Pamela Clayton, University of Glasgow, Department of Adult and Continuing Education

Adult education and ethnic minorities in Greater Glasgow - some developments

Published in 'Report of a Conference on Adult Education for a Multicultural Society',

organised by The Institute of Continuing Education, The Queen’s University of Belfast, in
association with the Standing Conference on University Teaching and Research in the
Education of Adults (SCUTREA), 19 May 1995, edited by Rob Mark, published by The
Institute of Continuing Education, QUB, pp 41-5, IBSN 0 85389617 8

Abstract. Refugees and people of non-European origin are selected for consideration here, and the issue
highlighted is access. There are many barriers, some arising from personal situations, others from
institutional shortcomings, and refugees have particular difficulties. Gender and relation to the labour
market are additional factors. The context of widespread deprivation in Greater Glasgow nevertheless
includes some specific measures to help ethnic minorities enter adult education, both in the public and the
voluntary sectors; but it is questionable that provision is either sufficient or always appropriate.

The term 'ethnic minority' is problematic, but for the present purpose people of non-European
origin and refugees have been selected, since these have difficulties not faced by other large in-
migrants groups such as those from Ireland, Germany, the USA, Canada and Italy. According to
the 1991 census, at 62,634 or 1.3% of Scotland's population, the size of this ethnic minority
population is small compared with nearly 3 million, or just over 5% in England and Wales
(Dalton & Hampton 1994). In the Glasgow conurbation over 28,000 people are defined as
members of ethnic minorities, or 2.2% (Kelly, forthcoming). Of these, almost half identify
themselves as Pakistani, and two-thirds Pakistani, Indian or Bangladeshi; 18.1% Chinese or other
Asian; 6.5% African, Afro-Caribbean or Black British; and about 9% of mixed origins, from
Indian Ocean or Pacific countries or refugees. Around half of the 'ethnic minorities' were born in
the UK, but there are still many for whom English is a second language or non-existent. The age
structure is such that, unlike whites, a majority of women is involved in childcare but few in
eldercare. The class composition in Scotland as a whole (based on a 10% sample) differs
markedly from that of whites. 4.7% of whites are in class 1: this is very similar to the Pakistani
percentage, but other groups range from 12.2% (Chinese) to 17.1% (Indians). Furthermore the
26.7% of whites in class 2 are greatly exceeded by Indians (38.6%) and Pakistanis (54.6%); and
semi-skilled and unskilled manual workers are under-represented compared with whites.
However, these positive findings are tempered by under-representation in the growing white-
collar sector and higher unemployment rates. In particular 14.2% of women are officially
unemployed, compared with a rate of 7.6% for whites. The proportion self-employed is also
much higher than that of whites for both men and women, in businesses with and without
employees.

Many ethnic minority people share the barriers impeding white non-traditional students: financial
difficulties; poor or non-existent qualifications; lack of confidence to enter educational
establishments or progress to higher levels of study; childcare; lack of awareness of educational
guidance services, local study opportunities, entry requirements, courses without entry
requirements, free courses and help with childcare. In addition they may be unfamiliar with UK
 Pamela Clayton, University of Glasgow Adult education and ethnic minorities in Greater Glasgow - some

developments
systems, have poor or non-existent English, possess qualifications not recognised in the UK, lack
confidence to study in English or be afraid to travel to other areas. Educational guidance services
may be of little help unless guidance workers are sensitive to cultural difference, know minority
languages or have access to interpreters, are familiar with overseas qualifications, are trained in
accreditation of prior learning (APL) and experiential learning (APEL), and perceive the need for
advocacy and holism. Providers of education and training may neither obtain nor retain ethnic
minority students unless they liaise with ethnic minority groups, print leaflets in a range of
languages, advertise in ethnic minority newspapers, carry out ethnic monitoring, analyse which
courses attract ethnic minorities and which do not, ensure that reception and janitorial staff are
friendly, and hire sufficient ethnic minority tutors (Dadzie 1993; Panesar 1994).
Refugees face added difficulties. Even those granted refugee status or indefinite Right to
Remain, who have the same entitlements as home students concerning fees and bursaries, can be
very traumatised because they have had to flee from their homes and may have had family
members murdered. Those given Exceptional Leave to Remain (ELR) are eligible for financial
support only when they have been in the UK for 3 years since applying for asylum. The same
rule applies to 'asylum-seekers', who bear the added strain of the uncertainty of their future and
their more recent experiences, and who are sometimes charged overseas fees. Both groups must
try to get finance from a range of trust funds, charities and the European Social Fund (ESF),
involving time, energy, persistence and problems with the Benefits Agency. Added to trauma,
particularly among the more recently arrived, this can pose insuperable problems.

To assess the relative importance of the various barriers to access in the Greater Glasgow area,
representatives of the main ethnic minorities (Pakistani, Indian, Chinese and African) and an
official of the Scottish Refugee Council were interviewed. This revealed both the heterogeneity
of the ethnic minority population and the similarity of many of their problems. The greatest
barriers, particularly for those over 30 and born outside the UK, are language, finance and
domestic responsibilities.
Language is the main problem for Asians, particularly Chinese non-graduates, but the
language barrier ranges from non-existent English (which impedes even knowledge of existing
provision), through disparity between spoken and written English, to lack of specialised
vocabulary. English as a Second or Other Language (ESOL) courses at the right level are hard to
find and some classes are too large, with a very wide range of levels. ESOL and vocational
courses are rarely linked, such as a computer course taught in basic English by a bilingual tutor
or one aware of linguistic problems, or aided by interpreters.
Poverty, the levy of overseas fees and the lack of access to bursaries are the most salient for
Africans and refugees. Up to 1993 Strathclyde Regional Council (SRC) allowed ineligible
refugees to apply for bursaries, but it no longer does this; and colleges are to be allowed to
charge refugees home fees for part-time courses only if they are on income support.
Glasgow has poor childcare provision, discriminating against those without extended family
support, such as lone parents and Africans. Even where education providers offer free childcare it
is available only in daytime and is often inappropriate for children without English and from a
culture unfamiliar to nursery staff.
Women have additional disadvantages. Indian and Pakistani women often depend on their
families both for information about courses and permission to attend them. Even where the
husband gives permission, the mother-in-law may withhold it on the grounds that housework will
suffer. Appropriate women-only classes are scarce. Women are often justifiably afraid to travel
outside their local area by public transport even in the daytime, but especially at night. The main
colleges providing ESOL are inconveniently located - and some women find them too large and
confusing, on top of the daunting impression that people who go to college must be highly
intelligent.

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 Pamela Clayton, University of Glasgow Adult education and ethnic minorities in Greater Glasgow - some

developments
Finding time to study, even where courses are held at convenient times, is difficult not only
for women with domestic responsibilities but also for many of the employed and self-employed.
These are not prioritised, yet additional education and training might allow them to gain better
jobs or enhance their business skills. It is in any case harder to get places on business courses,
when English may be judged inadequate. Actual lack of qualifications is not a major issue - for
example, 65% of refugees registered with the Scottish Refugee Council in Glasgow are graduates
and many are skilled workers; but not all courses recognise overseas qualifications or undertake
APL or APEL. Motivation can be a barrier too. Asylum-seekers sometimes think they will not
stay in the UK very long, they will quickly find employment, or they can pursue their trade
without learning English.

Strathclyde Region appears an unpromising area, with nearly 90% of the most deprived urban
areas of Scotland, an estimated unemployment rate in 1992 of 17.7%, over 20% of the population
living at or below poverty level and discrimination and harassment. Nevertheless, SRC has an
Equal Opportunities programme and ethnic minority groups are among those singled out for
priority treatment (SRC 1992). The Community Relations Council uses Urdu, Punjabi, Chinese,
Cantonese and Hindi; and the Strathclyde Interpreting Service offers these languages plus
Bengali, Gujerati, Japanese, Malay, Marathi and Sylheti (SCVO 1993). The Strathclyde
Continuing Education Gateway, a computer-based system of guidance to adult educational
opportunities which is part of the SRC Careers Service, includes a 24-hour helpline for ethnic
minorities, with immediate information in Urdu, Punjabi, Hindi and Chinese. The SRC
Community Education Service (CES) Area 5 includes 28,681 people in its Special Initiative Area,
of which the ethnic minorities in East Pollokshields account for 56.4%, and Urdu and Punjabi are
spoken in the Centre. There is also access to interpreters.
The Local Collaborative Project in Glasgow involves FE colleges, which deliver training, in a
joint project with the CES and the Glasgow Federation of Unemployed and Community Resource
Centres. The target groups include refugees and other ethnic minorities. The classes are not free
but those on income support are eligible for fee waivers and the long-term unemployed have their
travel expenses paid. The CES usually provides childcare, and classes are held in a whole range
of venues close to people's homes, at times to suit users and throughout the year. Unlike much
CES education, the scheme offers the option of Scotvec modules. In relevant areas interpreters
are used for Urdu, Punjabi and Arabic, and publicity materials are published in several
languages.
The Women's Technology Centre includes representatives of ethnic minority women's
organisations on its Board of Management, and 10% of the intake in 1994 was of ethnic minority
origin. Women are trained in a wide range of computer skills, including programming, and a pre-
vocational course on linguistic skills for ethnic minority women is planned. Local universities
have run Professional Updating Courses for Ethnic Minorities, Access to English and basic
literacy and numeracy; and the development of the Scottish Credit Accumulation and Transfer
Scheme (SCOTCATS) includes APL and is thus potentially useful.
Services specifically for ethnic minorities include Meridian, founded and staffed by ethnic
minority women and for women only. It runs classes and has childcare facilities. Tutors have
qualifications up to Master's level from their country of origin. Another project is the Ethnic
Minority Enterprise Centre (EMEC), which arranges free training for employment and self-
employment. A Day Centre for Black and Ethnic Minority Women runs courses daily and all the
workers are bilingual. The Scottish Refugee Council has full-time education counsellors and also
arranges the provision of courses.

There is, then, some provision (though not enough) and yet the take-up of courses offered is often
poor despite the obvious need. Access is then a problem which needs investigating in more

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 Pamela Clayton, University of Glasgow Adult education and ethnic minorities in Greater Glasgow - some

developments
depth. A few clues emerged from the interviews. The quality of the Interpreting Service is
variable and the Gateway Helpline is little known. The majority of specialised provision caters in
effect for Asians, so Africans and others feel excluded. Providers do not always accede to
requests for particular courses that ethnic minority representatives feel would be useful, or they
put on courses at inappropriate times such as Ramadan or Chinese New Year. Many courses are
too short, too basic, ill thought-out, spasmodic and lead nowhere. Students who do venture into
adult education sometimes leave forever, because their language problems are exacerbated by
lack of understanding by providers and tutors; tutors often ignore minority students, condescend
to them, offend them or treat them like children (in one case a tutor forbade a student to leave the
class to pray during Ramadan); and students dislike the formality of UK education. Provision
might be improved if ethnic minorities were better represented in decision-making about adult
education and training.
It is likely though that the most important barriers to access, as already stated, are language
(which means more ESOL courses and at appropriate levels), finance (which means more
funding) and childcare (which means not only more but better). Providers and funders should
realise that access is not just a problem for ethnic minorities but for society at large, in an era
where high skill levels are needed.

BIBLIOGRAPHY
Dadzie S (1993). Working with Black Adult Learners: A practical guide. Leicester: NIACE
Dalton M & Hampton K (1994). Scotland's Ethnic Minority Community 1991: A census summary.
Glasgow: Scottish Ethnic Minorities Research Unit, Fact Sheet Number 1
Kelly E (forthcoming). Roads to Racial Equality.
Panesar J (1994). Widening Access to Higher Education to Asian Women and Girls. Unpublished paper,
Centre for Access and Advice, University of East London
Scottish Council for Voluntary Organisations (1993). Directory of Voluntary Organisations in the Black
and Minority Ethnic Communities in Scotland. Edinburgh: SCVO
Strathclyde Regional Council (1992). The Social Strategy for the '90s Draft Implementation Plan:
Reducing disadvantage - building better communities. Glasgow: Strathclyde Regional Council