, this paper proposes that a pilot scheme

be introduced where school notices are translated into other languages. A fund for such translating

should be set aside by the Northern Ireland Department of Education and provided to schools based

on the number of EAL students enrolled.

We should encourage schools to establish English language classes for parents of EAL and other

migrant students. Funding for this could be provided by the state, through contributions from

parents or the school. It is important that ethnic minority parents have the best possible opportunity

to engage in the education of their children. Learning the English language will allow parents of EAL

and other ethnic minority students to engage in discussions and ideas surrounding the promotion of

a shared future.

Promoting Multiculturalism in the Classroom

Many ethnic minority children and their parents can understandably feel that they are losing their

identity when living in a different country. The idea of a shared future in Northern Ireland as already

stated relates not only to a shared future between unionist and nationalist traditions but a shared


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future between all who live in Northern Ireland. Just as with a shared future between nationalist

and unionist the idea is not to erode their identity or culture, but rather create the framework in

which all identities can live together. The classroom should facilitate the promotion of a shared

future. Ethnic minorities should feel that their culture is acknowledged and celebrated where

appropriate.


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Conclusion

Immigration in Northern Ireland is a long-term trend and creates significant challenges to the

creation of a shared future. A significant cause of negative attitudes towards immigrants stem from

feelings of cultural threat. We have shown that this is especially prevalent amongst Protestant

communities. As a solution we proposed a media campaign that promotes cultural exchange and

inclusivity. Furthermore, a “shared future” event should be held that facilitates the celebration of

diversity and incorporates all cultures that exist in Northern Ireland.

In seeking to achieve effective communication in health care, we have advocated for the creation of

an option to attain proficiency in languages specific to the immigrant population of Northern Ireland,

in the course of their medical degrees. It has been suggested that students should have the option of

taking modules in one of these languages as part of their university courses. Further to this, we also

suggest the creation of a ‘One Stop Service’ for migrants, linking them into the institutional

framework of health and social care in Northern Ireland. The aim would be to provide information,

advice and practical assistance to vulnerable people to help them access health and social services.

In terms of education we have targeted three areas for improvement. Firstly there must be

increased support for EAL students. Secondly, parental involvement in a child’s education is crucial

to the idea of a shared future. Finally, by promoting multi-culturalism in the classroom, ethnic

minorities’ cultures can be celebrated in line with the aim of a shared future for all.

a shared future for northern ireland: the challenge of … · 2012. 9. 10. · september 2012 a...

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