Swann Report: 40th Anniversary

Jim Shannon Excerpts

Wednesday 12th March 2025 Commons Chamber

[Kim Johnson (Liverpool Riverside) (Lab)]

This month marks the 40th anniversary of the publication of the groundbreaking Swann report “Education for All”. The first of its kind, the report was commissioned to examine disparities in educational attainment and experiences among ethnic minority pupils, and made recommendations to tackle institutional racism in the education system. The inquiry, led by Lord Swann, was launched in response to a number of campaigns against racism in education, in particular the high-profile scandal of educationally subnormal—ESN—schools that disproportionately removed higher numbers of black Caribbean children from mainstream education settings, and wrongly labelled them educationally subnormal.

A mixture of education policy and racist attitudes was responsible for this shocking discrimination. The 1960s was a time of rising immigration, with the post-war British empire’s invitation to the Windrush generation of workers from the Caribbean and its other colonies to rebuild Britain. It was also a time of significant racist backlash, with the overt racism of Enoch Powell and the notions of racial superiority that gained traction in the political mainstream. These ideas worked their way into our national education policy, with the aim of creating and maintaining a two-tier labour force and a deliberately under-educated black population to fill all the menial jobs that white Brits did not want.

This significant miscarriage of justice took place in the 1960s and 1970s, and saw hundreds of black—mostly Caribbean—children wrongly sent to schools that were meant for pupils with severe physical and mental disabilities. These schools had existed since the 1940s, due to the provision, under the Education Act 1944, of appropriate schools for pupils with severe mental or physical disabilities. But by the late 1960s, almost 30% of pupils in ESN schools in London were black immigrant children, compared with 15% in mainstream schools.

It was clear that decisions were being made by teachers, educational psychologists and local education authorities to place these children in ESN schools for reasons other than mental or physical disabilities. Although parents were aware that their children were being forced to struggle against a racist system, most were isolated and not given the information that they needed to make informed decisions about their child’s education. It was not until an Inner London Education Authority report was leaked that the true extent of this shocking discrimination was revealed.

Grenadian educator Bernard Coard took the initiative to write and publish the groundbreaking pamphlet “How the West Indian child is made educationally subnormal in the British school system”, making the leaked ILEA information accessible to parents and communities. Mass community mobilisation as a result of Coard’s pamphlet inspired parents and community organisations to campaign against the now undeniable institutional racism in British schools. That forced the Government to respond, and these schools were eventually shut down in the early 1980s.

Published in March 1985, Swann’s report confirmed Coard’s analysis: the persistence of racist stereotypes, biased IQ tests, a deep misunderstanding of culture and language, and biases in teacher expectations, disciplinary practices and curriculum content were creating significant barriers to education for black children. It challenged the racist myths that black children were less intelligent than their white counterparts, and recognised instead that the structural racism embedded in the British education system was disadvantaging them. Inadequate support for pupils with English as a second language, a lack of diversity in the curriculum, and a significant disconnect between schools and parents from ethnic minority backgrounds were identified as further barriers to black children achieving their full academic potential.

[Jim Shannon (Strangford) (DUP)]

I commend the hon. Lady for securing the debate. I spoke to her beforehand to ask permission to intervene. I looked at the Swann report, which she has outlined very clearly. Does she agree that although substantial strides have been taken since that eye-opening report, the learning curve for the integration and understanding that we all wish to see must continue, as we strive to ensure that each of us can claim the best of British education, incorporating our own ethnic backgrounds and rich cultural history and heritage? Things are better, but there is still a lot more to do.

[Kim Johnson]

I thank the hon. Member for his intervention. However, as I will say later in my speech, I do not think that things have substantially improved, as he suggests, for lots of black children in our education system.

The report produced several key recommendations, including diversifying and decolonising the curriculum, more diversity in teacher recruitment, anti-racism training for teachers, more resources for language support, better data collection and monitoring, and a better approach to working with parents and communities to build trust and encourage active participation in pupils’ education.

Predictably, the Thatcher Government did little to progress those recommendations. However, the following Labour Government took some of the lessons learned as a framework for our Race Relations (Amendment) Act 2000, particularly the introduction of the duty for public institutions, including schools, to promote racial equality.

However, we know that many racist barriers still exist in education—from disparities in educational attainment to the school-to-prison pipeline, the adultification of black pupils, to the presence of police in schools and the need for a truly anti-racist curriculum. Today’s patterns of racism, segregation and exclusion in education have evolved directly from the policies and attitudes that drove the ESN scandal. The closure of ESN schools in the 1980s led directly to a rapid expansion in the use of school exclusions. We began to see higher numbers incarcerated in prisons, and the expansion of the use of sets and tiering in education, whereby certain groups of children are increasingly denied the opportunity to sit exams at certain levels and then the opportunity to progress in educational settings, including university.

The establishment of pupil referral units is recognised as another method of systematic exclusion from education. We must be clear: the use of PRUs and exclusions are a symptom of failure of the education system. The disruptive behaviour of a child is a cry for help, not a crime. An education system that does not respond with care and support is an education system that is broken. The number of exclusions have soared in recent years, with children as young as five being kicked out of school. Draconian behavioural policies disproportionately impact on poor children, those living in care, and those from black Caribbean, mixed and Gypsy, Roma and Traveller backgrounds.

Swann’s recommendations for an inclusive education system are more important today, and we must take this opportunity to update the lessons learned and apply them to our current system. The societal impact is still as relevant today as it was in the 1960s and 1970s. Lessons must be learnt on the 40th anniversary of the Swann report in order to put an end to this systemic discrimination. Evidence of the scale of the injustice of children being forced needlessly into ESN schools in the 1960s and 1970s is scarce, but we do know about the impact that misclassification as educationally subnormal has had on survivors, some of whom have joined us in the Public Gallery. I would like to take this opportunity to thank them for all their work in exposing this scandal and campaigning to raise awareness of the racial injustice that they suffered. Their work has already made a huge difference, and they have my commitment to keep fighting for the justice and dignity that they deserve.

We heard from some of the survivors at the event I held yesterday in Parliament. We heard from Noel Gordon, who told us that he was wrongly misclassified as educationally subnormal after a chain of events starting with him being diagnosed at the age of four with sickle cell. He describes being bullied and abused by teachers, running away from school and his mum fighting tooth and nail to get him out, but to no avail. Through his determination, he has achieved several qualifications including a degree.

We heard from Maisie Barrett, who is a natural creative. She described how she needed support with her academic skills and her stutter, but those resources were and still are systematically denied to black children. She has said that her grandchild is a victim of today’s SEND system, just like she was a victim of ESN. She told us that if she had received a proper education, she might have pursued her dreams and migrated to Jamaica, and fought for recognition for being wrongly classified as educationally subnormal.

We heard from Rene Stephens, who was expelled from his mainstream secondary school after his teacher assaulted him and was sent to an ESN school that neglected his academic development. He left school with no qualifications. Deprived of education and support, he has now spent 18 years in and out of the criminal justice system due to his misclassification. He was forced to abandon his dream of becoming head chef at the Savoy hotel. He says he continues to struggle with societal participation as a direct consequence of being denied a proper secondary education.

We heard from Denise Davidson, who described how, even in her innocence as a young girl, she realised that her school was different to other schools. She remembers challenging her educational psychologist, and described how her experiences now help her as a children’s social worker to support vulnerable children in similar positions.

This is not only an historic injustice; it is a living one for all who went through it. Most left school at 16 or earlier, unable to read, write or count, and were denied the opportunity to thrive and achieve their full potential. The survivors of ESN still have significant problems with self-worth and with accessing meaningful, well-paid work after they were denied an education.