Planning to access education for displaced populations
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Martha Hewison, Education Advisor, UNHCR. Presentation for CIES 2017, panel "Leaving no one behind: planning education for the inclusion of displaced populations" organised by IIEP-UNESCO. More information: http://www.iiep.unesco.org/en/how-should-we-plan-education-settings-conflict-and-instability-cies2017-3890
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Planning to access education for displaced populations
- 1. Planning access to education for displaced populations Martha Hewison UNHCR, Education
- 2. Forced displaced – global context 65.3 million forcibly displaced persons 20 years average length of displacement 16.1 million refugees (under UNHCR protection; 60% in urban contexts) 51% of refugees are younger than 18 years 41% of refugees live in protracted situations 86% of refugees live in developing countries
- 3. Inclusion of refugees into national systems: …… gives children sustainable access to certified learning opportunities that increases knowledge, hope and resilience … ensures accountability to affected populations … creates opportunities for social cohesion …. is the only sustainable option: Humanitarian financing for education is inadequate and unpredictable – parallel services are unsustainable in the long term ……supports governments to meet their responsibilities and commitments … effectively managed humanitarian/development support, bears potential benefits for development of host country education system
- 4. Global and national policy landscape • “Leave no one behind” and SDG 4 NY Declaration on refugees and Migrants Comprehensive Refugee Response Framework UNHCR Strategic Directions 2017-2021
- 5. Turkey • Estimated 60% of Syrian children are current enrolled in formal education programmes - TEC’s -Turkish schools • Language barrier, major obstacle- increased language instruction • Change of policy – lost time in dealing with challenges
- 6. Tanzania • No inclusion • Parallel systems operating • Congolese refugees have been in Tanzania for over 20 years; use county of origin curriculum – restrict opportunities • Burundians – complexity with exam certification and change in curriculum
- 7. Uganda • Full inclusion – quality control • Equitable access on a par with nationals • Efforts to improve the education for Ugandans benefit refugees and vice versa • Clear path from primary, through secondary and beyond • Recognized academic qualifications • Promotes social inclusion • Challenges faced in schools in the settlements, mirror the challenges faced in the refugee hosting districts
- 8. Challenges • Support needs to happen at several levels • Targeted support is needed to mitigate challenges • Community-based approaches • Planning and resource allocation • Monitoring • Anticipate solutions
Notas do Editor
- 65.3 million forcibly displaced persons - against this background of protracted and escalating conflicts, the number of refugees returning home is at a historical low. In 2014, fewer than 127,000 returned to their countries, and only 200,000 in 2015 - the lowest numbers in many years. While numbers increased somewhat in 2016, this does not represent a general trend. With the average length of displacement now 20 years, policies, programs, and funding must bridge the humanitarian-development divide and accommodate a longer-term vision. Within the 16.1 million refugees – the majority, 60% are in urban areas- not camps- and this number is growing. We need to have a longer term vision for education for those affected taking into consideration the number able to return home, the length of displacement and the .numbers living in urban areas. Integrating refugees into national education systems provides the most sustainable option for access and completion of certified schooling.
- When we talk about inclusion we are talking about equitable access. With 86% refugees living in developing countries access to quality education is challenging for nationals. Education systems will not be perfect BUT access to national systems for refugees means equitable access to education in the host country and with investment into national systems, increased access and quality for all. Why include refugees in national systems? Certification of studies for refugee learners through accredited examinations increases knowledge and opportunities for the future Access to accountable education services. Quality assurance of teaching and learning through national systems. Opportunities to promote social cohesion between refugee and national children. Sustainability: investment in existing systems strengthens access and quality for all. Fully integrating forcibly displaced populations into national education systems may ultimately be a cost-effective strategy Integration of displaced populations in national education systems provides better access to development assistance for education of refugees and IDPs. Supports governments to assume their responsibility for refugee protection and rights Potential benefits for national systems ( for example through construction of classrooms);
- Range of global policies support refugees right to education and promotes inclusion of refugees in national systems. The 2030 Agenda for Sustainable Development: in its commitment to ‘leave no-one behind’ provides a powerful basis for the inclusion of refugees SDG4: has a strong focus on equity and inclusion of vulnerable groups and policy documents specifically mention refugees NY declaration: calls for a shift in the response to large-scale refugee situations. Rather than responding to refugee displacement through a purely, and often underfunded, humanitarian lens, the elements of the Comprehensive Refugee Response Framework (CRRF) are designed to provide a more systematic and sustainable response that benefits both refugees and the communities that host them. UNHCRs Strategic Directions 2017-2021 (Jan 2017): promotes inclusion of displaced persons into mainstream, national systems, including national education systems
- The Govt of Turkey is very proactive and has a policy of inclusion however in 2012 when the Syrian influx began in earnest and the GoT established camps, the Turkish government had initially tried to implement the Turkish curriculum, but later changed to offer the adapted Syrian curriculum. The Syrians and the Turkish government thought that the period of displacement would be short and the refugees lobbied for continuation of an adaptation of their national curricula as they did not imagine their need for asylum would last longer than 6 months. There was also no way that it was feasible for children who had just entered refugee camps to learn the Turkish curriculum in Turkish without any language support or assistance in transitioning from one curriculum to another and so the Government were convinced to bypass existing national strategy that indicated inclusion. This adapted Arabic medium curricula was used in camp schools and, as new influx populations moved into urban and semi-urban areas, it was also employed in Temporary Education Centres (TECs). TECs are primary and secondary education centers that provide education opportunities for school-age Syrian children in Turkey. These schools utilize Arabic as the medium of instruction and are under the coordination of the Turkish Ministry of Education. There are almost double the number of Syrian children enrolled in TECs than in Turkish schools. The reason for such high enrollment is largely to do with the LoI and the requirement of registration - there is no structured programme for providing language support if refugee children enroll in Turkish schools (but there is in TECs). There are also complications with registration; full enrolment in the Turkish system requires a foreigners’ ID. In late 2016 MoNE announced its decision to mainstream refugee students into the national education system for the 2017-18 school year in September 2017. At the same time, recognising that the LoI was a major barrier MoNE increased its Turkish language instruction in the TECs from 5 hours to 15 hours per week. The government plans for all refugee students to enrol directly in national schools within two years. Results: The lost time in implementing the inclusion policy has resulted in lost time in dealing with the challenges. Many refugees are unaware of the right to enrol in Turkish schools or are unfamiliar with enrolment procedures. Turkish proficiency remains a significant barrier to full participation in the national system and bullying and social exclusion negatively affect retention rates.
- In this example in Tanzania we see polices that are restrictive to inclusion, parallel systems in operation and the complexities that arise because of this, plus limited opportunities for refugees after completing their education There is currently no mainstreaming of refugees into the national education system and refugees follow a parallel system using the Country of Origin curriculum. In Tanzania this is compounded by the fact that there are two distinct groups in the camps- the Burundians who are relatively new and the much more established refugees from DRC so currently there are two parallel systems operating. Results Congolese refugees who have been hosted in Nyarugusu refugee camp for more than 20 years still use their home country curriculum that is certified once a year by MoE Officials deployed from DRC but Congolese refugees have not received certificates since 2012 and access to higher education is severely restricted because of the process of equation of certificates. Additionally, due to differences in language of instruction the refugees have to enroll in language classes. Exams for Burundi refugees have been very complex. Discussions began in 2015 but stalled due to two key issues: the Government of Burundi (GoB) insisted that they must receive the names of the students sitting for the exams, and refused the proposed solution involving identification codes which would allow for anonymity. They also insisted that their own officials would need to come to the Tanzanian refugee camps to administer the exams. Both of these positions were non-negotiable for protection reasons, no compromise could be reached and the exams never took place. Mid 2016 however MoE-Burundi changed their position several times but ultimately it seems there was concern that helping the refugee children could be seen as helping the opposition, as those who have fled (the refugees) are assumed to be opponents of the current Government. Other possibilities which were investigated was a regional examinations board within the East African Community but unfortunately this was not possible as the Board was not fully operational yet and the use of previous modalities for exams where exams were certified by UNHCR rather than by any government examination authority but many refugees had trouble using these certificates so this was also not an option. In early 2016 UNICEF and UNHCR approached the National Examinations Council of Tanzania (NECTA) to discuss the possibility of involving NECTA administering an equivalent exam under their mandate using the Tanzanian curriculum (but based on the Burundi syllabus). This is now going ahead and upon successful completion of the exam, students will receive their results and a Tanzanian certificate, which would be recognized internationally. Exams are now going to take place next week but this has taken two years. While we acknowledge that the implementation of Country of Origin curriculum facilitates reintegration upon eventual return, the numerous challenges and complexities associated as illustrated in this example makes delivery very complex.
- Uganda has a policy of full inclusion which has positive benefits for both refugees and host populations Refugees in Uganda are mainstreamed into national schools and follow the host country national curriculum. District Education Officers (DEO) and district local government support with a range of administrative and quality functions to ensure basic standards are met. Refugee schools and schools within the settlements are included in district level education plans and EMIS (but not highlighted specifically) Refugees have equitable access on a par with nationals- Refugees have access to over 124 primary and 55 secondary schools in Uganda countrywide. Host Country children who cannot access Govt schools within their district (due to distance etc), can access schools within the settlement, which are meeting national (basic) requirements. Refugee children are assured of being able to transition from one level to another Integration promotes social inclusion and harmony- the approach to education in Uganda is part of that There are challenges Challenges faced in schools in the settlements, mirror the challenges faced in the refugee hosting districts (distances between available schools, inadequate classrooms and facilities etc) therefore the approaches and solutions can be the same, and it is unlikely jealousy will arise, instead we witness, for the most part, peaceful co-existence.
- support needs to happen at several levels: national system needs to plan and respond to specific needs as well as ensuring support is disseminated to regional, local and school level targeted support to mitigate challenges (such as language courses, bridging courses to support curriculum differences) community also need to be supported to build the support structures and systems for students to be able to succeed planning and resource allocation: ensure that costs associated with mainstreaming are included in country level refugee education strategies and in district and national education sector planning in collaboration with MoE, establish a system to track refugee student and teacher needs, participation and transition, as well as general enrolment, attendance and completion data anticipate solutions: where feasible, promote cross-border recognition of certificates as well as refugee access to additional subjects (country of origin language, culture, history) in preparation for repatriation. But these challenges are not only faced by refugee children- it is not just refugees who don’t speak the language of instruction (especially true in Africa)…in these contexts often the education system is weak The curricula and LoI issues that are often brought up as challenges to integration but this assumes all was okay prior to refugee arrival, yet in the majority of cases the local population has the exact same challenges. It is difficult to provide an example of a long-term parallel, free, certified, full cycle of education provided by a foreign government at scale for exiled populations whose relationship with their government is questionable. .
- So while acknowledging the challenges and that inclusion and integration of all refugee children and youth into the national system may not always be possible for a variety of reasons nevertheless, in most scenarios, the advantages of sustainable, safe access to accredited certification and services associated with national systems outweigh the benefits of using the country of origin.