EOC(3) MW 27
Equality of Opportunity Committee
Inquiry into Migrant Workers
Response from Association of Chief Police Officers in Wales
I write as the Chair of the Association of Chief Police Officers in Wales, in response to the Welsh Assembly Government’s "Equality of Opportunity Committee Inquiry into Migrant Workers, their Families and the Communities in which they live and work” consultation. As such this response should be considered to be the view of all four police forces in Wales.
Before providing a response to the individual inquiry questions I would like to make some general observations. In each of the four policing areas within Wales there has been some groundbreaking proactive work completed with regard to migrant workers and their families. Each area has specific examples which reflect the variations that such migrants face across the region. There are, of course, common themes such as language and housing and these issues have been tackled in many ways often working in partnerships with other statutory and non-statutory bodies. Research has identified, for example, that the impact of migrants into the Dyfed Powys Police area has, perhaps been more visible compared to some other areas due to the rural nature of that force. Unlike city areas, immigration of such visible large numbers have not occurred in many of the forces communities previously raising unique issues that need to be tackled.
I will now provide a response to each of the inquiry questions that have been set:
Experiences of migrant workers and their families
Are you aware of barriers experienced by migrant workers and their families in accessing public services? What are the key reasons for these barriers?
Response:
Throughout Wales Front line Officers have reported that, without doubt, the primary key barrier to their liaison with migrants within is language. They have also highlighted that a large number of Eastern European Migrants have negative perceptions of the Police, due to experiences and often deep mistrust of such services in their own countries of origin.
Language provision is an area, which causes significant & overwhelming concern. Long-term migrants who wish to stay for significant periods of time require English/Welsh language skills in order to engage with the wider community
Within the Gwent area, as in many other areas, it is acknowledged that there is a distinct shortage of English Languages (ESOL) classes. Short term economic migrants working with an agency have less need for English language skills and therefore less incentive to learn these skills, but where there is support and individuals are motivated and have enthusiasm to learn English, in many cases, the courses available are in conflict with work/shifts.
Migrants who come into contact with Police across Wales are able to utilise the Language Line Interpreters facility, and where appropriate an interpreter from the National Register of Public Service Interpreters.
Other barriers appear to exist but their have been some significant improvements over the last 2 years, but there are still many issues and barriers facing economic migrant workers.
Two particular barriers which consistently stand out are, difficulty in accessing both professional and community based Interpreters to assist with a variety of issues, and also basic needs information translated into their own first language.
The second 'cultural’ barrier in that there appears to be a general lack of knowledge of how public services operate in the UK, such as law enforcement agencies and fire rescue.
Can you provide any examples of innovative practice in ensuring that public services are accessible and barriers can be overcome?
Response:
There are, of course regional variations that relate to barriers, for example, within South Wales, issues around migrant workers first arose some five years ago in the Rhondda Cynon Taff area of South Wales where community tension developed between Portuguese workers and the local community.
As a consequence of this a Migrant Workers Forum was set up in Merthyr Tydfil. This was a multi-agency forum and includes representatives from South Wales Police Minorities Support Unit and the local Police Basic Command Unit, Rhondda Cynon Taff housing strategy officers, private sector Housing and representatives from the employment agency providing the workers together with the employers.
As a result of these meetings the following problems were identified:-
Language barrier
Lack of accessible information
Migrant workers knowledge of local and national regulations
Racial abuse and harassment,
Access to education for children
Employment rights.
Those affected were a mixture of long and short term migrant workers and the issues had a different impact for each group. Those interested in long term work and settlement within the Rhondda Cynon Taff area became better engaged with existing community. They made links to churches and places of worship.
However the short term migrants were more focused on employment issues and had almost no social engagement within any of the communities living and working within the area. Where employment agencies were involved, they provided accommodation, transport and welfare for their staff, which tended to work within this closed environment.
Opportunities for accessing information and services were therefore very limited. Some migrant workers moved away from the employment agencies and engaged more with the local community but it was quickly identified that there was no simple access to information about the services that they needed. As a result the Migrant Workers Forum and the Valley Race Equality Council commenced a program of co-ordinating information, fund raising and produced a multi-agency diversity forum 'Welcome Pack’. This provides information such as local bus times, personal safety, Employment Law, Health Service information, Banking, Emergency Services, Communities First, Neighbourhood learning centres, Education, ESOL Provision, Job Centre and Safer Merthyr Tydfil.
The Welcome Pack is available in multiple languages. As a result of this ground breaking piece of work a second forum was set up in February 2007 within Rhondda Cynon Taff.
The workers forum has set a clear action plan which has identified the following three priorities:
Language barriers
Access to information
Support
In the Swansea Police Division, Polish migrant workers together with the existing Polish residents have set up a 'Saturday School’ in Cefn Hengoed Comprehensive School which serves several functions. It provided:
Social networking for families
Polish Language classes for children
English language classes for parents
As a result of meetings with staff from the school and other support workers in the area, plans are under way to develop a Migrant Workers Forum within the area. It has been identified that the close geographical proximity to Llanelli and Cross Hands (which are both major employment centres for migrant workers) would indicate that a regional forum covering these areas would be the most practical solution rather than two separate county based provisions. This piece of work is at its earliest stages of planning.
Language provision is an area which causes significant concern. Longer term migrants who wish to stay for significant periods of time require English/Welsh language skills in order to engage with the wider community. There is a distinct shortage of English for Speakers of Other Languages (ESOL) classes across the South Wales Police area. Short term economic migrants in particular those working in an agency set up have less need for English language skills and there for less incentive to learn these skills.
Access to Faith provisions is important to migrant workers and Roman Catholic churches in the Rhondda Cynon Taff area have been providing a dedicated monthly service for Polish workers to meet this need.
Working within the Community Safety Department for Cardiff’s BCU is a Police Constable, Pc Donovan, with the responsibility of asylum seeker liaison officer. He also has responsibility for migrant workers. He has arranged and chaired multi-agency meetings to discuss community concerns, for example within the Czech community. This meeting exemplified some good work to enable migrant workers and their families to build friendships and social networks. The officer requested all key stakeholders to prepare a document containing questions and answers that were considered useful for the Czech community in order to provide a greater understanding of health, safety and legal requirements for living within Wales. The Police obtained funding, and subsequent documents together with an event flyer were translated into Czech and distributed by local Neighbourhood Officers within the community.
Following on from this, a support and awareness event was arranged at a local leisure centre to address any issues, and a translator was utilised.
North Wales Police, as do other agencies, use telephone interpreting systems such as 'Language line' in daily operational and non operational scenarios. North Wales Police Eastern Division has supported the deployment of a Community Beat Manager to engage with Polish Migrant workers in the Wrexham area who has been able to learn the language to a high level.
A Community Safety Project 'The Open Door Project' was set up in the Flintshire area by a North Wales Police Community Safety Officer which provides information and guidance using interpreters and not just accessing public services and community safety advice, but also of a huge and varied set of issues. As a result of these two practices, barriers have/were been removed and individuals and service users have been supported and signposted to appropriate partner/other agencies. Other agencies have in turn requested support from these two resources (CBM and Project Team) such as North Wales Fire and Rescue, Local Health Board, for example.
Within the Dyfed Powys area along with the use of the Language Line translation facility via airwave sets, basic Polish phrases have been made available to Officers on an internal Intranet site.
An Officer from Powys Division of Dyfed Powys Police (DPP) attended an intensive Polish training course in 2007 and now undertakes duties as a Polish Liaison Officer.
Carmarthenshire Division of DPP has hosted a number of 'Multi-Cultural’ events within Ammanford and Llanelli. These included dancing displays, quizzes and different types of cuisine from all around the world.
Can you provide examples of good and poor working and housing conditions?
Response:
Not directly, only anecdotal, but observations have been made where it is suggested that those who are fortunate enough to speak English either in a basic or to good level earn sufficient money and freedom of not being tied to a recruitment agency, can and do rent property in a predominantly middle class area.
The key to success appears to be English language skill and being able to speak English, having good associates to share a house with and in some cases, a case of what not what you know, but who you know.
There have been many individuals who were recruited directly in Poland by some agencies, with promises of good wages, good accommodation provision, even transportation to and from place of work. They then duly sign up, some paying by using up months, if not years of savings just to get here to work! Subsequently then transported overland by coach to the UK, then effectively dispatched in large numbers by bus to areas throughout the UK.
The immigrants then find themselves working for agencies that give them overcrowded damp sub standard accommodation, excessive charges taken directly from their pay, such as unnecessary housing repairs and carpet cleaning and even gardening maintenance! Threats and bullying by agency staff and other workers, passports and id documents held back by agency staff, when the worker has tried to leave.
There are frequent incidents where people from different backgrounds and abilities are forced to live together causing difficulties and even violence towards individuals from the same house. There are some areas where migrant workers appear to have been almost ghettoised as a result of houses being bought up specifically for the rental/letting market.
With regard to poor working conditions, workers are often exposed to cold with infrequent or no breaks, for example not being allowed to go to the toilet. Safety equipment like gloves or boots are not issued along with uniforms where appropriate. Breaches of Health and Safety regulations are suspected. Individuals allegedly being forced to work overtime, and threatened that no more work will be made available. For example, some agencies do not pay extra money for working night shifts.
There have been sporadic and isolated incidents where migrant workers have been subjected to abuse and threats based on their ethnicity and their employment status. These reported incidents are small in number and do not appear to form part of a pattern, but anecdotal accounts suggest that there is significant under reporting of this type of hate incident/crime.
These incidents would appear to be perpetuated by myths and perceptions around the employment and the 'proposed taking of jobs from local people’. This has a significant effect on the cohesiveness of local communities. The inclusion of migrant workers within the criminal justice system over time will assist in breaking down barriers and overcoming obstacles.
Please provide examples of the English and Welsh language provision for migrant workers and their families in your area. How accessible and appropriate is this provision?
Response:
English for Speakers of Other Languages (E.S.O.L.) classes. These are free courses. Wrexham - Yale College - appear to be always over subscribed with a consistent demand. Caia Park Partnership - provide E.S.O.L. courses in smaller numbers but still over subscribed. Deeside College provide ESOL courses with capacity to take more. TUC and Transport and General Workers Union run small numbers of E.S.O.L classes, some are held at the place of work, but in the students own time. The Open Door Project have provided basic and advanced English courses with Community Safety input to polish nationals in the Flintshire area. It is worth repeating here that that across the South Wales/Gwent region that there is a distinct shortage of ESOL courses.
What opportunities do migrant workers and their families have to build friendships and social networks between themselves and within local communities? Please provide details of any formal or informal groups or networks in your area.
Response:
The opportunities vary tremendously throughout Wales. The simple fact of life here appears to be, if you cannot speak or read/write English/Welsh, it inhibits integration and will continue creating further barriers. There may be no desire to develop friendships and social networks beyond that particular community group. An example would be the large community of new economic migrant workers (exclusively Polish nationals) settling within a particular area of Wrexham. There is little opportunity, need or desire to integrate beyond their own community. Polish shops, polish foods and drink, Polish speaking police officer, information and advocacy in Polish is available.
Carmarthenshire Division of DPP has hosted a number of 'Multi-Cultural’ events within Ammanford and Llanelli. These included dancing displays, quizzes and different types of cuisine from all around the world.
Carmarthenshire Division’s Neighbourhood Policing Team has formed links with the Llanelli Polish Drop in Centre. This is an advice centre run by Mrs Halina Askley. Officers call in on a regular basis to answer any queries that have arisen relating to Policing.
The impact of economic migration on local communities
What are the resource implications for public service providers in areas where a significant proportion of the population are migrant workers and their families?
Response:
There are a number of implications for public service providers and the Police. As a Criminal Justice provider, Police are required to present best evidence to the judicial system. Obtaining accurate information from victims and offenders whose first language is not English will require the use of a professional interpreting service; this has significant financial implications for the organizations involved but is essential in the interests of justice.
The increasing demand on service providers throughout the public sector such as Social services, Education and Health Care Emergency Services has been clearly evidenced. Interpreting and Translation are clearly and undeniably key issues. Providing information in suitable mediums for areas such as health and safety, refuse collection, how to access emergency services and so forth is vital, but can be expensive. Strong considerations should be given to employing English speaking and suitably qualified foreign nationals throughout the Public sector. Providing more availability of Interpreters/Translators would obviously assist a number of services and the relevant communities. The creation and availability of Interpreter courses to those who are able to speak English already would also be advantageous. The creation of a bank of interpreters/translators available to the public sector, each service provider subscribing funds to the 'bank’ that manages this suggested service would also prove beneficial.
Specific additional demands on Police resources’ resources throughout Wales have been identified within the following areas:
Translation Costs:
Use of language Line translation service
Use of Interpreters for evidential translation within Police Custody
Time resources:
Within Custody (waiting for Interpreters)
Attendance at multi-agency meetings
Generating inputs for posters, events, information packs community meetings etc.
Awaiting Interpol background checks
Increased crime levels:
Driving offences (often due to lack of knowledge about local laws)
Fraud offences e.g. attempting to confuse cashiers with foreign currency
Violent crimes/public order, especially related to alcohol offences
Migrants have also been subject to hate crimes
What are the advantages and challenges for people in local communities in which migrant workers live and work?
Response:
Advantages:
Little feedback concerning advantages has been received.
Multi cultural events proved popular with local people as it increased their knowledge of other cultures.
Local businesses have benefited from an increased employment pool for 'hard to fill jobs’ and the employment of 'hardworking’ employees.
Disadvantages:
Some rural communities have reported tensions due to large numbers of migrants moving into the area to work in local factories. Locals have reported feeling intimidated and fearful, especially around drinking establishments.
There has been noise problems reported, e.g. migrants waiting for transport to work in residential areas at unsociable times.
Perceptions of migrants 'stealing’ jobs and having greater access to housing exist.
Both the advantages and, perhaps to a greater extent, the disadvantages which relate to the migrant community in this context has been shaped by the media. Responsible media reporting can often support the integration of migrants into a community and dispel myths and tension that may exist.
The regulatory framework
How does current legislation, such as the Gangmasters Licensing Act 2004, work in practice?
Response:
There are across the Wales region 35 'Gangmasters’ registered under the Gangmaster Licensing Act 2004. Specifically, within the South Wales Police area there are eight registered Gangmasters. While the Gangmasters Licensing Authority focus on this area of legislation, the Police remain vigilant for offences across the wider spectrum.
While the Gang Masters Licensing Authority focuses on this area of legislation, Police remain vigilant for offences across the wider spectrum.
To what extent is the current legislation enforced?
Response:
Successful operations have been conducted into the exploitation of foreign nationals and human trafficking across the region. The Gangmasters Licensing Act is still relatively new legislation and with the support of SOCA (Serious Organised crime Agency) it is anticipated that there will be further Police activity in this area of our work.
Examples of good practice
Please provide examples of good practice, including: projects or initiatives which have enhanced community relations good employment policies and workplace initiatives accessible and appropriate public services
Response:
Once again there are regional variations that relate to good practice.
Within North Wales Library services providing books in other languages are readily available along with the Wrexham Council booklet 'Welcome to Wrexham’ aimed at Economic Migrant Workers. There is also another useful free booklet, with detailed information about living in Wrexham and services available locally.
There is also the Criminal Justice Board Advice and Guidance booklet 'Welcome to Wales' available in each local authority area throughout North Wales.
The Caia Park Partnership, which is open three days a week providing advocacy, advice and guidance to Migrant workers.
The Open Door Project at Flint - open one day each week 4 hours provides a wide variety of information and support.
The Western Community Safety department is also working closely with Cyngor Gwynedd to develop a Gwynedd based "Open Door” project in Caernarfon, designed to attract migrant workers using the local library to help them access local services from various agencies. This is an extension of the already very successful project in the Flint area and has proved a valuable engagement tool with migrant workers and helping workers get access to services.
As detailed in previous questions, DPP has been involved in initiatives to distribute information to migrants in their own language e.g. Welcome packs, posters, Information leaflets. Police Surgeries have also been held within the Polish Drop In centre in Llanelli.
Carmarthenshire Division of DPP have hosted a number of 'Multi-Cultural’ events within Ammanford and Llanelli. These included dancing displays, quizzes and different types of cuisine from all around the world.
Powys Division of DPP has joined forces with other organisations (The Gold Group) to produce a Guide book for Polish migrants. This is aimed at educating migrants about local laws / customs to aid their integration within local communities
Representatives from Carmarthenshire Division of DPP have participated in multi-agency meetings relating to migrant worker issues: 'Social Justice & Scrutiny Committee Migrant Worker Sub-Group’ and 'Carmarthenshire Migrant Worker Task & Finish Group’
The Migrant Workers Forum, the effectiveness of multi-agency partnerships such as the Merthyr and Rhondda Cynon Taff Forums has a massive impact on the lives of migrant workers. They provide a safe and effective point of contact which allows the dissemination of accurate information. The information has been produced in small cost effective packs by the Partnership. It allows accurate and relevant information to be distributed directly to where it is needed.
Migrant workers live and work in areas that may be many miles apart and the proposed South West Wales Forum covering the Swansea and Llanelli areas would be an innovative example of different Police Forces and Local Authorities working in partnership to provide and effective service for migrant workers.
The Polish Saturday School based at Cefn Hengoed School in Swansea is a good example of a local initiative set up and run by migrant workers meeting the needs of Polish children to learn the Polish language and their parents to learn the English language.
The Community Cohesion lead officer within the Minorities Support Unit has recently attended a migrant workers event arranged by the Welsh Local Government Association, where he facilitated a workshop session on cohesion and community safety. This event has assisted in developing the knowledge of migrant worker’s issues within the Police and promoted good partnership working.
Suggestions
What action should be taken to improve the life experiences of migrant workers and their families and the communities in which they live and work?
Response:
The earlier example of holding multi-agency meetings to address community concerns will help to build stronger community links. South Wales Police is piloting a Neighbourhood Volunteers strategy within one of its Basic Command Unit’s which will hopefully include volunteers from within the migrant worker communities. In order to develop this process a Neighbourhood Volunteer Co-ordinator’s role has recently been advertised and filled within the Extended Police Family Co-ordinator’s office.
The effectiveness of multi-agency partnership forums has an impact on the lives of migrant workers. Holding multi-agency meetings to address community concerns will help to build stronger community links.
Priority should be to prepare and empower any individual planning to migrate to the UK before they arrive in the UK. Provide information and guidance throughout the media (web sites, booklets, made available to recruitment agencies etc for example.) in their country of origin.
Provide a Multi Agency Welcome pack, information and guidance adapted to a local area in a number of languages and mediums. Not everyone can read or write, literacy is an acknowledged issue.
A holistic transparent approach by service providers in sharing data and information with the communities such as housing allocations will be of benefit to the migrant worker, their families and the community.
Increase the number of English language classes available along with flexible work/life class study arrangements.
Sustained and proportionate 'Myth Busting' via local Media and Radio,
It is too early to make a complete assessment of the impact of EU enlargement on the UK population. Migration from EU accession countries has only just started feeding through to the latest figures. The Worker Registration Scheme data shows that A8 migrants are coming here to work and contribute to the success of the UK economy. They are continuing to go where vacancies exist - helping to fill the gaps in our labour market (construction trades, hospitality, catering, agriculture, manufacturing and food processing). Department of Works and Pensions found no evidence that A8 migration has been a major contributor to the rise in unemployment since January 2005.
Improved methods to determine how many migrants are in that locality (and when & why they leave), nationality information etc. This will enable more strategic planning of resources that need to be made available, rather than having to be reactive to any problems that may occur.
Responsibility on employers / agencies to be open to Police enquiries and collaborate with initiatives aimed to integrate their workers into local communities and educate them about local rules and regulations.
Collaboration of Forces to address issues such as the need for more accredited Interpreters to assist with evidential translation and to negotiate better deals for language translation is acknowledged.
Conclusion
In conclusion, I would also add that the Police Service actively encourages & embraces the support of migrant workers and their families fully endorsing the Assembly’s Equality of Opportunity Committee in this scrutiny enquiry. Therefore, I ask that consideration is given to the Police Service being significantly involved in any discussions resulting from the inquiry and with Assembly policy and legislation teams as early as possible. Such contact should be made initially through Superintendent Darren Phillips, Police Liaison Officer, based at the Assembly.
Yours Sincerely
Richard Brunstrom
Chief Constable/Prif Gwnstabl
Chair of the Association of Chief Police Officers in Wales
