The (in)coherence of Canadian refugee education policy with the United Nations’ strategy Journal website: http://epaa.asu.edu/ojs/ Manuscript received: 5/16/2021 Facebook: /EPAAA Revisions received: 10/15/2021 Twitter: @epaa_aape Accepted: 10/15/2021 education policy analysis archives A peer-reviewed, independent, open access, multilingual journal Arizona State University Volume 30 Number 39 March 22, 2022 ISSN 1068-2341 The (In)Coherence of Canadian Refugee Education Policy with the United Nations’ Strategy Valerie Schutte Independent Researcher Peter Milley & Eliane Dulude University of Ottawa Canada Citation: Schutte, V., Milley, P., & Dulude, E. (2022). The (in)coherence of Canadian refugee education policy with the United Nations’ strategy. Education Policy Analysis Archives, 30(39). https://doi.org/10.14507/epaa.30.6887 Abstract: This study assesses the coherence of Canada’s educational policy regime with the United Nations High Commissioner for Refugees’ (UNHCR) Refugee Education 2030 strategy. We articulate a theoretical framework that combines theories about policy coherence, policy attributes, and policy tools, which informs a two -phase methodology. First, we conducted jurisdiction-based scoping reviews of policies in Canada’s 13 provinces and territories which have constitutional authority over education. This yielded a sample of 155 documents, which we then analyzed for its vertical coherence with Refugee Education 2030. Our analysis focused on five categories of need in the UNHCR strategy with respect to refugee students, namely access to education, accelerated education, language education, mental health and psychosocial support, and special education. The findings reve al there are policies across Canada that target responses to the five categories of need. Although some policies are exemplary in their coherence with Refugee Education 2030, Canada’s refugee http://epaa.asu.edu/ojs/ https://doi.org/10.14507/epaa.30.6887 Education Policy Analysis Archives Vol. 30 No. 39 2 education policy regime is characterized by many inconsistencies and significant gaps. Policymakers in Canada could use the specific findings to develop or revise policies to address shortcomings. Researchers and policymakers in other countries who find value in our approach could replicate the study’s method in their own jurisdictions, using the instruments provided in appendices to identify strengths and gaps. Keywords: refugee education policy; Canada; schools; education policy La (in)coherencia de la política educativa para refugiados canadienses con la estrategia de Naciones Unidas Resumen: Este estudio evalúa la coherencia del régimen de políticas educativas en Canadá con la estrategia de Refugee Education 2030 del Alto Comisionado de las Naciones Unidas para los Refugiados (ACNUR). Articulamos un marco teórico qu e combina teorías sobre coherencia de políticas, atributos de políticas y herramientas de políticas, que informa una metodología de dos fases. Primero, llevamos a cabo revisiones de alcance basadas en la jurisdicción de las políticas en las 13 provincias y territorios de Canadá que tienen autoridad constitucional sobre la educación. Esto arrojó una muestra de 155 documentos, que luego analizamos por su coherencia vertical con Refugee Education 2030. Nuestro análisis se centró en cinco categorías de necesidad en la estrategia de ACNUR con respecto a los estudiantes refugiados, a saber, acceso a la educación, educación acelerada, educación de idiomas, salud mental y apoyo psicosocial, y educación especial. Los hallazgos revelan que existen políticas en todo Canadá que se enfocan en las respuestas a las cinco categorías de necesidad. Aunque algunas políticas son ejemplares en su coherencia con Refugee Education 2030, la política de educación de refugiados de Canadá contiene inconsistencias y brechas significativas. Los formuladores de políticas en Canadá podrían usar los hallazgos específicos para desarrollar o revisar políticas para abordar las deficiencias. Los investigadores y formuladores de políticas de otros países que encuentren valor en nuestro enfoque podrían replicar el método del estudio en sus propias jurisdicciones, utilizando los instrumentos provistos en los apéndices para identificar las fortalezas y las brechas. Palabras-clave: política de educación de refugiados; Canadá; escuelas; política educat iva A (in)coerência da política educacional para refugiados canadenses com a estratégia das Nações Unidas Resumo: Este estudo avalia a coerência do regime de política educacional no Canadá com a estratégia de Refugee Education 2030 do Alto Comissariado das Nações Unidas para os Refugiados (ACNUR). Articulamos uma estrutura teórica que combina teorias sobre coerência de políticas, atributos de políticas e ferramentas de políticas, que informam uma metodologia de duas fases. Primeiro, realizamos análises de escopo baseadas em jurisdição de políticas nas 13 províncias e territórios do Canadá que têm autoridade constitucional sobre a educação. Isso rendeu uma amostra de 155 documentos, que analisamos por sua coerência vertical com a Refugee Education 2030. Nossa análise se concentrou em cinco categorias de necessidades na estratégia do ACNUR em relação aos estudantes refugiados, a saber, acesso à educação, educação acelerada, ensino de idiomas, saúde mental e apoio psicossocial e educação especial. Os resultados revelam que existem políticas em todo o Canadá que visam respostas às cinco categorias de necessidades. Embora algumas políticas sejam exemplares em sua coerência com a Refugee Education 2030, a política de educação para refugiados do Canadá contém inconsistências e lacunas significativas. Os formuladores de políticas no Canadá podem usar as descobertas específicas para The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 3 desenvolver ou revisar políticas para lidar com as deficiências. Pesquisadores e formuladores de políticas de outros países que valorizam nossa abordagem podem replicar o método do estudo em suas próprias jurisdições, usando os instrumentos fornecidos nos apêndices para identificar pontos fortes e lacunas. Palavras-chave: política de educação de refugiados; Canadá; escolas; política educacio nal The (In)Coherence of Canadian Refugee Education Policy with the United Nations’ Strategy Issues related to students with refugee protection (SwRP) and students seeking refugee protection (SsRP)1 in educational systems in major resettlement countries like Canada have shifted in recent decades, with unprecedented influxes of asylum seekers and refugees arriving via established and non-traditional pathways (United Nations High Commissioner for Refugees [UNHCR], 2015; 2020). Most traditional resettlement countries have well-resourced education systems relative to the countries of origin and transition countries of many people seeking and granted refugee protection (RP). But those systems can still pose barriers to the education of SwRP and SsRP (UNHCR, 2019a), despite their defined right to education under the 1951 Convention relating to the Status of Refugees and its 1967 Protocol (Office of the High Commissioner for Human Rights [OHCHR], 1967; UNHCR, 1951).2 As part of these dynamics, UNHCR (2020) noted that, of the 26 million people with RP worldwide, 43% are school-aged (under the age of 18); yet, in comparison to global rates of primary and secondary enrolment of 91% and 84% respectively, the rates for children and youth with RP are only 63% and 24% (UNHCR, 2019a). In response to what can be called a crisis in refugee education, UNHCR recently released Refugee Education 2030, a global strategy and framework to guide the development of country-specific education policies.3 Refugee Education 2030 calls for governments to “establish dedicated policy 1 We thank one of the reviewers recommended we use the term “students from refugee backgrounds” to identify the population of concern. We agree that is an accepted term, but we chose to use the terms “students with refugee protection” and “students seeking refugee protection” because they reflect the circumstances and entitlements of individuals legally recognized as refugees and individuals not (yet) recognized as refugees. This is relevant to our study because it reflects the fundamental distinction in Canada’s refugee system between individuals who seek refugee protection from outside Canada, those who come to Canada after being granted refugee status (i.e., resettled refugees), and those who make refugee protection claims from within Canada (i.e., refugee claimants) (Government of Canada, 2021a). 2 A convention refugee is a person who, “owing to a well-founded fear of being persecuted for reasons of race, religion, nationality, membership of a particular social group or political opinion, is outside the country of his nationality and is unable or, owing to such fear, is unwilling to avail himself of the protection of that country; or who, not having a nationality and being outside the country of his former habitual residence as a result of such events, is unable or, owing to such fear, is unwilling to return” (UNHCR, 1951, Article 1(2)). The 1967 Protocol extended the scope of its applicability to individuals forcibly displaced worldwide (UNHCR, 2011). The Refugee Convention guarantees individuals with refugee status “the same treatment [as that] accorded to nationals with respect to elementary education” and “treatment as favourable as possible… with respect to education other than elementary education” (UNHCR, 1951, Article 22). Furthermore, the Convention on the Rights of the Child affirms the rights of all children, including refugee children, to free and compulsory primary education, to accessible secondary education, and to higher education on the basis of capacity (OHCHR, 1990, Article 28). 3 Refugee Education 2030 provides an action plan for the Global Compact on Refugees (UNHCR, 2019b), a non- binding international agreement adopted on December 17, 2018 that identifies categories in need of support, one of which is education (notably in Articles 68 and 69) (UNHCR, 2018). Education Policy Analysis Archives Vol. 30 No. 39 4 regarding refugee-inclusive national education systems” (UNHCR, 2019b, p. 33) with education policies being “proactive and explicit on [the] inclusion of refugees” (UNHCR, 2019b, p. 33) to address “the particular learning needs of refugee students” (UNHCR, 2019b, p. 2). The strategy aims to have SwRP and SsRP achieving parity with their non-refugee peers in pre-primary, primary and secondary education, and to boost enrolment in higher education to 15% by 2030 (UNHCR, 2019b). A major concern for UNHCR (2019c) is that “national and regional education policies, plans and programmes…incorporate refugees” (p. 6) through the implementation of policies that are coherent within and across educational jurisdictions in each country. This is because incoherence and “policy gaps” have major implications SwRP and SsRP education pathways and subsequent life chances (UNHCR, 2019c, p. 37). Previous studies have examined select refugee education policies in host countries neighboring on the countries of origin of SwRP and SsRP (e.g., Iran, Kenya, Lebanon, Rwanda, Uganda) with respect to access to national education systems of SwRP, with the latter often from one country of origin (e.g., the Syrian Arab Republic) (Bellino & Dryden-Peterson, 2019; Beltekin, 2016; Buckner et al., 2017; Dryden-Peterson et al., 2019; Hamadeh, 2019). Studies on traditional resettlement countries like Australia and Canada assert there is a lack of education policy addressing SwRP and support UNHCR’s claim that the reliance on general education policies, in which students with refugee backgrounds are aggregated with other cohorts, can lead to inappropriate responses and systemic barriers to the learning and success of SwRP and SsRP (Brewer, 2018; Kanu, 2008; Matthews, 2019; Miller et al., 2018; Shakya et al., 2010; Wilkinson, 2002). In Canada, studies have documented some of the unintended consequences that emerge when SwRP and SsRP are covered by general, rather than refugee-specific, education policies. They indicated that some SwRP were placed in grades or academic streams inappropriate for their ages, maturity levels, capabilities, and aspirations (Shakya et al., 2010; Wilkinson, 2002; Yau, 1996). Needs with respect to language learning, accelerated education, and special education were confounded in Canadian schools, resulting for example in SwRP with language learning needs being placed in academic streams below their academic proficiencies, and those with missed education being placed in special education programs despite having no diagnosed conditions for such placement (Kaprielian-Churchill, 1996; Wilkinson, 2002; Yau, 1996). MacNevin (2012) explained how SwRP who have missed education and therefore typically have had less formal literacy instruction are placed in language education programs that assume they have robust literacy skills that can be transferred to the learning of the new language. MacNevin showed this to be one unintended consequence of not providing refugee-specific policy instruments and/or appropriate funding to provide professional development to educators to teach beginner literacy skills to older students using appropriate materials. These studies highlight that a lack of specific recognition and needed supports for SwRP and SsRP obstructs them from completing secondary school, being eligible for higher education, and using their education to pursue desired futures (Shakya et al., 2010; Wilkinson, 2002).4 They also indicate it is not sufficient to simply include the mention of SwRP and SsRP in general policies, but that educational policies explicitly dedicated to SwRP and SsRP are needed. However, little is known about how educational policies in major resettlement countries have created or adapted their policy designs to address specific issues related to the increased numbers and mobility of people with and seeking RP, and to what extent refugee education policies in each jurisdiction correspond coherently to UNHCR’s guiding framework that targets explicit inclusion of SwRP and SsRP. 4 UNHCR (2019a) reports that global rates of enrolment in postsecondary education is 37%, but for refugees and asylum seekers the rate is only 3%. The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 5 Purpose of this Study Our purpose was to analyze the vertical coherence (Carbone, 2009) of current policies in Canada towards the primary and secondary education of SwRP and SsRP with Refugee Education 2030. Specifically, we sought to determine the extent to which policies aim to realize “Expected Result 1” of “Strategic Objective 2” of Refugee Education 2030 while using the “Enabling Activities” and “Strategic Approaches” advised by the UNHCR (2019b, p. 25). Table 1 summarizes this key section of the UNHCR strategy. Table 1 Elements of UNHCR’s (2019) Refugee Education 2030 Strategy Used as Reference Points for Policy Coherence in This Study Strategic Objective 2 Expected Result 1 Enabling Activities Strategic Approaches Foster safe enabling environments that support learning for all students, regardless of legal status, gender or disability (UNHCR, 2019b, p. 43) Children and youth are prepared to learn and succeed in national education systems (UNHCR, 2019b, p. 43) Children and youth: 1) Are supported to make up for missed schooling 2) Are provided with adequate language training 3) Will be provided with conditions that foster social and emotional learning (SEL)5 and receive mental health and psychosocial support 4) Receive any supports required to enable their access to the education system 5) Are taught by teachers who have been adequately prepared to include refugee children and learners with diverse learning requirements (UNHCR, 2019b, p. 43) Ways of working to ensure Strategic Objectives are met: 1) Partnership 2) Collaborative Learning and Capacity Development 3) Innovation, Evidence, and Growth (UNHCR, 2019b, p. 30). We selected Refugee Education 2030 as the key reference document for this policy coherence study for two reasons. First, UNHCR’s holds a central position in refugee education due to its longstanding global mandate to protect the rights of refugees (UNHCR, 2013), including the right to education. The latter is recognized as a fundamental right in the 1951 Convention Relating to the Status of Refugees (UNHCR, 1951) that is one of the core policy instruments of international refugee law. As 5 In Refugee Education 2030, a hyperlink is attached to the phrase “social and emotional learning”, which goes to background paper of the Inter-Agency Network for Education in Emergencies (INEE) titled Psychosocial support and social and emotional learning for children and youth in emergency settings (INEE, 2016). Social and emotional learning is defined there as “a process of acquiring core competencies to recognize and manage emotions, set and achieve goals, appreciate the perspectives of others, establish and maintain positive relationships, make responsible decisions, and handle interpersonal situations constructively” (p. 10). This learning aims to foster the development of five interrelated sets of competencies: self-awareness, self-management social awareness, relationship skills, and responsible decision-making (p. 10). Education Policy Analysis Archives Vol. 30 No. 39 6 UNHCR’s exercise of its mandate presupposes commitments from and cooperation with states, other international agencies, and non-governmental organizations (UNHCR, 2013), it has been establishing global refugee education policy, coordinating with governments around national refugee education policy development and implementation, and collaborating with organizations involved in refugee education since the 1960s (Dryden-Peterson, 2016a). Recent years have seen increased involvement of numerous international and multilateral organizations in refugee education. The positioning of these actors with respect to refugee education is ongoing, and UNHCR continues to feature centrally. Collaboration and coordination with UNHCR is a common feature of the diverse initiatives undertaken by the numerous other global institutions involved in refugee education policy, finance, and praxis (i.e., UNICEF, UNESCO, the World Bank, Education Cannot Wait [ECW], the Organisation for Economic Co-operation and Development [OECD], and the Global Partnership for Education) (see ECW, 2019; Hanafi et al., 2021; OECD, 2020; UNHCR & UNICEF, 2020; UNESCO, 2020; UNHCR & GPE, 2016). Second, from a normative standpoint, the refugee education policies of UN member states should be coherent with Refugee Education 2030 because this strategy is inscribed within the 2030 Agenda for Sustainable Development adopted by all 193 UN member states (UN, 2015; UNHCR, 2019b), including Canada (Government of Canada, 2021a).6 We selected Expected Result 1 of Strategic Objective 2 of Refugee Education 2030 as the specific reference point because it articulates the core goal of education, which is for children and youth to learn and succeed.7 Our study is thus concerned with the vertical policy coherence between UNHCR’s international refugee education as a key policy reference framework and the assessment of refugee education policy designs enacted in Canada as a UN member state. We selected Canada because 20% of all refugees resettled globally between 2010 and 2020 were received by Canada (UNHCR, 2020). For constitutional reasons, Canada does not have a centralized, national system of education or a federal department of education. Rather, Canada’s 10 provinces and three territories have the responsibility for education, and each has its own ministry that establishes policies for primary and secondary education (Council of Ministers of Education, Canada, 2020). As each of Canada’s 13 educational jurisdictions has its own education policy set, we define vertical coherence with Refugee Education 2030 as the coherence of sets of Canadian refugee education policies that if properly designed, can potentially achieve larger goals of the Enabling Activities of Expected Result 1 of Strategic Objective 2 and the Strategic Approaches of Refugee Education 2030. Theoretical Framework We begin by situating this study within the fields of educational policy analysis and political science. Policy coherence has been studied in the field of educational policy analysis, where at least three perspectives exist. Some researchers have viewed coherence as a problem of policy design by top government officials—mainly district central offices and state and federal agencies—with such studies typically looking at the external, top-down alignment into schools (e.g., Fuhrman,1993). Other researchers have taken a bottom-up approach to finding solutions within schools and 6 Sustainable Development Goal 4 (SDG4) of the 2030 Agenda is for free primary and secondary education for all (UNGA, 2015). By virtue of the Incheon Declaration for the Implementation of SDG4 (UNESCO, 2016), refugee children and youth are included among the “all boys and girls”, “all youth”, and “all men and women” targeted by SDG4 (UNGA, 2015, p. 17). Canada is legally obligated to provide education to refugee children and youth: It acceded to both the 1951 Refugee Convention and its Additional Protocol in 1967 and ratified the Convention on the Rights of the Child in 1991 (Government of Canada, 2017). 7 The Enabling Activities of Refugee Education 2030 align with all the education-related aims of the Global Compact on Refugees (UNHCR, 2019b). The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 7 engaging school leaders in setting their own goals and improvement strategies that fit local contexts (e.g., Honig & Hatch, 2004). Still others have focused on the internal coherence of curriculum policy documents as a technical problem of aligning standards, curricula, and assessments (e.g., Bateman et al., 2007). In the present study, we chose to integrate the literature from political science to look at policy coherence as a “process where policy makers design a set of policies in a way that, if properly implemented, they can potentially achieve a larger goal” (Cejudo & Michel, 2017, p.750). This view encourages a focus on how each educational policy is part of an existing set that constitutes a whole. Thus, using specific criteria and a systematic methodology outlined below, we analyze and assess the overall coherence of sets of provincial and territorial policies in Canada that seek to support, coordinate and achieve the full integration of SwRP and SsRP using the global strategy Refugee Education 2030 as the key policy reference. We chose the latter based on some authors’ claims of the absence of overarching policy frameworks for refugee education in traditional resettlement countries resulting in fragmented education policies and activities (Brewer, 2018; Christie & Sidhu, 2006; Matthews, 2008; Miller et al., 2018). This choice allowed us to compare and assess the connectedness and associations of ideas promoted by the international governing body with existing sets of policy designs in Canada. Our theoretical framework is summarized in Figure 1. It combines concepts about policy coherence to assess the vertical coherence8 of the of policy sets in Canadian provinces and territories9 relative to Expected Result 1 of Strategic Objective 2 of Refugee Education 2030, considering the related Enabling Activities and Strategic Approaches and five categories of need inherent in the UNHCR strategy. Specifically, we draw on Cejudo and Michel’s (2017) policy coherence framework, which conceives the coherence of policies within a domain (e.g., refugee education) as a function of 1) coherence among policies’ objectives; 2) coherence among policies’ targeted populations; and 3) coherence among policies’ instruments. Cejude and Michel define these three elements as 1) “the consistency between the individual objectives of the policies that coexist within the same policy domain” (p. 755), 2) “the sum of all the people targeted includes the entire policy domain’s target population” (p. 755), 3) “the way [policies] are designed, to solve the same public problem with different tools” (p.755). Our definition of policy coherence incorporates these three elements. We also integrate Desimone’s (2002) and Porter’s (1994) work on policy attributes. These authors observed that successful policy implementation depends on the interactions of interrelated attributes of policies, of which we concentrate on consistency and specificity. Consistency designates the extent to which various policies contradict or reinforce each other (Desimone, 2002; Porter, 1994), with the latter scenario allowing for greater coherence. Specificity refers to “how extensive and detailed a policy is” (Desimone, 2002, p. 438). 8 Vertical policy coherence is one of four types identified by Carbone (2009). The others are donor-recipient, multilateral, and horizontal coherence. Although “vertical” typically refers to coherence of policies at different levels of government within a country (Steiner-Khamsi, 2012), we extend the definition to the level of global governance, with the UN at its pinnacle. 9 For brevity, we use the official English acronyms for each of the jurisdictions (Statistics Canada, 2018), namely Alberta (AB), British Columbia (BC), Manitoba (MB), Newfoundland and Labrador (NL), New Brunswick (NB), Northwest Territories (NT), Nova Scotia (NS), Nunavut (NV), Ontario (ON), Prince Edward Island (PE), Quebec (QC), Saskatchewan (SK), Yukon (YK). Education Policy Analysis Archives Vol. 30 No. 39 8 Figure 1 Theoretical Frameworks Defining Policy Coherence and Attributes across Five Categories of Need Inherent in Refugee Education 2030 Consequently, the first element, coherence among objectives, refers to the consistency between the specific objectives of individual policies coexisting in each jurisdiction with the overall objectives of the policy, with the latter referenced to Refugee Education 2030.10 The second element, coherence among targeted populations, is understood as the consistency of the specific populations targeted by all the policies coexisting in each jurisdiction, referenced to the populations targeted by Refugee Education 2030: those who benefit, those who implement, and those who partner.11 The third element, coherence among instruments, is defined as the consistency of the use of capacity building and learning instruments in the individual policies coexisting in each jurisdiction, again referenced to Refugee Education 2030. Policy instruments are techniques governments use to prompt targeted implementation agents to act in ways consistent with a policy objective, and policies must use different yet complementary instruments to motivate and enable heterogeneous individuals in different situations to take a range of actions to address the same objective (Schneider & Ingram, 10 In each Canadian educational jurisdiction, policies that had objectives of responding to one category of need of refugee students were aggregated. Coherence among objectives is therefore primarily concerned with the consistency of the aggregation of objectives of the policies with the relevant area of need. 11 In Refugee Education 2030, the targeted benefiting populations are refugee and refugee claimant children and youth of primary and secondary school age (UNHCR, 2019b, p. 7). The targeted implementation agents are government agents, such as teachers, administrators, and support personnel (UNHCR, 2019b, p. 33). The targeted partners include organizational partners (UNHCR, 2019b, p. 33) and partners from “a whole of society” perspective (UNHCR, 2019b, p. 15). Organizational partners may include intergovernmental, international non-governmental, civil society, private sector, and/or academic organizations (UNHCR, 2019b, p. 33-37). We interpreted partners from “a whole of society” perspective (UNHCR, 2019b, p. 15) as being educational stakeholders such as students, parents/guardians, families, and community members. Coherence among objectives consistency between specific objectives of all individual policies coexisting in each jurisdiction with o erall policy goals Coherence among targeted populations consistency of specific populations targeted by all individual policies coexisting in each jurisdiction with o erall targeted populations Coherence among instruments consistency of the use capacity building and learning instruments in all individual policies coexisting in each jurisdiction Access to education Accelerated education anguage education Mental health psychosocial support Special education o i y o eren e ategories o Need The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 9 1990).12 In this study, policy instruments are defined as the capacity building (i.e., provision of information, training, education, resources) and learning (i.e., open-ended derivation of approaches and activities, evaluation) instruments because they are at the heart of the strategic objective of Refugee Education 2030 that serves as the touchstone for this study (i.e., Strategic Objective 2). They encourage targeted implementation agents to devise approaches and undertake activities towards an objective, and to evaluate progress towards the objective.13 Methodology This study sought to answer: To what extent are Canadian provincial and territorial education policies coherent with the Enabling Activities for Expected Result 1 of Strategic Objective 2 and the Strategic Approaches in Refugee Education 2030? This question built on findings from a prior study that triangulated the five categories of need indicated in the UNHCR document with empirical studies (see Table 2) and confirmed the presence of these needs in the Canadian context (Schutte, 2020). That prior study also highlighted unique characteristics based on the distinction between children and youth seeking refugee protection (RP) in Canada and those granted RP before arriving, and on the population distribution in Canada of children and youth seeking RP and with RP (see Appendix 1), including that most reside in five provinces (AB, BC, MB, ON, QC; Schutte, 2020).14 The present study proceeded in two steps: first by conducting jurisdiction-based scoping reviews of policies in Canada’s 13 provinces and territories; then by analyzing the sample of policies for their vertical coherence with Refugee Education 2030, focusing on policies addressing the five categories of needs. Step 1: Jurisdiction-Based Scoping Reviews of Policies To identify relevant policy documents, we conducted jurisdiction-based scoping reviews of policies (Hare et al., 2016) based on the PRISMA-ScR checklist and explanation (Tricco et al., 2018) using the websites of provincial and territorial governments. Based on our review of existing scholarship on policy coherence, a systematic approach using PRISMA-ScR had not previously been used. We needed to create and follow our own strategy (see Appendix 2). We performed English and French language searches in March 2020. We also identified additional documents through external websites linked to government webpages and from an appendix of a grey literature review (Ratković 12 Schneider and Ingram (1990) identified five types of policy instruments: authority (i.e., permission, prohibition, or mandatory action), incentives (i.e., inducements, charges, sanctions, force), symbolic and hortatory gestures (i.e., pronouncements, rationales, labeling), capacity building (i.e., information, training, education, resources), and learning (i.e., open-ended derivation of approaches and activities, evaluation). 13 There is a balance to be struck in the application of the combined concepts in our theoretical framework in addressing five categories of need and focusing on the independence or intersectionality of the individual policies comprising each jurisdiction’s set of policies. For example, policies with respect to special education may need to consider the proficiency in the language of instruction of SwRP and SsRP who have special needs—that is, some SwRP and SsRP with special needs may be proficient in the language of instruction while others may need to learn the language and may thus be further disadvantaged. 14 This prior study was based on publicly available statistics about refugee claimants14 and refugees in Canada from January 2015 to March 2020. Datasets on refugee claimants were sourced from Open Government and from the website of the Immigration and Refugee Board of Canada [IRB] (IRB, 2020a). These datasets were used in combination with datasets published by global governance institutions, including UN agencies and the World Bank. Where statistical data were not available for a category of needs, empirical studies were sourced and analyzed (see Schutte, 2020, p. 10). Education Policy Analysis Archives Vol. 30 No. 39 10 et al., 2017). We also assessed for inclusion the Education Act or Schools Act of each province and territory. Our scoping review revealed that Canada’s refugee education policies comprised 155 policy documents as of March 2020. Of these documents, 117 were in English and 38 were in French, and they came from 11 jurisdictions, with the remaining 2 jurisdictions (NU, YK) lacking any documents (see Appendix 3). As a result of this latter review, our subsequent analyses of the documents often refer to 11 rather than 13 jurisdictions because of the absence of policies in two territories. Table 2 Categories of Needs of Refugee Children and Youth in Educational Contexts corresponding to the Enabling Activities of Expected Result 1 of Strategic Objective 2 of Refugee Education 2030 and Triangulating Sources from the Empirical Knowledge Base Enabling Activity Category of Need Sources Confirming Category of Need Children and youth receive any supports required to enable their access to the education system Access to education Al-Hroub (2014); Bilagher & Kaushik (2020); Crea (2016); Dryden-Peterson (2016b); Dryden-Peterson & Reddick (2017); Gladwell (2019); Graham et al. (2016); Mace et al. (2014); Potochnik (2018); Schneider (2018); Stark et al. (2015) Children and youth are supported to make up for missed schooling in preparation for entering formal education at age-appropriate levels Accelerated education Bilagher & Kaushik (2020); Dryden- Peterson (2016b); Due, Riggs, & Mandara (2015); Mace et al. (2014); Morrice et al. (2020); Potochnik (2018) Children and youth are provided with adequate language training where necessary Language education Al-Hroub (2014); Bilagher & Kaushik (2020); Dryden-Peterson (2016b); Dryden- Peterson & Reddick (2017); Due, Riggs, & Mandara (2015); Graham et al. (2016); Mace et al. (2014); Miller et al. (2018); Morrice et al. (2020); Potochnik (2018) Children and youth will be provided with conditions that foster social and emotional learning (SEL), and where needed, receive mental health and psychosocial support Mental health and psychosocial support Al-Hroub (2014); Beiser & Hou (2016); Ellis et al. (2013) Fazel et al. (2012); Fazel et al. (2016); Hodes & Vostania (2019); Mace et al. (2014); Pieloch et al. (2016); Stark et al. (2015) Teachers…have been adequately prepared to include refugee children…with diverse learning requirements, including children and youth with disabilities Special education Al-Hroub (2014); Graham et al. (2016); Gladwell (2019); Hodes & Vostania (2019); Mace et al. (2014) Note. All quotes for Enabling Activities column taken from UNHCR (2019b, p. 43). Figure 215 presents the results of this search process, which yielded a final sample of 155 policy documents (see Appendix 3) based on the systematic application of inclusion and exclusion criteria (see Appendix 4). 15 Figure 2 is based on PRISMA-based flow diagram (Moher et al., 2009). The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 11 Figure 2 PRISMA-Based Flow Diagram of the Jurisdiction-Based Scoping Review of Policies 2. Policy Coherence Analysis of the Sample Data Charting The content of each of the 155 eligible policy documents was charted using a data abstraction instrument (DAT; see Appendix 5). The first section of the DAT was used to record the characteristics of the policy document (i.e., jurisdiction, date of publication, date of effect, type of policy document) and to summarize its contents. The second section was used to record data about the policy objectives that pertained to each of the five categories of need (i.e., access to education, accelerated education, language education, mental health and psychosocial support, and special education), the targeted populations, and the instrument(s) associated with each objective. Each objective and its corresponding targeted populations and instrument(s) were grouped as one policy data item unit, as conceptualized in Figure 3. The final section of the DAT was used to record considerations relating to the intersectionality of objectives because a single policy document could include multiple objectives pertaining to different categories of needs. We used NVIVOTM data analysis software to code all the policy data items in each DAT and produced a master codebook (see Appendix 6) that could be disaggregated into codebooks by jurisdiction as required. We then extracted all policy data item units in each jurisdiction and sorted them in a series of policy analysis matrices that addressed each of the elements of policy coherence —i.e., matrix 1 brought together data on policy objectives, matrices 2, 3 and 4 on targeted populations, and matrix 5 on instruments, again conceptualized in Figure 3. Each series of matrices addressed one of the five categories of need, such that each jurisdiction’s data was sorted into five completed series. Education Policy Analysis Archives Vol. 30 No. 39 12 Figure 3 Conceptualization of a Policy Data Item Unit Linked to Matrices Used to Record and Analyze Data for Each Item for Each Policy in Each Educational Jurisdiction Analysis of the Policy Coherence Among Objectives We used matrix 1 to organize data on objectives from each jurisdiction’s refugee education policies based on each of the five categories of need, and then analyzed for coherence in term of consistency between specific objectives of individual policies that coexist within the same category of need and the overall objective related to that category of need drawn from the relevant Enabling Activity from Refugee Education 2030. An objective was categorized in the DAT as “high-level” if it was a main objective in a policy document or as “low-level” if it was secondary.16 We assigned “not applicable” when documents did not have any objectives pertaining to a category of need. When “not applicable” was assigned to a category of need for all documents in a jurisdiction, we determined that to signify a “policy gap” (i.e., an absence of policy objectives for addressing that need). When documents from a jurisdiction had high- and/or low-level objectives with respect to a category of need, we analyzed these to assess their consistency (as the measure of coherence) or lack thereof (as the measure of incoherence) with the overall objective related to that category of need. We used a policy coherence rubric to make these assessments (see Appendix 7). Analysis of the Policy Coherence Among Populations We used three matrices to analyze coherence among the three populations identified in Refugee Education 2030: those who benefit, those who implement, and those who partner (see Figure 3). 16 For example, a language education policy with a subsection on promoting the mental health of language learners would have objectives pertaining to language education as high-level objectives, while objectives pertaining to mental health and psychosocial support were deemed low-level. Objectives Target populations nstrument s eneficiaries mplementers Partners Matrix 1 Categories of objectives High level ow level Absent Matrix 3 Categories of implementation agents Government Non government Matrix 1 Categories of instruments Capacity tools earningtools Matrix 4 Categories of partners Organizational Whole of society Matrix 2 Categories of benefiting populations Refugee focused Refugee relevant Refugee mentioning The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 13 Refugee Education 2030 describes the targeted benefiting population to be children of primary and secondary school age with or seeking RP “regardless of legal status, gender or disability” (UNHCR, 2019b, p. 43). With this definition in mind, we used matrix 2 to record and analyze data on the benefiting populations articulated in individual policies. To facilitate analyses of the specificity by which SwSR and SsRP are targeted as beneficiaries, we incorporated three categories into the matrix “refugee-focused”, “refugee-relevant”, and “refugee-mentioning”.17 Refugee-focused policies are those in which SwRP and/or SsRP are the targeted benefiting population.18 Refugee-relevant policies are those in which such students are not the primary benefiting population but are named as a cohort of a broader targeted population. Refugee-mentioning policies are those in which the term “refugee” appears, but not in the context of explicitly identifying SwRP and SsRP to be the targeted population. When inputting a benefiting population in the matrix, specified characteristics were recorded. Here, age, gender, and ability were used to analyze consistency with Refugee Education 2030, and other specified characteristics (e.g., countries of origin, refugee pathway, immigration category, etc.) were used to analyze the inclusivity of policies with respect to all SwRP and SsRP or their exclusivity to specific cohorts. We used matrix 3 to record and analyze data about targeted implementation agents. Here we categorized implementing populations as “government agents” and as “not government agents”. Matrix 4 was used to record and analyze data with respect to partnering populations. We sourced two categories of targeted partners from Refugee Education 2030: “organizational partners” and “partners from a whole of society approach”. The former was to include intergovernmental organizations, international non-governmental organizations, civil society organizations, private sector organizations and foundations, and academic networks (UNHCR, 2019b, p. 34-37) and the latter included individual stakeholders from Canadian civil society, such as student, parents, guardians, families, and communities (UNHCR, 2019b, p. 14). Once these data were organized in matrices, we used a policy coherence rubric (see Appendix 7) to assess the coherence, incoherence, and gaps in policies with respect to targeted populations in each jurisdiction. Analysis of the Policy Coherence Among Instruments A fifth matrix and rubric (see Appendix 7) were used to analyze the coherence of instruments addressing each category of need with the Strategic Approaches of Collaborative Learning and Capacity Development and Innovation, Evidence, and Growth in Refugee Education 2030. 17 The first category is based on the findings of empirical studies in traditional resettlement countries, including Canada, that show there is a lack of policies specifically dedicated to refugee students (Christie & Sidhu, 2006; Kanu, 2008; MacNevin, 2012; Shakya et al., 2010; Yau, 1996). The second category is based on the empirical finding that refugee students are often conflated with immigrant students, racialized students, language learners, and other cohorts in research and policy (Brewer, 2016; Miller et al., 2018; Shakya et al., 2010) and on Refugee Education 2030 advancing that governments can establish “explicit policy on inclusion of refugees, stateless and other displaced people in national systems” (UNHCR, 2019b, p. 33). The final category was created in response to our reading of education policy documents in which the term “refugee” appeared but in which refugees were not an explicitly targeted population. 18 This category also included children with shared or similar characteristics to refugees (e.g., immigrants from countries where armed conflicts are taking place or immigrants who were a persecuted minority in another country but immigrated to Canada without seeking asylum or claiming refugee status). Education Policy Analysis Archives Vol. 30 No. 39 14 Synt esis o t e o eren e o anada’s Re ugee Edu ation o i y Sets The data organized in the preceding matrices for all jurisdictions were compiled into a single synthesis matrix (see Table 4). This provided for an assessment of the overall coherence of the refugee education policy sets of all provinces and territories based on the aggregation of data for each jurisdiction with respect to the five categories of need, the three main elements of policy coherence (i.e., objectives, populations, instruments), and the coherence level of the combined policies (i.e., their coherence, incoherence, and absences). Table 4 Number of Canadian Educational Jurisdictions Without or With Refugee Education Policies, and Their Level of Coherence with Refugee Education 2030 by Category of Need and Element of Policy Coherence Coherence Level Coherence among Objectives Coherence among Populations Coherence among Instruments Benefiting Implementing Partnering Capacity Learning Org. WoS Category of Need: Access to Education Provide supports to enable access to the education system Coherent 9 5 8 7 9 6 1 Incoherent 4 1 2 3 Absent 4 4 4 6 4 5 9 Category of Need: Accelerated Education: Provide support to make up for missed schooling Coherent 5 2 9 3 9 7 1 Incoherent 4 7 1 2 Absent 4 4 4 10 4 5 9 Category of Need: Language Education: Provide adequate language training where necessary Coherent 8 3 8 6 5 7 6 Incoherent 5 2 1 Absent 5 5 5 7 6 6 6 Category of Need: Mental health and Psychosocial Support: Foster social and emotional learning Coherent 11 3 11 11 10 11 10 Incoherent 6 1 1 Absent 2 4 2 2 2 2 2 Sensitize the school community to refugeehood Coherent 7 2 9 9 8 5 7 Incoherent 2 1 1 Absent 4 10 4 4 4 8 6 Provide mental health and psychosocial support Coherent 7 4 7 7 7 4 Incoherent 3 2 6 Absent 6 6 6 6 6 7 8 The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 15 Coherence Level Coherence among Objectives Coherence among Populations Coherence among Instruments Benefiting Implementing Partnering Capacity Learning Org. WoS Category of Need: Special Education Include refugee children and learners with diverse learning requirements, including children and youth with disabilities Coherent 9 3 9 9 9 9 9 Incoherent 6 Absent 4 4 4 4 4 4 4 Note. Org. = organizational partners; WoS = partners from a whole of society perspective. We deemed policies addressing a category of need to be coherent with Refugee Education 2030 for each element of policy coherence when they met all the criteria in the theoretical framework for that element. Policies were assessed as incoherent when: a) they did not fulfill the criteria in the theoretical framework for an element of policy coherence (e.g., the targeted benefiting population of the policies explicitly includes SwRP but not SsRP); b) they contradicted criteria in the theoretical framework for an element of policy coherence (e.g., the targeted benefiting population excludes SsRP); or c) they obstructed coherence with criteria in the theoretical framework with respect to a different element of policy coherence (e.g., capacity instruments, if implemented, would prevent certain SwRP and SsRP from being included in the targeted benefiting population). Where no relevant policies were identified, the coherence level was classified as absent, denoting a clear policy gap. Our use of this synthesis matrix occurred in two steps. We inputted the official English alpha codes of the provinces and territories to indicate that we assessed their policies to be coherent, incoherent, or absent with respect to each element of policy coherence. Once we had classified all 13 jurisdictions, we replaced the alpha codes by the sum of the number of jurisdictions they represented. This then indicated the number of jurisdictions with coherent, incoherent, or absent refugee education policies. Consequently, the sum for each element of coherence related to each category of need is 13. Findings The Canadian refugee education policy sets address the five of the categories of needs of SwRP and SsRP derived from Refugee Education 2030, but the vertical coherence of policies with UNHCR varies across the 11 educational jurisdictions in Canada that have policies as per our sample (see Table 5). In what follows, we describe the extent to which Canadian educational jurisdictions respond to the five categories of needs through policies coherent with Refugee Education 2030. Access to Education Refugee Education 2030 states SwRP and SsRP are to “receive any supports required to enable their access to the education system, including assistive technology and accessible learning materials” (UNHCR, 2019b, p. 43).19 Such policy objectives are absent in four of Canada’s educational jurisdictions (NB, NS, NU, YK), marking a significant policy gap. Nine jurisdictions have refugee education policies with objectives of enabling access to public primary and secondary education 19 This statement is from Enabling Activity 4 for realizing Expected Result 1 of Strategic Objective 2 in Refugee Education 2030. Education Policy Analysis Archives Vol. 30 No. 39 16 systems (AB, BC, MB, NL, NT, ON, PE, QC, SK). All nine have objectives of providing accessible learning materials, but only three also have objectives of enabling access through the provision of assistive technologies (AB, ON, SK). We thus deemed these three to be coherent with UNHCR objectives in this category of need and determined the other six jurisdictions to be incoherent because they did not mention or prescribe the use of assistive technologies. Of the nine jurisdictions with objectives of enabling access, we deemed the targeted benefiting populations of six to be coherent with those of Refugee Education 2030 (AB, BC, MB, NT, ON, SK; see Table 4). Policies in ON seemed exemplary in their coherence with the targeted population of Refugee Education 2030 because they addressed the important clause about access “regardless of legal status, gender, or disability” (UNHCR, 2019b, p. 43). n addition to guaranteeing access to children who themselves or whose legal guardian(s) have or are seeking refugee protection, in ON, access is guaranteed to minors who themselves or whose legal guardian(s) are in Canada unlawfully. We deemed the policies about access in three jurisdictions (NL, PE, QC) to be incoherent with Refugee Education 2030 with respect to targeted benefiting populations because they do not fulfill all the criteria: NL guarantees access only to government-assisted refugees as permanent residents; PE guarantees access only to SwRP, not SsRP; and QC guarantees access only to minors whose legal guardians have RS, not to minors who themselves have or are seeking RS.20 Eight of the nine jurisdictions with refugee education policies pertaining to education access have targeted implementation agents that we deemed coherent with Refugee Education 2030 (AB, BC, MB, NL, NT, ON, QC, SK). The targeted implementation agent in the ninth jurisdiction (PE) was deemed incoherent because parents and guardians are targeted for policy implementation, but government agents are not. Seven of these nine jurisdictions were assessed to be coherent in terms of targeted partners (BC, MB, NL, ON, PE, QC, SK), while we considered two incoherent because their policies targeted stakeholders but not organizational partners (AB, NT). Of the nine jurisdictions with access policies, six have capacity instruments in this category of need that we judged to be coherent with the Strategic Approach of Collaborative Learning and Capacity Development in Refugee Education 2030 (AB, BC, MB, NL, ON, SK). We deemed as incoherent the capacity instruments in policies of two jurisdictions because they did not include instruments for building the capacity of educational professionals (PE, QC), and noted that capacity instruments are absent in the access policies of one jurisdiction (NT). In terms of learning instruments, we concluded that only one of the nine jurisdictions (MB) with access policies was coherent with Refugee Education 2030, and three were incoherent (ON, QC, SK) because they did not require evaluations of progress towards objectives and that would be needed to support the evidenced-based innovation sought by the Strategic Approach of Innovation, Evidence, and Growth in Refugee Education 2030. Learning instruments were absent in all the other jurisdictions. Accelerated Education Refugee Education 2030 states SwRP and SsRP are to be “supported to make up for missed schooling” (UNHCR, 2019b, p. 43).21 Nine of Canada’s 13 educational jurisdictions have objectives of responding to SwRP and SsRP with interrupted formal education. Of these nine, we considered the objectives of five to be coherent and four incoherent with Refugee Education 2030 in this category of need. Of the five jurisdictions with coherent objectives, two have the objective of responding to 20 Policies in AB and SK guarantee access only to refugee claimant minors who have submitted the refugee claim in the previous year. 21 This statement is from Enabling Activity 1 for realizing Expected Result 1 of Strategic Objective 2 in Refugee Education 2030. The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 17 the needs of students with missed schooling through the provision of regular educational programming with additional supports (AB, BC) and three aim to do so through the provision of accelerated education programs (AEPs; MB, NL, ON). The four jurisdictions with objectives deemed incoherent with Refugee Education 2030 have policies that aim to provide regular educational programming to students with no, limited, or interrupted formal education and do not have objectives for accelerating learning or making adaptations or accommodations specific to those with missed formal schooling (QC, SK, PE, NS). The targeted benefiting populations of this category of need were assessed as coherent with Refugee Education 2030 only in two jurisdictions (BC, MB). Those in the seven other jurisdictions with accelerated education policies were deemed incoherent because they do not include SsRP. Of these seven, three jurisdictions (N , ON, QC) use the term “refugee camp” to implicitly target SwRP with limited or interrupted formal education. This was an additional reason for determining these policies to be incoherent with Refugee Education 2030 because it excludes many SwRP and SsRP who have not been in camps. We deemed policies in one of these jurisdictions (NL) to be additionally incoherent because it exclusively targets a specific group of SwRP (i.e., those resettled through the government- sponsorship pathway). All nine of the jurisdictions with refugee education policies pertaining to accelerated education have government actors as targeted implementation agents, which is coherent with Refugee Education 2030. We deemed three of Canada’s nine jurisdictions with policies in this category of need to be coherent with Refugee Education 2030’s Strategic Approach of Partnership because they target both organizations and educational stakeholders as partners (MB, NL, ON). The remaining six jurisdictions were assessed as incoherent because they do not target organizational partners (AB, BC, NS, PE, QC, SK). Eight of the nine jurisdictions with refugee education policies addressing accelerated education have capacity instruments for responding to missed education (AB, BC, MB, NL, ON, NS, PE, QC). Seven of these were deemed coherent with Refugee Education 2030 because they had one or more capacity instruments pertaining to the provision of supports to students with missed schooling. One jurisdiction (QC) has a capacity instrument that could be used to identify students with missed schooling but not to support such students in catching up. As a result, this jurisdiction’s policies were deemed incoherent in this category. Only three jurisdictions have learning instruments in policies related to accelerated education. Of these, we deemed the learning instruments in only one jurisdiction (MB) to be coherent with Refugee Education 2030 because that province’s policy requires that AEPs be developed with the input of all key stakeholders and that organizational partners be involved in program development and implementation. The learning instruments in the other two other jurisdictions (ON, BC) were deemed incoherent because they do not encourage evaluations of progress towards objectives, a component of Refugee Education 2030. Language Education Refugee Education 2030 states that SwRP and SsRP are to be “provided with adequate language training where necessary” (UNHCR, 2019b, p. 43).22 Eight of Canada’s 13 educational jurisdictions (AB, BC, MB, NL, ON, PE, QC, SK) have refugee education policy documents with objectives of providing language training in at least one of the official languages of instruction of the jurisdiction, making this element of their policies coherent with the UNHCR direction. Of the eight jurisdictions with language education policies for SwRP and SsRP, we assessed three to be coherent with respect to the targeted benefiting populations identified in Refugee Education 2030 (AB, BC, MB). The targeted benefiting populations in the other five were deemed incoherent 22 This statement if from Enabling Activity 2 for realizing Expected Result 1 of Strategic Objective 2 in Refugee Education 2030. Education Policy Analysis Archives Vol. 30 No. 39 18 because only SwRP, and not SsRP, are targeted (QC) and they are targeted in exclusionary (i.e., only SwRP resettled through the government-sponsorship pathway in NL) and/or implicit ways (ON, PE, SK). Regarding the latter, for example, SwRP and SsRP are implicitly targeted in policies that refer to students who have spent time in refugee camps; however, those policies do not explicitly target SwRP or SsRP.23 While we assessed as coherent with Refugee Education 2030 the targeted implementation agents of refugee education language policies in all eight jurisdictions with such policies because they include government agents (AB, BC, MB, NL, ON, PE, QC, SK), the targeted partners of four were assessed as coherent for targeting both organizations and educational stakeholders (MB, NL, ON, SK). The targeted partners of four other jurisdictions were assessed as incoherent. Policies in one jurisdiction (NB) do not contain any references to partnerships. Those in another (BC) do not address partnerships with organizations. Three jurisdictions (AB, QC, PE) have absences in partnerships from a whole of society perspective (missing references to parents, guardians, and/or families). Six of the eight jurisdictions with policies addressing language education contain capacity instruments for policy implementers to provide training to SwRP and SsRP in the language of instruction. These seven were therefore deemed coherent with Refugee Education 2030 (BC, MB, NL, ON, PE, SK). Of the two jurisdictions deemed to have incoherent policies, one (QC) has instruments building the capacity of administrators to apply for funding for language programs but not the capacity of teachers to teach the language of instruction to SwRP and SsRP, while the other (AB) does not include any capacity instruments related to language learning. Six of the nine jurisdictions with policies for language education have learning instruments that were deemed coherent with UNHCR policy. Learning instruments are absent from the category of language education in one jurisdiction (AB). Learning instruments were deemed incoherent in another (QC) because they do not promote evaluations of progress towards policy objectives. Mental Health and Psychosocial Support Refugee Education 2030 states that SwRP and SsRP are to be “provided with conditions that foster social and emotional learning and, where needed, receive mental health and psychosocial support” (UNHCR, 2019b, p. 43).24 Based on the clauses of this statement, we disaggregated findings into two subcategories: social and emotional learning and mental health support. Another subcategory emerged out of our analysis of findings pertaining social and emotional learning: Community sensitization to refugeehood. We defined this emergent subcategory as the promotion of awareness of refugee experiences and issues within the school community, particularly among students. Our presentation of findings proceeds here via these three subcategories. Social and Emotional learning Eleven of Canada’s 13 educational jurisdictions have refugee education policies with objectives of fostering social and emotional learning (AB, BC, MB, NB, NL, NS, NT, ON, PE, QC, 23 See three language education policy documents in ON (i.e., ON05, ON07, ON14) in which the word “refugee” appears exclusively in the term “refugee camp”. An example from ON05 is “Many newcomer students have arrived in Canada with their families as part of a voluntary, planned immigration process. However, some students have arrived from countries in chaos, have spent time in refugee camps, or have experienced personal trauma caused by natural disaster, political upheaval, or family disruption” (p. 9, italics added). 24 This statement is from Enabling Activity 3 for realizing Expected Result 1 of Strategic Objective 2 in Refugee Education 2030. The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 19 SK). Three of these 11 jurisdictions with such policies have a targeted benefiting population that we deemed coherent with Refugee Education 2030 (AB, MB, QC). We assessed six as incoherent because their policies include SwRP but not SsRP (NL, NS, NT, ON, PE, SK) and/or because their policies focus exclusively on certain SwRP and SsRP (i.e., those who fled from armed conflict in NT; SwRP resettled through the government-sponsorship pathway in NL). SwRP and SsRP are absent from the targeted benefiting populations in the remaining two jurisdictions that have policies with objectives for social and emotional learning (BC, NB). The targeted implementation agents of policies in this category of need were deemed coherent with Refugee Education 2030 in all 11 jurisdictions because government agents are identified. Ten of these jurisdictions have partnering populations that we assessed as coherent with Refugee Education 2030. The policies referencing partnership in one jurisdiction (AB) were deemed incoherent because they are borrowed from a different jurisdiction (MB) and the list of educational stakeholders has not been adapted to the provincial context. All 11 of these jurisdictions also have capacity instruments that we considered coherent with Refugee Education 2030 because they target the capacity of educational professionals to support students’ social and emotional learning. Ten of the 11 jurisdictions have learning instruments that are coherent. The learning instruments of one jurisdiction (QC) were deemed incoherent because no policies pertained to gathering evidence of social and emotional learning, an important feature of this instrument in the UNHCR document. Community Sensitization to Refugeehood Nine of the 11 jurisdictions with objectives of fostering social and emotional learning aim to do so, in part, through sensitization to refugeehood (AB, BC, MB, NB, NS, NT, ON, PE, SK). The objectives of two jurisdictions (NB, NS) were deemed incoherent with Refugee Education 2030 because no policies aim to sensitize students and school staff to contemporary refugee experiences. These policies do not fulfill the criteria because they do not aim to help students who have not sought or had RP provide psychosocial support to their peers with or seeking RP. Three of the nine jurisdictions with policy objectives of sensitizing students to refugeehood through classroom instruction about refugee-related topics include SwRP and/or SsRP as a targeted benefiting population of such instruction (AB, MB, NT). The targeted benefiting populations of two of these jurisdictions (AB, MB) were assessed as coherent with the targeted benefiting population of Refugee Education 2030 because policies target SwRP and SsRP.25 The targeted benefiting population of policies in the third jurisdiction (NT) was deemed incoherent because it is exclusionary (i.e., limited to those who fled armed conflict). SwRP and SsRP are absent from the targeted benefiting populations of the other six jurisdictions (BC, NB, NS, ON, PE, SK). The targeted implementation agents of policies towards community sensitization were assessed as coherent with Refugee Education 2030 in all nine jurisdictions with such policies because they include government agents. Eight of these jurisdictions also have targeted partners deemed coherent for including organizations and educational stakeholders. Policies pertaining to partnership in one jurisdiction (AB) were deemed incoherent because the sole policy pertaining to partnerships is borrowed from another jurisdiction (MB) and the policy is specific to educational stakeholders in that other jurisdiction. Five of the nine jurisdictions with policies about community sensitization to refugeehood have capacity instruments that we assessed as coherent with Refugee Education 2030 because they build the capacity of government agents (AB, BC, MB, PE, SK). Such instruments are absent from 25 One policy in each category of need acknowledges that children and youth who have personally had refugee experiences, or whose family members have had such experiences, may be in the classroom. It is the same policy in both jurisdictions: The educational authority of AB borrowed the policy document from the educational authority of MB. Education Policy Analysis Archives Vol. 30 No. 39 20 the other four jurisdictions (NB, NS, NT, ON). While seven of the nine jurisdictions with policies addressing this subcategory of need have learning instruments that we considered coherent because those instruments recommend or require assessments of student learning about refugeehood (AB, MB, NB, NT, ON, PE, SK), there are no learning instruments in policies about community sensitization in the two remaining jurisdictions (BC, NS). Mental Health and Psychosocial Support Seven of Canada’s 13 educational jurisdictions have refugee education policy documents with objectives of providing mental health and psychosocial support, and we assessed all of them to be coherent with Refugee Education 2030. At a more granular level, these seven jurisdictions have objectives of providing acculturation supports (AB, BC, MB, NL, ON, QC, SK), while five of them have objectives for providing school- and classroom-based trauma-related supports (AB, BC, MB, NL, ON) and five have aims of identifying and referring students requiring greater support to specialized mental health services (BC, MB, NL, ON, SK). The targeted benefiting populations of policies pertaining to the provision of mental health and psychosocial supports of four of the seven jurisdictions with such refugee education policies were assessed as coherent with Refugee Education 2030 (AB, BC, MB, QC). Policies in these jurisdictions include SwRP and SsRP requiring mental health supports. The targeted benefiting populations of the remaining three jurisdictions we considered incoherent because SwRP are included but SsRP are not (NL, ON, SK). The targeted implementing and partnering populations in all seven jurisdictions with policies addressing mental health and psychosocial supports were assessed as coherent with Refugee Education 2030 because government agents are targeted as implementers and educational stakeholders and organizations as partners. The capacity instruments in four of the seven jurisdictions with policies addressing this subcategory of need were assessed as coherent because they aim to support government agents in providing mental health and psychosocial supports (AB, BC, MB, SK). The capacity instruments in another two jurisdictions (NL, ON) were deemed incoherent because their use could result disparities in the targeted benefiting population, specifically among SwRP and SsRP who experience trauma- and stressor-related mental health concerns.26 The learning instruments with respect to mental health in six of the jurisdictions were determined to be incoherent with UNHCR policy because they do not recommend or require formal evaluations of progress towards the desired objectives. Learning instruments in this category of need were absent from the seventh jurisdiction (BC). Special Education Refugee Education 2030 states that SwRP and SsRP should be “taught by teachers who have been adequately prepared to include refugee children and learners with diverse learning 26 Capacity instruments for identifying students with mental health needs in NL and ON are based on the fourth revision of the American Psychiatric Association’s (APA) Diagnostic and Statistical Manual of Mental Disorders (DSM-IV) and not the current version of the DSM, the fifth revision (DSM-V; APA, 2013). Significant changes were made to the diagnostic criteria from the DSM-IV to the DSM-V that are relevant to the identification of, and provision of services for, mental disorders of high prevalence in children and youth with refugee experiences “the relocation of PTSD from the category of anxiety disorders to a new diagnostic category called ‘trauma- and stressor-related disorders’”, “the explication and tightening of the definitions of trauma and exposure to it”, and the addition of criteria for diagnosing trauma- and stressor-related disorders in children six years of age or younger that reflect their levels of development (Pai et al., 2017, p. 1). The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 21 requirements, including children and youth with disabilities” (UNHCR, 2019b, p. 43).27 In Canada in the last two decades, there has been a movement away from labelling certain students as “disabled” or “with disabilities” and then placing students thus labelled into separate classrooms or schools. Instead, the language of diverse needs and differentiated responses to those needs in an integrated classroom setting is becoming more commonplace. This trend was reflected in nine of Canada’s 13 educational jurisdictions having policies with objectives of including SwRP and SsRP with diverse learning requirements and/or differentiating education in response to their diverse learning requirements (BC, MB, NL, NS, NT, ON, PE, QC, SK).28 Such policies were absent in four jurisdictions (AB, NB, NU, YK). The targeted benefiting populations of three jurisdictions with such policies were assessed as coherent with Refugee Education 2030 because they included SwRP and SsRP with diverse learning requirements (BC, MB, QC). The policies of the other six jurisdictions with policies were deemed incoherent because they exclusively targeted SwRP, but not SsRP (NL, NS, NT, ON, PE, SK). While all nine of these jurisdictions have at least one policy targeting SwRP and/or SsRP with diverse learning requirements, most of these policies have a targeted benefiting population that includes SwRP and/or SsRP as one subgroup and students with diverse learning requirements as another subgroup, and do not make the potential intersectionality of these two subgroups explicit. Only two jurisdictions (ON, MB) have policies that target SwRP and/or SsRP with disabilities; however, the objectives of these policies pertain to the provision of mental health and psychosocial supports rather than special education. There are therefore no policies in Canada that pertain explicitly to the provision of special education services to SwRP and SsRP with disabilities. The targeted implementation agents of the special education policies in all nine jurisdictions with such policies were assessed as coherent with Refugee Education 2030 because they include government agents. Only one jurisdiction (ON) has policies that target partnerships for the express purpose of responding to SwRP and SsRP with diverse learning requirements, including disabilities; yet we deemed these policies about partnership incoherent with Refugee Education 2030 because they were limited to responding to mental health needs during the Syrian refugee resettlement initiative of 2015 and 2016. All nine of the jurisdictions with policies in this category of need had capacity and learning instruments deemed coherent with Refugee Education 2030 because the former promote strategies and resources for differentiating teaching, learning, and assessment, and the latter encourage evidence- based responses. Balancing the Independence and Intersectionality of Objectives As mentioned at the outset of this findings section, two Canadian jurisdictions have no specific policies for refugee education. The 11 others that do have policies all include considerations relating to the co-occurrence or intersectionality of two or more needs (AB, BC, MB, NB, NL, NS, NT, ON, PE, QC, SK). Nonetheless, there are gaps in the targeted benefiting populations of special education policies and language education policies due to the overlap of these categories. First, Canada’s refugee education policies about special education are mostly from policy documents with overall objectives of responding to language education needs. This means that these policies target only those students with both special education and language learning needs. SwRP and SsRP who have special education needs but who do not have language learning needs (i.e., who have the 27 This statement is from Enabling Activity 1 for realizing Expected Result 1 of Strategic Objective 2 in Refugee Education 2030. 28 One jurisdiction (SK) also has the objective of providing funding to students with more significant needs to enable them to attend special education private schools. Education Policy Analysis Archives Vol. 30 No. 39 22 required proficiency level in the language(s) of instruction) are excluded from the targeted benefiting populations of special education policies. Second, policies about responding to missed education in SwRP and SsRP target only those who have both accelerated education and language learning needs. A fissure exists in the targeted benefiting population of accelerated education supports because SwRP and SsRP whose education has been limited or interrupted but who are proficient in the language(s) of instruction are excluded. These fissures in the targeted benefiting populations make such policies incoherent with Refugee Education 2030. Discussion We discuss the findings in two ways. First, we use three indicators in assessing policy coherence relative to each category of need. In doing so, we also include select implications of the distribution of populations of children and youth with or seeking RP across Canada’s 13 provinces and territories (see this population distribution in Appendix 1). This helps to show where potential priorities for policy review or development exist. Second, we illuminate how and why the combination of two theorical frameworks allowed for the identification of possible sources of policy (in)coherence in refugee education. Three Policy Coherence Indicators in Relation to the Five Categories of Need ased on Cejudo and Michel’s (2017) three elements (coherence among policies’ objectives, targeted populations, and instruments), we scored the policy sets of each Canadian jurisdiction with respect to five categories of need (access to education, accelerated education, language education, mental health and psychosocial support, special education) using three policy indicators (coherent, incoherent, absent). This allowed us to assess the extent to which each set of policies was coherent with respect to Refugee Education 2030 and each category of need. Access to Education Of the education policies addressing the five categories of needs of SwRP and SsRP across Canada, those addressing access to education are among the most coherent with Refugee Education 2030. This suggests that when the policies are implemented, their design could complement each other in addressing the complex issues of social adaptation of SsRP and SwRP into the schooling systems (Cejudo & Michel, 2017). Six Canadian educational jurisdictions have refugee education access policies that are coherent across all elements (i.e., objectives, instruments, targeted populations), and these six are home to approximately 60% of SwRP and 56% of SsRP.29 In the seven other jurisdictions, when policy gaps were observed, they were not due to the explicit exclusion of SwRP or SsRP from education access.30 Instead, those gaps were due to overly specific targeted benefiting populations of SwRP and SsRP (e.g., references only to refugees from the Syrian Arab Republic) and absences of capacity and learning instruments to support the policy objectives. Although general education policies, including laws, requiring that all children in Canadian jurisdictions attend primary and secondary school would extend to SwRP and SsRP, Refugee Education 2030 calls for explicit policy on the inclusion of SwRP and SsRP (UNHCR, 2019) and previous studies have revealed the importance of having policies featuring specific recognition and needed supports for SwRP and SsRP (Shakya et al., 2010; Wilkinson, 2002). Here, our analysis suggests the 29 Population estimates throughout this section are based on resettlement and refugee claim patterns between January 2015 and March 2020 (see Appendix 1). 30 Two jurisdictions did place temporal limits on free education access for SsRP based on time elapsed since the submission of their refugee claim (AB, SK). The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 23 development of policies explicitly guaranteeing access to education for SwRP and SsRP is needed in seven jurisdictions, especially in QC which was the destination of 18% of SwRP and 44% of SsRP arriving in Canada between 2015-2020. Accelerated Education Policies regarding missed education are incoherent with Refugee Education 2030. This means that every policy, by pursuing the objective, provided some assistance to refugee education in relation to accelerated education, but also created inconsistencies and gaps in the targeted population and instruments in supporting students’ needs that missed schooling (Cejudo & Michel, 2017). Only one (MB) of the jurisdictions has policy for accelerated education that is coherent with UNHCR direction, but only 7% of SwRP and 1% of SsRP reside in that jurisdiction. Each of the eight other jurisdictions with policies addressing missed education had incoherencies and gaps across the targeted populations and/or provision of instruments, and these eight jurisdictions were home to an estimated 90% of SwRP and 98% of SsRP reside. Policy incoherencies in this area of need suggest policies do appear to provide supports to all SwRP and SsRP with missed education and/or to provide instruments that sought to build the capacity of educational professionals to address needs resulting from missed education, or to promote the testing and scaling up of evidence-based innovative approaches and practices. Of particular concern are the potential implications of the incoherencies of policies governing AEPs in Ontario, which suggest such programs may not be provided with a policy context conducive to meeting the accelerated learning needs of SwRP and SsRP in that jurisdiction. This situation could pose barriers to SwRP and SsRP with missed schooling from learning the curriculum content and developing the skills that will enable them to succeed in age-appropriate courses, and may pose barriers to those who are “aging out” of the public education system to pursuing higher education and desired futures. Because Ontario is home to an estimated 41% and 46% respectively of Canada’s SwRP and SsRP, our analysis suggests a review of policies regarding AEPs is warranted in that province. Language Education Canadian refugee education policies about language education are largely coherent with Refugee Education 2030 in the eight jurisdictions that address this category of need in their policy sets. This means the policies pursued specific objectives and provided instruments but featured inconsistencies and gaps in targeted population (Cejudo & Michel, 2017). Where incoherence exists in the existing policy sets, it is a product of problems in specifying targeted benefiting populations, such as omissions and exclusions of certain cohorts of SsRP and SwRP. For instance, we observed policies mentioning “refugee camp” rather than explicitly addressing SsRP and SsRP. This lack of explicit specification could prompt school actors to overlook the experiences and needs of many SsRP and SwRP whose journeys did not include time spent in camps. It deserves noting that 60% of persons with refugee status live in out-of-camp accommodation, a statistic that has been stable since 2014 (UNHCR, 2019d). Our analysis suggests that some existing Canadian refugee education policies addressing language learning could use revision to explicitly target all SsRP and SwRP. Because approximately 99% of SsRP and 94% of SwRP live in these jurisdictions, the absence of policies in five other jurisdictions does not currently represent a critical policy gap unless resettlement patterns shift in the future. Mental Health and Psychosocial Support Supporting mental health and psychosocial needs of SwRP and SsRP is one of the most challenging categories related to the education of children and youth with refugee backgrounds. The ways in which all subcategories (e.g. social-emotional learning, awareness of refugee experiences, Education Policy Analysis Archives Vol. 30 No. 39 24 mental and psychosocial support) are incorporated in policy designs is crucial: They provide the necessary conditions to ensure the social adaptation of SwRP and SsRP, while ideally complementing each other in addressing needs. Mental health and psychosocial support was addressed in many Canadian jurisdictions. Eleven had policies towards social and emotional learning, nine addressing sensitization to refugeehood, and seven attending to mental health support).31 However, no jurisdiction had a policy set that was coherent with Refugee Education 2030 across all sub-categories of need and all elements of policy coherence. Thus, policy sets in this category of need were deemed incoherent. One example of incoherence included two jurisdictions (NB, NS) where no policies in their sets aimed to sensitize students and school staff to contemporary refugee experiences. Another example is the omission of certain cohorts of SwRP and/or SsRP as target populations. This is seen, for instance, in 11 jurisdictions where SwRP and SsRP were not explicitly identified as agents in teaching and learning experiences about the refugeehood-related issues that affect many of their lives. Our analysis suggests that many existing Canadian refugee education policy sets addressing mental health and psychosocial support could benefit from greater consistency across subcategories of need and in explicitly including SwRP and SsRP as target populations. Special Education Canadian refugee education policies addressing special education are incoherent with Refugee Education 2030. This is because not all elements of policy coherence are reflected in their designs to complement each other in providing guidance, through their objectives, to targeted populations using instruments that adequately prepare educators to include SwRP and SsRP with diverse learning requirements, “including [those] with disabilities” (UNHCR, 2019b, p. 43).32 Two areas of incoherence stood out. First, we found no policies in Canada that pertain expressly to the provision of special education supports to SwRP and SsRP who have disabilities.33 Because the incidence of disability is higher in displaced populations than the global prevalence of 15% (UNHCR, 2019d), this policy gap could have adverse implications on the learning, wellbeing, and success of more than 15% of SsRP and SwRP in Canada. Second, of the nine jurisdictions with refugee education policies addressing diverse learning requirements and/or differentiating instruction in response to diverse learning needs, six omitted SsRP from the targeted benefiting population. These six jurisdictions are where approximately 46% of Canada’s SsRP reside. Our analysis suggests that many existing 31 All 11 jurisdictions with objectives addressing socio-emotional learning also have capacity instruments that we considered coherent with Refugee Education 2030 because they target the capacity of educational professionals to support students’ social and emotional learning. Nine of those 11 jurisdictions included objectives that seek to foster social and emotional learning, in part, through sensitization to refugees (AB, BC, M , N , NS, NT, ON, PE, SK). Seven of Canada’s educational jurisdictions have refugee education policy documents with objectives of providing mental health and psychosocial support, which we assessed to be coherent with Refugee Education 2030. These seven have objectives of providing acculturation supports (AB, BC, MB, NL, ON, QC, SK), five of them have objectives for providing school- and classroom-based trauma- related supports (AB, BC, MB, NL, ON) and five have aims for identifying and referring students requiring greater support to specialized mental health services (BC, MB, NL, ON, SK). 32 This statement is from Enabling Activity 1 for realizing Expected Result 1 of Strategic Objective 2 in Refugee Education 2030. 33 n Canada, there has been a movement away from labeling certain students as “disabled” or “with disabilities” and then placing students thus labelled into separate classrooms or schools. Instead, the focus has shifted to addressing diverse needs using differentiated instructional responses in an integrated classroom setting. This shift in focus and terminology likely influenced our findings because Refugee Education 2030 emphasizes “disability” as a specific area of need within the broader notion of diverse learning needs. The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 25 Canadian refugee education policies addressing special education need to explicitly address SwRP and SsRP with diverse learning needs, especially those with disabilities. Education Policy Coherence and Policy Attributes The findings reveal how the combination of policy coherence among different education policies’ objectives, targeted populations, instruments and attributes of specificity and consistency, as articulated in the theoretical framework, allowed for the identification of possible sources of policy incoherence in refugee education. For example, the gap in most jurisdictions of education policies specifically targeting SsRP as a targeted benefiting population wasa key element of policy incoherence across all five categories of need. This could have negative consequences for SsRP because policies do not draw the attention of school actors to this unique and important population of learners or guide their actions to support the complex issues of social adaptation of SsRP. The gap of SsRP as a benefiting population in most Canadian refugee education policies is problematic because children seeking RP represent 51% of the total number of children seeking and granted RP in Canada between 2015-2020. In the two provinces in which nearly 75% of SWSRS reside (ON, QC), there are more SsRP than SwRP; however, few of their refugee education policies have one or more policies targeting SsRS. When including specificity as an attribute in our comparison and assessment of the sets of policies in refugee education in relation to the targeted benefiting populations, we observed that being vague (as in the case of SsRP) or too specific are both problematic in terms of potentially benefiting all groups of students. With respect to the latter, we noted that some policies were very specific in definitions or prescriptions, resulting in omissions or exclusions. For example, some policies targeted only SwRP or SsRP from specific countries of origin (e.g., the Syrian Arab Republic), granted refugee protection on specific grounds (e.g., armed conflict), with specific experiences in their transition countries (e.g., living in a refugee camp), or entering Canada through specific pathways (e.g., resettlement through government sponsorship). In other cases, some policies used “euphemistic” labels such as “newcomers”. Although this terminology may be an attempt to avoid pejorative connotations that are sometimes attributed to the label “refugee”, its lack of specificity could be a potential source of ambiguity in policy application. Similarly, by including consistency as an attribute in our comparison and assessment of the sets of policies in refugee education, we also observed that policy designs could be too consistent about a specific targeted benefiting population. Some policy sets targeted highly specific subgroups so consistently that there was insufficient variability for the aggregated targeted benefiting population to encompass all SwRP and SsRP. Conversely, we also observed a lack of consistency in the terms used to identify populations of students and deemed this to be a source of incoherence that could affect implementation. Conclusion Unprecedented influxes of persons with and seeking RP are occurring through established and non-traditional resettlement pathways globally. This calls upon policymakers in resettlement countries to enact policies in education to support, coordinate and ensure the full integration of SwRP and SsRP. It is crucial that the set of educational policies in a given jurisdiction respond coherently to the needs of children and youth with or seeking RP. Incoherence or gaps can mean the specific needs of these populations are not adequately identified and addressed, and that implementing agents do not have specific and consistent guidance and instruments. Unintended consequences can thus ensue for SwRP nd SsRP. This study thus paid close attention to the quality of policy design and its various elements (objectives, target populations, instruments) to assess the Education Policy Analysis Archives Vol. 30 No. 39 26 extent to which the set of policies in each province and territory in Canada contribute to a “coherent” vision for refugee education (Cohen, 1995; Clune, 1993). Our use of Refugee Education 2030 as a reference point allowed for an assessment of all sets of educational policies that coexist in Canada and a comparative examination of how they help coordinate, reinforce, and improve the understanding and actions of school actors (and other implementing agents) in addressing the social adaptation and needs of SwRP and SsRP (Cejudo & Michel, 2017). Consequently, we highlight three implications of this study for refugee education policy researchers and policymakers in and beyond Canada. First, following UNHCR (2019b), inclusion in national education systems is the recommended policy option for refugee and refugee claimant children and youth, and Refugee Education 2030 aims to ensure that “the particular learning needs of refugee students…are addressed” in such systems so they achieve parity with their non-refugee peers by 2030 (UNHCR, 2019b, p. 2). To be coherent with this strategy, policies in Canada’s major educational jurisdictions should respond to the needs of children and youth with and seeking RP. Our study shows there are sets of education policies in effect across Canada that target responses to the five major categories of need. Numerous of these are exemplary in their coherence with Refugee Education 2030, but some are characterized by significant incoherencies and gaps. Canadian policymakers could use the findings from this study to develop or revise policies to address these shortcomings, and we made some suggestions in the regard in the discussion. Researchers and policymakers who find value in the approach offered here could replicate the study’s method in their own targeted jurisdictions to identify incoherencies and gaps. Second, this study points to the importance of policy coherence using Refugee Education 2030 as the key reference against which to assess and consider the importance of specificity in refugee education policies. The findings showed the importance of the specificity of policy objectives and targeted benefiting populations. For example, we operationalized specificity through the explicit identification of children and youth with refugee backgrounds no matter what their legal protections or resettlement pathways, as indicated by the 1951 Convention relating to the Status of Refugees (UNHCR, 1951). By doing so, we were able to identify policies that were inconsistent not only with Refugee Education 2030 but also with international convention because they did not include children and youth seeking RP. Following Desimone (2005), policies that explicitly specify the targeted benefiting population send an important signal, in this case to school actors, by narrowing the room for individual interpretation and thereby increasing fidelity in policy implementation and respect for international convention. Third, for constitutional, theoretical, and methodological reasons outlined earlier, our findings rely on provincial and territorial education policies. This brings two considerations. First, each of Canada’s constitutionally warranted educational jurisdictions has its own particularities. The main national mechanism for coordinating policy responses among them is a federally sponsored council (www.cmec.ca) that convenes ministers of education and pursues initiatives of mutual concern to federal, provincial and territorial governments (Wallner, 2017). This intergovernmental approach relies on the “soft” power of cooperation and influence. Historically, it has been relatively effective in building a pan-Canadian convergence in terms of educational standards (Wallner, 2018). But no extant research exists about its influence on policy coherence. Future research could examine efforts at creating policy coherence from within this intergovernmental perspective to provide further insights about the state and dynamics of education policy in Canada. Second, most of the jurisdictions in the present study are comprised of local school districts. It is likely that districts in large urban settings (e.g., Toronto, Montreal) that serve concentrated and diverse student populations have developed policy programs and instruments that would resonate with Refugee The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 27 Education 2030, and from which researchers and policymakers could extract important lessons. 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Global trends: Forced displacement in 2019. https://www.unhcr.org/statistics/unhcrstats/5ee200e37/unhcr-global-trends- 2019.html United Nations High Commissioner for Refugees (UNHCR) & the Global Partnership for Education (GPE). (2016). Memorandum of understanding between the Office of the United Nations High Commissioner for Refugees and the Global Partnership for Education Secretariat on cooperation and partnership. https://www.globalpartnership.org/sites/default/files/2016-04-mou-gpe-and- unhcr.pdf United Nations High Commissioner for Refugees (UNHCR) & United Nations Children’s Fund (UNICEF). (2020). Blueprint for joint action: Briefing paper. https://www.unicef.org/media/ 85846/file/Briefing%20paper.pdf Wallner, J. (2017). Internal answerability and intergovernmental policy learning: Accountability in Canadian mandatory education. In P. Graefe, J. Simmons & L.A. White (Eds.), Overpromising and underperforming? (pp. 238-257). University of Toronto Press. Wallner, J. (2018). Learning to school. University of Toronto Press. Wilkinson, L. (2002). Factors influencing the academic success of refugee youth in Canada. Journal of Youth Studies, 5(2), 173-193. Yau, M. (1996). Refugee students in Toronto schools. Refuge, 15(5), 9-16. Education Policy Analysis Archives Vol. 30 No. 39 32 Appendix 1: Distribution of Refugee Claimants and Resettled Refugees Under the Age of 18 by Canadian Province/Territory, January 2015 -March 2020 (Schutte, 2020)34 Canadian provinces and territories Refugee claimants under 18 Resettled refugees under 18 Total N (%) of refugee claimants N (%) of resettled refugees N (%) Alberta (AB) 2,436 (3.66) 9,040 (14.11) 11,476 8.79 British Columbia (BC) 3,392 (5.10) 5,380 (8.40) 8,772 6.72 Manitoba (MB) 807 (1.21) 4,510 (7.04) 5,317 4.07 New Brunswick (NB) 119 (0.18) 1,785 (2.79) 1,904 1.46 Newfoundland & Labrador (NL) 50 (0.08) 735 (1.15) 785 0.60 Northwest Territories (NT) -- I/D -- I/D -- I/D Nova Scotia (NS) 86 (0.13) 1,745 (2.72) 1,831 1.40 Nunavut (NU) -- I/D 0 0 -- I/D Ontario (ON) 30,365 (45.63) 26,060 (40.67) 56,425 43.20 Prince Edward Island (PE) -- I/D 305 (0.48) 305 0.23 Quebec (QC) 29,159 (43.82) 11,730 (18.31) 40,889 31.31 Saskatchewan (SK) 125 (0.19) 2,700 (4.21) 2,825 2.16 Yukon (YK) -- I/D 20 (0.03) 20 0.02 Not stated -- I/D 60 (0.09) 60 0.05 Total 66,539 (100.00) 64,070 (100.00) 130,609 100.01 Note. Values representing between 1 and 4 individuals are shown as “--” to prevent individuals from being identified. I/D = insufficient data for calculation. 34 Calculated from data taken from datasets published by the Government of Canada (2021b) and the Immigration and Refugee Board of Canada [IRB] (IRB, 2018a, 2018b, 2018c, 2019, 2020a, & 2020b). The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 33 Appendix 2: Search Strategy for Jurisdiction-based Scoping Review of Policies Website of the provincial or territorial Ministryor Department of Education for children of compulsory school age Search function searches the website of the Ministry or Department of Education Search 1A English search: "refugee" French search: "réfugié" Yields 0- 30 results Use Search 1A results Yields more than 30 results Try Search 2A Search 2A English search: "refugee" AND "education" French search: "réfugié" AND "éducation" Yields 0 results Use Search 1A results Yields 1 or more results Use Search 2A results Search function searches the website of the entire provincial or territorial government Search 1B English search: "refugee" French search: "réfugié" Yields 0-30 results Use Search 1B results Yields more than 30 results Try Search 2B or Search 2C Advanced search function not available Search 2B English search: "refugee" AND "education" French search: "réfugié" AND "éducation" Yields 0 results Use Search 1B results Yields 1- 30 results Use Search 2B results Yields more than 30 results Try Search 3 Search 3 English search: "refugee" AND "name of Department/Ministry of Education" French search: "réfugié" AND "name of Department/Ministry of Education" Yields 0 results Use Search 2B results Yields 1 or more results Use Search 3 results Advanced search function available Search 2C Select name of Department/Ministry of Education English search: "refugee" French search: "réfugié" Yields 0 results Try Search 2B Yields 1 or more results Use Search 2C results Education Policy Analysis Archives Vol. 30 No. 39 34 Appendix 3: Policy Documents Included in Final Sample for This Study Code Policy Document Alberta AB01 Alberta Education (2009). Access and funding for international students in Alberta. https://education.alberta.ca/media/1224561/faqs_ 34askatc.pdf AB02 Manitoba Ministry of Education and Advanced Learning (2015). Building hope: Refugee learner narratives. https://www.edu.gov.mb.ca/k12/docs/support/ building_hope/index.html AB03 Alberta Education (2019). Grade 9 subject bulletin: social studies – Alberta Provincial Achievement Testing 2019-2020. https://www.alberta.ca/ assets/documents/ed-ss-9- bulletin-2019-2020.pdf AB04 Alberta Education (2020). Instructional supports. https://www.alberta.ca/ instructional- supports.aspx AB05 Alberta Education (2020). Interim funding manual for school authorities 2020/21 school year. https://www.alberta.ca/assets/ documents/ed-interim-funding-manual.pdf AB06 Government of Alberta (2020). International students. https://www.alberta.ca/ international-students.aspx British Columbia BC01 Ministère de l’Éducation de la Colombie-Britannique (2003). Vers une école plus sûre – Guide à l’intention des parents : Comment réagir au harcèlement et à l’intimidation dans les écoles secondaires. https://www2.gov.bc.ca/assets/gov/ education/kindergarten-to-grade- 12/teach /teaching-tools/student-saftey/french_secondaire.pdf BC02 British Columbia Ministry of Education (2005). Civic studies 11 integrated resource package. https://www2.gov.bc.ca/gov/content/education-training/k- 12/teach/curriculum/34askatc/social-studies-curriculum BC03 British Columbia Ministry of Education (2008). Making space: Teaching for diversity throughout the K-12 curriculum. https://www.bced.gov.bc.ca /irp/pdfs/making_space/makingSpace_full.pdf BC04 Ministère de l’Éducation de la Colombie-Britannique (2009). Anglais langue seconde : Politique et lignes directrices. https://www2.gov.bc.ca/assets/gov/ education/administration/kindergarten-to-grade-12/english-language- learners/guidelines_fr.pdf BC05 British Columbia Ministry of Education (2011). K-12 funding – newcomer refugees. https://www2.gov.bc.ca/ gov/content/education-training/k- 12/administration/legislation-policy/public-schools/k-12-funding-newcomer- refugees?keyword=refugee BC06 British Columbia Ministry of Education (2015). Students from refugee backgrounds: A guide for teachers and schools. https://www2.gov.bc.ca/ assets/gov/education/ administration/kindergarten-to-grade-12/diverse-student-needs/students-from- refugee-backgrounds-guide.pdf BC07 British Columbia Ministry of Education (2017). Students who are refugees. https://www2.gov.bc.ca/gov/ content/education-training/k-12/administration/ legislation-policy/public-schools/students-who-are-refugees?keyword=refugee BC08 British Columbia Ministry of Education (2018). English language learning policy guidelines. https://www2.gov.bc.ca/assets/gov/education/ administration/kindergarten-to- grade-12/34askatc-language-learners/guidelines.pdf The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 35 Code Policy Document BC09 British Columbia Ministry of Education (2020). Diverse student needs. http://www2.gov.bc.ca/gov/content/education-training/k-12/support/ diverse- student-needs?keyword=refugee BC10 British Columbia Ministry of Education (2020). Eligibility of students for operating grant funding. https://www2.gov.bc.ca/gov/content/education-training/ k- 12/administration/legislation-policy/public-schools/eligibility-of-students-for- operating-grant-funding?keyword=refugee BC11 British Columbia Ministry of Education (2020). English language learning (ELL) teaching resources. https://www2.gov.bc.ca/gov/content/education-training/k- 12/teach/teaching-tools/35askatc-language-learning?keyword=refugee BC12 British Columbia Ministry of Education (2020). Inclusive education resources. https://www2.gov.bc.ca /gov/content/education-training/k-12/teach/teaching- tools/inclusive-education?keyword=refugee BC13 British Columbia Ministry of Education (2020). Information on refugee students for administrators. https://www2.gov.bc.ca/gov/ content/education-training/k- 12/administration/program-management/refugee-students?keyword=refugee Manitoba MB01 Manitoba Department of Education and Training (1995). Towards inclusion: A handbook for English as a second language course designation, senior 1-4 – A resource for senior years schools. https://www.edu.gov.mb.ca /k12/docs/policy/esl/coursed.pdf MB02 Manitoba Department of Education and Training (1996). Towards inclusion: Programming for English as a second language students, senior 1-4 – A supplementary resource for senior years schools. https://www.edu.gov.mb.ca/ k12/docs/support/esl/eslprogram.pdf MB03 Ministère de l’Éducation, de la Formation professionnelle et de la Jeunesse du Manitoba (2002). Examen de la programmation d’anglais langue seconde : Directives concernant les rapports écrits et les consultations. https://www. Edu.gov.mb.ca/m12/frpub/cons/esl/examen_prog_els.pdf MB04 Manitoba Department of Education and Training (2011). Curriculum framework for English as an additional language (EAL) and literacy, academics, and language (LAL) programming – section 1: overview. https://www.edu.gov. mb.ca/k12/cur/eal/framework/section1.pdf MB05 Manitoba Department of Education and Training (2011). Curriculum framework for English as an additional language (EAL) and literacy, academics, and language (LAL) programming – section 5: Domains of middle and senior years LAL learning. https://www.edu.gov.mb.ca/k12/cur/eal/framework/ section5.pdf MB06 Manitoba Department of Education and Training (2011). Curriculum framework for English as an additional language (EAL) and literacy, academics, and language (LAL) programming – section 7: Assessment of EAL and LAL learners. https://www.edu.gov.mb.ca/k12/cur/eal/framework/section7.pdf MB07 Manitoba Department of Education and Training (2012). Life after war: Professional learning, agencies, and community supports. https://www.edu.gov.mb.ca/k12/docs/35uppose/law/community_supports.pdf MB08 Manitoba Department of Education and Training (2012). War-affected children: A comprehensive bibliography. https://www.edu.gov.mb.ca/k12/docs/35uppose/ law/bibliography.pdf Education Policy Analysis Archives Vol. 30 No. 39 36 Code Policy Document MB09 Manitoba Department of Education and Training (2013). Guidelines for the intensive newcomer support grant. https://www.edu.gov.mb.ca/k12/docs/support/ ins_grant/guidelines.pdf MB10 Ministère de l’Éducation et de la Formation du Manitoba (2013). Lignes directrices concernant l’adaptation des cours aux besoins des apprenants nou eaux arri ants sous-scolarisés : document à l’intention des écoles secondaires offrant une programmation en langue française, 2e édition. http://www.edu.gov.mb.ca/m12/frpub/ped/ana/adaptation/docs/document _complet.pdf MB11 Manitoba Department of Education & Training (2014). Life after war: Education as a healing process for refugee and war-affected children. https://www.edu.gov.mb.ca/k12/docs/support/law/index.html MB12 Manitoba Department of Education and Training (2014). Life after war: Education as a healing process for refugee and war-affected children – Interactive PDF version. https://www.edu.gov.mb.ca/k12/docs/support/law/ law_interactive.pdf MB13 Ministère de l’Éducation et de l’Enseignement supérieur du Manitoba (2014). Lignes directrices concernant l’adaptation des cours aux besoins des apprenants nouveaux arrivants. https://www.edu.gov.mb.ca/m12/frpub/cons/nouv_arrivants/ docs/lignes_dir_nouv_arrivants.pdf MB14 Manitoba Education and Advanced Learning (2015). Building hope: Refugee learner narratives. https://www.edu.gov.mb.ca/k12/docs/support/building_ hope/index.html MB15 Manitoba Department of Education and Training (2016). Funding for temporary residents policy. https://www.edu.gov.mb.ca/k12/finance/temp respolicy.html MB16 Ministère de l’Éducation et de la Formation du Manitoba (2016). Politique en matière de financement des résidents temporaires. https://www.edu.gov.mb.ca/ m12/stat- fin/docs/residents-temp.pdf MB17 Manitoba Department of Education and Training (2017). Diversity education: Holodomor education and awareness. https://www.edu.gov.mb.ca/k12/cur/ multic/36olodomor.html MB18 Manitoba Department of Education and Training (2017). Diversity education: Education and the prevention of genocide. https://www.edu.gov.mb.ca/k12/cur/ multic/genocideprevention.html MB19 Manitoba Department of Education and Training (2017). Education for sustainable development – Manitoba priority area-framework. https://www.edu.gov.mb.ca/k12/esd/definitions.html MB20 Manitoba Department of Education and Training (2017). Evaluating non-Manitoba course completion for senior years credits: A guide for school administrators. https://www.edu.gov.mb.ca/k12/docs/policy/op_credits/ document.pdf MB21 Ministère de l’Éducation et de la Formation du Manitoba (2017). L’accueil, l’accompagnement et la mise à niveau scolaire des apprenants nouveaux arrivants dans les écoles offrant une programmation en langue français au Manitoba : Document d’appui. https://www.edu.gov.mb.ca/m12/frpub/ped/ana/ accueil/docs/ documentcomplet.pdf MB22 Ministère de l’Éducation et de la Formation du Manitoba (2017). La vie après la guerre : Apprentissage professionnel, organismes et soutien communautaire. https://www.edu.gov.mb.ca/m12/frpub/ped/ana/accueil/docs/vie_apprentissage.pd f The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 37 Code Policy Document MB23 Ministère de l’Éducation et de la Formation du Manitoba (2017). La vie après la guerre : L’éducation en tant que processus de guérison pour les réfugiés et les jeunes touchés par la guerre. https://www.edu.gov.mb.ca/m12/frpub/ped/ana/ accueil/docs/ vie_education.pdf MB24 Manitoba Department of Education and Training (2018). English as an additional language. https://www.edu.gov.mb.ca/k12/cur/eal/building_hope.html MB25 Manitoba Department of Education and Training (2018). Responding to religious diversity in Manitoba’s schools: A guide for educators. https://www.edu.gov.mb. ca/k12/docs/37uppose/religious_diversity/ full_doc.pdf MB26 Manitoba Department of Education and Training (2019). Application-based grants in K-12 education. https://www.edu.gov.mb.ca/edu/grants.html MB27 Gouvernement du Manitoba (2019). Loi sur les écoles publiques c. P250 de la C.P.L.M. https://web2.gov.mb.ca/laws/statutes/ccsm/pdf.php? cap=p250 MB28 Manitoba Department of Education and Training (2019). Promising pathways: High school and adult programming options for English as an additional language (EAL) youth – version 2.0. https://www.edu.gov.mb.ca/k12/cur/eal/ promising_pathways/full_doc.pdf MB29 Government of Manitoba (2019). Public Schools Act, C.C.S.M. c. P250. https://web2.gov.mb.ca/laws/statutes/ccsm/p250e.php MB30 Manitoba Department of Education & Training (2019). Public schools enrolment and categorical grant reporting for the 2019/2020 school year. https://www.edu. gov.mb.ca/k12/finance/enrol_reporting/enrol_reporting_19-20.pdf MB31 Manitoba Department of Education & Training (2020). English as an additional language: Funding. https://www.edu.gov.mb.ca/k12/cur/eal/funding.html New Brunswick NB01 New Brunswick Department of Education & Early Childhood (1998). Atlantic Canada in the global community grade 8 curriculum. https://www2.gnb.ca/content/dam/gnb/Departments/ed/pdf/K12/curric/Social Studies/SocialStudies-Grade8.pdf NB02 Ministère de l’Éducation du Nouveau-Brunswick (2005). Sciences humaines 7e année. https://www2.gnb.ca/content/dam/gnb/Departments/ed/pdf/K12/curric/ SocialStudies/SciencesHumaines7eAnnee.pdf NB03 New Brunswick Department of Education & Early Childhood Development (2005). Social studies 7: Empowerment edition. https://www2.gnb.ca/ content/dam/gnb/Departments/ed/pdf/K12/curric/Social Studies/ SocialStudies- Grade7.pdf NB04 New Brunswick Department of Education & Early Childhood Development (2006). Social studies 9: Canadian identity. https://www2.gnb.ca/content/ dam/gnb/Departments/ed/pdf/K12/curric/Social Studies/SocialStudies-Grade9.pdf NB05 Ministère de l’Éducation et du Développement de la petite enfance du Nouveau- Brunswick (2012). Français Immersion modern history 111-112-113 programme d’études. Retrieved from https://www2.gnb.ca/content/dam/gnb/Departments/ ed/pdf/K12/curric/SocialStudies/ FIModernHistory111-112.pdf NB06 New Brunswick Department of Education & Early Childhood Development (2012). Modern history 111-112-113 curriculum. https://www2.gnb.ca/content/ dam/gnb/Departments/ed/pdf/K12/curric/Social Studies/ModernHistory111-112- 113.pdf Education Policy Analysis Archives Vol. 30 No. 39 38 Code Policy Document NB07 Ministère de l’Éducation et du Développement de la petite enfance du Nouveau- Brunswick (2017). Enjeux mondiaux 120. https://www2.gnb.ca/content/dam/ gnb/Departments/ed/pdf/K12/curric/Social Studies/EnjeuxMondiaux120.pdf NB08 New Brunswick Department of Education and Early Childhood Development (2017). World issues 120. https://www2.gnb.ca/content/dam/gnb/Departments/ ed/pdf/K12/curric/SocialStudies/WorldIssues120.pdf Newfoundland and Labrador NL01 Newfoundland and Labrador Department of Education and Early Childhood Development (2009). Who is the ESL student? https://www.gov.nl.ca/eecd/ files/k12_curriculum_guides_esl_esl_student.pdf NL02 Newfoundland and Labrador Department of Education and Early Childhood Development (2010). Literacy enrichment and academic readiness for newcomers (LEARN) curriculum guide – LEARN-1 Language arts: Basic literacy. https://www.gov.nl.ca/eecd/files/k12_curriculum_guides_esl_ earn_learn1_ language_arts.pdf NL03 Newfoundland and Labrador Department of Education and Early Childhood Development (2010). Literacy enrichment and academic readiness for newcomers (LEARN) curriculum guide – LEARN-2 Language arts. https://www.gov.nl.ca/ eecd/files/k12_curriculum_guides_esl_learn_learn_2_ language_arts.pdf NL04 Newfoundland and Labrador Department of Education and Early Childhood Development (2010). Literacy enrichment and academic readiness for newcomers (LEARN) curriculum guide – LEARN-2 mathematics. https://www.gov.nl.ca/ eecd/files/k12_curriculum_guides_esl_learn_learn_2_ mathematics.pdf NL05 Newfoundland and Labrador Department of Education and Early Childhood Development (2010). Literacy enrichment and academic readiness for newcomers (LEARN) curriculum guide – LEARN-2 Social studies. https://www.gov.nl.ca/ eecd/files/k12_curriculum_guides_esl_learn_learn-2-social-studies-701172.pdf NL06 Newfoundland and Labrador Department of Education and Early Childhood Development (2010). Meeting the needs of students from diverse cultures: A handbook for administrators. https://www.gov.nl.ca/eecd/files/k12_curriculum_ guides_esl_ meeting-the-needs.pdf NL07 Newfoundland and Labrador Department of Education and Early Childhood Development (2011). ESL foundation: A foundation English course for grades 7-12 students with limited literacy. https://www.gov.nl.ca/eecd/files/k12_curriculum _guides_esl_esl_foundation_curriculum_guide_intermediate_ senior_high.pdf NL08 Newfoundland and Labrador Department of Education and Early Childhood Development (2011). Guidelines for delivery of ESL services in K-6. https://www.gov.nl.ca/eecd/files/k12_curriculum_guides_esl_esl_k- 6_guidelines_for_delivery_of_esl_services_k-6.pdf NL09 Newfoundland and Labrador Department of Education and Early Childhood Development (2010). Literacy enrichment and academic readiness for newcomers (LEARN) curriculum guide – LEARN-2 Science. https://www.gov.nl.ca/eecd/ files/k12_curriculum_guides_esl_learn_learn-2_science_701177.pdf NL10 Newfoundland and Labrador Department of Education and Early Childhood Development (2012). ESL students & students from diverse cultures: Guidelines for comprehensive assessment. https://www.gov.nl.ca/eecd/files/k12_student The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 39 Code Policy Document supportservices_publications_esl_students_and_students_from_diversecultures_ guidelines_for_comprehensive_ assessment.pdf NL11 Newfoundland and Labrador Department of Education and Early Childhood Development (n.d.). Whole school inclusion of immigrant students. http://www.gov.nl.ca/eecd/files/k12_curriculum_guides_esl_inclusion _esl.pdf Nova Scotia NS01 Nova Scotia Department of Education & Early Childhood Development (2010). Sociology 12 guide. https://curriculum.novascotia.ca/sites/default/ files /documents/curriculumfiles/Sociology%2012%20Guide%20%282010%29_ 0.pdf NS02 Nova Scotia Department of Education & Early Childhood Development (2015). Learning outcomes framework grades 10-12. https://www.ednet.ns.ca/files/curriculum/LOFs-10-12-Aug17-2015.pdf NS03 Province of Nova Scotia (2019). Governor in Council Education (CSAP) Act Regulations made under Section 146 of the Education (CSAP) Act S.N.S. 1995-96, c.1 O.I.C. 97-405 (effective June 24, 1997), N.S. Reg. 74/97 Amended to O.I.C. 2019-172 (effective June 20, 2019), N.S. Reg. 91/2019. https://novascotia.ca/just/regulations/regs/ed-cgic.htm Northwest Territories NT01 Northwest Territories Department of Education, Culture and Employment (1995). School health program grade 6. https://www.ece.gov.nt.ca/sites/ece/files/ resources/health_studies._grade_6.pdf NT02 Northwest Territories Department of Education, Culture and Employment (2009). Social studies grade 1: Connecting and belonging. https://www.ece.gov.nt.ca/ sites/ece/files/resources/social_studies_-_grade_1.pdf NT03 Northwest Territories Department of Education, Culture and Employment (2009). Social studies grade 3: Communities of the world. https://www.ece.gov.nt.ca/sites/ece/files/resources/social_studies_-_grade_3.pdf NT04 Northwest Territories Department of Education, Culture and Employment (2010). Social studies grade 5 – Canada: The people and the stories of this land. https://www.ece.gov.nt.ca/sites/ece/files/resources/social_studies-_grade_5.pdf NT05 Government of Northwest Territories (n.d.). Statement of eligibility for non-rights holder parents. https://www.ece.gov.nt.ca/sites/ece/files/ resources/ ministerial_french_first_directive_-_statement_of_eligibility_for_non- rights_holder_parents_form_-_en.pdf Ontario ON0 1 Ontario Ministry of Education (2001). Policy/program memorandum no. 129. http://www.edu.gov.on.ca/extra/eng/ppm/129.html ON0 2 Ontario Ministry of Education (2003). Policy/program memorandum no. 132. http://www.edu.gov.on.ca/extra/eng/ppm/132.html ON0 3 Ontario Ministry of Education (2004). Policy/program memorandum no. 136. http://www.edu.gov.on.ca/extra/eng/ppm/136.html ON0 4 Ontario Ministry of Education (2007). English language learners – ESL and ELD programs: Policies and procedures for Ontario elementary and secondary schools, Kindergarten to grade 12. http://www.edu.gov.on.ca/eng/document/ esleldprograms/esleldprograms.pdf Education Policy Analysis Archives Vol. 30 No. 39 40 Code Policy Document ON0 5 Ontario Ministry of Education (2007). The Ontario curriculum, grades 9 to 12, English as a second language and English literacy development (revised). http://www.edu.gov.on.ca/eng/curriculum/secondary/esl912 currb.pdf ON0 6 Ontario Ministry of Education (2008). Supporting English language learners: A practical guide for Ontario educators, Grades 1 to 8. http://edu.gov.on.ca/eng/ document/esleldprograms/guide.pdf ON0 7 Ontario Ministry of Education (2008). Supporting English language learners with limited prior schooling: A practical guide for Ontario educators, Grades 3 to 12. http://www.edu.gov.on.ca/eng/document/manyroots/ELL_ LPS.pdf ON0 8 Ontario Ministry of Education (2010). The Ontario curriculum, grades 11 and 12, the arts. http://www.edu.gov.on.ca/eng/curriculum/secondary/ arts1112curr2010.pdf ON0 9 Ontario Ministry of Education (2011). Student well-being research framework. http://www2.edu.gov.on.ca/eng/policyfunding/memos/august 2011/studentResearchSummary.pdf ON1 0 Ontario Ministry of Education (2013). Supporting minds: An educator’s guide to promoting students’ mental health and well-being, draft version. http://www.edu.gov.on.ca/eng/document /reports/SupportingMinds.pdf ON1 1 Ontario Ministry of Education (2013). The Ontario curriculum: Social studies, grades 1 to 6; History and geography, grades 7 and 8. http://edu.gov.on.ca/eng/curriculum/elementary/sshg18curr2013.pdf ON1 2 Ontario Ministry of Education (2013). The Ontario curriculum, grades 9 and 10: Canadian and world studies – Geography, history, civics (politics) revised. http://www.edu.gov.on.ca/eng/curriculum/secondary/canworld 910curr2013.pdf ON1 3 Ontario Ministry of Education (2013). The Ontario curriculum, Grades 9 to 12: Social sciences and humanities. http://www.edu.gov.on.ca/eng/ curriculum/secondary/ssciences9to122013.pdf ON1 4 Ontario Ministry of Education (2014). English literacy development: Supporting English language learners with limited prior schooling. Capacity building series, secretariat, special edition 36. http://edu.gov.on.ca/eng/literacy numeracy/inspire/research/CBS_ LiteracyDevelop. Pdf ON1 5 Ontario Ministry of Education (2015). Syrian refugee settlement in Ontario: Memorandum to directors of education from the Deputy Minister. http://www.edu.gov.on.ca/eng/policyfunding/memos/dec2015/dm_syrian refugee.pdf ON1 6 Ontario Ministry of Education (2015). Syrian refugee settlement in Ontario – Memorandum to directors of education, secretary-treasurers and supervisory officers of school authorities from the director of the curriculum and assessment policy branch. http://www.edu.gov.on.ca/eng/policyfunding/ memos/dec2015/40askat_refugees_program.pdf ON1 7 Ontario Ministry of Education (2015). Syrian refugee settlement in Ontario – Memorandum to school board chairs from the Minister. http://www.edu.gov. on.ca/eng/policyfunding/memos/dec2015/min_syrian refugee.pdf ON1 8 Ontario Ministry of Education (2016). Supporting students with refugee backgrounds: A framework for responsive practice. Capacity building K-12, Special edition 45. http://www.edu.gov.on.ca/eng/literacynumeracy/inspire/ research/cbs_refugees.html The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 41 Code Policy Document ON1 9 Ontario Ministry of Education (2016). Syrian newcomer settlement in Ontario: Memorandum to directors of education from the Deputy Minister. http://www.edu.gov.on.ca/eng/policyfunding/memos/march2016/on_syrian_ newcomer.pdf ON2 0 Government of Ontario (2019). Education Act, R.S.O. 1990, Chapter E.2. https://www.canlii.org/en/nu/laws/stat/snu-2008-c-15/latest/snu-2008-c-15.html ON2 1 Ontario Ministry of Education (2019). Enrolment register instructions for elementary and secondary schools, 2019-20 school year. http://www.edu.gov.on. ca/eng/document/forms/enrol/enrolment_register_ instructions.pdf ON2 2 Ministère de l’Éducation de l’Ontario (2019). Instruction pour le relevé des effectifs des écoles élémentaires et secondaires, année scolaire 2019-2020. http://www.edu.gov.on.ca/fre/document/forms/enrol/enrolment_register_ instructions_fr.pdf ON2 3 Gouvernement de l’Ontario (2019). Loi sur l’éducation, L.R.O. 1990, Chapitre E.2. https://www.ontario.ca/fr/lois/loi/90e02 Prince Edward Island PE01 Prince Edward Island Department of Education (2006). Atlantic Canada social studies curriculum grade 7. https://www.princeedward island.ca/sites/default/files/ publications/eelc_socialstudies_7.pdf PE02 Prince Edward Island Department of Education (2006). Atlantic Canada social studies curriculum grade 8. https://www.princeedward island.ca/sites/default/ files/publications/eelc_socialstudies_8.pdf PE03 Prince Edward Island Department of Education (2007). Atlantic Canada social studies curriculum, Canadian studies CAS401A.https://www.princeedwardisland. ca/sites/default/files/publications/eelc_cas401a. pdf PE04 Prince Edward Island Department of Education and Lifelong Learning (2007). Global classroom initiati e “Connecting classrooms and communities for global awareness”. Grade 3 thematic unit “Children and communities: Stories from P.E.I. and Kenya”. https://www.princeedwardisland.ca/sites/default/files/ publications/eelc_global_classroom_3.pdf PE05 Prince Edward Island Department of Education and Lifelong Learning (2007). Global classroom initiative “Connecting classrooms and communities for global awareness”. Grade 6 social studies: Rights & responsibilities: My interactions with others at home and around the world. https://www.princeedwardisland.ca/ sites/default/files/publications/eelc_global_classroom_6.pdf PE06 Prince Edward Island Department of Education and Lifelong Learning (2007). Global classroom initiati e” Connecting classrooms and communities for global awareness”. Grade 9 social studies “Viewing the world with arious perspecti es from our place in Atlantic Canada”. https://www.princeedwardisland.ca/sites/ default/files/publications/eelc_global_classroom_9.pdf PE07 Prince Edward Island Department of Education, Early Learning and Culture (2008). Prince Edward Island English as an additional language curriculum – High intermediate/advanced listening, speaking, reading and writing EAL 701D. https://www.princeedwardisland.ca/sites/default/files/publications/eelc_eal701d. pdf PE08 Prince Edward Island Department of Education, Early Learning and Culture (2008). Prince Edward Island English as an additional language curriculum – Intermediate level listening, Education Policy Analysis Archives Vol. 30 No. 39 42 Code Policy Document speaking, reading and writing EAL 701C. https://www.princeedwardisland.ca/sites/default/files/publications/eelc_eal 701c.pdf PE09 Prince Edward Island Department of Education, Early Learning and Culture (2008). Prince Edward Island English as an additional language curriculum – Introductory/beginner level listening and speaking EAL 701A. https://www.princeedwardisland.ca/sites/default/files/publications/eelc_eal 701a.pdf PE10 Ministère de l’Éducation et de l’Apprentissage continu de l’Île-du-Prince-Édouard (2009). Français immersion programme d’études 12e année. https ://www.prince edwardisland.ca/sites/default/files/publications/eelc_french immersion_12.pdf PE11 Prince Edward Island Department of Education, Early Learning and Culture (2009). Prince Edward Island English as an additional language curriculum – Introductory/beginner level reading and writing 701B. https://www.prince edwardisland.ca/sites/default/files/publications/eelc_ eal701b.pdf PE12 Prince Edward Island Department of Education and Early Childhood Development (2009). Resource for grade 6 social studies: Prince Edward Island historic places. https://www.princeedwardisland.ca/sites/default/ files/publications/eelc_pei_ historic_places.pdf PE13 Prince Edward Island Department of Education and Early Childhood Development (2010). Global classroom initiati e “Connecting classrooms and communities for global awareness” Global issues 621A. https://www.princeedwardisland.ca/sites/ default/files/publications/eelc_global_classroom_geo621a.pdf PE14 Prince Edward Island Department of Education and Lifelong Learning (2010). Global classroom initiati e “Connecting classrooms and communities for global awareness” Global studies 521A. https://www.princeedwardisland.ca/sites/ default/files/publications/eelc_global_classroom_geo 521a.pdf PE15 Prince Edward Island Department of Education and Early Childhood Development (2010). Prince Edward Island Social Studies Curriculum: History 621A Canadian history. https://www.princeedwardisland.ca/sites/default/files/publications/eelc_ his 621a.pdf PE16 Prince Edward Island Department of Education and Early Childhood Development (2011). Prince Edward Island social studies curriculum: Geography 621A global issues. https://www.princeedwardisland.ca/sites/default/files/publications/eelc_ geo621a.pdf PE17 Prince Edward Island Department of Education and Early Childhood Development (2011). Prince Edward Island social studies curriculum: Geography 631A global issues. https://www.princeedwardisland.ca/sites/default/files/publications/eelc_ geo631a.pdf PE18 Prince Edward Island Department of Education and Lifelong Learning (2016). Resource for HIS621A/B Évangeline Appendix B. https://www.princeedward island.ca/sites/default/files/publications/eelc_ 42askatchew_appendix_b_his621a- b.pdf PE19 Ministère de l’Éducation, du développement préscolaire et de la Culture de l’Île-du- Prince-Édouard (2017). Sciences humaines programme d’études HIS421G. https://www.princeedwardisland.ca/sites/default/files/publications/prog_detudes_ his421g.pdf The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 43 Code Policy Document PE20 Ministère de l’Éducation, du développement préscolaire et de la Culture de l’Île-du- Prince-Édouard (2017). Sciences humaines programme d’études HIS421M. https://www.princeedwardisland.ca/sites/default/files/publications/prog_detudes_ his421m.pdf PE21 Ministère de l’Éducation et de l’Apprentissage continu de l’Île-du-Prince-Édouard (2019). Préparatifs pour la rentrée scolaire. https ://www.princeedwardisland.ca/ fr/information/education-et-apprentissage-continu/preparatifs-rentree-scolaire PE22 Prince Edward Island Department of Education and Lifelong Learning (2019). Preparing for school. https://www.princeedwardisland.ca/en/information/ education- and-lifelong-learning/preparing-for-school Quebec QC01 Ministère de l’Éducation, du oisir et du Sport (2014). Cadre de référence : Accueil et intégration des élè es issus de l’immigration au Québec 1. Portrait des élè es – Soutien au milieu scolaire. http://www.education.gouv.qc.ca/fileadmin/ site_web /documents/education/diversite/AccueilIntegration_1 _PortraitEleves.pdf QC02 Ministère de l’Éducation, du oisir et du Sport (2014). Cadre de référence : Accueil et intégration des élè es issus de l’immigration au Québec 3. Protocole d’accueil. http://www.education.gouv.qc.ca/fileadmin/site_web/documents/ education/diversite/AccueilIntegration_3_ ProtocoleAccueil.pdf QC03 Ministère de l’Éducation, du oisir et du Sport (2014). Entrevue initiale : Accueil et intégration des élè es issus de l’immigration au Québec – Éducation préscolaire, enseignement primaire et enseignement secondaire. http://www.education.gouv.qc.ca/fileadmin/site_web/documents/education/ diversite/Accueil_Eleves_ Immigration_Entrevue_initiale_Francais_S_FR.pdf QC04 Ministère de l’Éducation et de l’Enseignement supérieur du Québec (2019). Soutien au milieu scolaire 2019-2020 : Intégration et réussite des élè es issus de l’immigration et éducation interculturelle – éducation préscolaire, enseignement primaire et enseignement secondaire. http://www.education.gouv.qc.ca/file admin/site_web/documents/education/diversite/Guide-soutien-milieu-scolaire.PDF QC05 Ministère de l’Éducation et de l’Enseignement supérieur du Québec (2020). Activités interculturelles scolaires. http://www.education.gouv.qc.ca/contenus- communs/societe/immigration-et-education-interculturelle/activites-interculturelles/ QC06 Ministère de l’Éducation et de l’Enseignement supérieur du Québec (2020). Immigration et éducation interculturelle. http://www.education.gouv.qc.ca/ contenus- communs/societe/immigration-et-education-interculturelle/ QC07 Ministère de l’Éducation et de l’Enseignement supérieur du Québec (2020). Réfugiés en milieu scolaire. http://www.education.gouv.qc.ca/contenus- communs/societe/immigration-et-education-interculturelle/accueil-et- integration/refugies-en-milieu-scolaire/ QC08 Ministère de l’Éducation et de l’Enseignement supérieur du Québec (2020). Soutien financier. http://www.education.gouv.qc.ca/contenus-communs/ societe/immigration- et-education-interculturelle/soutien-financier/ QC09 Ministère de l’Éducation et de l’Enseignement supérieur du Québec (2020). Trousse d’information – Accueil des immigrants et des réfugiés en milieu scolaire. http://www.education.gouv.qc.ca/references/tx-solrtype recherchepublicationtx- Education Policy Analysis Archives Vol. 30 No. 39 44 Code Policy Document solrpublicationnouveaute/resultats-de-la-recherche/ detail/article/trousse- dinformation-accueil-des-immigrants-et-des-refugies-en-milieu-scolaire/ Saskatchewan SK01 Ministère de l’Éducation du Saskatchewan (2000). Sciences sociales 30 Les études canadiennes – programme d’études fransaskois guide d’acti ités. https://publications.saskatchewan.ca/#/products/33635 SK02 Ministère de l’Éducation du Saskatchewan (2001). Sciences sociales 10 Les organisations sociales – programme d’études guide d’acti ités. https://publications.saskatchewan.ca/#/products/48341 SK03 Ministère de l’Éducation du Saskatchewan (2001). Sciences sociales 20 : Les problèmes du monde contemporain – programme d’études guide d’activités. https://publications.saskatchewan.ca/#/products/48372 SK04 Saskatchewan Ministry of Education (2002). Law 30 curriculum guide for the secondary level: The law and you. https://publications.saskatchewan.ca/# products/33395 SK05 Saskatchewan Ministry of Education (2002). Native studies 10 curriculum. https://publications.saskatchewan.ca/#/products/33393 SK06 Saskatchewan Ministry of Education (2009). English language arts 9: Additional learning resources. https://publications.saskatchewan.ca/#/ products/33821 SK07 Saskatchewan Ministry of Education (2009). High school completion for English as an additional language (EAL) students. https://publications.saskatchewan.ca/ #/products/74106 SK08 Saskatchewan Ministry of Education (2009). Social studies 6. https://publications. 44askatchewan.ca/#/products/33385 SK09 Saskatchewan Ministry of Education (2010). Social studies 5. https://publications. 44askatchewan.ca/#/products/33322 SK10 Saskatchewan Ministry of Education (2011). English language arts: Core learning resources 8. https://publications.saskatchewan.ca/#/products/33776 SK11 Ministère de l’Éducation du Saskatchewan (2011). Sciences humaines 6e année, programme d’immersion. https://publications.saskatchewan.ca/#/products/33523 SK12 Ministère de l’Éducation du Saskatchewan (2011). Sciences humaines 8e année, programme d’immersion. https://publications.saskatchewan.ca/#/products/33525 SK13 Saskatchewan Ministry of Education (2016). Policy, guidelines and procedures for alternative education programs: Alternative grade 10, 11 and 12. https://publications.saskatchewan.ca/#/products/85571 SK14 Ministère de l’Éducation du Saskatchewan (2016). Politiques et procédures de l’approbation de programmes alternatifs offerts en français. https://publications. Saskatchewan.ca/#/products/85572 SK15 Ministère de l’Éducation du Saskatchewan (2017). Guide de transition des élèves – Soutien aux nouveaux élèves : un guide pour les écoles. https://publications. Saskatchewan.ca/#/products/87027 SK16 Saskatchewan Ministry of Education (2017). Student transition guide – Supporting new students in your school: A guide for schools. https://publications. 44askatchewan.ca/#/products/87026 SK17 Saskatchewan Ministry of Education (2019). 2019-20 funding manual – English. https://publications.saskatchewan.ca/#/products/100142 The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 45 Code Policy Document SK18 Government of Saskatchewan (2019). Education Act, 1995. https://publications. 45askatchewan.ca/#/products/487 SK19 Gouvernement du Saskatchewan (2019). Loi de 1995 sur l’éducation. https://publications.saskatchewan.ca/#/products/487 SK20 Ministère de l’Éducation du Saskatchewan (2019). Manuel de financement 2019-20 : Modèle de répartition du financement de la prématernelle à la 12e année. https://publications.saskatchewan.ca/#/products/100143 SK21 Saskatchewan Ministry of Education (2020). 2020-21 funding manual – English. https://publications.saskatchewan.ca/#/products/104462 SK22 Ministère de l’Éducation du Saskatchewan (2020). Manuel de financement 2020-21 : Modèle de répartition du financement de la prématernelle à la 12e année. https://publications.saskatchewan.ca/#/products/ 104465 SK23 Saskatchewan Ministry of Education (n.d.). Effective practice guidelines: The basics – English as an additional language (EAL). https://publications. 45askatchewan.ca/#/products/74103 SK24 Saskatchewan Ministry of Education (n.d.). Nurturing resilience: Supporting refugees. https://www.edonline.sk.ca/webapps/blackboard/content/listContent. Jsp?course_id=_3444_1&content_ id=_86591_1&mode=reset Education Policy Analysis Archives Vol. 30 No. 39 46 Appendix 4: Inclusion and Exclusion Criteria Used in Jurisdiction -based Scoping Review of Policies Criteria Elements Inclusion Criteria Exclusion Criteria Author, publisher, or endorser • Published by Ministry or Department of Education; or • Circulated by Ministry or Department of Education • Published by any other Ministry or Department; and • Not circulated by Ministry or Department of Education Language • English; and/or • French • Language other than English or French Subject • Pertains to primary and/or secondary education • Pertains to pre-primary or post- secondary education; or • Does not pertain to education Keyword Contains the term “refugee” or “réfugié” • At least once in the body of the text Contains the term “refugee” only in • A list of references or bibliography; • A link to another publication; and/or • A way that does not refer to refugee status, refugeehood, or refugee experiencesa Document type • Policy document (e.g., policy guide, memorandum, resource guide, curriculum) • Not a policy document (e.g., news release, report, student assessment tool, event poster, immigration welcome guide) Status For policy guides: • Current For other policy documents: • Most recent or up-to-date version containing the term “refugee” and or “réfugié” For policy guides: • Expired For other policy documents: • Not the most recent or up-to-date version containing the term “refugee” and or “réfugié” Note. a i.e., The use of “ mmigration, Refugees and Citizenship Canada” [ RCC] or “ mmigration and Refugee Protection Act” [ RPA] for purposes other than defining targeted populations and/or topics of instruction. The use of the literary expression “to take seek refuge” to describe psychological dissociation or seeking shelter in a secure area during a school lockdown. The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 47 Appendix 5: Data Abstraction Tool (DAT) Data Abstraction Tool (DAT) A. Policy instrument characteristics A.1. APA Reference A.2. Date of publication or effect A.3. Jurisdiction A.4. Search strategy A.5. Date of review A.6. Type of instrument Policy guidelines and protocols Memorandum Resource for student support Curriculum for teaching refugees Curriculum for teaching about refugees Resource for teaching about refugees A.7. Publication type Webpage PDF If PDF, number of pages: A.8. Language of publication English French A.9. Description B. Data item units B.1 Data item unit 1: Access to education B.1.1 Objective Specificity of objective Overall objective Lower-level objective Recognition of the need without objective N/A B.1.2 Targeted populations Targeted benefiting population Sample Characteristics Refugee-focused Specify cohort in document: Ages: Specified Abilities: Specified Countries of origin: Specified Explicitly refugee-relevant Specify cohort in document Ages: Specified Abilities: Specified Countries of origin: Specified Refugee-mentioning document (refugees mentioned in document but not targeted population) Context of term “refugee” Targeted benefiting population: Ages: Specified Abilities: Specified Countries of origin: Specified Education Policy Analysis Archives Vol. 30 No. 39 48 Targeted partners Students With refugee status Without refugee status Parents, guardians, and families With refugee status Without refugee status Organizations Specify type: Intergovernmental organizations International non-governmental organizations Domestic civil society organizations Private sector foundations Academic organizations Other government ministries Targeted implementation agents Teachers Specified type Administrators Other Specify: Counsellor Psychologist Other: B.1.3 Instrument Tools Authority Capacity Incentive Inducement Charge Sanction Force Learning Symbolic and hortatory Symbolic pronouncement Rationale Label B.2 Data item unit 2: Accelerated education B.2.1 Objective Specificity of objective Overall objective Lower-level objective Recognition of the need without objective N/A B.2.2 Targeted populations Targeted benefiting population Sample Characteristics Refugee-focused Specify cohort in document: Ages: Specified Abilities: Specified Countries of origin: Specified Explicitly refugee-relevant Specify cohort in document Ages: Specified Abilities: Specified Countries of origin: Specified Ages: Specified The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 49 Refugee-mentioning document (refugees mentioned in document but not targeted population) Context of term “refugee” Targeted benefiting population: Abilities: Specified Countries of origin: Specified Targeted partners Students With refugee status Without refugee status Parents, guardians, and families With refugee status Without refugee status Organizations Specify type: Intergovernmental organizations International non-governmental organizations Domestic civil society organizations Private sector foundations Academic organizations Other government ministries Targeted implementation agents Teachers Specified type: Administrators Other Specify: Counsellor Psychologist Other: B.2.3 Instrument Tools Authority Capacity Incentive Inducement Charge Sanction Force Learning Symbolic and hortatory Symbolic pronouncement Rationale Label B.3 Data item unit 3: Language education B.3.1 Objective Specificity of objective Overall objective Lower-level objective Recognition of the need without objective N/A B.3.2 Targeted populations Targeted benefiting population Sample Characteristics Refugee-focused Specify cohort in document: Ages: Specified Abilities: Specified Countries of origin: Specified Education Policy Analysis Archives Vol. 30 No. 39 50 Explicitly refugee-relevant Specify cohort in document Ages: Specified Abilities: Specified Countries of origin: Specified Refugee-mentioning document (refugees mentioned in document but not targeted population) Context of term “refugee” Targeted benefiting population: Ages: Specified Abilities: Specified Countries of origin: Specified Targeted partners Students With refugee status Without refugee status Parents, guardians, and families With refugee status Without refugee status Organizations Specify type: Intergovernmental organizations International non-governmental organizations Domestic civil society organizations Private sector foundations Academic organizations Other government ministries Targeted implementation agents Teachers Specified Administrators Other Specify: Counsellor Psychologist Other: B.3.3 Instrument Tools Authority Capacity Incentive Inducement Charge Sanction Force Learning Symbolic and hortatory Symbolic pronouncement Rationale Label B.4 Data item unit 4: Mental health and psychosocial support B.4.1 Objective Specificity of objective Overall objective Lower-level objective Recognition of the need without objective N/A The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 51 B.4.2 Targeted populations Targeted benefiting population Sample Characteristics Refugee-focused Specify cohort in document: Ages: Specified Abilities: Specified Countries of origin: Specified Explicitly refugee-relevant Specify cohort in document Ages: Specified Abilities: Specified Countries of origin: Specified Refugee-mentioning document (refugees mentioned in document but not targeted population) Context of term “refugee” Targeted benefiting population: Ages: Specified Abilities: Specified Countries of origin: Specified Targeted partners Students With refugee status Without refugee status Parents, guardians, and families With refugee status Without refugee status Organizations Specify type: Intergovernmental organizations International non-governmental organizations Domestic civil society organizations Private sector foundations Academic organizations Other government ministries Targeted implementation agents Teachers Specified type: Administrators Other Specify: Counsellor Psychologist Other: B.4.3 Instrument Tools Authority Capacity Incentive Inducement Charge Sanction Force Learning Symbolic and hortatory Symbolic pronouncement Rationale Label B.5 Data item unit 5: Special education Education Policy Analysis Archives Vol. 30 No. 39 52 B.5.1 Objective Specificity of objective Overall objective Lower-level objective Recognition of the need without objective N/A B.5.2 Targeted populations Targeted benefiting population Sample Characteristics Refugee-focused Specify cohort in document: Ages: Specified Abilities: Specified Countries of origin: Specified Explicitly refugee-relevant Specify cohort in document Ages: Specified Abilities: Specified Countries of origin: Specified Refugee-mentioning document (refugees mentioned in document but not targeted population) Context of term “refugee” Targeted benefiting population: Ages: Specified Abilities: Specified Countries of origin: Specified Targeted partners Students With refugee status Without refugee status Parents, guardians, and families With refugee status Without refugee status Organizations Specify type: Intergovernmental organizations International non-governmental organizations Domestic civil society organizations Private sector foundations Academic organizations Other government ministries Targeted implementation agents Teachers Specified N/A Specify type: Administrators Other Specify: Counsellor Psychologist Other: B.5.3 Instrument Tools Authority Capacity Incentive Inducement Charge Sanction Force The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 53 Learning Symbolic and hortatory Symbolic pronouncement Rationale Label C. Intersectionality Two or more needs considered simultaneously Access to education Accelerated education Language education Mental health and psychosocial support Special education Citation/Explanation: Education Policy Analysis Archives Vol. 30 No. 39 54 Appendix 6: Codebook Used for Coding DATs, with Numbers of Files and References per Code Code Files References Accelerated education 51 266 Instruments 45 45 Capacity 31 31 Learning 14 14 Specificity of objective 47 49 Lower-level objective 21 21 Overall objective 18 18 Recognition of the need without objective 9 10 Target benefitting population 45 50 Explicitly refugee-relevant 18 19 Refugee-focused 11 14 Refugee-mentioning document 16 17 Target implementing populations 41 63 Administrators 24 24 Others 6 6 Teachers 32 33 Target partnering populations 34 59 Organizations 6 6 Parents, guardians, and families 19 21 Students 31 32 Access to education 54 269 Instruments 25 25 Capacity 19 19 Learning 6 6 Specificity of objective 51 55 Lower-level objective 18 20 Overall objective 33 35 Recognition of the need without objective 0 0 Target benefitting population 46 47 Explicitly refugee-relevant 33 33 Refugee-focused 7 7 Refugee-mentioning document 7 7 Target implementing populations 49 82 Administrators 42 42 Others 17 17 Teachers 23 23 Target partnering populations (2) 33 60 Organizations 18 18 The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 55 Code Files References Parents, guardians, and families 24 24 Students 17 17 Language education 64 352 Instruments 45 47 Capacity 34 35 Learning 11 11 Specificity of objective 64 69 Lower-level objective 21 23 Overall objective 42 42 Recognition of the need without objective 3 3 Target benefitting population 57 58 Explicitly refugee-relevant 25 25 Refugee-focused 17 17 Refugee-mentioning document 16 16 Target implementing populations 59 98 Administrators 44 44 Others 10 10 Teachers 44 44 Target partnering populations 43 80 Organizations 15 15 Parents, guardians, and families 32 32 Students 33 33 Mental health and psychosocial support 106 633 Instruments 101 102 Capacity 80 80 Learning 21 22 Specificity of objective 102 106 Lower-level objective 62 63 Overall objective 37 39 Recognition of the need without objective 4 4 Target benefitting population 103 106 Explicitly refugee-relevant 28 29 Refugee-focused 17 17 Refugee-mentioning document 59 59 Target implementing populations 95 160 Administrators 43 44 Others 25 27 Teachers 87 89 Target partnering populations 83 159 Organizations 43 45 Education Policy Analysis Archives Vol. 30 No. 39 56 Code Files References Parents, guardians, and families 42 45 Students 69 69 Special education 41 184 Instruments 23 23 Capacity 13 13 Learning 10 10 Specificity of objective 38 38 Lower-level objective 28 28 Overall objective 9 9 Recognition of the need without objective 1 1 Target benefitting population 38 43 Explicitly refugee-relevant 12 12 Refugee-focused 6 11 Refugee-mentioning document 20 20 Target implementing populations 37 58 Administrators 18 18 Others 10 10 Teachers 30 30 Target partnering populations 29 57 Organizations 10 20 Parents, guardians, and families 17 17 Students 19 19 The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 57 Appendix 7: Policy Coherence Rubrics Element of coherence Coherent Incoherent Absent Policy objectives The objectives of the refugee education policy are consistent with an Enabling Activity: They aim to respond to the category of need derived from an Enabling Activity of Expected Result 1 of Strategic Objective 2 of Refugee Education 2030 and address every detail provided in the Enabling Activity The objectives of the refugee education policy aim to respond to the category of need derived from an Enabling Activity of Expected Result 1 of Strategic Objective 2 of Refugee Education 2030; however, they do not address every detail provided in the Enabling Activity and/or one or more of the objectives of the policies comprising the refugee education policy contradicts the goal of the Enabling Activity and/or one or more of the objectives of the policies comprising the refugee education policy obstructs coherence at another element of policy coherence. No policy objectives of responding to the category of need derived from the Enabling Activity of Expected Result 1 of Strategic Objective 2 of Refugee Education 2030 were identified in the refugee education policy set, should the jurisdiction have such a policy set. This does not necessarily mean that there are no such policy objectives in the jurisdiction’s entire education policy set. Element of coherence Coherent Incoherent Absent Policy instruments The policies include both capacity instruments that are fully coherent with the Strategic Approach of Collaborative Learning and Capacity Development and learning instruments that are fully coherent with the Strategic Approach of Innovation, Evidence, and Growth. The policies do not include capacity instruments and/or learning instruments; or, including both capacity and learning instruments, the learning instruments do not encourage or require evaluation of progress towards the objective(s) and/or the capacity instruments provide erroneous information that could decrease implementation capacity and/or the instruments obstruct coherence at another element of policy coherence. The policies included neither capacity instruments nor learning instruments. Education Policy Analysis Archives Vol. 30 No. 39 58 Element of coherence Coherent Incoherent Absent Target populations Coherence among benefiting populations Policies comprising the refugee education explicitly include all of the targeted benefiting population of Refugee Education 2030: All refugee claimant and refugee children and youth of primary and secondary school age, regardless of legal status, gender, or disability. Policies comprising the refugee education explicitly include part but not all of the targeted benefiting population of Refugee Education 2030, policies comprising the refugee education implicitly include all or part of the targeted benefiting population of Refugee Education 2030, and/or policies comprising refugee education explicitly exclude all or part of the targeted benefiting population of Refugee Education 2030. Policies comprising refugee education do not explicitly or implicitly include any part of the targeted benefiting population of Refugee Education 2030. Coherence among implementing populations Policies comprising refugee education are to be implemented by all of the government agents relevant to the response in the given context. Policies comprising refugee education are to be implemented by some but not all of the government agents relevant to the response in the given context and/or policies comprising refugee education contradict descriptors of the targeted implementing population in Refugee Education 2030 and/or policies comprising refugee education are to be implemented by agents that would obstruct coherence at another element of policy coherence. Policies comprising refugee education do not have an explicit targeted implementing population (e.g., imperative sentences without a subject implied elsewhere in the policy). Coherence among partnering populations The policies target one or more partner(s) from both of the two categories of partners sourced from Refugee Education 2030: Organizational partners (e.g., intergovernmental organizations, international non-governmental organizations, domestic civil society organizations, private sector organizations and foundations, civil society organizations, and academic networks) and partners from a whole of society approach (e.g., educational stakeholders – students, parents, guardians, families, and communities) The policies in refugee education fail to target one or more partner from one or both of the two categories of partners sourced from Refugee Education 2030: Organizational partners and partners from a whole of society approach and/or policies in refugee education prohibit or prevent one or both of the two categories of partners from Refugee Education 2030 – organizational partners and educational stakeholders – from being partners and/or the targeted partnering populations of the refugee education policy obstruct coherence in another element of policy coherence. There are no policies in refugee education pertaining to partnership. The (in)coherence of Canadian refugee education policy with the United Nations’ strategy 59 About the Author Valerie Schutte Independent Researcher vschu062@uottawa.ca https://orcid.org/0000-0002-5761-0497 Valerie Schutte is a former graduate student at the University of Ottawa. Her research interests include the education of forcibly displaced persons and the mental health of children and young people. Peter Milley University of Ottawa pmilley@uottawa.ca https://orcid.org/0000-0002-5819-8086 Peter Milley is associate professor in the Faculty of Education and Director of the Centre for Research on Educational and Community Services at the University of Ottawa. His research encompasses multiple dimensions of educational leadership, administration, and policy. Eliane Dulude University of Ottawa edulude@uottawa.ca https://orcid.org/0000-0001-8930-4956 Eliane Dulude is assistant professor in the Faculty of Education at the University of Ottawa and Principal Research in the Centre for Research on Educational and Community Services. Her research concentrates on educational administration and policy implementation. education policy analysis archives Volume 30 Number 39 March 22, 2022 ISSN 1068-2341 Readers are free to copy, display, distribute, and adapt this article, as long as the work is attributed to the author(s) and Education Policy Analysis Archives, the changes are identified, and the same license applies to the derivative work. More details of this Creative Commons license are available at https://creativecommons.org/licenses/by-sa/4.0/. 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