/ Institutional Racism in Higher Education
Building the anti-racist university: a toolkit

Laura Turney

Ian Law

Deborah Phillips

Acknowledgements

The construction of this toolkit has been made possible through HEFCE Innovations funding and the willingness of the University of Leeds to be the case study for this project.

We would like to thank the members of the project management group whose expertise and knowledge has helped structure our work: Joe Cortis, School of Healthcare Studies, University of Leeds; Mick Gidley, School of English, University of Leeds; Sue Harper, Equal Opportunities Office, University of Leeds; Phil Heywood, School of Medicine, University of Leeds and Judith Russell, Equal Opportunities Office, University of Leeds.

Other people whose comments, expertise and support have been very much appreciated include: Barnor Hesse, Department of Sociology, University of East London; Mertineh Kebede, Equal Opportunities Office, University of Leeds; Matthew Knight, Human Resources, University of Leeds; Emmanuel Kusemamwurio, Equality Challenge Unit, UniversitiesUK; Harry Lewis, PVC, University of Leeds; Heidi Safia Mirza, University of Middlesex; Nadia Mirza, HEFCE, Innovations, University of Bradford; Sharon Smith, North Yorkshire Learning & Skills Council; Tony Stanley, Leeds Racial Equality Council; Fiona Waye, Equality Challenge Unit, UniversitiesUK; Cal Weatherald, HEFCE, Innovations.

Finally we would like to extend our appreciation to all those people who agreed to be interviewed and who responded to our postal and email surveys.

Disclaimer

This toolkit is one of the major outcomes of a HEFCE funded Innovations project.

The toolkit authors cannot be held accountable in any way for the outcomes of any activity that your institution undertakes in this area and we cannot provide a definitive interpretation of the law.

This toolkit aims to assist institutions in the process of anti-racist and race equality planning and action by providing conceptual and methodological 'tools'. Ownership of and responsibility for this planning and action, however, lies with the institution itself and not with the authors of this toolkit.

© Centre for Ethnicity & Racism Studies 2002

ISBN

Contents

Acknowledgements

Disclaimer

Section One: Using the Anti-Racist toolkit: A Reader’s Guide

1.1 Why do we need the toolkit?

1.2 Aims of the Anti-Racist Toolkit

1.3 The Sector

1.4 Reading and Using the Toolkit

1.5 The Action Plan: An Outline

1.6 Other ‘Toolkits’

Section Two: Conceptual Tools

2.1 Operationalising Institutional Racism

2.2 Eurocentrism

2.3 Unpicking ‘Whiteness’

2.4 Critical Boundaries

2.5 Why an Anti-racist Strategy?

Summary

Section Three: Legal & Organisational Tools

3.1 Legislative requirements – what does the RRAA 2000 mean for universities?

3.2 The Human Rights Act 1998

3.3 Higher Education Funding Council's Race Equality Scheme

3.4 Direct / Indirect Discrimination and Victimisation

3.5 Harassment

3.6 Positive Action

3.6a What do we mean by Positive Action?

3.6b Examples of Positive Action Strategies

3.7 Targets

3.7a What are they & why set them?

3.7b Who should set targets?

3.7c How to set targets

3.7d Good practice in target setting

3.8 Ethnic monitoring

3.8a The Value and Necessity for Monitoring

3.8b Action

3.9 Dealing with / deconstructing stereotypes

3.10 Indicators of good practice

3.10a Whole Institution

3.10b Accountability, Responsibilities and Liabilities

3.10c Departments / Administrative Units

3.11 Indicators of Bad Practice

3.12 Training

Summary

Section Four: Anti-racist Strategies

4.1 General Statement of Aims

4.2 The Organisational Areas

4.3 Equal Opportunities in the HEI

4.3a Statements & Action Plans

4.3b Equal Opportunities Staff & Units

4.3c Equal Opportunities Training

4.3d Operationalising Anti-racism & Race Equality

Summary

4.4 Employment

4.4a Appointments / Recruitment

4.4b Career Progression / Promotions

4.4c Harassment, Bullying & Dignity @ Work

Summary

4.5 Student Recruitment, Support and Transition to Employment

4.5a Admissions

Publicity Literature

Open Days

Widening Participation Strategies

Interviews

4.5b Counselling

4.5c Careers

4.5d International Students

4.5e General Support & Resources

4.5f Accommodation

Summary

4.6 Teaching and Learning

4.6a Teaching

4.6b Learning Issues: Assessment

4.6c Learning Issues: The Curriculum

4.6d Eurocentrism

Summary

4.7 Research

4.7a Ethics

Summary

4.8 Contracts & Purchasing

4.8a CRE Standards & Criteria

Summary

4.9 External Affairs

4.9a Prospectus / Departmental flyers / web materials and leaflets

4.9b University Newspapers / Newsletters

4.9c Community Perceptions?

Section Five: Reviewing your institution

5.1 Listening to the staff at your institution

5.1a Email questionnaire

5.1b Interviews, Open Forums & Focus Groups

5.2 Listening to the students at your institution

5.2a Email Questionnaire

5.2b Interviews, Open Forums & Focus Groups

5.3 Analysing your data – what does it say about your institution?

Toolkit: Useful Links

Toolkit: Bibliography

Section One: Using the Anti-Racist toolkit: A Reader’s Guide

1.1 Why do we need the toolkit?

This toolkit has been constructed as part of a HEFCE funded Innovations project looking at the question of Institutional Racism in Higher Education, using the University of Leeds as its case study, and comes in the wake of the Stephen Lawrence Inquiry (1999) and the subsequent passing of the Race Relations (Amendment) Act 2000.

The Inquiry into the death of Stephen Lawrence (the Macpherson Report, henceforth referred to as the Report) centralised the issue of training and education by condemning the lack of recognition of racism by the police at all levels. Every organisation, including education institutions, was urged to examine its own practices with a view to tackling racism and disadvantage. The Report highlighted the importance of educational institutions in promoting anti-racism, valuing cultural diversity and in providing an appropriate and professional service to all people irrespective of colour, culture or ethnic origin.

Despite the difficulties and problems that many commentators have with the Report’s definition of ‘Institutional Racism’, the Report, at the very least, highlighted the need for organisations and institutions to consider their policies and practices and assess the extent to which Black and minority ethnic (BME) staff and service users are treated fairly and equitably. What is more, following the publication of the Report, there can be no excuses for continuing to fail to move beyond good intentions in order to provide services and environments that respond to the UKs growing cultural diversity. What is clear is that institutions across the UK need to consider and rethink attitudes to BME staff and students and actively address ‘racism’ by moving beyond the current climate of complacency that suggests these issues matter less in Higher Education Institutions (HEIs) than in other organisations.

The questions we need to ask ourselves when looking at the policies and practices of HEIs in the UK are clear but often inadequately addressed, namely:

  • Are we doing enough to promote and serve the diverse needs and requirements of Britain’s increasingly diverse student and working population?
  • Are we identifying the diverse needs and requirements of Britain's increasingly diverse student and working population?
  • In what ways should a HEI be looking at what it says it does, and what actually happens in practice?

The lack of attention to ‘race’ and racism issues in higher education is worrying and indicates a need for the development of conceptual and methodological tools and resources to assess, review and reconstruct educational policy and practice. There have been some studies addressing specific areas of concern, such as, for example, the Carter, Fenton and Modood (1999) study considering the relationship between ethnicity and employment in HE (their research examined, for example, the change in the position of under-represented groups, concentration of minorities on fixed-term contracts, promotion and progression of minority staff and the ‘fit’ between student and staff populations). More recently, a major survey by the Association of University Teachers (AUT) which considered race issues and attitudes among academics and support staff in the old universities revealed that racialised tensions are common in universities, with large numbers of BME staff experiencing racial harassment, feeling unfairly treated in job applications, and believing institutional racism exists in the academic workplace (see, Elliot Major, 2002). However, the need for a more rounded consideration of the various functions of the HEI, which impact directly and indirectly on staff and student experiences, has been missing. The idea of an anti-racist toolkit thus addresses the need for a set of tools and resources that institutions are able to use in order to address racism across the diverse areas of their policy and practice.

This project has tried to assess the ‘big picture’ of University activity, where previous studies have been partial and selective, with particular attention to the linkages and interactive effects across and between the following areas:

  • teaching and learning;
  • student recruitment, support and transition to employment;
  • research;
  • employment;
  • contracting and purchasing;
  • external affairs.

Each of these areas has been subject to a series of questions and considerations, for example:

  • What should, in fact, be the indicators of an ‘appropriate and professional service’ inclusive of minority ethnic communities?
  • What ‘processes, attitudes and behaviours’ may amount to racial and ethnic discrimination and disadvantage?
  • How do we address these 'processes, attitudes and behaviours'?
  • What mechanisms and criteria may constitute direct and indirect racial discrimination (taking into consideration, of course, the question of how racial discrimination interrelates with other areas of disadvantage such as gender, age, class , religion, sexuality, and disability)?

1.2 Aims of the Anti-Racist Toolkit

The Anti-Racist Toolkit Project was established following the Stephen Lawrence Inquiry and the subsequent passing of the Race Relations (Amendment) Act 2000 and identified a need to have input into the equality and diversity strategy planning of universities. The project began in January 2001 and has conducted a review of issues around institutional racism and 'race equality' in the HE Sector using the University of Leeds as its case study. The research findings have informed the development of this 'toolkit'.

The project is due to be completed in September 2002 and, at that time, we will have completed a series of reports looking at the following areas:

  1. Equal opportunities action planning at the University of Leeds
  2. Institutional racism and contracting and purchasing issues
  3. Racism & Ethnicity: Research at Leeds
  4. The Toolkit: transferable tools for tackling institutional racism in HEIs’
  5. Operationalising Institutional Racism: conceptual, measurement and evaluation issues
  6. Racism, Diversity and Teaching and Learning
  7. Institutional racism and student recruitment
  8. Institutional Racism: Perceptions & experiences of staff
  9. Institutional Racism: Perceptions & experiences of students
  10. Institutional racism and employment issues,
  11. Final Leeds Report

The project has employed a number of approaches to assessing the various issues and areas. In the first instance we examined the equal opportunities action plans of academic departments and administrative units at the University of Leeds and assessed the plans in terms of their references to 'race equality'. This was followed by the distribution of an email questionnaire to staff in twenty sample departments, the responses to which have informed the construction of this toolkit and examples from which will be included as illustration within the text.

We also conducted in-depth interviews with departmental/unit heads and staff members responsible for equal opportunities of these twenty sample departments, before moving on to an email survey of student attitudes, experiences and perceptions.

The aim of this ‘toolkit’ is to provide conceptual and methodological resources from which practitioners in the field can select and combine the implements and tools that best suit the needs of their own institution. Each HEI is a different space requiring different strategies, policies and activities in different measures at different times. Some HEIs may seem to have made very good progress but have, in fact, stagnated with regards to moving the issues and the debates forward. Other HEIs may seem to have done very little, but in fact have made big steps in a more recent period thus demonstrating a growing commitment to change and action. This toolkit is thus aimed at those making their first concerted efforts towards establishing a working and active policy of anti-racism and those whose policies are already underway but in need of more work. This toolkit aims to look at the breadth and depth of university operations and functions. Addressing racism is not just about admissions to courses and pass rates, or appointments and progression. The different headings examined by the toolkit reflect a more rounded view of how universities function and their potential impact as a positive force for change.

Anti-racism, however, should not be seen as ‘simple’ strategy for a particular problem. Racism is complex in its operations and compounded by other factors such as, for example, gender, disability and religion, thus affecting different people in different ways. The issues that impact on one particular ‘group’ will be different and thus in need of different strategies and actions to address them.

This toolkit is aims to empower staff and students and contribute to the development of a positive and rich environment in which all people, regardless of ethnicity, can work and/or learn. It will not be, however, a ‘quick-fix’ for institutions to apply to their own context in the expectation that racism will magically disappear … this toolkit is about making fundamental changes that will have long-lasting effects.

It is important for university members to understand that ‘universities’ are not a ‘natural’ entity but, rather, constructed to function in various ways and for the benefit of certain groups of people. There was a time when universities solely benefited and serviced the needs of white, privileged males. This, to a certain extent, has changed and universities have had to change to meet the needs of women, working class, BME and disabled peoples. Universities, as a social, political and cultural construction, can, therefore, make the necessary changes to meet the challenges and needs of a multi-cultural and multi-ethnic society. The questions are whether or not such institutions are willing to make the necessary changes and, of course, how those changes should be made.

This section breaks down some of the critical areas that we need to be mindful of when addressing the question of how racism operates in the HE context.

1.3 The Sector

The University sector has, until recently, remained insulated from other policy developments in councils, schools, the health service and the police with regards to challenging racism and promoting ethnic and cultural diversity. Although these areas have been targeted in terms of tackling racism (see, for example, Osler and Morrison, 2000; Dadzie, 2001), there has been very little in the way of directly addressing racism in higher education. Policy responses and initiatives to issues around ‘race’ and ethnicity are very uneven across universities and between departments in individual institutions. This project identified an urgent need to develop comprehensive, co-ordinated and coherent strategies and to sharpen and develop organisational and management tools in order to change institutional practice. What is more, in the current climate, it is time that universities begin to re-conceptualise their role and responsibilities in a contemporary multi-cultural society, as the Stephen Lawrence Inquiry put it:

Racism, institutional or otherwise, is not the prerogative of the Police Service. It is clear that other agencies including those dealing with housing and education also suffer from the disease. If racism is to be eradicated there must be specific and co-ordinated action both within the agencies themselves and by society at large, particularly through the educational system, from pre-primary school upwards and onwards (Home Office, 1999: 6.54).

Carter, Fenton and Modood (1999: 56) identified a need for what they called an ‘institutional anti-racism’, and it is this concept that we would like to develop here. The 1999 study suggested the following remedies to questions of ‘institutional racism’:

  • Commitment needed from the top down;
  • Institutions needed to recognise that racism is an issue for the entire institution and not simply the concern of BME staff and students;
  • Groups and individuals outside the institution to be involved in the implementation and monitoring of race equality policies;
  • HEIs to take on board good practice from other sectors;
  • Interview panels to be more representative;
  • Linking of funding by HE funders to the achievement of BME employment targets;
  • Review of HEI curricula to reflect the histories, achievements and experiences of BME peoples (1999: 57).

These issues will be elaborated upon and extended in the following toolkit as we develop the idea that HEIs need to re-consider, re-think and re-work questions around their responsibilities and purpose, in order to work towards a centralised mandate for progress and change. Core functions of the HEI are, of course, teaching and research, however the practices and operations of the HEI go beyond these core activities and into areas that may not immediately spring to mind. The HEI has established relationships in a myriad of ways with local and national communities. As an employer the HEI draws from a broad pool of workers, be they administrative and ancillary staff from a more local population or academic staff drawn from a more international pool. The HEI employs people directly to undertake a number of functions (teaching, research, administration, secretarial duties, security, purchasing, cleaning, maintenance and so on …), the HEI also has a great deal of spending power in terms of the various products and services it requires to keep the institution ‘ticking over’, new building works, services and so on. The HEI has a relationship with local communities in its vicinity, these include community organisations, local schools and colleges and the local councils. In so many ways, the HEI touches the lives of thousands of people. The authors of this toolkit believe that it is time to use this power and these relationships to nurture positive and progressive change in the field of anti-racism and the promotion of a positive multi-cultural environment in which all members of the staff and student population can thrive and benefit.