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Submission to the Australian Government Review of ‘Strengthening the test for Australian Citizenship’ The Refugee Education Special Interest group is a group of people from the community, higher education, vocational education and school sectors who have an interest in supporting educational opportunities for students from refugee backgrounds. We welcome the opportunity to make a submission to this inquiry. This document presents the views of the counter signatories on the proposed changes to the Australian Citizenship test. In particular, it expresses concerns from the academic communities about the impact of the imposition of an English language test component, and what we consider to be a problematic alignment between ‘Australian values’ and language proficiency. We outline our concerns with reference to the academic literature and practitioner expertise. Parts of this document have been published in an article by Baker and Burke (University of Newcastle) in The Conversation on 26 April 2017. In April 2017, Prime Minister Malcolm Turnbull and the Minister for Immigration and Border Protection, Mr Peter Dutton, announced a series of changes to the requirements for applying for Australian Citizenship. These include the extension of the period of permanent residency required, ‘strengthening’ of the Australian Values Statement, ‘strengthening’ the Australian Citizenship test, a requirement to demonstrate ‘integration’ into Australian community, and the imposition of a new English language test. There is arguably a critical lack of information about the suite of proposals, and this is certainly the case for the introduction of an English language proficiency test. On announcing these proposed reforms to the requirements for Australian Citizenship, Prime Minister Turnbull and Mr Dutton stated that citizenship applicants will need to demonstrate ‘competent English’, and made the explicit link to its equivalency with Band 6 proficiency of the International English Language Testing System (IELTS). This alignment with the IELTS test is highly contentious. Although we recognise that proficiency in the host language of a country of which citizenship is sought is undoubtedly important for participation, deciding who is worthy of or ready for citizenship based on a high-stakes language test could further marginalise community members who have the greatest desire for citizenship, yet lack the formal educational background to navigate the academic literacies and test taking strategies required to reach Band 6 proficiency in IELTS. Potential negative impact for people from refugee backgrounds, particularly those with limited formal education The introduction of a language test based on the IELTS exam suggests the likelihood of further disadvantaging people from refugee backgrounds. Indeed, the Refugee Council of Australia (2017) argues that adults with refugee backgrounds will be hardest hit by the proposed language test. They point to

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data from the Department of Immigration and Border Protection (2015) showing that refugees are both more likely to apply for citizenship, and twice as likely as other migrant groups to have to retake the test, on average 2.4 times. There is an extensive body of academic research that substantiates the relative underperformance of people from refugee backgrounds on citizenship tests. For instance, Hewagodage (2015) examined the intersections between the Australian Citizenship Test (ACT) and refugees’ prior language and literacy learning. Her research suggested that refugees who have limited knowledge of their first language print literacy (reading and writing) and no literacy in English language “faced a number of social exclusionary practices in their integration process” (2015: iii). In terms of its use for immigration purposes, the IELTS General paper is the most commonly taken form of the exam. However, as Hoang and Hamid (2016) have pointed out, IELTS was never designed for this purpose. The General test requires test takers to demonstrate their literacy and language proficiency through tasks such as writing a transactional letter of 150 words and a discursive essay of 250 words in one hour, as well as answering 40 questions responding to 5-6 texts and transferring their answers onto an answer sheet in one hour. Moreover, test takers need to sit a listening paper (40 questions with the audio played only once) and take part in a one-to-one speaking examination (12-14 minutes). The reading, writing and listening papers take place consecutively over a period of three hours, with brief comfort breaks allowed between each paper. The linguistic and cognitive load is high, and coupled with the high stakes nature of the test, places a significant psychological burden on test takers (Hoang & Hamid, 2016). This burden is likely to be magnified for people from refugee backgrounds, who are likely to have suffered substantial trauma in their lives, and who may continue to experience complex mental health issues. Misalignment between AMEP standards and Band 6, IELTS To reach the ‘competency level’ in IELTS requires proficiency in both formal academic literacies and ‘test taking strategies’. This is particularly evident in the writing paper, which rewards language used ‘accurately and appropriately’. The Adult Migrant English Program, where many adult refugees access English learning, requires only a ‘functional’ level of language proficiency. For many adult refugees, who have minimal first language literacy, fragmented educational experiences, and limited opportunities to gain feedback on their written English, achieving the ‘competent’ level of English required may be prohibitive to ever gaining citizenship. Research from the UK also confirms that refugees struggle to pass IELTS to qualify to work in their original professions (Morrice, 2009; Willott & Stevenson, 2013). Aside from issues with high-stakes testing of people with trauma-related experiences, the proposal to introduce a language component to the Australian citizenship test raises questions regarding the provision of appropriate support mechanisms to assist applicants to reach the required standard. Given the

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incongruity between the goal of ‘functional’ language proficiency which underpins education in the AMEP, and the ‘competent’ standard proposed for the new citizenship test, significant resources such as test preparation classes, practice tests, and scaffolding materials would need to be provided. This also raises the important question of the expected cost to applicants. Existing research shows that the pressures of work and financial responsibilities to extended family in host countries, refugee camps, and countries of origin, often combine to make language learning a luxury for many people with refugee backgrounds. This is particularly so with regards to the academic forms of the language tested by the IELTS examination, which are not necessarily required for productive engagement in non-academic contexts. Many individuals – including Australian citizens by birth – have sufficient language for social engagement and maintaining productive employment, yet are unable to pass academic assessments of language. This raises important concerns about the fairness of requirements to demonstrate a type and level of English under examination conditions not required of citizens by birth. The proposal also seeks to establish a limit of three attempts to pass the citizenship test, after three attempts their application will not be approved. This places a completely unnecessary barrier to people who may face difficulties with the English requirements. There is no justification given for why a person can’t attempt the test after three times. The impacts of this may mean a person can never become an Australian citizen. Potential for increasing barriers for women seeking citizenship Moreover, it is likely that the proposed amendments will add to the gendered discrimination that many women from refugee backgrounds face. As Watkins, Razee & Richters (2012) argue, “Women are disadvantaged by pre-immigration education as well as post-immigration socio-economic factors, including unequal opportunities for social, vocational and educational participation” (p.126). Other scholars suggest this is partly due to how dominant western ideas, values and knowledges intersect to form gendered, and inequitable, experiences for women from refugee backgrounds in formal educational spaces (Harris, Spark & Watts, 2015; Harris, Marlowe & Nyuon, 2015). Participating in formal education can also threaten gendered expectations of women’s roles in the home and family (Hatoss & Huijser, 2010; Harris, Spark & Watts, 2015). Therefore, the rootedness in a culture of familial expectations whilst participating in education in Australia can be problematic for some culture groups, and women in particular. Hewagodage and O’Neill’s (2010) study of isolated non-English speaking background women illustrates the kinds of barriers that women face, and suggests that specific forms of support need to be included in English language programs. This is particularly the case if the English language test is included in Australian citizenship requirements.

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Recognizing diversity of educational opportunities and experiences The following important considerations should apply to any proposal to introduce a language proficiency test: 1) Community consultation is essential. Input from community/ migrant

groups, educators, and language assessment specialists may ensure the test functions as a valid evaluation of progression towards English language proficiency – in all its diversified forms and modes. This requires that any test of language clearly reflects the everyday proficiencies needed for engagement in Australian society rather than evaluating academic literacies and language forms more typical to assessment used for gatekeeping in higher education. Substantial research exists regarding the differences between communicative, social, interpersonal types of language and the more formal, academic language proficiencies required for participation in higher education (Cummins, 2001). This research should guide any introduction of a language component to the citizenship test.

2) Acknowledgement is needed that individuals come to citizenship via

differing paths, with different opportunities and educational experiences. This understanding must inform any move to introduce a language component to the citizenship test in order to remain sensitive to individual circumstances.

3) The human right to understand and to be understood must be upheld and

enacted through enriching educational opportunities that build on existing linguistic repertoires and strengths. We encourage further discussion regarding the provision of language support for migrants, particularly those with refugee experiences. If a particular type and form of language is to be introduced as requisite for citizenship, it must genuinely reflect the language needed for productive engagement in everyday contexts, and appropriate measures for supporting learner development to reach this standard must be provided.

4) Ultimately, it is the contention of the counter signatories that there should be

no English testing requirement for Australian Citizenship. Equating a particular type of language proficiency with a commitment to Australian citizenship is a complex and ideologically-loaded notion. The government must engage in careful consideration before potentially further disadvantaging our most disadvantaged future citizens.

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List of signatures: Submission to the Government consultation of ‘Strengthening the test for Australian Citizenship’

1. Dorothy Hoddinott AO FACE, Australian Human Rights Medallist 2014 Principal Holroyd High School

2. Dr Peter Davis Academic Director Excelsia College Sydney

3. Dr Jayne Persian Lecturer in History School of Arts and Communication, Faculty of Business, Education, Law and Arts University of Southern Queensland

4. Simone Nance English Language Support Teacher English Language and Foundation Studies Centre University of Newcastle

5. Susan Webb Professor of Education, Work, Learning and Leadership Faculty of Education Monash University

6. Asher Hirsch Policy Officer Refugee Council of Australia

7. Liza Pezzano English Language and Foundation Studies Centre University of Newcastle

8. Dr Susanne Schmeidl Lecturer and Undergraduate Convenor, Development Studies School of Social Sciences, Faculty of Arts and Sciences University of New South Wales

9. Dr Anikó Hatoss Senior Lecturer School of Humanities and Languages, Faculty of Arts & Social Sciences University of New South Wales

10. Dr Susan Banki Senior Lecturer, Human Rights Department of Sociology and Social Policy, School of Social and Political Sciences, Faculty of Arts and Social Sciences

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University of Sydney

11. Diana Smith Associate Lecturer Faculty of Art and Design University of New South Wales

12. Dr Anthea Vogl Lecturer Faculty of Law University of Technology Sydney

13. Mehera San Roque Senior Lecturer, Director JD Studies Faculty of Law University of New South Wales

14. Dr Jane Wilkinson Associate Dean Graduate Research, Associate Professor Educational Leadership Faculty of Education Monash University

15. Dr Miriam Faine Lecturer ESL and Adult Education Faculty of Education Monash University

16. Oliver Zvinaiye Maboreke Project Officer Refugee, New and Emerging Communities Community Education Liason Program, Office of Widening Participation

17. Bethany Ross Learning Community Partnership Officer Centre of Excellence for Equity in Higher Education, Academic Division University of Newcastle

18. Alireza Moridi Postdoctoral Research Fellow School of Mechanical & Manufacturing Engineering University of New South Wales

19. Petra Stevens Academic Manager ELICOS College Sydney

20. Dr Katina Zammit Director of Academic Programs

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School of Education Western Sydney University

21. Amber Flohm Multicultural Officer/Organiser NSW Teachers Federation

22. Dr Lisa Hartley Senior Lecturer Centre for Human Rights Education Curtin University

23. A/Prof Claudia Tazreiter Associate Professor of Sociology, Convenor of Forced Migration Research Network School of Social Sciences University of New South Wales

24. Bridgette Mackley PASS Leader Academic Division University of Newcastle

25. Sally Baker Research Associate Centre of Excellence for Equity in Higher Education (CEEHE), Academic Division University of Newcastle

26. Sinead Coakley National Education Engagement Manager Marist180

27. Dr Ruth Balint Senior Lecturer, History School of Humanities and Languages University of New South Wales

28. Professor Stephanie Hemelryk Donald FASSA FRSA Australian Research Council Future Fellow, School of Humanities and Languages, Joint Director, iCinema Centre for Research in Interactive Cinema

29. Teresa Carney Senior Manager New Arrival Support Services Shepparton Programs Kildonan Uniting Care

30. Dr Caroline Lenette

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Lecturer School of Social Sciences University of New South Wales

31. Paul Robertson Head Teacher of Languages Newcastle TAFE

32. Sally Morgan Asylum Seeker Pathways Project Officer Maree Program St Joseph’s Flexible Learning Centre - YouthPlus

33. Lesley Cioccarelli Cultural Diversity Coordinator

34. Mr Kali Balint CEO and JP Indigenous Consulting Group, Western Australia

35. Dr Verónica Tello Lecturer and Vice-Chancellor’s Postdoctoral Research Fellow UNSW Art & Design University of New South Wales

36. Eloise Monteiro Secretariat Refugee Education Special Interest Group

37. Sophia Khan Teacher Trainer Adult Education British Council Singapore

38. Sarah Dunbar General Manager Office of the Deputy Vice-Chancellor Education University of New South Wales

39. Rufus James Academic Manager English Unlimited

40. Cathrine Baker

41. Zora Riley

42. Stacey Mulcahy

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43. Gregory Scott

44. Tabatha Byrne

45. Christine Higginbotham

46. Fiona Henderson

47. Margaret Piper AM

48. James Pengelley CerTESOL Trainer Graduate Diploma of Education Student

49. Sandy Gifford Professor of Anthropology Centre for Urban Transition Swinburne University of Technology

50. Dr Kiprono Langat Lecturer Faculty of Arts and Education Charles Sturt University

51. Sara Dehm Lecturer, Faculty of Law University of Technology Sydney

52. Rochelle Pudney Senior Project Officer Office of the Deputy Vice-Chancellor Education University of New South Wales

53. Lucy Fiske Chancellor’s Postdoctoral Research Fellow Social and Political Sciences University of Technology Sydney

54. Martina Donaghy Student Equity Programs Officer Student Diversity and Inclusion Griffith University, Queensland

55. Evonne Irwin Blended and Online Curriculum Manager English Language and Foundation Studies Centre University of Newcastle

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56. Chris Peers Senior Lecturer Faculty of Education Monash University

57. Liz Gladwin Secondary Intensive English Centre (IEC) Teacher.

58. Antje Missbach Senior Lecturer School of Social Sciences Monash University

59. Ji Hae Chun Teacher Miller Intensive English Centre Miller Technology High School

60. Emilija Mrkela Teacher Miller Intensive English Centre Miller Technology High School

61. Helena Vukic Teacher Miller Intensive English Centre Miller Technology High School

62. Yujian Zeng Teacher Miller Intensive English Centre Miller Technology High School

63. Robert Tram Teacher Miller Intensive English Centre Miller Technology High School

64. Kathy Tu Teacher Miller Intensive English Centre Miller Technology High School

65. Andres Basso Teacher Miller Intensive English Centre Miller Technology High School

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66. David Li Teacher Miller Intensive English Centre Miller Technology High School

67. Dragana Stojanovic Teacher Miller Intensive English Centre Miller Technology High School

68. Belinda Liu Teacher Miller Intensive English Centre Miller Technology High School

69. Cathy La Teacher Miller Intensive English Centre Miller Technology High School

70. Jesse Secomb Teacher Miller Intensive English Centre Miller Technology High School

71. Rebecca Whitehall Teacher Miller Intensive English Centre Miller Technology High School

72. Quoc Huynh Teacher Miller Intensive English Centre Miller Technology High School

73. Ben Hodgson Teacher Miller Intensive English Centre Miller Technology High School

74. Aleks Stojkovski Teacher Miller Intensive English Centre Miller Technology High School

75. Michael Reynolds Teacher Miller Intensive English Centre Miller Technology High School

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76. Ruth Hartcher-O’Brien

Teacher Miller Intensive English Centre Miller Technology High School

77. May Fares Teacher Miller Intensive English Centre Miller Technology High School

78. Hana Saleh Teacher Miller Intensive English Centre Miller Technology High School

79. Nessreeh Harmouch Teacher Miller Intensive English Centre Miller Technology High School

80. Christine Kim Miller Intensive English Centre Miller Technology High School

81. D. Petrovic Miller Intensive English Centre Miller Technology High School

82. Saya Hussain Project Officer

83. Jillan Schaefer 5 Gidja Pl, Giralang ACT 2617

84. Alex Dodgsen 19 Hicks St, Red Hill ACT 2603

85. Anne Vella 3 Sanderson Cl, Flynn ACT 2615

86. Anna Gobbo 6 Angell Pl, Banks ACT 2906

87. Lucy Prasad 25 McClure St, Evatt ACT 2617

88. Amy Walker 123/51 Catalano St, Wright ACT 2611

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89. Jakki Cashman

26 Bambridge St, Weetangera ACT 2614

90. Adina Florey ACT 2615

91. Quoc Pham 4 Eccles Circuit, MacGregor ACT 2615

92. Salmem Alabd 15 Solly Pl, Belconnen ACT 2617

93. Hanh Pham 6/20 Oliver St, Lyneham ACT 2602

94. Julie Halse 32/50 Ellenborough St, Lyneham ACT 2602

95. Liz Howarth 32 Marsden St, Dickson ACT 2602

96. Dr Hedda Askland Senior Lecturer School of Humanities and Social Science University of Newcastle

97. Dr Meg Sherval Senior Lecturer School of Environmental and Life Science University of Newcastle 98. Dr Paul Hodge Lecturer School of Environmental and Life Science University of Newcastle 99. Dr Kevin Sobel-Read Lecturer Newcastle Law School University of Newcastle 100. Associate Professor Michelle Duffy School of Environmental and Life Science University of Newcastle 101. Dr Tamara Blakemore Lecturer School of Humanities and Social Science

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University of Newcastle 102. Kyle Smith Assistant Programs Manager International College Queensland University of Technology 103. Jillian Bardos Unit 4/5 Mephan Street, Maylands, WA 6051 104. Associate Professor Tom Griffiths School of Education University of Newcastle 105. Dr Matthew Bunn Centre of Excellence for Equity in Higher Education University of Newcastle 106. Camilla Bowdern Centre of Excellence for Equity in Higher Education University of Newcastle 107. Astrid Gearin Centre of Excellence for Equity in Higher Education University of Newcastle 108. Dr Rachel Burke School of Education University of Newcastle 109. Phoebe Everingham PhD candidate School of Environmental and Life Science University of Newcastle 110. Dr Sharon Cooper School of Education University of Newcastle 111. Lauren Hines Centre of Excellence for Equity in Higher Education University of Newcastle 112. Mahsa Alikhan Student School of Pharmacy University of Newcastle 113. Victoria Jack

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Casual Academic University of Newcastle AEU NSW Teachers Federation Branch Gunnawarra Refugee group

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References Baker, S. & Burke, R. (25/04/2017). English language bar for citizenship likely to further disadvantage refugees, The Conversation: http://bit.ly/2oEZXKx Cummins, J. (2001). Negotiating identities: Education for empowerment in a diverse society. 2nd Edition. Los Angeles: California Association for Bilingual Education. Department of Immigration and Border Protection. (2015). Australian Citizenship Test Snapshot Report 30 June 2015. Retrieved from https://www.border.gov.au/Trav/Citi/Lear/Facts-and-statistics Harris, V.; Chi, M. & Spark, C. (2013). ‘The Barriers that Only You Can See’: African Australian Women Thriving in Tertiary Education Despite the Odds, Generos: Multidisciplinary Journal of Gender Studies, 2(2): 182-202. Harris, V.; Marlowe, J. & Nyuon, N. (2015). Rejecting Ahmed’s “melancholy migrant”: South Sudanese Australians in Higher Education. Studies in Higher Education, 40(7): 1226-1238. Hatoss, A. & Huijser, H. (2010). Gendered Barriers to Educational Opportunities: Resettlement of Sudanese Refugees in Australia. Gender and Education 22(2): 147-160. Hewagodage, V. (2015). Hanging in the balance: When refugee learners’ naturalization depends on their acquisition of cultural knowledge and English language proficiency (Unpublished PhD dissertation). University of Southern Queensland, Australia. Hewagodage, V. & O’Neill, S. (2010). A Case Study of Isolated NESB Adult Migrant Women’s Experience Learning English: A Sociocultural Approach to Decoding Household Texts. International Journal of Pedagogies and Learning, 6(1): 23-40. Hoang, N. & Hamid, M. (2016): ‘A fair go for all?’ Australia’s language-in-migration policy, Discourse: Studies in the Cultural Politics of Education, DOI: 10.1080/01596306.2016.1199527 Jakubowicz, A. (2008). A stunned silence: the slow death of multiculturalism. Analysis and Policy Observation. http://apo.org.au/node/6194 McKay S. (Ed.). (2009). Refugees, recent migrants and employment: Challenging barriers and exploring pathways. New York: Routledge. Morrice, L. (2009). Journeys into higher education: the case of refugees in the UK, Teaching in Higher Education, 14(6): 661-672. Refugee Council of Australia. (2017, April 20). Older refugees have the most to lose from citizenship changes [Press release]. Retrieved from

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http://www.refugeecouncil.org.au/latest/older-refugees-have-most-to-lose-from-citizenship-changes/ Watkins, P.G., Razee, H., & Richters, J. (2012). ‘I'm telling you … the language barrier is the most, the biggest challenge’: Barriers to education among Karen refugee women in Australia, Australian Journal of Education, 56(2): 126-141. Willott, J. & Stevenson, J. (2013). Attitudes to Employment of Professionally Qualified Refugees in the United Kingdom, International Migration, 51(5): 120-132.