local authority approaches to meeting the accommodation ... traveller/accomodation... · 2015 local...
TRANSCRIPT
1
Contents
Executive Summary 2 1. Introduction 3
2. Background 3
3. Research Aims 4
4. Methodology 5
5. Gypsy/Travellers in Scotland 5
6. Local Housing Strategies 6
6.1 Resources 6.2 Housing Need and Demand Assessments
7. Inaction of Housing Need and Demand Assessments 7
7.1 West Central Scotland 7.2 Grampian 7.3 South East Scotland 7.4 Summary 8. Community Participation in Local Housing Strategies 10 8.1 Gypsy/Traveller Involvement
8.2 Meeting Accommodation Needs 8.3 Tenant Satisfaction Surveys 8.4 Case Studies
8.4a Argyll and Bute 8.4b Falkirk 8.4c Perth and Kinross 8.4d Bristol
8.5 Summary 9. Barriers in Meeting Accommodation Needs 15 10. Improving Outcomes 17
10.1 Priorities 11. Moving Forward 18 12. Next Steps 19 13. Concluding Thoughts 19 Appendices: 21 • Appendix 1: Questions to Local Authorities • Appendix 2: Correspondence with COSLA Bibliography 22
2
Executive Summary
This report presents the findings from a time-
limited piece of research carried out by
MECOPP (Minority Ethnic Carers of People
Project) with the support of ALACHO
(Association of Local Authority Chief Housing
Officers). Our aim was to examine the
approaches taken by local authorities in
meeting the accommodation needs of
Gypsy/Travellers in Scotland.1
After reviewing the 32 Local Housing
Strategies, the research showed that:
o Gypsy/Travellers are widely recognised by local authorities as being a distinct ethnic group with particular accommodation needs.
o Six local authorities, particularly those with high numbers, have established specific Gypsy/Traveller strategies.
o Gypsy/Travellers were included in 30 Housing Need and Demand Assessments (HNDAs).
o Most Local Housing Strategies (LHS) do not make use of the most up to date population statistics. Instead, LHS tend to be based on the latest HNDA figures and, as such, the need for provision appears to be based on historical demand for pitches as opposed to population projections in line with the settled community.
o In 2013 the Scottish Parliament Equal Opportunities Committee criticised the HNDA process for not having “yielded results for Gypsy/Travellers”.2 Our research confirms that there has been a lack of progress in meeting targets identified in HNDAs.
o The inaction of HNDAs is clearly evidenced in case studies of West Central Scotland, Grampian and South East Scotland. In most cases, Gypsy/Traveller accommodation needs are being
1 Research carried out by Kirstin Scott, a graduate
intern at MECOPP during 2014. Although the research was carried out with the support and co-operation of ALACHO, the analysis and conclusions drawn from this remain the views and responsibility of MECOPP. 2 The Scottish Parliament Equal Opportunities
Committee (2013) Where Gypsy/Travellers Live, p19.
embraced but because strategies are not being implemented, the existing need remains to be met.
In considering why such little progress has
been made, local authorities identified the
main barriers to providing accommodation as:
o The identification of suitable land o Social attitudes and resistance from the
settled community o Difficulties in locating and engaging with
Gypsy/Travellers
Interestingly, even in areas where some form
of community consultation had taken place,
very basic problems persist and the steps
taken to date have not resulted in increased
provision or improved living standards.
Research respondents were also asked to list
key actions to improve understanding of
accommodation needs and better outcomes
for all. The most common responses were:
o Improved communication/engagement o Political leadership o Provision of short stay sites
In summary, our research has confirmed that
little progress has been made in addressing
the accommodation needs of
Gypsy/Travellers since the first Scottish
Parliament inquiry in 2001. The
accommodation needs evidenced in HNDAs,
and reflected in LHSs, have to date been
largely unattainable. The research findings
suggest it may be necessary to question
whether strategies themselves are fit for
purpose.
The research also highlighted a number of
gaps in service provision and the urgent need
for the development, and implementation, of
national quality standards relating specifically
to Gypsy/Traveller accommodation. Similarly,
greater accountability and increased support
at a local level is required to ensure that
service providers are adequately meeting
targets identified by HNDAs. The evidence
indicates that these developments can only be
achieved by a collective approach in the form
of strong leadership at national level.
3
1. Introduction
MECOPP (Minority Ethnic Carers of People
Project) is Scotland’s leading Black and
Minority Ethnic carers’ organisation providing
a range of support services to carers from
various BME communities. In 2011, MECOPP
began working with Gypsy/Traveller carers in
three Scottish localities: Edinburgh and the
Lothians, Perth and Kinross, and mid and
north Argyll. Using community development
approaches, the project works to: raise
awareness of informal caring within the
community; develop and deliver a range of
services to support informal carers; build the
capacity of statutory bodies to respond more
appropriately to identified need; and, assist
local and national government in the
development of policy and practice.
As the representative body for Scotland’s
senior council housing practitioners, ALACHO
(Association of Local Authority Chief Housing
Officers) liaises with central government and
other national agencies to ensure that the
voice of local authority housing is heard and
reflected in Scotland’s housing policies and
strategies. ALACHO often works with other
stakeholders and partners with a view to
improving living conditions for all of
Scotland’s citizens, and has been pleased to
co-operate with MECOPP on research into this
this important policy area.
Over the last fifty years Gypsy/Travellers have
faced increasing pressure through central and
local government policies to settle down on
permanent sites or in housing. Unlike England
and Wales, in Scotland there has never been a
statutory obligation on local authorities to
provide sites for Gypsy/Travellers. There are
currently 26 permanent sites and 3 seasonal
sites which are operated by local authorities
or a Registered Social Landlord (RSL).3 The
3 The Scottish Government (2014) Information on
Gypsy/Traveller Sites and MECOPP (2012) Response to the Equal Opportunities Committee Inquiry into Gypsy/Travellers and Accommodation.
recent Scottish Parliament Equal
Opportunities Committee inquiry ‘Where
Gypsy/Travellers Live’ reported that this kind
of council/RSL accommodation is expensive,
has poor quality facilities, takes little account
of cultural values and is hidebound by petty
regulation.4
Health and housing issues are intrinsically
linked and, like any other community,
Gypsy/Travellers have a range of
accommodation needs which require a variety
of different responses, rather than the
uniform approach that has been taken to
date. And, despite the popular misconception,
Gypsy/Travellers are not asking for ‘special
treatment’, rather accommodation which
meets their cultural needs.
2. Background
In 2013, the Scottish Parliament Equal
Opportunities Committee published its
accommodation inquiry ‘Where
Gypsy/Travellers Live’. The report highlighted
a lack of progress in the twelve years since the
first parliamentary inquiry and the committee
expressed their “frustration” that the
“appalling situation of many Gypsy/Travellers
is little changed”.5 It concluded that a
“positive and collaborative way of providing
culturally appropriate accommodation for
Gypsy/Traveller people has not yet been
found” and the committee called for the
development of “fit-for-purpose housing
strategies” that “embrace Gypsy/Traveller
needs”.6
The inequalities experienced by
Gypsy/Travellers have been well documented
over the years in reports by the Scottish
Parliament Equal Opportunities Committee
(EOC), the Equality and Human Rights
Commission, Amnesty International, MECOPP
and various others. It has been widely
4 The Scottish Parliament Equal Opportunities
Committee (2013). 5 Ibid., p21.
6 Ibid.
4
acknowledged that the lack of appropriate
accommodation is the root cause of many of
the difficulties experienced by
Gypsy/Travellers and it has been estimated
that at least a quarter of the community in
Scotland lack suitable accommodation.7
Unfortunately, despite recommendations to
bring living conditions in line with Below
Tolerable Standard and Standard Amenity for
Housing it is still the case today that for many
Gypsy/Travellers accommodation remains
inadequate and continues to negatively
impact many other aspects of their daily lives.
When these living conditions are compared to
basic human rights and standards for
adequate housing there is a glaring
discrepancy in which living conditions on sites
are failing to meet. Article 25.1 of the
Universal Declaration of Human Rights
recognises the right to adequate housing. The
core components for adequate housing
include “… sustainable access to basic
facilities essential for health, security and
comfort, including sustainable access to safe
drinking water, energy for cooking, heating
and lighting, sanitation and washing facilities,
means of food storage, garbage disposal, site
drainage and the emergency services”.8 It
also notes that housing must provide
adequate “protection from cold, damp, heat,
rain, wind or other threats to health” as well
as being located to “allow access to health
centres, schools, employment, emergency
services and other services” and must enable
the “expression of cultural identity and
diversity of housing”.9
Evidence submitted to the Parliamentary
inquiry suggests the living conditions of many
Gypsy/Travellers are also a breach of
Tolerable Standards for housing. Tolerable
7 Hutton, L. (2011) Engaging with the
Gypsy/Traveller Community: Policy and Literature Review Prepared for Perth & Kinross Council, pii. 8 Amnesty International (2012) On the Margins:
Local Authority Service Provision for Scottish Gypsy/Travellers, p6. 9 Ibid.
Standards dictate the basic level of repair
required for housing to be deemed suitable to
live in. And, according to the Scottish
Government, local authorities have a
“statutory duty and specific powers to deal
with houses that fall below the tolerable
standard”. Standards include “problems with
rising or penetrating damp; an adequate
supply of fresh water; a good drainage or
sewerage system and satisfactory cooking
facilities”.10 Many of those who gave
evidence to the EOC inquiry cited multiple
examples of inadequate living conditions,
poor site design and management. Where
living conditions fail to comply with Tolerable
Standards, Gypsy/Travellers are prevented
from enjoying their right to adequate housing.
Along similar lines, the U.N. Special
Rapporteur on adequate housing,
recommended, following her country visit to
the U.K., that Governments should:
“Strengthen efforts to address stigma and
discrimination for the Gypsy and Traveller
communities in relation to the wider spectrum
of rights, starting with the recognition that
cultural adequacy in housing is a pillar for
inclusion, and that legislation and policy are
not enough to overcome local obstacles”.11
3. Research Aims This research examined the approaches taken
by local authorities in their attempts to meet
the accommodation needs of
Gypsy/Travellers and, in doing so, has
attempted to shift the focus onto why so little
progress has been made. The research
contributes to our understanding of the
barriers faced by local authorities in their
attempts to meet the accommodation needs
of Gypsy/Travellers and potential ways of
improving outcomes.
10
Shelter Scotland (2014) Tolerable Standard. 11
United Nations (2014) Country Visit Report of the Special Rapporteur on adequate housing as a component of the right to an adequate standard of living, and on the right to non-discrimination in this context, p21.
5
The research findings do not seek to reflect
the views or experiences of Gypsy/Travellers -
these have been well documented in other
MECOPP reports, the recent Equal
Opportunities Committee inquiry and in
several other studies - but rather provide a
snapshot of the different approaches taken by
service providers, as well as the types of
difficulties they have encountered in meeting
the community’s accommodation needs.
We are acutely aware that for many
Gypsy/Travellers, accommodation provision
on local authority/RSL sites continues to fall
far short of the basic requirements and
Tolerable Standards now commonplace for
mainstream housing. Amnesty International
described Scottish Gypsy/Travellers as a
“group that has been prevented from fully
realising their human right to adequate
housing”.12
4. Methodology
This research was limited to a five month
period and, as such, the following approach
was taken:
Phase 1: A literature review in order to
establish gaps in the work already carried out.
Phase 2: A review of Scotland’s 32 Local
Housing Strategies and their accompanying
action plans – with a geographical focus on
West Central Scotland, Grampian and South
East Scotland - covering a wide and diverse
area of the country, as well several local
authorities where specific work on HNDAs for
Gypsy/Travellers has been carried out.
Phase 3: MECOPP worked in collaboration
with the Association of Local Authority Chief
Housing Officers (ALACHO) in developing and
distributing an on-line survey to each local
authority in an attempt to obtain a service
provider perspective. 26 local authorities
12
Amnesty International (2012), p4.
responded to the survey – giving a very
positive 81% response rate.
Phase 4: Correspondence with COSLA about
their views and intended actions on the issue.
5. Gypsy/Travellers in Scotland
It is widely acknowledged that quantifying the
Gypsy/Traveller population in Scotland is
particularly difficult.13 In the past, the Scottish
Government carried out bi-annual caravan
counts to track the population size but this
ceased in July 2009. The last caravan count
estimated that there were 2,120
Gypsy/Travellers living on council/RSL Sites,
private sites and temporary encampments in
Scotland.14 Although, the Scottish
Government acknowledge that this is likely to
be an underestimate as it does not include
Gypsy/Travellers living in housing.
For the purpose of this research, MECOPP has
used the 2011 census returns because it
provides the most up to date population
statistics for each local authority area. This is
the first time that Gypsy/Travellers have been
recognised as a census category. We are
aware that there are many reasons why
Gypsy/Travellers would choose not to identify
themselves in this way. The 2011 census
returns detailed the total number of
Gypsy/Travellers living in Scotland as being
4,212.15 But, organisations that work directly
with Gypsy/Travellers estimate the population
to be closer to 20,000 people.16 For this
reason, the census figures should be handled
with care as they are likely to be a vast
underestimation of the actual size of the
Gypsy/Traveller community in Scotland.
13
Ibid, p5. 14
The Scottish Government (2009) Gypsy/Travellers in Scotland: The Twice Yearly Count – no. 16, p1. 15
National Records of Scotland (2011) Census: Standard Outputs- ethnic group by sex by age for council areas. 16
Amnesty International (2012), p5.
6
6. Local Housing Strategies
The Housing (Scotland) Act 2001 placed a
statutory requirement on local authorities to
develop a Local Housing Strategy (LHS)
supported by an assessment of housing need
and demand.17 In 2007, ‘Firm Foundations’
marked a step change, placing new emphasis
on a much broader strategic role, calling for
strategies to “view the housing system as a
whole”.18 It concluded that it was “the Scottish
Government’s and COSLA’s joint priority to
increase housing supply across all tenure”.19
With regard to Gypsy/Travellers, Scottish local
authorities are not legally required to provide
sites, but they are expected to produce
strategies that “embrace Gypsy/Traveller
needs” and “ensure community participation”
in their “development and operation”.20
Similar guidance can be found in Scottish
Planning Policy – which states that the “needs
of Gypsies/Travellers for appropriate
accommodation should be set out in Local
Housing Strategies” and requires local
authorities to “take Gypsies/Travellers views
into account in delivering services and (be)
responsive to their needs”.21
After reviewing Scotland’s 32 Local Housing
Strategies, the research shows that
Gypsy/Travellers are regularly recognised by
local authorities as being a distinct ethnic
group with particular accommodation needs.
For example, Aberdeenshire Council reported
“we are committed to promoting equality and
we recognise and accept the
Gypsies/Traveller’s right to a nomadic way of
life. Our minority ethnic strategic outcome
statement and action plans detail the actions
necessary to meet the needs of
17
The Scottish Government and Convention of Scottish Local Authorities (2008) Local Housing Strategy Guidance, p2. 18
Ibid, p6 - 7. 19
Ibid. 20
The Scottish Parliament Equal Opportunities Committee (2013), p35. 21
Ibid.
Gypsies/Travellers in Aberdeenshire”.22
Likewise, in ‘Achieving Our Vision’ Angus
Council’s LHS pledges to identify the broader
housing needs of minority groups – including
Gypsy/Travellers “… whose needs are
sometimes complex and may require more
carefully thought out solutions than other
social groups”.23 A similar sentiment is echoed
throughout the LHSs in Scotland, each
pledging a commitment to meeting the
accommodation needs of this small but
significant community.
Gypsy/Travellers were included in 30 HNDAs
with the exception of the Western and
Shetland Isles where it is reported “no
Gypsy/Travellers have been recorded … at any
point in the year”.24 In addition to this, six
authorities – particularly those which contain
a high proportion of Gypsy/Travellers
(Aberdeen, Aberdeenshire, Argyll and Bute,
Highlands, Perth and Kinross and West
Dunbartonshire) have established local
Gypsy/Traveller strategies.
6.1 Resources
In contrast to the settled population, where
population projections are usually based on
the last census, in relation to Gypsy/Travellers
most LHS and HNDAs refer to Craigforth
research reports and figures from the last
Scottish Government caravan count (2009).
Accommodation provision appears to be
based on the historical demand for pitches as
opposed to the population projections used
for the settled community.
To further explore this apparent discrepancy,
service providers were asked, via an on-line
survey, to identify the resources used to
measure their local Gypsy/Traveller
population. Due to the open nature of this
question, a wide range of methods were
22
Aberdeenshire Council (2012-2017) Local Housing Strategy, p73. 23
Angus Council (2012-2017) Local Housing Strategy, p29. 24
Shetland Islands Council (2011-2016) Local Housing Strategy, p26.
7
identified – as evidenced by South Ayrshire
Council:
“Permanent Travelling Persons Site
allocations; Permanent Travelling Persons Site
waiting list; Census; Informal knowledge of
Gypsy/Travellers in bricks/mortar
accommodation; knowledge of
Gypsies/Travellers on unauthorised
encampments; 2008 Craigforth Study into
Accommodation Needs of Gypsies/Travellers;
Records of unauthorised encampments on
both public and private land.”
In contrast, Glasgow City Council reported
that there were “no dedicated resources for
this purpose although there is a Gypsy
Traveller Liaison Officer”. Aberdeen City and
Aberdeenshire Council also made reference to
their local Gypsy/Traveller Liaison Officer
“who manages our Gypsy/Traveller site and
visits unauthorised encampments, gathers
information on the number of caravans and
number of occupants” and informs the council
of “how many Gypsy/Travellers are resident in
the city at any given time”. Interestingly, only
three respondents said they had made use of
the 2011 census returns in their measurement
of the local community.
Most respondents tended to use a
combination of methods and resources to
measure the size of their local Gypsy/Traveller
population, with a particular emphasis on
roadside encampment statistic records. But,
most weight appears to be placed on local
Housing Need and Demand Assessments.
HNDAs were the most common resource
identified by service providers, with 36% of
respondents relying on HNDAs as a means of
gauging current need and future demand for
Gypsy/Traveller accommodation.
6.2 Housing Need and Demand Assessments
In August 2014, John Finnie MSP asked the
Scottish Government “how it assesses the
accommodation needs of the Gypsy/Traveller
community?” – to which Margaret Burgess
MSP, Minister for Housing and Welfare,
responded:
“Accommodation needs for Gypsy/Travellers
are assessed at a local level. A local authority
has to consider the accommodation needs of
Gypsy/Travellers as part of its Housing Need
and Demand Assessment and when
developing its Local Housing Strategy and
development plan...”.25
According to the Scottish Government, the
purpose of the HNDA is to enable “local
authorities to develop long term strategic
views of housing need and demand” including
the “requirement for specialist provision” and
“sites for Gypsy/Travellers”.26 However, in
2013 the Equal Opportunities Committee
criticised the process for not having “yielded
results for Gypsy/Travellers”.27 This research
provides further evidence that this is the case.
7. Inaction of Housing Need and Demand
Assessments
We focussed our research on three
geographical areas – West Central, Grampian
and South East Scotland - because they
constitute a relatively large sample size and
cover a diverse cross section of the population
where work on specific HNDAs for
Gypsy/Travellers has already been carried out.
7.1 West Central Scotland
In 2007, Craigforth Research and Consultancy
undertook a comprehensive study into the
accommodation needs of Gypsy/Travellers
living in West Central Scotland. The study,
which aimed to “identify and quantify
Gypsies/Travellers accommodation needs over
the next five years” included 11 local
authorities - Argyll and Bute, West
Dunbartonshire, East Dunbartonshire, East
Renfrewshire, Glasgow City, Renfrewshire,
25
The Scottish Parliament (2014) Parliamentary Business Question S4W-22271: John Finnie, Highlands and Islands, Independent, Date Lodged: 07/08/2014. Answered by Margaret Burgess on 21/08/2014. 26
The Scottish Government (2014) Housing Need and Demand Assessment – A Manager’s Guide. 27
The Scottish Parliament Equal Opportunities Committee (2013), p19.
8
Inverclyde, South Lanarkshire, East Ayrshire,
North Ayrshire and South Ayrshire and states
that a “joint approach” would achieve “best
outcomes”.28 Findings stressed the need for
investment in existing sites, new sites and
new forms of provision, as well as identifying
the need for an additional provision of 50
pitches across the study area over the next 5-
6 years.29 However, seven years after these
recommendations were made our research
indicates that very little progress has been
made.
Data collected by COSLA and ALACHO earlier
this year shows that discussions between
Inverclyde, Glasgow City, Renfrewshire and
East Renfrewshire Council to accommodate
the seasonal movements of the
Gypsy/Traveller population are at an early
stage – with no decisions or conclusions
having being reached.30 Inverclyde did
propose the establishment of a temporary
(transit) site in 2013 - but plans did not go
ahead due to a “lack of support in public
consultation”.31 West Dunbartonshire’s Local
Housing Strategy recognises the need for an
expansion of existing site provision and states
that “most of those travelling through the
area are looking for permanent
accommodation”.32 West Dunbartonshire had
planned to “investigate options for short stay
sites”33 to be actioned by 2008. However,
these objectives have not yet been met as the
area still only provides 1 site with 20 pitches.34
Similarly slow progress can be seen in South
28
Glasgow City Council Development and Regeneration Policy Development and Scrutiny Committee (2007) Research into the Accommodation Needs of Gypsy/Travellers in West Central Scotland, Craigforth, p2. 29
Ibid, p11. 30
The Scottish Government (2014) minutes from the Sites Working Group meeting (May 2014), Annex A – Information on Gypsy/Traveller Sites provided by COSLA and ALACHO, p7. 31
Ibid. 32
West Dunbartonshire Council (2008-2011) Gypsy/Traveller Strategy, p12. 33
Ibid, p17. 34
The Scottish Government (2014) Information on Gypsy/Traveller Sites, p9.
Ayrshire, where the local authority was
awarded funding in March 2012 to create a
transit site but is yet to identify a suitable site
location.35 South Ayrshire’s LHS identifies
priority needs for Gypsy/Travellers and goes
further than most local authorities in detailing
upgrades to living conditions in its plans to
“improve flood prevention measures and
create regular maintenance regimes of
pumps/ drainage”.36 Yet it is unclear whether
this has yet been achieved. East
Dunbartonshire’s LHS states that it takes into
consideration the needs of “minority and hard
to reach households such as
gypsies/travellers”37 but contains no further
details about how this will be achieved.
In the years following 2007, Gypsy/Traveller
sites in Glasgow and East Dunbartonshire
have closed and, subsequently, site provision
has decreased to just 4 of the 11 local
authorities included in the study area.
According to the 2011 Census, the population
of “White: Gypsy/Travellers” in West Central
Scotland amounts to a combined total of
1,145 individuals.38 And, Glasgow City alone is
home to the second largest Gypsy/Traveller
population in Scotland, with 407 individuals39
– yet no local authority site provision is
available in the area. According to the census,
Gypsy/Travellers in West Central Scotland are
on average younger than their geographical
counterparts in other local authority areas.40
These demographics are perhaps an indicator
of the need to focus on the future demand for
Gypsy/Traveller accommodation provision in
West Central Scotland.
35
Ibid, p8. 36
South Ayrshire Council (2011-2016) Local Housing Strategy, p26. 37
East Dunbartonshire Council (2011-2016) Local Housing Strategy, p27. 38
National Records of Scotland (2011) Census: Standard Outputs - ethnic group by sex by age for council areas. 39
Ibid. 40
Craigforth Research and Consultancy (2007), p4.
9
In the case of West Central Scotland, plans to
adequately accommodate the Gypsy/Traveller
community appear to have regressed.
7.2 Grampian
In 2008, Craigforth Research and Consultancy
undertook a study into the accommodation
needs of Gypsy/Travellers in Grampian.
Findings identified the need for an additional
35 pitches throughout the area – 12 in
Aberdeenshire and 23 in Moray.41 However,
despite plans to be actioned by 2011, Moray
council does not currently provide any type of
site accommodation for Gypsy/Travellers and
there have been no new sites established in
Aberdeenshire. The council run site in
Aberdeen – despite having been recently
upgraded, has been full for the past 5 years
and has a long waiting list.42 The area has
historically experienced issues with roadside
encampments as “large numbers of
Gypsy/Travellers coming to Grampian have no
alternative but to park in lay-byes and other
areas of spare ground”.43 Aberdeen Council
recently dropped plans to establish a new
transit site in Northfield and has since been
criticised by the Minister for Housing and
Welfare in its failure to adequately
accommodate the Gypsy/Traveller
community. In the city’s recent request for
the introduction of a by-law, she claimed that
the council had not taken “adequate action in
response to the accommodation needs of
Gypsy/Travellers” and stated “we are only
aware of the council providing four new
pitches, and planning permission has not been
sought to expand the number of sites”.44
In the case of Grampian it is clear that very
little progress has been made in meeting the
41
Craigforth Research and Consultancy (2008), p85. 42
The Scottish Government (2014) Information on Gypsy/Traveller Sites, p4. 43 Firth, N. (2012) NHS Grampian: written
submission to the Equal Opportunities Committee Inquiry. 44
Foote, C. (2014) Traveller by-law plans rejected by Scottish Government ministers, 31/10/2014
targets identified in the 2008 report to
adequately accommodate the Gypsy/Traveller
community.
7.3 South East Scotland
The South East Scotland Strategic
Development Plan (SES plan) comprises six
local authorities – including the City of
Edinburgh, East Lothian, Midlothian, Fife,
Scottish Borders and West Lothian. In 2011,
the SES plan recognised a demand for
increased Gypsy/Traveller accommodation
“over the next few years”.45 In particular, it
stated that “consideration should be given to
the development of further residential sites
and to a network of short stay sites across the
Edinburgh, East Lothian and Midlothian local
authority areas”.46 However, little progress
can be seen with regard to increased
accommodation provision and the site in
West Lothian has now been closed.
In 2007, research into the accommodation
needs of Gypsy/Travellers in East Lothian,
Midlothian, City of Edinburgh and the Scottish
Borders, called for “alternative long stay
residential provision to the site at Whitecraigs,
to respond to residents’ concerns about their
health and safety and the physical
environment of the site”.47 It also noted a
“high demand for pitches and continuous use
of roadside camps in Edinburgh”48 and called
for further efforts to “provide more site
accommodation, both residential, short stay
and transit provision, to accommodate
Gypsy/Travellers living in and using Edinburgh
for work and seasonal travelling”.49
45
The Strategic Development and Planning Authority (2011) South East Scotland Strategic Development Plan: Housing Need and Demand Study, p22. 46
Ibid. 47
Lomax, D., Lloyd, M., Sosenko, E. & Clark, C. (2007) Accommodation Needs of Gypsy Travellers in East Lothian, Midlothian, City of Edinburgh and the Scottish Borders: Final Report, p79. 48
Ibid, p8. 49
Ibid, p77.
10
Site data collected by COSLA and ALACHO
earlier this year reported Midlothian and East
Lothian Councils to be in the process of
updating facilities and working with residents
to plan the modernisation of the shared site
at Whitecraig. East Lothian also stated that
they had recently been granted planning
permission to develop a privately owned site
in the area which will provide “2 pitches and
appropriate facilities”.50 Accommodation
provision in Edinburgh has not increased as
the City still contains one site with 20
pitches.51 In addition to this, neither
Edinburgh, East Lothian or Midlothian’s LHSs
make mention of plans to establish a network
of short stay sites across the three areas.
7.4 Summary
In most cases, Gypsy/Traveller
accommodation needs are being
“acknowledged” but because strategies are
not being implemented, the existing need for
adequate accommodation provision remains
to be met. In West Central Scotland,
Grampian and South East Scotland, the need
for increased provision was evidenced several
years ago, yet most targets have still not been
achieved. Even in the areas where slight
progress has been made, it has taken a very
long time to achieve small targets.
8. Community Participation in Local
Housing Strategies
In 2013, the EOC called for Local Housing
Strategies to “ensure community
participation” of Gypsy/Travellers in their
“development and operation”.52 MECOPP and
ALACHO set out to investigate the approaches
taken by local authorities in meeting this
recommendation.
The importance of community engagement in
developing local strategies is well
50
The Scottish Government (2014) Information on Gypsy/Traveller sites, p5. 51
Ibid. 52
The Scottish Parliament Equal Opportunities Committee (2013), p35.
documented and has become increasingly
recognised at policy level.53 Brown and
Scullion emphasise the importance of early
and effective communication with the
Gypsy/Traveller community and claim that
promoting an environment whereby
participants are “cogs within the research
wheel”54 provides much better outcomes as
opposed to instances where individuals are
simply treated as subjects of the research.
8.1 Gypsy/Traveller Involvement
Our review indicates that community
consultation, in general, in Local Housing
Strategies is widespread but often there are
little or no details regarding engagement with
specific groups that have particular
accommodation needs. Some strategies do
make mention of attempts to target minority
ethnic communities in the consultation
process but information referring to
Gypsy/Traveller engagement is generally
vague, making it difficult to assess the overall
depth, breadth and general quality of
engagement methods. For example,
Edinburgh’s Local Housing Strategy details the
attendance of Gypsy/Travellers at a series of
consultation events and focus groups but
provides no additional information. 55
Similarly, in areas where Gypsy/Traveller
strategies have been developed, it is difficult
to decipher the method of consultation that
has been used. For instance, the Multi-Agency
Action Plan for Gypsy/Travellers in the
Highlands recognises the importance and
necessity of community engagement in
improving quality of life and states that an “in
depth consultation with Gypsy/Travellers”56
was undertaken and that working “on the
53
The Scottish Government (2014) Local Housing Strategies – Mainstreaming Equality: Community Engagement. 54
Brown, P. and Scullion, L. (2009) "Doing research" with Gypsy - Travellers in England: reflections on experience and practice. 55
Edinburgh City Council (2012-2017) Local Housing Strategy, p8. 56
Highland Council (2008) Multi-Agency Action Plan for Gypsy/Travellers in the Highlands, p1.
11
ground”57 with communities is the best way to
gain input. However, the strategy itself
contains no additional information detailing
the approach that was taken, again making it
difficult to identify effective methods of
consultation with Gypsy/Travellers.
To further explore these issues service
providers were specifically asked, in the on-
line survey, if the Gypsy/Traveller community
had been involved in the development of the
Local Housing Strategy. 62% of respondents
answered ‘yes’ 27% answered ‘no’ and 11%
chose to skip this question. Those who
answered ‘yes’ were subsequently asked to
describe the method and frequency of
consultation and to specify (if possible) how
many members of the community were
consulted. 57% of respondents who answered
‘yes’ made reference to direct consultation
with representatives of the community or
through a specific Gypsy/Traveller focus group
or Gypsy/Traveller Liaison Officer (GTLO) type
role. And, 38% of respondents made
reference to written methods of consultation
- including site surveys and questionnaires.
However, approaches to engagement appear
to vary quite considerably due to the
vagueness of some responses and the
autonomy of local authorities, highlighting the
need to showcase examples of meaningful
and effective consultation.
According to Midlothian Council, a specific
LHS consultation session was held at the
Gypsy/Traveller site. And, West Lothian
Council reports that “contact was made with
the Council's GTLO who sought to informally
consult with members of the community when
the opportunity arose”. In East Lothian,
Shelter was involved in the development of
the LHS because they provides a “specific
support role for the travellers’ community”.
Whereas, Edinburgh City Council said that
“one of the 8 Housing Strategy focus groups
organised was specifically tailored for the
Gypsy/Traveller community ... the focus group
57
Ibid, p5.
was attended by residents of the site,
members of the Gypsy/Traveller church
located on the site and stakeholders”.
Both Glasgow City Council and South Ayrshire
made reference to Craigforth research
(carried out in 2008) which involved around
107 interviews with Gypsy/Travellers across
11 local authorities in West Central Scotland.
According to Glasgow, “we used Craigforth’s
research to inform the latest LHS but because
the community is hard to reach we did not
involve the community as much as we would
wish”.
Argyll and Bute’s LHS was also informed by
the Craigforth research which involved face to
face interviews and group discussions with
individuals on each of the three official sites.
In addition to this, Argyll Community Housing
Association (ACHA) undertakes an annual
consultation which involves “representatives
of all households/families onsite completing a
structured questionnaire”. And, future
research aims “to give all site residents the
opportunity to input to the process either
formally or informally to suit the individual’s
preferences”.
In Falkirk, consultation took place over a five
month period and residents were notified
about times, dates and locations of the
housing strategy development events. Events
took place in local libraries and community
centres throughout Falkirk. In addition to this,
a questionnaire was sent out to the 15
families residing on the site at the time and a
focus group was held in the local community
education centre but was only attended by
four residents.
Dundee Council provides an alternative
approach, whereby the “Strategy Officer had
a meeting and presentation with the
Gypsy/Traveller Liaison Group and Equality
Group”. A community discussion then took
place and representatives fed information
back to the strategy officer and site residents.
The respondent reported three
12
Gypsy/Traveller residents in attendance at the
meeting at Balmuir Wood.
In areas where Gypsy/Travellers were not
involved with the development of the LHS,
respondents (who chose to elaborate on this
question) were of the consensus that the
community were reluctant to engage in the
consultation process and attend events. South
Lanarkshire Council reports:
“While the Gypsy/Traveller community were
invited to respond, the nature of the
community has meant that feedback has been
limited”.
And similarly, Stirling Council notes the
“unwillingness of Gypsy/Travellers to engage
in any consultation process”. East
Dunbartonshire, West Dunbartonshire and
Angus Council also reported the same issue. It
is clear that in some cases service providers
have made attempts to reach out to
community members and the non-inclusion of
Gypsy/Travellers in the development of Local
Housing Strategies does not necessarily mean
that attempts to engage with the community
have not been attempted. However, local
authorities appear to associate this with the
community’s reluctance to engage rather than
reflecting on the methods of consultation
used.
8.2 Meeting Accommodation Needs
Service providers were asked what resources
were used in their area to ensure that
accommodation needs were adequately being
met. And, respondents overwhelmingly
favoured consultation as a key resource - with
73% claiming to have engaged with the
Gypsy/Traveller community to some extent.
50% of those who consulted with the
community did so via a Gypsy/Traveller
Liaison Officer or through a broadly similar
role such as a site manager, community
warden or service co-ordinator.
Moray Council, which currently has no site
provision, but said they assess and directly
consult with those who are travelling through
the area in its management of roadside
encampments:
“Where these encampments do occur, the site
is visited and details of each household taken.
Their needs are also identified and considered
at that time. The main requests from
Gypsy/Travellers are for toilet facilities which
we provide by way of portaloos (where
possible) and also bin bags to keep the site
clean and tidy. Officers will distribute
information on access to other services ... and
if Gypsy/Travellers wish to settle in the local
area, information will be provided on the
Councils housing allocation policy.”
8.3 Tenant Satisfaction Surveys
Local Authorities and Registered Social
Landlords are required to submit information
on customer satisfaction to the Scottish
Housing Regulator in the form of a service
user satisfaction survey a minimum of once
every three years with the purpose of
“informing the quality of service delivery”.58
When asked if tenant satisfaction surveys
were carried out on an annual basis for those
living in social housing, 73% of respondents
answered ‘yes’, 19% answered ‘no’ and 8% of
respondents chose to skip this question.
When the same question was asked with
regard to residents living on Gypsy/Traveller
sites, only 42% of respondents answered ‘yes’
whilst 50% answered ‘no’. This discrepancy is
partly explained by the fact that not all local
authorities have site provision - for instance,
North Lanarkshire Council said:
“As we do not have any local authority sites
we do not carry out annual tenant satisfaction
surveys.”
However, amongst those who do have site
provision our research indicates varying
opinions on the importance and necessity of
tenant satisfaction surveys. Six local
authorities, or 23% of respondents, which
58
The Scottish Government (2009) Identifying the Priorities of Tenants of Social Landlords.
13
provide ten long established sites between
them, do not carry out tenant satisfaction
surveys with Gypsy/Travellers as they have do
for residents living in social housing.
In contrast, Falkirk Council recognises the
importance of gaining feedback from the local
Gypsy/Traveller community:
“Yes we are legally bound to complete a
tenant satisfaction survey as part of the SHR
indicators. We have committed to completing
this on an annual basis for the current tenants
on site.”
Others carried out tenant satisfaction surveys
but less frequently than every year.
8.4 Case Studies
Given the dearth of detail in LHSs, we have
highlighted four case studies – three from
Scotland and one from England, where
community engagement, to varying degrees,
has been carried out and is reflected in the
LHS. This information was provided by local
authorities. Recent evidence submitted to the
EOC by Gypsy/Travellers living in some of
these areas strongly suggests the examples
given do not necessarily represent the views
site tenants.
8.4a Argyll and Bute
Sites in Argyll and Bute are managed by Argyll
Community Housing Association (ACHA) and
the council works closely with ACHA in
monitoring Gypsy/Traveller needs by carrying
out annual tenant satisfaction surveys.59 The
survey is conducted “by ACHA staff talking to
individual tenants on the sites and recording
their feedback”.60 Tenants also have the
option of completing the survey in confidence
and accessing it in audio format. The survey
results are then collated and fed back to
59
MacGregor, A., ACHA Chief Executive, (2013) Evidence submitted to the Equal Opportunities Committee Inquiry Where Gypsy/Travellers Live, 15 March 2013, p1. 60
Argyll Community Housing Association (2012-2015) Gypsy/Traveller Strategy, Argyll and Bute, p12.
residents through meetings which give
tenants the “opportunity to discuss the results
of the survey and options for future service
developments”.61 ACHA highlights the
importance of feedback as giving “assurance
to tenants that we have listened to what they
have said and are taking action on that
information”.62
In November 2012, the survey (which
received 16 responses from Gypsy/Travellers
across three sites) covered a variety of topics
– including communication, rent, repairs,
welfare reform, complaints policy and access
to information. It also asked tenants “what
could be done to improve your site?”.63
Respondents gave a variety of answers, with
41% favouring improved play facilities.64 This
request has been reflected in ACHA’s
Gypsy/Traveller strategy:
“None of the three sites currently has any
fixed children’s play area equipment ... All of
the sites are too far from other play areas to
allow children from the Travellers’ sites safe or
easy access to these. ACHA is currently
pursuing funding to provide modern, equipped
play areas tailored to each site”.65
Although the survey was limited by a
relatively small sample compared to the size
of the Gypsy/Traveller population in Argyll
and Bute (96 according to the 2011 census),
there is a clear link between the requests of
tenants and the subsequent action plans of
the service provider. It is unknown whether
the action plans have been successfully
implemented.
8.4b Falkirk
Falkirk offers an alternative approach to
community engagement via the Building
61
Ibid. 62 Argyll Community Housing Association (2011-
2014) Customer Contact and Feedback Strategy, Argyll and Bute, p15. 63
Ibid, p13. 64
Ibid. 65
Argyll Community Housing Association (2012-2015) Gypsy/Traveller Action Plan: Gypsy/Traveller Strategy, Argyll and Bute, p13.
14
Bridges project. In 2011, the council, in
conjunction with a “church based Scottish
Gypsy/Travellers group”, held a series of
information sessions; workshops and
surgeries covering access to health,
education, housing, site conditions, finance,
employment and training in an attempt to
better understand and cater for
Gypsy/Traveller needs.66 The council said this
process highlighted a number of issues
amongst community members – including the
desire for “better living conditions” and a
concern that the “rent seems high for what
you get”.67 These accommodation issues
appear to have been transferred into the LHS
which recognises “a wish for more amenities
on the site” and “concern about the cost of
renting a pitch on the site”.68
The Building Bridges model is limited to the
views of those who are affiliated with a
religious organisation but it does nevertheless
highlight issues identified by other
Gypsy/Travellers and the views are recognised
in the LHS.
8.4c Perth and Kinross
Perth and Kinross Council has undertaken
several research projects over the last decade,
which have often involved some form of
consultation with the Gypsy/Traveller
community to help “define their needs more
specifically”.69 As an independent
organisation, MECOPP was asked to lead on a
consultation exercise with members of the
community in the development of Perth and
Kinross’s Gypsy/Traveller strategy in April
2013. Community engagement took the form
of a consultation whereby postcards were
circulated via MECOPP; community members;
housing services; Community Learning and
66
Wallace, Dr A., (2012) NHS Forth Valley Submission to Equal Opportunities Committee Inquiry – Where Gypsy/Travellers Live, p2. 67
Ibid, p23. 68
Falkirk Council (2011-2016) Local Housing Strategy, p40. 69
Perth and Kinross Council (2013-2018) Gypsy/Traveller Strategy, p13.
Development Officers to Gypsy/Travellers on
council and private sites; known
Gypsy/Travellers living in settled
accommodation; those travelling temporarily
through Perth and Kinross, in an attempt to
reach a broad spectrum of participants. A
total of 50 responses were received – 49 of
which said they agreed that “Perth and
Kinross needs a Gypsy/Traveller Strategy or
Action Plan” and 47 of which agreed “with
what the strategy is trying to achieve”.70
Respondents also identified a number of
issues they felt were important for the council
to focus on and, with regard to
accommodation issues, community members
placed particular emphasis on “future site
provision” and the “accommodation needs of
younger community members”. These
requests were fed into the strategy and
helped to shape action plans:
“The community consultation identified the
need to examine future site provision. It has
been recognised by the Council that current
site provision does not meet future demand
and work has been ongoing for some time to
identify alternative future provision. A
number of options are currently being
considered for both permanent and transient
sites and we will speak to the community
about these options”.71
The consultation in Perth and Kinross involved participants across a broad spectrum of accommodation and the views expressed were subsequently reflected in the strategy and the council reports that it is currently working to meet the gaps in service provision. 8.4d Bristol
Many of the issues raised by this research are
not restricted to Scotland and we felt it would
be useful to include an example from
elsewhere in the U.K.. In developing the South
Liberty Lane Site, Bristol County Council acted
in accordance with consultation guidance
issued by Communities and Local Government
70
Perth and Kinross Council (2013) Gypsy/Traveller Strategy – update after June 2013, p15. 71
Ibid, p29.
15
(CLG) on designing Gypsy/Traveller sites. This
guidance actively promotes the inclusion of
community members in design meetings with
architects to ensure that “expensive design
mistakes not made and so that professional
perceptions of what will work well can be
challenged if necessary at an early stage”.72
CLG also states that it would be “beneficial to
ensure as far as possible that sympathetic and
knowledgeable architects and contractors are
employed” in the process.73 Guidance
promotes Gypsy/Traveller awareness raising
“at an early stage … as a means of opening
(up) dialogue and (ensuring) the successful
design and construction of the site” and
ensuring the best value for money is
invested.74
Bristol County Council used Planning for Real
methods to consult with Gypsy/Travellers on
the design for a new permanent site. This type
of consultation involved an event whereby
community members, including children,
were asked to create a three dimensional
model of the area to be developed. This
method was repeatedly carried out on a range
of existing sites which resulted in the creation
of a “state of the art” 12 pitch site.75 Many of
the site’s features were directly influenced by
the consultation - including:
o Semi-detached utility buildings that
incorporate a day room, kitchen,
bathroom/toilet and separate toilet
o Boiler and central heating in utility
buildings
o A variety of power points on each
pitch to enable flexible positioning of
trailers and caravans and avoid
trailing wires
o The use of built-up flower beds to
prevent trailers being positioned too
close to each other
72
Communities and Local Government (2008) Designing Gypsy and Traveller Sites – A Good Practice Guide, p52. 73
Ibid. 74
Ibid. p54-55. 75
Ibid.
o Low walls and gates separating each
pitch and creating ‘defensible’ space
o Parking on individual pitches
o Communal play space for children.76
The South Liberty Lane site clearly evidences
the benefit of using visual and face to face
consultation over more traditional methods
such as surveys or feedback forms.
8.5 Summary
Our research suggests that some service
providers in Scotland have been engaging
with members of the Gypsy/Traveller
community, yet consultation methods, and
their effectiveness, vary considerably across
the country. There are a small number of
cases which could constitute ‘good practice’ in
that community feedback has been reflected
in Local Housing Strategies and action plans.
However, in determining ‘good practice’ it is
vital to also consider the experience of the
service user. This latter point was beyond the
scope of this research project but MECOPP
case work and evidence submitted to the EOC
inquiry by Gypsy/Travellers suggests there are
widely differing views between service
providers and service users about what
constitutes ‘good practice’. Even in areas
where community consultation has taken
place, our evidence base suggests that very
basic problems persist and the steps taken do
not seem to have resulted in increased
accommodation provision or significantly
improved living standards – two very basic
needs that have been repeatedly requested
over the years.
9. Barriers in Meeting Accommodation
Needs
Research findings so far have pointed to a
significant lack of progress in terms of
meeting the community’s accommodation
needs and we tried to investigate the reasons
behind this.
76
Ibid.
16
In an on-line survey (see appendix 1) during
phase three of the research, service providers
were asked to list each of the barriers they
faced in identifying and meeting the
accommodation needs of the Gypsy/Traveller
community. Their responses are categorised
as follows:
o The identification of suitable land for
site development
o Difficulty in locating and engaging
with Gypsy/Travellers
o Social attitudes and resistance from
the settled community
o Financial resources
o Issues over temporary encampments
o Access to local services
o Reluctance of Gypsy/Travellers to self-
identify
o Significance of ‘internal differences’
o No site or pitch accommodation
quality standards for
Gypsy/Travellers.
Local authorities were also asked to identify
the biggest challenges they faced in meeting
the community’s accommodation needs by
ranking barriers in order of significance. Their
responses are illustrated below:
According to our findings, the most common
challenge that respondents faced was in
locating suitable land for Gypsy/Travellers.
50% of respondents identified this as being a
barrier and 35% recognised this issue as being
the biggest challenge they faced:
“The main barriers have been identifying
suitable sites in terms of land with proximity
to the necessary amenities …” Perth and
Kinross Council, 2014.
A similar sentiment was echoed by another
ten local authorities (East Lothian, West
Dunbartonshire, South Ayrshire, North
Ayrshire, Highland, Moray, North Lanarkshire,
Aberdeen, Aberdeenshire and Midlothian
Council) representing 40% of respondents.
Findings also suggest a correlation between
the establishment of suitable sites and
objections from the settled community.
Respondents identified problems with social
attitudes (from both sides) but particularly,
resistance from the local community as being
a significant factor in progressing with site
developments. For instance, Fife Council
reported no problems in identifying the needs
of Gypsy/Travellers, but the existence of
“prejudice and discrimination” in the
community which is “based on negative media
portrayal of the minority” has impacted on
development. Moray Council sheds further
light on the situation:
“Throughout Scotland, the provision of
halting/permanent sites remains a
controversial and difficult issue to resolve. In
2010, the Council tried to find suitable
locations for site provision but this could not
be progressed following resistance from those
local communities where the provisional sites
had been identified … Private landlords were
also often unwilling to lease/sell sites once
they realised the intended use of the land.
There is a need therefore to look at how these
sites are procured in the future and how we
engage with the respective local communities.
The consultation process also needs to be
examined if we are to avoid communities
having a veto on provision.”
35% of respondents reported difficulties in
locating and engaging with Gypsy/Travellers
as being the most significant challenge they
faced in meeting the community’s
accommodation needs. And, this was
particularly the case in areas which do not
contain permanent site provision – such as
Glasgow City, Inverclyde, West Lothian and
East Dunbartonshire. Inverclyde Council
17
reports the problems it has in attempting to
communicate with a transient community:
“... there is very limited engagement with the
Gypsy/Traveller community and there is no
regular dialogue that would help to identify
accommodation and other needs. Attempts
have been made previously to establish such
needs but without success as there is no clear
line of communication with Gypsy/Travellers
passing through the area ...”
Stirling, Angus, West Lothian and Argyll and
Bute Council each made reference to
uncertainties over effective methods of
engagement with the Gypsy/Traveller
community. In particular, Stirling Council
notes the “unwillingness of the
Gypsy/Traveller community to engage in any
meaningful consultation whereby any hidden
accommodation needs could be identified”.
And West Lothian Council reported difficulties
in “being able to organise a format which may
provide a response from the community due
to the large amount of illiteracy”. This
evidence highlights the need for examples of
good practice relating to consultation with
Gypsy/Travellers to be shared and actioned.
Interestingly, only 9% of respondents noted
financial constraints as limiting progress in
meeting accommodation needs. However,
according to Clackmannanshire Council, “the
nature of travellers’ sites is typically deficit
funded and the current economic climate
makes modernisation and investment in
existing facilities difficult”. Similarly, Angus
Council notes a lack of financial resources to
fund the development of “more sites” as well
as a lack of “resources to undertake additional
research” into HNDAs.
10. Improving Outcomes
In terms of the future, local authorities were
asked to identify key actions that would help
not only improve understanding of
accommodation needs but also lead to better
outcomes for Gypsy/Travellers. Respondents
mentioned several actions and these are
listed next:
o Effective community consultation o Political leadership o Provision of short stay sites
o Gypsy/Traveller awareness-raising o Updated research o Better access to services o Increased funding and resources o Improved joint working across
departments o A designated GTLO o Improvement of conditions and facilities
on sites
o Clearer guidance on producing robust future projections of need for client group.
10.1 Priorities In terms of improving outcomes, respondents
were asked to prioritise actions and the
responses are illustrated below:
Improved communication and engagement
was the most commonly identified priority
action in improving outcomes for
Gypsy/Travellers. And, according to East
Lothian Council, “our experience has been that
the key issue is effective service user
involvement”. Respondents placed particular
emphasis on improving the lines of
communication through effective community
consultation and stressed the need for
examples of good practice in assisting them to
be able to do this. Inverclyde Council said that
“a means of communicating with
representatives of the Gypsy/Traveller
18
community would be very helpful in improving
understanding and in fostering better
relations between the settled and travelling
communities”.
And, according to Argyll and Bute:
“It would be useful to have a formal good
practice guide on communication and
engagement with this specific client group …
Without wishing to stereotype or stigmatise
these clients, it is unfortunately the case that
levels of literacy and IT skills etc. can be lower
than with the general population, making
some forms of engagement problematic.”
Moray Council agreed – calling for “examples
of good practice from other authorities and
providers”.
33% of respondents highlighted the need for
political leadership on a number of matters. In
particular, respondents called for leadership
to challenge the negative media portrayal of
Gypsy/Travellers, as well as a zero tolerance
approach to discrimination; increased support
over issues concerning temporary
encampments and the establishment of a
national framework to judge performance and
identify examples of best practice. In addition
to this, Moray Council called for “legislation
which sets out what local authorities must
provide to meet the needs of
Gypsy/Travellers”. And, Argyll and Bute called
for clearer guidance on identifying current
need and future demand:
“… the actual methodology for producing
robust future projections of need for this client
group remains fairly vague … further advice
on addressing these gaps might be helpful?”
Clackmannanshire Council highlighted the
need to revisit national leadership shown
during the 1990’s which led to “substantial
increases in quality accommodation, as well
as national traveller movement surveys”. The
council said that a return to “some of the
support previously enjoyed would be welcome
to drive investment, better communication
and understanding” of Gypsy/Traveller issues.
11. Moving Forward
In the 2013 inquiry, the Equal Opportunities
Committee criticised the Convention of
Scottish Local Authorities (COSLA) for its “non-
committal” attitude and said that they were
“disturbed” by its failure to respond
appropriately to their call for evidence.77 The
report stressed the need for urgent action,
concluding “the time has come for the Scottish
Government and COSLA to take matters in
hand with a national strategy to support local
authorities and local councillors in developing
fit-for-purpose housing strategies … that
embrace Gypsy/Traveller needs and ensure
community participation in its development
and operation”.78
Since the publication of Where
Gypsy/Travellers Live in 2013, the Scottish
Government has committed to establishing an
overarching strategy and action plan for
Gypsy/Travellers in Scotland. At the time of
writing the Scottish Government strategy is
not yet available but is expected to be
published later this year and will cover key
issues including health, education,
discrimination and accommodation. This
process is currently being developed by three
working groups, and one subgroup,79 which
are attended by key stakeholders, including
COSLA.
Correspondence with COSLA (which took
place during phase four of the research)
suggested that these working groups have led
to positive developments in improving the
situation and empowering local authorities to
meet the accommodation needs of
Gypsy/Traveller communities -“raise concerns
and work together to resolve problems
surrounding the accommodation needs of
Gypsy/Travellers”. COSLA reported that
“councils have a demonstrable interest in the
77
The Scottish Parliament Equal Opportunities Committee (2013), p19-25. 78
Ibid, p24. 79
Strategy, Sites and Education working groups and Briefing sub-group
19
strategy and are represented on all SG led
working groups” as well as having expressed a
view to “learning more innovative solutions
for accommodating Gypsy/Travellers”. COSLA
also stated that it had been “instrumental” in
establishing a sub group of the Strategy Group
to develop an Elected Member briefing with
the purpose of equipping “Elected Members
with key information on the rights and
responsibilities of Gypsy/Travellers, the settled
community and local authorities, enabling
them to effectively respond to constituent and
media enquiries”. It is hoped the briefing will
take a strong “Human Rights and Equalities
focus” and is planned to be accompanied by
“awareness-raising and training”. At the time
of writing the briefing is still in preparation
and is not available to review.
The Scottish Housing Regulator is currently in
the process of carrying out a thematic inquiry
into services provided by the social landlords
who manage and operate Gypsy/Traveller
sites. It is hoped that the findings of this
inquiry will provide “consistent information on
pitch rents and customer satisfaction”80 as
well as uncovering the issues behind
variations in service provision. These
developments represent a positive move
towards meaningful engagement with
Gypsy/Travellers and are hoped to improve
the quality of future service provision.
12. Next Steps
This research has highlighted a number of
gaps in service provision which could be
improved by the following recommendations:
o The creation of an information hub to promote shared learning. This would enable local authorities to input and share examples of good practice.
o Political leadership is required to redress the negative media portrayal of Gypsy/Travellers. A strategic national
80
Scottish Housing Regulator (2014) Regulator examines services to Gypsies/Travellers through thematic inquiry.
campaign would help to raise awareness and reduce discrimination.
o Increased resources and partnership working with local communities to promote Gypsy/Traveller awareness raising.
o Housing Need and Demand Assessments should be based on estimated population projections in line with the settled community.
o Concrete legislation in terms of an accommodation strategy with national quality standards relating specifically to Gypsy/Traveller accommodation must be developed and implemented.
o Greater accountability and increased support at local authority level to ensure that service providers are adequately meeting targets identified by HNDAs.
13. Concluding Thoughts
Much of the research provides further
evidence to substantiate the findings or
concerns expressed in both the 2001 and
2013 Scottish Parliament EOC inquiries. It is
clear that local authorities feel they need
more support to be able to produce the
desired outcomes that are required to
adequately meet the accommodation needs
of Gypsy/Travellers.
Approaches to community engagement are
patchy across the country and general
inconsistencies make it difficult to assess their
effectiveness. Even in areas where positive
developments appear to have been made, the
daily experience of Gypsy/Travellers, as
submitted to the EOC inquiry and evidenced
through MECOPP’s outreach work, tells a very
different story.
Whilst it is clear that Gypsy/Traveller
accommodation needs have sometimes been
considered and included in strategies and
action plans, but time after time they have
not been implemented or actioned and, as a
result, the accommodation situation for many
Gypsy/Travellers is little improved. Given that
accommodation needs evidenced in HNDAs,
and reflected in LHSs, have been largely
20
unattainable, MECOPP and ALACHO question
whether strategies themselves are fit for
purpose. This research highlights the need for
greater accountability at local authority level
to ensure that targets identified in the HDNA
process are being met. This can only be
achieved by a collective approach in the form
of strong leadership at national level.
21
Appendices
Appendix 1: Questions to Local Authorities
1. Please state your local authority
2. What resources are used in your local authority to measure the Gypsy/Traveller population and ensure that the community’s accommodation needs are being met?
3. In your opinion, does provision in your local authority adequately meet the accommodation needs of the Gypsy/Traveller community?
4. If yes, please explain why you believe this to be so If no, please state why not
5. What barriers (if any) does your local authority face in identifying and meeting the accommodation needs of the Gypsy/Traveller community? Please list all that apply, in descending order of importance (i.e. biggest barrier first)
6. Was the Gypsy/Traveller community involved in the development of your local housing strategy?
7. If yes, please describe the method and frequency of consultation and specify (if possible) how many members of the Gypsy/Traveller community were consulted
8. Are annual tenant satisfaction surveys carried out for residents living in local social housing?
9. Are annual tenant satisfaction surveys carried out on local authority sites for Gypsy/ Travellers?
10. Thinking about the accommodation needs of the Gypsy /Traveller community within your local authority, could you list some key actions which might improve understanding in this area and lead to better outcomes for Gypsy/ Travellers? List all that apply in order of priority (i.e. most important first)
Appendix 2: Correspondence with COSLA
1. Have issues concerning the accommodation needs of the Gypsy/Traveller community been raised
by councils to COSLA?
2. As the ‘representative voice of local government in Scotland’ how is COSLA dealing with concerns
raised about the accommodation needs of the Gypsy/Traveller community by the Scottish
Parliament Equal Opportunities Committee?
3. Can you detail any steps that COSLA has made to ‘promote positive policy’ and implementation in
relation to Gypsy/Traveller accommodation needs at local authority level?
22
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