AGENDA ITEM

Bristol City Council Equalities and Social Justice Committee 6th October 1999

Definition of Institutional Racism

Ward: City Wide

Report of the

Head of Equalities and Community Development

Summary
This report outlines the result of consultation undertaken as a result of a previous report submitted to committee on 13th April 1999 which recommended that the Council adopt the definitions of racism and institutional racism as stated within the Macpherson report on the death of Stephen Lawrence. Decisions to be made Members are asked to consider the proposal to modify the Race Equality Policy Statement of the Integrated Equalities Policy and agree to publicise this, particularly with public agencies and the local communities. Important Points to be considered Members are asked to note the recommendations of the Macpherson Inquiry.

Important sections in full report Sections 8 - 10; Recommendations

Purpose of Report
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1.

To bring to members attention the recommendation of the Race Advisory subcommittee to modify the Race Equality Policy Statements definition of and institutional racism in order to bring it into line with the definition stated in theMacphersonon report.

Background
2. A report was submitted to the Equalities Co-ordination and Social Justice Committee on 13th April 199 which brought to members attention the Macpherson report into the death of Stephen Lawrence and the recommendations of particular relevance to local government.

3.

A key recommendation of the report was that the council adopt the definition of racism and institutional racism as defined by the Macpherson report. Members requested that wider consultation take place prior to a decision being made. Both the Race Advisory Sub-committee and the Corporate Black Workers Group were asked to consider the recommendation. This report outlines their response and recommendation.

4.

5.

Proposed Action 6. Both groups recommend that a modified version of the current Race Equality Policy Statement be adopted by the council which includes the Macpherson definition of institutional racism. If agreed, an addendum could be inserted within the recently adopted Integrated Equalities Policy. The adoption of these recommendations by the council would be brought to all staffs attention, and publicised within Bristol to demonstrate the councils commitment to tackle the issues raised within the report.

7.

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That the definition of racism as detailed in the Integrated Equalities Policy remain the same; Racism - Racism can be defined in several reinforcing ways:

The belief in the inherent superiority of one race over all others and thereby the oppression of people because of their colour, race, culture or nationality. That a modified version of the Macpherson definition of institutional discrimination be adopted by the council with the addtion of witting. An explanatory note should also be inserted explaining that institutional racism may not always be unwitting. The new definition would read as follows: Institutional racism consists of the collective failure of an organisation to provide an appropriate and professional serve to people because of their colour, culture or ethnic origin. It can be seen or detected in processes, attitudes and behaviour which amount to discrimination through witting or unwitting prejudice, ignorance, thoughtlessness, and racist stereotyping which disadvantages minority ethnic people.

9.

10.

That an explanatory note be inserted as section 2.5a defining religious discrimination. Religious discrimination is currently included in the Race Equality Policy Statement definition of institutional discrimination. It was felt that the inclusion of religious discrimination strengthened the Race Equality Policy Statement and therefore should be retained.

Policy Implications
This report seeks to assist in the implementation of the Integrated Equalities Policy through strengthening the Race Equality Policy Statement.

Resource Implications
None at this stage

Other approvals necessary

None
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Consultation
Race Advisory Sub Committee Corporate Black Workers Group

Appendices
Appendix A Extract from Integrated Equalities Policy

Recommendations
That members: 1. Agree to the revisions to the Integrated Equalities Policy as set out within this report. Publicise the changes to the Integrated Equalities Policy, to include an explanation of why this action has been taken.

2.

Local Government (Access to Information) Act 1985.

Background Papers: Integrated Equalities Policy Macpherson Report into the death of Stephen Lawrence Contact Officer Vareta Bryan Equalities Officer - Race 0117 922 2663 Helen Ball Head of Equalities & Community Development 0117 922 2080

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R a c e E q u a l i t y Policy Statement
1. Background

1.1 Black and other minority ethnic people, including refugees, gipsies and travellers, have historically faced discrimination in all areas of their life. 1.2 Discrimination has often been justified on the grounds of colour, religion, race, national origins, leading to racist attitudes and practices. 1.3 The council is committed to do all in its power to eliminate racism and racial discrimination, either direct or indirect in every area of its responsibilities. 1.4 The council recognises that Black and other minority ethnic communities are not homogenous. Different communities and individuals in these communities have differing needs. Needs should not be defined by stereotyping or presumptions.
2. Definitions

communities with whom we work. As any label, the term Black is likely to change over time and we will need to be awareof the reasons for it. However, terminology should not become a distraction from the disadvantage. We recognise that there are many people from minority ethnic communities in Britain who do not identify themselves as Black but who, because of ethnic origin, language, cultural or religious differences, share a common experience of discrimination and inequality. 2.3 Prejudice Prejudice is defined in the Random House Dictionary, as: t An unfavourable opinion or feeling, formed beforehand or without knowledge or on the basis of partial knowledge or selective use of knowledge. s Unreasonable feelings, opinions or attitudes, especially of a hostile nature, directed against a racial, religious or national group. 2.4 Racism Racism can be defined in several reinforcing ways: The belief in the inherent superiority of one race over all others and thereby the oppression of people because of their colour, race, culture or nationally. Racism is where prejudice combines with power to inform any attitude, action or institutional structure which subordinates a person because of colour, race, ethnic difference or religion. (Community Work and Racism Ohri, Manning and Curno) Perpetuation of the belief in the superiority of the white race.
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2.1 (The following definitions are taken from work undertaken by Barnardos.) ?? Black and Minority Ethnic There is no one word that embrace all members of minority ethnic groups in Britain. The word often used bv people of African-Caribbean and Asian origin is Black. For the Black people who have adopted it, it is a term which underlines a unity of experience, of discrimination and exploitation (both in Britain and abroad) among people whose skin colour is not white. In this council, Black is used with a capital B because it is used as a pronoun which focuses on disadvantage due to the colour of a persons skin. It is not to be imposed on individual

(Random House Directory)

2.5 here are three main forms of Racism: 9 Individual racism comprises those personal attitudes and behaviours which individuals use to prejudice racial groups negatively. Without institutional backing, these rest at the level of prejudice. * Cultural racism consists of values, beliefs and ideas, usually embedded in history and common sense which endorse the superiority of white culture over others. Institutional racism operates in institutions or organisations where racist beliefs and perceptions have become embedded in policy, procedures and practice and are used to exclude people (usually Black people) who do not fit in. The norms held in such organisations or institutions will exclude groups of people different from themselves from having power and resources. The written and unwritten rules in such organisations, built upon white societys ideas of right and wrong, good and bad, will be used to exclude particular groups of people.
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to persons of all racial groups, is such that a considerably smaller proportion of a 1. particular racial group can comply with it . and it cannot be shown to be justifiable on other than racial grounds. For example, a rule about clothing or uniforms which disproportionately disadvantages a racial group and cannot be justified or an employer who requires higher language standards than are need for safe and effective performance of the job. 2.7 Race Equality Race equality then:
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emphasises the value of equality for all.

recognises the positive aspects of cultural diversity. 9 recognises that Black people in Britain have poorer life chances than white people. 4 recognises that the systematic disadvantage of Black .people operates through institutional procedures, policies and practices and may be intentional or unintentional. 3 recognises that there is an unequal distribution of power, opportunities and resources in favour of white people, therefore at times positive action will need to be taken in order to achieve equality. emphasises the need to tackle day-today behaviour at work rather than personal attitudes. is supported by skill-based training which identifies and works to eliminate direct or indirect discrimination at work. 3. Legislation 3.1 The Race Relations Act 1976 (RRA) (as well as statutory codes of practice in employment and housing) puts a duty on local authorities to make appropriate arrangements with a view to ensuring that

NB As can be gathered from the definitions, these three forms of racism can, and very often do, interact and reinforce each other and may be conscious or unconscious. 5 Discrimination Direct discrimination occurs when a person is treated less favourably on racial grounds than others are or would be treated in the same or similar circumstances. it includes the segregation . of persons on racial grounds. indirect discrimination occurs as a result of applying, in any circumstances covered by the Race Relations Act, a requirement or condition which, although applied equally

their functions are carried out with due regard to: h eliminate unlawful racial discrimination and 8 promote equality of opportunity and good relations between people of different racial groups. The council will take positive steps to fulfil this requirement. 3.2 It needs to be highlighted that gipsies and the Irish are included under the Race Relations Act 1976. 3.3 All aspects of RRA apply to the local authority in the same way as it applies to the individual. Positive Action 3.4 In employment particular attention will be given to positive action Sections 37 and 38 Section 37 and 38 of the Race Relations Act provide positive measures for the encouragement of employees and potential employees who are members of a particular racial group to take up training or employment where that racial group is underTepresented. However, discrimination at the point of selection is not permissible under these Sections of the Act. 3.5 In service delivery particular attention will be given to ensuring that services are accessible to all sections of the community and are delivered in the most appropriate and culturally sensitive way. Genuine Occupational Qualification . (GOQ) Section 5(2)(d) Section W)(d) of the Race Relations Act allows the appointment of a member of a particular racial group where the holder of the job concerned provides persons of that racial group with the personal

services promoting their welfare, and those services can most effectively be:. provided by a person of that racial group. 3.6 Other pieces of legislation of particular relevance are the Local Government Act 1988, the Children Act 1989 and the Community Care Act 1990. 4. Service Standards 4.1 The council is working towards reaching the highest of standards contained in the Racial Equality Means Quality document produced by the Commission for Racial Equality, to achieve the Audit Commissions required performance indicators. This work will be carried out with the involvement of Race Advisers and managed through the Corporate Equalities Working Group as part of its work programme. The implementation of the Standards will be monitored through the councils action planning process. Section 35 of the Race Relation Act 1976 enables the council to restrict facilities and services to members of a particular racial group when they meet the special needs of that group in regard to their education, training or welfare.
5. Access

5.1 The council is committed to making its services fully accessible to Black and other minority ethnic people. In particular, the council will make provisions for the use of appropriate interpreters and make information available in appropriate languages and formats.