Rampton (1981)

Notes on the text

Preliminary pages Membership, Contents, Preface, Introduction

Chapter 1 Evidence of underachievement

Chapter 2 Factors contributing to underachievement

Chapter 3 Support for schools and teachers

Chapter 4 Programme for action

Appendices

Interim report of the Committee of Inquiry into the education of children from ethnic minority groups

Chairman: Anthony Rampton OBE

Presented to Parliament by the Secretary of State for Education and Science by Command of Her Majesty June 1981

Cmnd. 8273

London: Her Majesty's Stationery Office 1981
© Crown copyright material is reproduced with the permission of the Controller of HMSO and the Queen's Printer for Scotland.

Chapter 3 Support for schools and teachers
[pages 60 - 69]

TEACHER EDUCATION

1. As we have already said, teachers, as the central figures in the education process, play a key role in meeting the needs of ethnic minority pupils and in developing a multicultural approach to their work. To do this however, teachers need to be adequately prepared by their initial and induction training and throughout their careers by appropriate in-service courses. We have therefore looked in some detail at the work of teacher training institutions (TTIs) and the overall development of teacher education. As NATFHE put it to us in their evidence:

'Teacher education, embracing as it does initial training, induction and later in-service studies, is an indivisible process. All colleges, no matter where they may be situated, can play their full part with teachers, professional tutors, advisers and institutes of education to develop a wide range of multicultural studies, both full-time and part-time. Unless studies are updated to meet the emergence of a society which contains not only the seeds of racial disharmony but also the potential for immense cultural and human enrichment they will become increasingly irrelevant and anachronistic. Far too many teachers and lecturers are under-prepared to cope with the changes needed.'

2. The evidence we have received from all sources, including schools and teachers, LEAs, students and parents presents an overwhelming picture of the failure of teacher training institutions to prepare teachers for their role in a multiracial society. In very few institutions is a grounding given to all students in how to appreciate and understand the experiences and cultures of ethnic minority pupils or of how to help ethnic minority parents who may not have much personal experience of this education system.

3. The failure of TTIs in this respect has been ascribed to:

a. the well-worn, traditional grooves of thought, practice and attitude within which the teacher trainers operate;

b. the sheltered nature of campus life which means that the teacher trainers are out of touch with the realities of today's 'multiracial and culturally diverse' society and that they rarely consult anyone outside their own institutions;

c. uncertain leadership on multicultural education by those in charge of teacher training institutions compounded by the absence of guidance from the DES;

d. the marked preference of subject specialists for the academic rather than the practical aspects of their subjects;

e. the increasingly outdated experience of teacher trainers and, as a result of the contracting teacher training provision, the addition of few new staff with recent practical teaching experience;

f. few opportunities given for students to gain experience in teaching ethnic minority pupils; and

g. inadequate grounding for students in language and dialect.

Good practice

5. To show the scene as so generally discouraging however gives too little credit to the imaginative and innovative work which has been attempted over a number of years by a few colleges, such as the following:

i. A college where the academic board is systematically reviewing all its contributions to multicultural education, both through its studies and its links with the community;

ii. A college of higher education which has established a BA Honours degree in combined social studies, with a special focus on community relations;

iii. A college which has established a residential urban studies centre to enable students to forge strong links with ethnic minority groups in the area where they do their teaching practice;

iv. A college where a post graduate course contains substantial elements of multicultural education for both primary and secondary student teachers.

• promoting a basic understanding of the concept and practice of a multicultural approach to education among all students and staff;
• increasing relevant classroom and community oriented activities;
• developing a multicultural approach to each individual subject area; and
• developing contacts with local ethnic minority groups and organisations so they can contribute to the work of the institution.

Induction training

7. Since initial training is failing to prepare teachers to teach in multiracial schools, it is vital that LEAs and schools provide effective induction training. As a senior member of one TTI put it to us:

'I am sympathetic towards multicultural education, but we live in a white area. My students rarely encounter black children in class. So we don't prepare them specifically for the multiracial school but try to give them a sound, general professional grounding, in the firm hope that their LEA and their school will enable them to cope in their first post.'

8. Two examples of good practice we found are:

i. a teacher/tutor scheme established by an LEA where probationary teachers were provided with a counselling service and a programme of visits to other schools;

ii. a well-documented induction programme established by a secondary school, details of which are given at Appendix F.

In-service education

10. In contrast to initial training, in-service education (INSET) presents a much more positive picture. Progress in broadening the curriculum to take account of today's multiracial society has been made by a number of LEAs and, more tentatively, in recent times, by some schools seeking to develop their own in-service programmes. As one might expect the key figures in these instances have been the LEA advisers and individual head teachers. Their efforts have been assisted and encouraged by the LEA support services such as language and resources centres. The advisory and information services organised by West Indians themselves, already referred to in our section on books and teaching materials (chapter two), some of which are mentioned in Appendix I, can also be of particular value here.

11. LEAs vary widely in the extent to which their in-service provision takes account of the need for a multicultural approach to education. We were concerned that some teachers we met who wanted this kind of in-service training claimed that nothing suitable was available.

Good practice

12. We give below some interesting examples of good practice:

i. weekly lunch hour sessions in an infants school to study language development;

ii. training of teachers in a secondary school by school staff experienced in counselling in order that all fourth year pupils could have group discussions on health, education, vocational guidance and community living throughout the year;

iii. formation of a curriculum development team within a secondary school to design a curriculum relevant to the needs of pupils in today's society.

To achieve this:

a one-day INSET course on multicultural education was held for all staff;
staff are released in turn from teaching to devise new courses and materials;

Further details are given in Appendix G;

iv. a part-time course at a polytechnic leading to a BEd in multicultural studies. Details are given in Appendix H. (Such high level courses can be particularly valuable in attracting staff who may wish to enhance their professional qualifications.)

West Indian teachers

14. We have already referred to the important contribution that West Indian teachers and professionals can make at all levels in the education service. We therefore fully endorse the Select Committee's recommendation (1) that 'ways and means (should be found for) increasing the numbers of teachers of West Indian origin in maintained schools'. We would like to see more West Indians entering teaching through the normal channels, but, because of lack of the appropriate academic qualifications many who might have wished to train, have been unable to do so. Recognising this difficulty, in 1978 the DES invited seven LEAs as part of a pilot scheme, to establish special access courses designed to prepare mature students particularly but not exclusively from ethnic minority groups, to enter training for teaching and the other caring professions. In session 1979/80 there were 11 such courses running with a total of 169 students, of whom 115 were on one-year courses. The latter figure included 78 West Indians, of whom 64 (82 per cent) were subsequently admitted to institutions of higher education. In the current session 291 students, including 148 West Indians, were admitted to 20 courses, nine of which are running for the first time In 1980/81.

15. These results are very encouraging and seem to indicate that there is an untapped reservoir of ability among West Indians who have shown they have the capacity to respond to the right kind of opportunity. We would therefore like to see more LEAs with West Indian populations seeking to establish such courses. We also feel that colleges should seek to consult and involve West Indians in the setting up of such courses. Unfortunately at present only two LEAs provide discretionary awards (one of these at a reduced rate) for these courses. Ways must therefore be found to provide mandatory awards for students on these courses.

16. We therefore recommend that:

Initial training

i. The governing bodies and maintaining authorities of all TTIs in the public sector and university departments of education should institute a fundamental reappraisal of their policy towards multicultural education.

ii. HM Inspectorate should continue to provide courses on multicultural education for holders of senior posts within TTIs and, in their routine and special inspections of TTIs, should seek to encourage a more broadly-based approach to education by all institutions.

Induction training

iii. LEAs should review the effectiveness of their induction programmes for probationary teachers and ensure that these include guidance on the needs and backgrounds of all pupils in their area.

iv. Schools should establish an effective induction programme for probationers and new members of staff providing information and advice on the needs of all pupils in the school.

In-service education

v. LEAs should ensure that in their areas there is a wide range of in-service provision relating to the needs of all the pupils in their schools.

vi. LEAs should organise seminars for senior staff in their schools, particularly for head teachers and their deputies, and potential holders of such posts, in the theory and practical application of a multicultural approach to education.

vii. LEAs should consider how best to collect and disseminate information about interesting practices in school-based INSET.

Recruitment and training of West Indian teachers

viii. LEAs should seek to recruit more West Indian teachers and professionals and to ensure equal opportunities for them at all levels in the education service.

ix. LEAs with West Indian populations should establish special access courses for entry to training for teaching and other caring professions.

x. The DES should find ways in which mandatory awards can be given to students on special access courses.

THE ADVISORY SERVICES

1. Teachers are supported in their work by teams of advisers and inspectors within the local authorities. We believe that all these advisers have a role to play in increasing awareness and understanding of the needs of ethnic minority pupils and in fostering the development of a curriculum relevant to the needs of society today.

Multicultural advisers

2. A number of LEAs have appointed advisers with specific responsibilities for multicultural education and we have therefore taken a particular interest in the work that they are doing. According to the responses received to the government's review of the curriculum (2), 'rather under a quarter of the authorities referred to the role of an adviser with special responsibilities for multiracial or multicultural education'. The indications are that the numbers are now increasing but the amount of time devoted to multicultural education varies widely between LEAs: in some areas there are two or more full-time advisers. Elsewhere the adviser has other responsibilities which may take up most of his time. This is in our view inadequate. In many larger LEAs, to be fully effective, the multicultural adviser will need a supporting team and appropriate resources to assist him in his work. We should like to see those LEAs with ethnic minority populations appointing at least one adviser with specific responsibility for multicultural education and all other LEAs designating an adviser to coordinate work in this field.

3. We see the multicultural adviser as an integral part of an LEA advisory service with the same status as his colleagues and participating in the authority's decision-making process at a senior level. As well as encouraging a multicultural approach to education in schools, the adviser also has a role to play in educating and stimulating his colleagues into a greater awareness of the needs of minority groups in his area. He therefore needs to have a genuine understanding of ethnic minority pupils and a knowledge of the minority communities' cultures and concerns. He will need to develop links with self-help groups in his area and be prepared to foster a close relationship with all those involved in community relations. In many cases these points might best be met by the appointment of someone who is himself from an ethnic minority group. In order to assist him in carrying out his work the LEA should provide induction training on general matters relating to the authority's policy on such matters as falling rolls, as well as on the needs of all ethnic minority groups in the area.

We therefore recommend that:

1. All LEAs should designate an adviser to coordinate activities in the field of multicultural education, and those LEAs with substantial ethnic minority populations should consider the appointment of a full-time adviser with this role.

ii. LEAs, in appointing advisers for multicultural education, should take into account the extent of the applicant's understanding of the needs of pupils from all ethnic minority groups and his knowledge of minority communities' cultures and concerns.

iii. LEAs should provide induction training for their multicultural advisers on general matters relating to the authority's overall educational policies.

STATISTICS

1. In 1977 the Select Committee Report on the West Indian Community recommended that:

'statistics of children of West Indian origin attending ESN schools be obtained, published and carefully monitored'; and

'the Department of Education and Science should compile and monitor relevant statistics relating to those (West Indian) students training to be teachers, and teachers in grant-aided establishments, who are of West Indian origin'.

2. The government concluded that the collection of statistics should be undertaken in these categories, with a view to the first returns of information being made in January 1980. It is understood that due to discussion about including an ethnic question in the 1981 Census, little progress has been made in implementing this decision.

3. As we have several times remarked, our task in preparing this report was made more difficult by the absence of statistics on the distribution of West Indian children. Although some schools collect statistics on the ethnic origin of their pupils, there is little uniformity in the classifications used and it is difficult to make comparisons between one school and another, let alone gain anything approaching an overall picture.

4. We asked a number of LEAs to collect statistics on particular matters including the number of West Indian teachers whom they employed. Only one LEA already had this information. Another felt unable to ask its schools for it on the grounds that this might be unacceptable to some of its teachers. This concern has however not been borne out by the evidence which we have received from the majority of the main teacher unions, notably the NUT who stated clearly and unequivocally that they are now in favour of keeping records on an ethnic basis both of pupils, and of teachers.

Value of ethnically based statistics

5. Ethnically based statistics can, we believe, be of value at all levels and to all parties within education: to central government in determining policy; to LEAs in quantifying and locating particular needs; to schools so that they can take full account of the cultural and linguistic backgrounds of pupils and see whether any groups are underachieving or are disproportionately represented in any subject or class and to make an appropriate response; and to parents so that they can assess their child's performance in relation to his peers. We are therefore wholly in favour of the collection of educational statistics on an ethnic basis where they are to be used in establishing facts about how members of the ethnic minorities are faring in the education system.

6. We outline below the different types of information which should be collected and the date by which the first returns should be made. Although we shall undoubtedly be giving further consideration to the question of statistics in the rest of our work, the recommendations below relate to the interests of all ethnic minority groups. These recommendations will in no way be affected by our further deliberations and we strongly urge therefore that, subject to the consultation procedure in which we would expect to be involved (paragraph 7 below), they should be implemented.

We therefore recommend that with effect from 1 September 1982:

i. All schools should record the ethnic origin of a child's family, along with the normal standard data, when a child first enters school, on the basis of discussions with the parents.

ii. The DES should reincorporate the collection of information on the ethnic origin of all pupils in schools into its annual statistical exercise and should introduce ethnic classifications into its school leavers survey.

iii. The DES should ask all teacher training institutions to collect statistics on the ethnic origin of all students training to be teachers including students seeking to enter teaching through special access courses.

iv. The DES should record and publish statistics on the ethnic origin of all teachers in employment by amending teachers service cards to include information on ethnic origin.

v. The DES should arrange for the annual collection of details from all universities, polytechnics and colleges of higher education, of the ethnic breakdown of their student populations (3), and should examine the reasons for any under-representation of any group at any institution.

7. In implementing these recommendations the DES should as a first step consult the local authority associations, the teacher unions, the Society of Education Officers, and representatives of the ethnic minority communities, with a view to devising acceptable and clearly understood ethnic classifications and methods of safeguarding privacy and confidentiality.

FUNDING

1. One of the broader issues which has been raised frequently has been the adequacy and appropriateness of the special funding arrangements for provision for ethnic minority children and especially for West Indians.

Central funding

2. The Select Committee's report on the West Indian Community in 1976/77 (4) repeated a recommendation of an earlier Select Committee Report that:

'the establishment of a central fund to meet the special educational needs of West Indian children and adults, and other ethnic groups, should be reconsidered'.

The government was reluctant to establish a central fund on the grounds that 'as the most fundamental needs of the ethnic minorities are essentially the same as those of the population as a whole, it is through the general expenditure programmes of central and local government that these needs should be met' (5). West Indians do not agree that their needs are being adequately met by these means.

3. The question of a central fund to meet the particular educational needs of ethnic minorities and within that, whether there should be special provision for West Indians or other groups, is a complex matter which we will consider for our main report.

Section 11

4. One of the government's responses to the needs of ethnic minorities is the assistance given under Section 11 of the Local Government Act 1966 (6). Grant is currently payable at a rate of 75 per cent on the salaries of staff employed by eligible local authorities to meet the particular needs of recent Commonwealth immigrants: claims may be made in respect of other local authority services but in fact the great majority (80 to 85 per cent) relate to staff in education. The initiative for making a claim rests with the local authority concerned.

5. It has been accepted for some time that there are drawbacks in the operation of this system and in November 1978 the government published a consultative document outlining proposals for a new grant. This document summed up the defects of Section 11 as follows:

'It prevents aid being given to a sufficiently wide range of ethnic minorities; it excludes the second and subsequent generations from the benefits of the grant; it inhibits a comprehensive and coordinated approach to the problems of ethnic minorities in particular areas; and it is restrictive in the purposes for which aid can be given and the form it can take.'

7. We believe that Section 11 provides a valuable source of funding to local authorities. We strongly support, however, the need for the government to revise its provisions to make it more appropriate to the needs of the ethnic minority communities in our society. For example, eligibility should be determined by the extent to which local authorities' proposals meet the special needs of these communities or prepare all pupils for life in a multiracial society. The grant should not be restricted to staffing, but should also be available for other running costs of projects, equipment, training and capital expenditure. It is also particularly important that consultation with the ethnic minority groups themselves should be built into the administration of the fund.

We therefore recommend that:

i. The Home Office, in consultation with the DES, should undertake a review of the provisions and operation of Section 11 with a view to making it more appropriate to the needs of the ethnic minority communities.

ii. Local authorities should set up consultative procedures involving ethnic minority groups in their areas and no claim for Section 11 funding should be considered without an indication that it has been fully discussed with them.

iii. Local authorities should clearly state their criteria for the appointment of staff under Section 11 and one of those criteria should be membership of, or experience of working with, the ethnic minority groups concerned.

Footnotes

(1) House of Commons HC 180 I February 1977 paragraph 71.

(2) 'Local Authority Arrangements for the School Curriculum'. Report on the Circular, 14/77 Review. HMSO 1979.

(3) Excluding bona-fide 'overseas students'.

(4) House of Commons HC180-I HMSO 17 February 1977 paragraph 73.

(5) Home Office White Paper April 1978 Cmnd 7186 paragraph 38.

(6) Section 11 of the Local Government Act 1966 provides that: 'Subject to the provisions of this section the Secretary of State (Home Secretary) may pay, to local authorities who in his opinion are required to make special provision in the exercise of any of their functions in consequence of the presence within their areas of substantial numbers of immigrants from the Commonwealth whose language or customs differ from those of the community, grants of such amounts as he may with the consent of the Treasury determine on account of expenditure of such descriptions (being expenditure in respect of the employment of staff) as he may so determine'.