Swann Report: 40th Anniversary

Motion made, and Question proposed, That this House do now adjourn.—(Gerald Jones.)

19:29:00

This month marks the 40th anniversary of the publication of the groundbreaking Swann report “Education for All”. The first of its kind, the report was commissioned to examine disparities in educational attainment and experiences among ethnic minority pupils, and made recommendations to tackle institutional racism in the education system. The inquiry, led by Lord Swann, was launched in response to a number of campaigns against racism in education, in particular the high-profile scandal of educationally subnormal—ESN—schools that disproportionately removed higher numbers of black Caribbean children from mainstream education settings, and wrongly labelled them educationally subnormal. A mixture of education policy and racist attitudes was responsible for this shocking discrimination. The 1960s was a time of rising immigration, with the post-war British empire’s invitation to the Windrush generation of workers from the Caribbean and its other colonies to rebuild Britain. It was also a time of significant racist backlash, with the overt racism of Enoch Powell and the notions of racial superiority that gained traction in the political mainstream. These ideas worked their way into our national education policy, with the aim of creating and maintaining a two-tier labour force and a deliberately under-educated black population to fill all the menial jobs that white Brits did not want. This significant miscarriage of justice took place in the 1960s and 1970s, and saw hundreds of black—mostly Caribbean—children wrongly sent to schools that were meant for pupils with severe physical and mental disabilities. These schools had existed since the 1940s, due to the provision, under the Education Act 1944, of appropriate schools for pupils with severe mental or physical disabilities. But by the late 1960s, almost 30% of pupils in ESN schools in London were black immigrant children, compared with 15% in mainstream schools. It was clear that decisions were being made by teachers, educational psychologists and local education authorities to place these children in ESN schools for reasons other than mental or physical disabilities. Although parents were aware that their children were being forced to struggle against a racist system, most were isolated and not given the information that they needed to make informed decisions about their child’s education. It was not until an Inner London Education Authority report was leaked that the true extent of this shocking discrimination was revealed. Grenadian educator Bernard Coard took the initiative to write and publish the groundbreaking pamphlet “How the West Indian child is made educationally subnormal in the British school system”, making the leaked ILEA information accessible to parents and communities. Mass community mobilisation as a result of Coard’s pamphlet inspired parents and community organisations to campaign against the now undeniable institutional racism in British schools. That forced the Government to respond, and these schools were eventually shut down in the early 1980s. Published in March 1985, Swann’s report confirmed Coard’s analysis: the persistence of racist stereotypes, biased IQ tests, a deep misunderstanding of culture and language, and biases in teacher expectations, disciplinary practices and curriculum content were creating significant barriers to education for black children. It challenged the racist myths that black children were less intelligent than their white counterparts, and recognised instead that the structural racism embedded in the British education system was disadvantaging them. Inadequate support for pupils with English as a second language, a lack of diversity in the curriculum, and a significant disconnect between schools and parents from ethnic minority backgrounds were identified as further barriers to black children achieving their full academic potential.

I commend the hon. Lady for securing the debate. I spoke to her beforehand to ask permission to intervene. I looked at the Swann report, which she has outlined very clearly. Does she agree that although substantial strides have been taken since that eye-opening report, the learning curve for the integration and understanding that we all wish to see must continue, as we strive to ensure that each of us can claim the best of British education, incorporating our own ethnic backgrounds and rich cultural history and heritage? Things are better, but there is still a lot more to do.

I thank the hon. Member for his intervention. However, as I will say later in my speech, I do not think that things have substantially improved, as he suggests, for lots of black children in our education system. The report produced several key recommendations, including diversifying and decolonising the curriculum, more diversity in teacher recruitment, anti-racism training for teachers, more resources for language support, better data collection and monitoring, and a better approach to working with parents and communities to build trust and encourage active participation in pupils’ education. Predictably, the Thatcher Government did little to progress those recommendations. However, the following Labour Government took some of the lessons learned as a framework for our Race Relations (Amendment) Act 2000, particularly the introduction of the duty for public institutions, including schools, to promote racial equality. However, we know that many racist barriers still exist in education—from disparities in educational attainment to the school-to-prison pipeline, the adultification of black pupils, to the presence of police in schools and the need for a truly anti-racist curriculum. Today’s patterns of racism, segregation and exclusion in education have evolved directly from the policies and attitudes that drove the ESN scandal. The closure of ESN schools in the 1980s led directly to a rapid expansion in the use of school exclusions. We began to see higher numbers incarcerated in prisons, and the expansion of the use of sets and tiering in education, whereby certain groups of children are increasingly denied the opportunity to sit exams at certain levels and then the opportunity to progress in educational settings, including university. The establishment of pupil referral units is recognised as another method of systematic exclusion from education. We must be clear: the use of PRUs and exclusions are a symptom of failure of the education system. The disruptive behaviour of a child is a cry for help, not a crime. An education system that does not respond with care and support is an education system that is broken. The number of exclusions have soared in recent years, with children as young as five being kicked out of school. Draconian behavioural policies disproportionately impact on poor children, those living in care, and those from black Caribbean, mixed and Gypsy, Roma and Traveller backgrounds. Swann’s recommendations for an inclusive education system are more important today, and we must take this opportunity to update the lessons learned and apply them to our current system. The societal impact is still as relevant today as it was in the 1960s and 1970s. Lessons must be learnt on the 40th anniversary of the Swann report in order to put an end to this systemic discrimination. Evidence of the scale of the injustice of children being forced needlessly into ESN schools in the 1960s and 1970s is scarce, but we do know about the impact that misclassification as educationally subnormal has had on survivors, some of whom have joined us in the Public Gallery. I would like to take this opportunity to thank them for all their work in exposing this scandal and campaigning to raise awareness of the racial injustice that they suffered. Their work has already made a huge difference, and they have my commitment to keep fighting for the justice and dignity that they deserve. We heard from some of the survivors at the event I held yesterday in Parliament. We heard from Noel Gordon, who told us that he was wrongly misclassified as educationally subnormal after a chain of events starting with him being diagnosed at the age of four with sickle cell. He describes being bullied and abused by teachers, running away from school and his mum fighting tooth and nail to get him out, but to no avail. Through his determination, he has achieved several qualifications including a degree. We heard from Maisie Barrett, who is a natural creative. She described how she needed support with her academic skills and her stutter, but those resources were and still are systematically denied to black children. She has said that her grandchild is a victim of today’s SEND system, just like she was a victim of ESN. She told us that if she had received a proper education, she might have pursued her dreams and migrated to Jamaica, and fought for recognition for being wrongly classified as educationally subnormal. We heard from Rene Stephens, who was expelled from his mainstream secondary school after his teacher assaulted him and was sent to an ESN school that neglected his academic development. He left school with no qualifications. Deprived of education and support, he has now spent 18 years in and out of the criminal justice system due to his misclassification. He was forced to abandon his dream of becoming head chef at the Savoy hotel. He says he continues to struggle with societal participation as a direct consequence of being denied a proper secondary education. We heard from Denise Davidson, who described how, even in her innocence as a young girl, she realised that her school was different to other schools. She remembers challenging her educational psychologist, and described how her experiences now help her as a children’s social worker to support vulnerable children in similar positions. This is not only an historic injustice; it is a living one for all who went through it. Most left school at 16 or earlier, unable to read, write or count, and were denied the opportunity to thrive and achieve their full potential. The survivors of ESN still have significant problems with self-worth and with accessing meaningful, well-paid work after they were denied an education.

I thank the hon. Member for her excellent speech and for the brilliant event that was organised last night. Does she agree that many brave black parents in the late 1960s, and even earlier than that, recognised the abominable way in which their children were being treated, including people like Bernard Coard who led the campaign against the banding policy in Haringey? At that time, black children were unfairly treated and classified in the way that the hon. Member has described, and we should pay tribute to the brave work of those people and acknowledge the abuse that those families suffered because they stood up for their rights. Her debate today and the meeting she held last night are a testament to the efforts that they put in all those years ago.

I thank my right hon. Friend for that intervention, and I totally agree with him about the amazing work that Bernard Coard and all those families were involved in as they tried to seek justice and to enable their children to fulfil their potential. That needs to be recognised. Opportunities to access meaningful, well-paid work were denied to those children, and they continue to face financial hardship because of the barriers to work for those without an education. This has had an impact on their families. A few have succeeded in the face of adversity, gaining qualifications and better jobs. That is a testament to their strength and determination, but they should never have had to struggle in this way. I would like to take this opportunity to recognise all those whose campaigning helped to get us here today, as well as the incredible campaigners who were misclassified as ESN and who are fighting for justice. My thanks go to Bernard Coard, who pioneered this campaign; to the educator and anti-racist campaigner Gus John for a lifetime of work challenging racism in the British education system; and to all those parents and communities who organised and fought for change so that our children could receive fair and equal treatment and thrive and achieve their full potential. The incredible No More Exclusions group has done invaluable work shining a light on the injustices of the current system of exclusions, and challenging the racist policies and educational segregation that drive the school-to-prison pipeline. I want to recognise the work of Frances Swaine and Leigh Day solicitors in their pursuit of justice for the survivors, and thank Professor Leslie Thomas KC, Dr Cynthia Pinto and Professor Christine Callender for their pioneering work in this area. I also recognise the incredible work of journalists and producers Lyttanya Shannon and Sir Steve McQueen for exposing this scandal with the BBC documentary, “Subnormal: A British Scandal” and the incredible “Small Axe” series. We have seen with “Mr Bates vs The Post Office” and Jimmy McGovern’s “Common” just how crucial TV and film can be in bringing miscarriages of justice to light, and I hope the same will prove to be true here and that the momentum from this campaign and these dramas will secure justice for those impacted and change a system still producing the same racist outcomes today. I hope the Minister will join me today in recognising the wrong that was done to the survivors of ESN. A public inquiry into the scandal of ESN schools is necessary, not only to secure justice for the victims of these historical discriminatory policies, but for us to understand how systemic racism and discrimination take form in our current education system and how we can eradicate them. The survivors and campaigners are calling on the Government to give due consideration to a public inquiry, four decades on from the first public inquiry report into racism in education, to learn the lessons of the past and secure justice for all those whose lives were impacted and who continue to suffer.

19:46:00

I congratulate my hon. Friend the Member for Liverpool Riverside (Kim Johnson) on securing this important and, indeed, timely debate on the 40th anniversary of the Swann report. The report is an important and stark reminder of the unacceptable treatment of young people, the majority of whom were from the Caribbean, who were inappropriately placed in so-called educationally subnormal schools during the 1960s and 1970s. My hon. Friend spoke passionately when sharing the experiences of Noel, Maisie, Rene and Denise, ensuring that their voices are heard. The report serves as a timely reminder to all of us that the mistakes that were made must never be repeated and that we must never be complacent. No children or young people today should suffer from the structural barriers and entrenched racism that held back many in previous generations, and that legacy prevails today. Let it be clear that there is no place for hate or prejudice in our education system, and this Government are determined to root out structural inequality, as well as direct discrimination, to create a genuinely level playing field. We cannot reflect on the Swann report without acknowledging the history of so-called educationally subnormal schools. We owe it to the campaigners who exposed this and refused to accept that these children were somehow less capable but rather the victims of racism. My hon. Friend mentioned people like Bernard Coard, and more recently the campaign has rightly received renewed attention through the work of the filmmaker Sir Steve McQueen, whose documentary “Subnormal: A British Scandal” shed light on the impact of these policies. It has also sparked important conversations about the ongoing challenges faced by black and ethnic minority students in our education system. Britain has made strides in tackling overt racial discrimination over the past half century, but despite progress, there is no room for complacency or, indeed, self-congratulation. That is why this Government want to ensure that whoever you are and wherever you come from, Britain will respect your contribution and give you a fair chance to get on in life. Our opportunity mission will build opportunity for all by setting up every child for the best start in life, helping them to achieve and thrive at school, build skills, and achieve growth and family security. Our work on the opportunity mission will focus cross-Government attention and collaboration on ensuring that every child and young person truly believes that success belongs to them. We are more committed than ever to tackling the disparities in educational outcomes that persist. The picture of educational achievement across ethnic groups is complex, and different social, economic and cultural factors contribute to that, including parental income, parental career and educational achievement, geography, family structure and attitudes to education in the family and wider community. While overall the outcomes of some ethnic groups now compare positively with national average outcomes, for some groups, outcomes are significantly below average, or worse than for other groups throughout the education system, and that includes black Caribbean children. One of the most significant factors affecting pupil attainment, which cuts across all ethnicities, is economic disadvantage. International studies show that attainment has broadly improved or remained stable over the last 30 years. However, disadvantaged pupils persistently perform significantly worse on average than their peers at all stages of their education, and there is considerable variation in attainment by region and ethnicity. That is just not acceptable, and it why this Government’s opportunity mission will break down barriers and the unfair link between background and success. We are determined to help all children achieve and thrive. High and rising standards are at the heart of the mission, and are key to unlocking stronger outcomes. We will deliver those improvements through excellent teaching and leadership; a high-quality curriculum that seeks to deliver a rich, broad, inclusive and innovative education that readies young people for life and work, but that reflects the issues and diversities of our society, ensuring that all children and young people are represented; new regional improvement for standards and excellence—RISE—teams; and a system that removes the barriers to learning that hold far too many children back. The Department for Education acknowledges that some groups of children have a greater likelihood of exclusion than others. Local context means that there are different patterns across the country, but we are determined to get to grips with the causes of exclusions to ensure that every child, no matter their background, can succeed. We have already committed to providing access to specialist mental health professionals in every school. We want earlier intervention in mainstream schools for all pupils, but particularly those at risk of exclusion. We are absolutely committed to improving inclusivity and expertise in mainstream schools, and to strengthening accountability by reforming Ofsted. We will enhance the inspection regime by replacing the single headline grade with a new report card system, telling parents how schools are performing, and introducing a new annual review of safeguarding, attendance and pupil movement, including off-rolling.

One of the lessons learned through the work that people have done on the ESN scandal is about the role of unconscious bias. We hear from parents, experts, teachers, educational psychologists and others that unconscious bias has the same cause as exclusions. One of the reasons why people are calling for an inquiry is to look at the lessons that can be learned by Ofsted and other agencies about how we support schools and address their practices.

The right hon. Gentleman raises an important point. We have learned a lot in the past 40 years about unconscious bias and its impact. I will come on to the points he raised about the public inquiry, and the developments over the years—the protections put in place, which we need to work to enforce. First, I want to touch on the challenges in the special educational needs and disability system today. We have a clear commitment to addressing those challenges. We are prioritising early intervention and inclusive provision in mainstream settings, because we know that early intervention will prevent unmet needs from escalating. It will support all children and young people in achieving their goals, prevent the gap in achievement from growing, and get that support to children at the very earliest stage, so that issues do not escalate. Underpinning our ambition to create a fairer society is the Equality Act 2010, which enshrines in law that schools must not discriminate, in a number of respects, against a pupil on the grounds of a protected characteristic. Part 6, chapter 1 of the Act ensures fair treatment for all pupils by prohibiting schools from discriminating against, harassing or victimising pupils when it comes to education, access to benefits, facilities and services, exclusion, and other detriments. Additionally, the public sector equality duty requires schools to eliminate discrimination, advance equality of opportunity and foster good relations among people of all characteristics. That is what will underpin the improvements that we need to see.

I thank my hon. Friend the Member for Liverpool Riverside (Kim Johnson) for securing this debate; she has made important points. The voices of the people affected 40 years ago will never have been heard. Does the Minister agree that poverty and deprivation—she talked about their impact on educational standards—often make it challenging for people to get their voice heard when there are problems? On the Equality Act, does she agree that in making the system fairer, we must ensure that when there are problems, people can speak out and know that they will be heard?

My hon. Friend raises a really important point. One of the reasons why we are so focused on early intervention, particularly for children who have experienced a more socioeconomically disadvantaged start to life, is to help children find their voice, so that they can speak up and be a part of the national conversation. That is what we want for every child in our education system. I am conscious of time, and I want to address the point that my hon. Friend the Member for Liverpool Riverside raised about the public inquiry. The Government do not currently plan to establish a public inquiry on the policy framework surrounding the placement of children in schools for the so-called educationally subnormal in the 1960s and 1970s. The 40th anniversary of the Swann report is a timely reminder to reflect on the progress that has been made, but also to ensure that mistakes made at that time are never repeated. It reminds us that there are always ways in which we must go further to ensure that no children or young people today suffer from the structural barriers and entrenched racism that held too many of our young people back in previous generations. I reassure my hon. Friend that we are not complacent; we are committed to delivering a fairer society with better opportunities for all. We firmly believe that every child should know that success belongs to them, which is why we must break down the barriers to opportunity. We are committed to changing the school system so that every child can achieve and thrive.

Will my hon. Friend give way?

I will. I have maybe a few seconds.

I just wanted to ask my hon. Friend whether she could provide some rationale for why the Government have not decided to go down the route of a public inquiry.

I think we are out of time, but I am supposed to meet my hon. Friend next week. We can discuss this in more detail then, when we will have more time, but I look forward to continuing to work with her to redress race disparities and work on these issues, which I know she is rightly incredibly passionate about. Question put and agreed to.

19:58:00