THE INTEGRATION OF DISPERSED ASYLUM SEEKERS IN GLASGOW ALEXANDRA ...

253 Pages·2008·1.41 MB·English

THE INTEGRATION OF DISPERSED ASYLUM SEEKERS IN
GLASGOW

ALEXANDRA ROSENBERG

PhD
The University of Edinburgh
2008
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DECLARATION

I declare that this thesis is of my own composition, based on my own work, with
acknowledgement of other sources, and has not been submitted for any other degree
or professional qualification.

Alexandra Rosenberg

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TABLE OF CONTENTS

DECLARATION ............................................................................ i
ACKNOWLEDGEMENTS ........................................................... vi
ABSTRACT ............................................................................... vii
LIST OF ABBREVIATIONS ...................................................... viii
1. INTRODUCTION ...................................................................... 1
1.1 THE AIMS OF THE THESIS ................................................................. 1
1.2 BACKGROUND AND CONTEXT .......................................................... 3
1.3 THESIS OUTLINE ................................................................................ 7
2. LITERATURE REVIEW AND CONCEPTUAL FRAMEWORK
................................................................................................... 13
2.1 ASYLUM POLICY RESEARCH .......................................................... 14
2.1.1 The Legal Framework .................................................................. 14
2.1.2 Dispersal ...................................................................................... 18
2.1.3 The Scottish Context .................................................................... 21
2.2 INTEGRATION AND MULTICULTURALISM ...................................... 25
2.2.1 Multiculturalism ............................................................................ 25
2.2.2 Concepts of Integration ................................................................ 27
2.2.3 Integration Policy and Experiences .............................................. 29
2.3 SOCIAL CAPITAL ............................................................................... 34
2.3.1 Definitions and Debates ............................................................... 34
2.3.2 Social Capital and Integration ...................................................... 38
3. RESEARCH DESIGN AND PRACTICE ................................. 41
3.1 RESEARCH DESIGN: AN ONGOING PROCESS .............................. 42
3.2 THE DATA COLLECTION PROCESS ................................................ 47
3.2.1 Accessing ‘Hard-to-Reach’ Populations ....................................... 47
3.2.2 Participant Observation ................................................................ 51
3.2.3 Interviews ..................................................................................... 56
3.2.4 The Use of Documents ................................................................ 60
3.3 DATA ANALYSIS AND PRESENTATION ........................................... 62
3.3.1 Starting Points ............................................................................. 63
3.3.2 Using NVivo ................................................................................. 64
3.3.3 Issues of Anonymity and Confidentiality ...................................... 66
3.3.4 Selection and Presentation of Quotations .................................... 68
4. RESERVED POLICY IN A DEVOLVED CONTEXT ............... 72
4.1 THE UK LEGISLATIVE FRAMEWORK ............................................... 73
4.1.1 The Development of UK Policy: Dispersal and Restriction .......... 75
4.1.2 The New Asylum Model ............................................................... 79
4.2 THE SCOTTISH CONTEXT ................................................................ 83
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4.2.1 The Scottish Government and the Scottish Refugee Integration
Forum ................................................................................................... 84
4.2.2 The Glasgow Response to Dispersal ........................................... 86
4.2.3 The New Accommodation Contract ............................................. 89
4.3 THE RESERVED/DEVOLVED BALANCE .......................................... 91
4.3.1 Divergence and Discontent .......................................................... 92
4.3.2 Striking a Balance ........................................................................ 96
5. PROMOTING INTEGRATION: A MULTI-FACETED PROCESS
................................................................................................... 99
5.1 ROUTES TO INTEGRATION ............................................................ 100
5.1.1 Service Providers’ Understandings of Integration ...................... 102
5.1.2 Language Acquisition ................................................................. 105
5.1.3 Service User Involvement and Participation .............................. 109
5.2 SOURCES OF SUPPORT ................................................................ 112
5.2.1 Drop-in Groups and Integration ................................................. 113
5.2.2 Formal and Informal Networks ................................................... 116
5.3 VIEWS OF LIFE IN GLASGOW ........................................................ 119
5.3.1 Context and Impressions ........................................................... 120
5.3.2 Adjusting to Different Circumstances ......................................... 122
5.3.3 Scottish Attitudes ....................................................................... 124
6. DEALING WITH THE ASYLUM PROCESS ......................... 129
6.1 CHANGING NEEDS ......................................................................... 130
6.1.1 Forms of Support ....................................................................... 130
6.1.2 New Processes and New Areas ................................................ 132
6.2 WAITING FOR A DECISION ............................................................. 135
6.2.1 Meaningful Activity ..................................................................... 136
6.2.2 On Hold ...................................................................................... 139
6.2.3 Family Decisions and Dynamics ................................................ 142
6.3 THE END OF THE PROCESS .......................................................... 145
6.3.1 Destitution .................................................................................. 145
6.3.2 Removals ................................................................................... 148
6.3.3 Moving On ................................................................................. 151
7. CHALLENGES: OLD PROBLEMS AND NEW CONTEXTS 155
7.1 A STRATEGIC APPROACH TO INTEGRATION .............................. 156
7.1.1 Funding ...................................................................................... 156
7.1.2 The Role of Networks ................................................................ 160
7.1.3 Mainstream and Specialist Provision ......................................... 163
7.2 A8 MIGRATION ................................................................................ 166
7.2.1 Context ...................................................................................... 167
7.2.2 Service Implications ................................................................... 170
7.2.3 Integration Issues ...................................................................... 173
7.3 STRENGTHS AND WEAKNESSES ................................................. 176
7.3.1 Strengths ................................................................................... 176
7.3.2 Weaknesses .............................................................................. 179
7.3.3 Looking forward… ...................................................................... 181
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8. EVALUATING INTEGRATION IN THE SCOTTISH CONTEXT
................................................................................................. 185
8.1 INTEGRATION IN A TEMPORARY CONTEXT ................................ 186
8.1.1 Conceptualising Integration in a Temporary Context ................. 186
8.1.2 The Integration Paradox ............................................................ 190
8.1.3 Processes and Outcomes: Integration Indicators ...................... 192
8.2 THE SOCIAL CAPITAL FRAMEWORK ............................................ 196
8.2.1 Bridges, Bonds and Links .......................................................... 196
8.2.2 Advantages and Disadvantages of a Social Capital Based
Approach ............................................................................................ 200
8.3 REVIEWING THE GLASGOW MODEL ............................................ 204
8.3.1 Integration Policy and Practice .................................................. 205
8.3.2 Is There a ‘Model’? .................................................................... 207
8.3.3 Implications for Policy and Practice ........................................... 209
9. CONCLUSION ..................................................................... 213
9.1 QUESTIONS AND ANSWERS ......................................................... 213
9.2 RESEARCH AS A LEARNING PROCESS ........................................ 218
9.3 FURTHER RESEARCH .................................................................... 221
9.4 FINAL SUMMARY ............................................................................ 223
REFERENCES ......................................................................... 225
APPENDICES .......................................................................... 233
Appendix 1: Distribution of asylum seekers in Glasgow, 2005
................................................................................................. 234
Appendix 2: Use of Sources .................................................. 235
Appendix 3: Research Information Summary (2007 version)
................................................................................................. 237
Appendix 4: Generic interview request letter ....................... 239
Appendix 5: Master Service Provider/Policy Topic Guide ... 240
Appendix 6: Sample Asylum Seeker Interview Schedule .... 243

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LIST OF TABLES
Table 1 British Immigration Legislation – Key Points .............................. 4
Table 2: Applications Received for Asylum, Excluding Dependents, by
Year of Application 1987 - 2006 .................................................................. 6
Table 3: Analytic Themes and Research Questions within the Thesis . 12
Table 4: Recent UK Asylum Legislation .................................................. 73
Table 5: Major Asylum Dispersal Locations ............................................ 75
Table 6: Devolution of Responsibility Affecting Implementation of
Asylum Policy ............................................................................................ 84
Table 7: Forms of Support for the Integration Process ........................ 101
Table 8: Investment in Asylum Support in Glasgow ............................. 157
Table 9: Indicators of Integration Framework ....................................... 193

LIST OF FIGURES
Figure 1: Interaction of Aspects of the Integration Process ................ 101
Figure 2: A8 Registered Citizens per Thousand Population, May 2004 to
December 2006 ......................................................................................... 168

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ACKNOWLEDGEMENTS

I would like to acknowledge the help and support of all those who participated in this
research, by providing access, agreeing to be interviewed and by sharing their
knowledge and experience. Working and spending time with the asylum seekers I
met was an enormously enriching experience, and I have great respect and
admiration for those who are not named here, but who shared their views and stories.
Both Christine and Helen went above and beyond what was necessary in providing
support and I am extremely grateful. Working at the drop-ins was both challenging
and rewarding, and I learned a lot from the other volunteers.

My supervisors Mike Adler and Tony Good provided ideas, criticism and detailed
feedback at all stages to guide me in reaching the end. Being part of the social policy
PhD community has been a fantastic source of support which will be missed. Huge
thanks are due to officemates past and present for their endless patience and humour.
Non PhD friends also provided a useful sense of perspective.

Final thanks go to my dad Jay, Scott and Daffy for the hugs, chauffeur services,
proofreading, and all other essential supports in PhD and life.
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ABSTRACT

This thesis is an analysis of the integration of dispersed asylum seekers in Glasgow.
It is a qualitative case study that uses data from participant observation with
community groups, interviews with asylum seekers and those involved in service
provision and policy, and documentary analysis. It examines the impact of policy
within a local context, and the difficulties of defining and promoting integration for
asylum seekers. The research makes both an empirical and theoretical contribution,
building on the knowledge of the impact of dispersal and asylum policy, with a
Scottish perspective analysing the issues when implementing reserved asylum policy
within a devolved context. The research contributes to debates on integration with an
analysis of the conceptual and practical difficulties of promoting integration for
asylum seekers. The research findings are structured around three key analytic
themes, the impact of policy on asylum seekers and other stakeholders, defining and
promoting integration, and challenges.
The research indicates tensions between devolved and reserved
responsibilities in relation to asylum. The different approaches to integration create
difficulties for those working within devolved services, but implementing a reserved
policy. Promoting integration for asylum seekers is seen as beneficial for both
asylum seekers and host communities in Scotland, but there are both conceptual and
practical challenges. There are difficulties of how far and in what ways temporary
integration can be measured, which are analysed in relation to existing frameworks
for integration. Practice related debates have formed the basis of a shift to a more
strategic platform for integration work. Contexts and procedures continue to change,
however, bringing fresh challenges. The concept of social capital has been influential
in the structures that have been set up to facilitate the processes of integration and
dispersal within Glasgow. Yet there are difficulties with the usage of a social capital
based framework. Whilst social capital is a useful concept, there is a risk that its
usage may mask issues of inequality and exclusion, and the fundamental difficulties
of the asylum process remain.

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LIST OF ABBREVIATIONS

A8 Countries which joined the EU in May 2004: Czech Republic,
Estonia, Hungary, Latvia, Lithuania, Poland, Slovakia, Slovenia

ATLAS Action on Teaching and Learning for Asylum Seekers

BIA Borders and Immigration Agency

BME Black and Minority Ethnic

COSLA Convention of Scottish Local Authorities

CRASC Cosla Refugee and Asylum Seekers Consortium

ECRE European Council on Refugees and Exiles

ESOL English for Speakers of Other Languages

EU European Union

FFD Framework for Dialogue

GASSP Glasgow Asylum Seeker Support Project

GCC Glasgow City Council

IAA Immigration and Asylum Act 1999

ILR Indefinite Leave to Remain

IOM International Organization for Migration

NAM New Asylum Model

NASS National Asylum Support Service

RCO Refugee Community Organisation

ROA Regeneration Outcome Agreement

RPF Refugee Policy Forum

RSIN Refugee Settlement and Integration Networks

SMP Strategic Migration Partnership

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SRC Scottish Refugee Council

SRIF Scottish Refugee Integration Forum

SSCG Scottish Strategic Co-ordination Group

UASC Unaccompanied Asylum Seeking children

UK United Kingdom

UNCHR United Nations High Commissioner for Refugees

WRS Worker Registration Scheme

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