DevelopingALocalAnti-PovertyStrategy_2005

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DEVELOPING A

LOCAL ANTI-POVERTY

STRATEGY: A GUIDE

PROGRAMME


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DEVELOPING ALOCAL ANTI-POVERTY

STRATEGY: A GUIDE


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First published 2005

by Combat Poverty Agency

Bridgewater Centre

Conyngham Road

IslandbridgeDublin 8

2005 Combat Poverty Agency

The views expressed in this text are the authors own

and not necessarily those of the Combat Poverty

Agency.


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CONTENTS

Ministers Foreword 05

Foreword to the LAPS Guide 07

Policy Context 09

Introduction 13

1 Starting Out 17

2 Putting Resources in Place 25

3 The Importance of Training 31

4 Developing a Local Poverty Profile 39

5 Local Social Inclusion Indicators 49

6 Targets 557 Poverty Proofing 63

8 Implementing the Strategy 73

9 LAPS in Practice 77

10 How to Communicate a Local Anti-Poverty Strategy 89

Glossary of Terms 97

Appendices & Footnotes 103References 123


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MINISTERS FOREWORD

I am delighted tointroduce this first

ever guide for localauthorities indeveloping a LocalAnti-Poverty Strategy(LAPS). This is animportant milestonein the implementationof our National Anti-Poverty Strategy.

The Office for Social Inclusion, located inmy Department, is charged with thecoordination of our anti-poverty policy atboth a national and European Union level.The National Anti-Poverty Strategy(NAPS) and the National Action Planagainst Poverty and Social Exclusion(NAPs/Inclusion), set out the way in whichwe will be working to achieve the EUtarget of making a decisive impact onpoverty by 2010.

In pushing forward this agenda, it isimportant that we recognise the linkagesbetween our national policies in relationto poverty and social inclusion and thework of those on the front line of servicedelivery at a local level. These links are atthe very heart of what we are trying toachieve in the NAPs/Inclusion, as thosewith local knowledge can inform the

development of policy in local areas with agreater understanding of what needs tobe done to develop specific responses totheir own particular problems.

For this reason, a key objective for myself,the Office for Social Inclusion, and the

Department of the Environment, Heritageand Local Government, is to move policydevelopments at National and EU level to thelocal arena quickly and with practical effect.

This has been demonstrated by initiativesat local level such as the explicit rolegiven to County and City DevelopmentBoards to focus on social inclusion intheir strategies for Economic, Social andCultural development. We have also

witnessed the rapid expansion of the roleof local authorities in promoting socialinclusion over the past few years, perhapsbest seen in the establishment of theLocal Anti-Poverty Learning Network.Launched in October 2000, this is a jointinitiative between the Office for SocialInclusion, the Department of theEnvironment, Heritage and LocalGovernment and the Combat Poverty

Agency to support the development of astrong anti-poverty focus within localgovernment. To date, the network hasbeen very useful in sharing experienceand best practice across local authorities.

An important part of the promotion ofsocial inclusion at local level has been thework of the Combat Poverty Agency. TheAgency has demonstrated great

commitment to providing local authoritieswith the tools to assist them in their taskof incorporating an anti-poverty focusacross all areas of their work. The Agencyhas also tapped into the long-existingethos of local authorities to improve thedelivery of its services at local level.


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The local authorities themselves shouldalso be commended on the progress theyhave made in recent years, including amodernisation programme under theBetter Local Government and Strategic

Management Initiative and programmesthat should ensure real improvements inservice delivery at a local level, as well asthe production of corporate plans thatfully embrace social inclusion, both intheir development and implementation.

The production of this Guide should assistin strengthening the linkages between thenational, regional and local arenas and

ensure that social inclusion is embeddedin the central architecture of the localgovernment system. It should facilitategreater consistency of approach from theground to central government and ensurethat over the coming years socialinclusion becomes central to the work oflocal authorities. This in turn shouldensure that real gains are delivered in thequality of life of local authority customers.

Seamus BrennanMiniser for Social and Family Affairs


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FOREWORD TO THE GUIDE

The Combat Poverty Agency is a statutorypublic body working for the prevention

and elimination of poverty and socialexclusion through advice to Government,developing innovative anti-povertymeasures, researching the nature, causesand extent of poverty in Ireland andpromoting greater public understandingof poverty and social exclusion.

Combat Poverty has been working withlocal authorities since 1999 to support thedevelopment of strategies to combatpoverty and social exclusion. The contentsof this Guide include contributions drawnfrom the experience of the work, whichwas developed in collaboration with theOffice for Social Inclusion (OSI) in theDepartment of Social and Family Affairs,and the Department of the Environment,Heritage and Local Government, over thefive-year period.

We wish to acknowledge the contributionsto this LAPS guide from all those localauthorities who worked with CombatPoverty during that time and in particularCork City Council, Donegal County Counciland Westmeath County Council whoworked to develop a strategy for theircouncils. We would also like toacknowledge the work of Offaly CountyCouncil and the Community Workers Co-

Operative (CWC) in the development of alocal Anti-Poverty Strategy and the workundertaken by South Dublin and SligoCounty Councils on the development ofPoverty Profiles. We have also drawn onthe work and the experience of the SocialInclusion Units established in Dublin City,Dn Laoghaire-Rathdown, South Dublin,Louth, Waterford, Wicklow, Cork City andLimerick City.

Several authors have contributed to theGuide and we wish to thank them; Carmel

Corrigan, Kathy Walsh and Tracy OBrienhave advanced the work on povertyprofiles, indicators and poverty proofing;while Sharon Cosgrove, Kate Ennals andMark Conway contributed from theirexperience in delivering support, onbehalf of Combat Poverty, to localauthorities.

Thanks to Mark Callanan, Institute ofPublic Administration, for his contribution

to the section on resources.

Thanks to Olivia Fox and Peign Doyle forpulling it all together into an accessibleformat.

Finally, thanks to staff in Combat Povertyfor their advice and time in reading themany drafts of the different sections.

Combat Poverty Agency2005


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Policy Context


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POLICY CONTEXT

At EU and national level there is increasedrecognition that local authorities are key

stakeholders in progressing local anti-poverty strategies. In recent years therehave been a number of significantdevelopments that have presented newchallenges for local government.Government commitments include;

Strengthening the National Anti-Poverty Strategy (NAPS) andextending it to local government.The pursuit of social inclusion as acore objective of the NationalDevelopment Plan.The establishment of Social InclusionUnits within a number of localauthorities

The NAPS launched in 1997 included a rolefor Combat Poverty in its implementation,and in 1999 Combat Poverty developed alocal government programme of work, in

collaboration with the Department of theEnvironment, Heritage and LocalGovernment and the Office for SocialInclusion (OSI) in the Department of Socialand Family Affairs. Through theestablishment of the Local GovernmentAnti-Poverty Learning Network (LGAPLN),local authorities are being supported todevelop anti-poverty/social inclusionstrategies, and to focus on the poverty and

social inclusion impact in all functionalareas and at corporate plan level.

The revised NAPS, Building an InclusiveSociety, launched in 2002, states thatlocal authorities must take account of theprinciples, targets and objectives set outin the NAPS when setting strategicdevelopment objectives. The reviewidentified potential areas local authoritiescan work to assist in the reduction of

Efficient delivery of public servicessuch as housing, education, healthand social welfare, ensuring they areaccessible to all;Involving the local community in

developing policy in key localgovernmental functional areas suchas planning, environment and roadsthrough structures such as StrategicPolicy Committees (SPCs).Co-ordinated preparation ofCounty/City Development Plans andStrategies ensuring needs ofvulnerable groups are considered.

Since 2003, the NAPS has becomesynchronised with the National ActionPlan against Poverty and Social Exclusion(NAP/Inclusion), which outlines thetargets Ireland has set itself incontributing to the EU objectives ofmaking a decisive impact on theeradication of poverty and socialexclusion. At the European level, povertyand social exclusion have been

increasingly recognised as critical issuesthat need to be addressed, and theNAP/Inclusion that each Member Statehas been obliged to submit to the EUCommission is in response to this.In June 2001 the first National ActionPlans were submitted, followed by thesecond round in July 2003, which coversthe period up until 2005. The plansshowed how national governmentsproposed to meet the following common

objectives to combat poverty and socialexclusion, agreed by Member States atNice in 2000:

Facilitating participation inemployment, access to resources,rights, goods and services for all;Preventing the risks of exclusion;Helping the most vulnerable;Mobilising all relevant bodies.


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Following the submission of MemberStates National Action Plans, theEuropean Commission then produces adraft Joint Inclusion Report (JIR) on SocialInclusion (an analysis and synopsis of all

Member State Plans), which is thensubsequently agreed by the EuropeanCouncil. The latest JIR was agreed inMarch 2004.

A range of institutional structures are inplace to support the implementation,monitoring and evaluation of the NAPSand NAP/Inclusion. These include:

Office for Social Inclusion (OSI) -established in 2002 and based in theDepartment of Social and FamilyAffairs, the OSI has overallresponsibility for developing, co-ordinating and driving theNAP/Inclusion process. As part of itsrole the OSI is responsible forenhancing the poverty proofingprocess, development of a data

strategy to support the process, andfor research and communicationsstrategies;Cabinet Committee on SocialInclusion, Drugs and RuralDevelopment chaired by theTaoiseach;Senior Officials Group on SocialInclusion chaired by the Departmentof the Taoiseach and supports theCabinet Committee on Social

Inclusion;The Management Group of AssistantSecretaries - comprises seniorofficials from the relevant governmentdepartments and oversees the work ofthe OSI;Social Inclusion Consultative Group co-chaired by the Department of theTaoiseach and the Department ofSocial and Family Affairs;

Social Inclusion Forum providesthose who are not directly involvedwith the social partnership processwith an opportunity to input theirviews and experiences on the

implementation of NAPS and isconvened by the National Economicand Social Forum (NESF) on a regularbasis;The Combat Poverty Agency has astatutory role to advise the Minister onall aspects of poverty, and worksclosely with OSI to this end;Social Inclusion Units established inkey government departments to co-

ordinate their departmentscontribution to NAPS andNAP/Inclusion;Social Inclusion Liaison Officers wereappointed to fulfill an importantcommunication and co-ordination rolewithin Departments` on SocialInclusion issues.Local Government Anti-PovertyLearning Network aims to support

local authorities develop anti-poverty /social inclusion strategies andprovides an opportunity for localauthorities to raise and discuss issuesrelating to NAPS and NAP/Inclusion.

The NAPS and NAP/Inclusion complementeach other. They both provide a strategicapproach to reducing poverty and aim tosupport the most vulnerable in our societyby facilitating their participation in

employment and encouraging andsupporting equality of access to servicesand resources. Local authorities arenamed as one of the key players insupporting the implementation of both ofthese strategies, given their particularresponsibilities and expertise in deliveringnational strategies at a local level.

The commitments under the NAPS of


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reformed system of local government.The objectives of the Programme forLocal Government Renewal (Better LocalGovernment: A Programme for Change1996) includes, among others,

representative and participativedemocracy being brought closer together,local governments role in the communitybeing widened and an increased focus ontackling social exclusion. This involvednew structures, functions and newprocedures. These new structures

included the establishment of City/CountyDevelopment Boards (CDBs), StrategicPolicy Committees (SPCs), CommunityFora, Social Inclusion Measure (SIM)Groups, Social Inclusion Liaison Officers1

and eight pilot Social Inclusion Units insome local authorities, all of which have arole in the NAPS and NAP/incusion.process. The Local Government Act 2001further consolidated the role of localauthorities with regard to social inclusion.

1 Social Inclusion Liaison Officers fulfil an important

communication and co-ordination role within

departments on social inclusion issues

NAPS/incl. NationalAnti-Poverty

Strategy (NAPS)

Local Collaboration

County DevelopmentBoard (CDB) Strategies

Strategic Cooperation

Local Anti-Poverty Strategy

Implementation Strategy

National Office forSocial Inclusion

Dept. EnvironentHeritage &Local Govt.

Social Inclusion

Measures Group

Combat Poverty Agency

Social Inclusion

Unit

IndividualSection Plan

Individual SectionBusiness Plans

Economic

LocalDevelopment

Strategies

SocialPartners

Strategies

Local AuthorityCorporatePlanningStrategy

SPCs

StateAgenciesStrategies

CommunityAnti Poverty

SectorStrategies

Social Culture


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Introduction


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INTRODUCTION

The Combat Poverty Agency has a role inpromoting and supporting anti-poverty

initiatives and recognises the key role oflocal government in the development andpromotion of anti-poverty strategies atlocal level.

As part of its remit within the NationalAnti-Poverty Strategy (NAPS), in 1999Combat Poverty developed a programmeof work in collaboration with the NAPSUnit in the Department of Social andFamily Affairs, now the Office for SocialInclusion (OSI), and the Department of theEnvironment, Heritage and LocalGovernment (DoEHLG), to build thecapacity of local authorities in tacklingpoverty. The revised NAPS, Building anInclusive Society 2002, states that localauthorities have a key role in the setting ofstrategic development objectives acrossthe full range of public services and musttake account of the principles, targets and

objectives set out in the NAPS whensetting strategic development objectives.(See Appendix 1: NAPS Principles,Objectives & Targets).

At a European level, poverty and socialexclusion have also been recognised ascritical issues that need to be addressedat all levels of government including local

government. Local authorities are namedas one of the key players in supporting theimplementation of NAPS andNAP/inclusion, given their particular roleat local level. Essentially a local anti-poverty strategy needs to be developed inall city/county areas facilitated by the localauthority, drawing on the City/CountyDevelopment Board structure to developan integrated city/county-wide strategy.

These local strategies are to support andstrengthen national actions. (See Appendix2: Linkages between NAPS and the workof Local Authorities).

This Guide is aimed at supporting localauthorities as facilitators of Local Anti-Poverty Strategies (LAPS). It draws onwork and experience developed by localauthorities and Combat Poverty over theperiod 1999-2004, and outlines the keysteps and resources required in thedevelopment of a LAPS. While the Guidehas been developed in the context of the


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work programme with local authorities,and as such case studies are drawn fromexamples of good practice developed indifferent local authorities, the processesand key elements will be relevant to other

organisations with a role in theimplementation of the NAPS. It should beviewed as work in progress, and isdesigned to incorporate additional relevantmaterial and updates as these emerge.

The Guide contains a section on each ofthe elements required in the developmentof a strategy as follows:

Step 1: Starting Out.Establishing/identifying stakeholders,involving the council, elected membersand senior management; agreeing avision

Step 2: Putting Resources in Place

Step 3: The Importance of Training.(Building the capacity of the team)

Step 4: Developing a Local PovertyProfile

Step 5: Local Social Inclusion Indicators

Step 6: Targets

Step 7: Poverty Proofing

Step 8: Implementing the Strategy

Step 9: LAPS in PracticeExperience drawing on work fromCork/Donegal/Westmeath

Step 10: How to Communicate a LocalAnti-Poverty Strategy

Although the Guide is presented in alogical step-by-step format it is notnecessary to follow the sequencesuggested. Some of the steps may bedeveloped in parallel or in a different

sequence, e.g. Communication withStakeholders may be required early in theprocess, or Training may run in parallelwith Developing a Poverty Profile.

Some sections are more technical, e.g.Targets and Indicators and Poverty Profilereflecting the nature of the work involvedin these stages, while others are moredescriptive of good practice in the

development of the strategy. It is alsoacknowledged that some elementsrequire further development, e.g. DataCollection, Service Indicators and PovertyProofing. Data sourcing at local level inparticular is an issue that needs to beaddressed. However, while gaps may beidentified, it is important to begin toengage with the process of developingstrategies at local level. The sharing ofinformation by organisations anddepartments as part of the processshould lead to improved data availabilityand understanding of the priority povertyand social inclusion issues that need tobe addressed. The importance of a leadperson within the organisation,throughout the process, with anunderstanding of strategy development,is critical.

This is a key moment for local authoritieswith regard to social inclusion. Developinglocal solutions to local problems and theleadership role of local government in thisregard presents a unique opportunity forcombating poverty and social exclusion.


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Starting Out

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1 STARTING OUT

IntroductionNow that it has been decided to develop a

Local Anti-Poverty Strategy (LAPS), thereare some elements that must be plannedfor at the outset within the local authority.

Choosing a LeaderIt is necessary to commit time, resourcesand people to the development of thestrategy. There is an immediate need todecide who will lead the development ofthe strategy. In most cases this will be the

Director of Community and Enterprise orwhere appropriate it may be the SocialInclusion Unit in conjunction with theDirector of Community and Enterprise. Ineach local authority it may be different.However, as with all good projects it isessential that there is a clear leader orsponsor to drive the work forward.

Selecting a Steering GroupBecause the LAPS will extend over anumber of agencies and departments, it willbe necessary to draw all these essentialagencies and departments together in agroup that will co-ordinate and steer thestrategy. Therefore the first action of theleader should be to draw together aSteering Group. The Steering Group willassist in developing a vision of what thelocal authority wants the LAPS to be. It willhelp in defining the aims of the LAPS and it

will work towards achieving those aims.

Information and ParticipationThe next stage is to develop a strategy.How will the aims of the organisation beachieved? The process by which the groupwill, first, develop a strategy, define itsgoals and actions, and then put them intoeffect needs to be determined.Information will be required to help define

achieve them. The information neededwill come from people both within andwithout the local authority thestakeholders and from factual research.It is essential also to consult with and

involve the elected representatives.

In seeking information and participation, itis important to engage with target groupsin the community or groups that work ontheir behalf. They will need to be engagedas part of the LAPS, and they should begiven an equal opportunity to have theirvoices heard and their needs recognised.Communication to such groups should be

clear, outlining what the process isworking towards, what their role is, andwhat results they can realistically expect.

Resolving DifferencesFinally, when groups in the communityhave been involved and it has beenensured that they can participate in ameaningful way, it should be acceptedthat there may not always be agreementon policies or actions among the involvedgroups. How will any differences ofopinion be resolved?

This section has guidelines on how toinvolve people within the local authorityand people in target groups from thecommunity in the Local Anti-PovertyStrategy. It includes advice on how to helpcommunities participate, some groundrules for good consultation and tips on

how to communicate clearly andeffectively. They are drawn from resourcematerials published by Combat PovertyAgency and are based on a communitydevelopment approach.

The Steering GroupThe Steering Group will drive and co-ordinate the LAPS. It should consist of


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key stakeholders, representative of themain groups/agencies interested inand/or responsible for addressing povertyand social exclusion.

It is important to have the right peoplewho have the interest, knowledge, skills,commitment and decision-making powerto lead the process. These should includethe City/County Manager, members ofsenior management and electedrepresentatives.

Make-up of the Steering GroupIn deciding the make-up of the Steering

Group the following questions should beaddressed:

Which are the key departments in thelocal authority that need to beincluded on the committee?What decision-makers are requiredfrom different levels in theorganisation?What external anti-poverty groups or

target groups should be on theSteering Group?What other groups/agencies in the cityor county delivering social inclusionservices need to be involved?Are representatives from other localauthority structures, such as the

Corporate Policy Group, theManagement Team, the CouncilChamber, the County DevelopmentBoard and Social Inclusion MeasuresGroup required?

Role of the Steering GroupTo make the best use of peoples timeand energy, it is important to agree onthe role of the group and to clarify theresponsibilities of individual members. Itmay be necessary to have an initial meetingthat would explore the following issues:

Role of the Steering Group

Responsibilities of members(feedback, etc.)Time commitmentResources/budgets availablePractical issues chairing meetings,times and frequency of meetings (forexternal participants the choice ofappropriate timing and location andsupports for participation will beimportant)

Supports needed, e.g. trainingAgreeing the vision and themethodology for developing the LAPS.


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The VisionThe Steering Group needs to develop avision of what the LAPS will be. Is it aboutrolling out the NAPS at a local level? Is itabout changing the way that theorganisation works so that vulnerable ormarginalised groups have better access toservices? Is it about improving quality oflife for certain people or groups? Is itabout identifying the nature and extent ofpoverty and social exclusion, the groupsat particular risk within the local authoritycatchment area and devising a plan ofaction, with reasonable targets toaddress? Or is it about all of these things?

The MethodologyHaving agreed the vision of what the LAPSis intended to achieve, the next step is towork out the strategy for achieving it. Theissues to be addressed and the types ofgoals and actions that the LAPS willcontain need to be identified. Quantitativeand qualitative information should be

gathered on poverty and related issues inthe area. See Section 4 whereinformation-gathering is considered infull as part of building a Poverty Profile.

The StakeholdersWithin the local authority the stakeholdersare the staff and the electedrepresentatives. Because most local

authority services engage with thoseexperiencing social exclusion directly orindirectly, a broad range of staff from allsections should be consulted.

Some staff groups are crucial to thedevelopment of the LAPS. Traditionally thekey departments involved in socialinclusion work have been the Housingdepartment and, in the larger authorities,

staff in the Office of Community andEnterprise and the Social Inclusion Unit, aswell as RAPID co-ordinators, have alsobeen involved in specific aspects of socialinclusion activity, sometimes working with

a range of other agencies. However, it isnow recognised that all functional areaswithin the local authority can impact onsocial inclusion to varying degrees.

Other committees and groups that shouldbe involved include the Strategic PolicyCommittees, Corporate Policy Groups, theCounty Development Board andCommunity and Voluntary fora.

Internal stakeholdersA cross-section of staff from allsections/departmentsA cross-section of staff from all levelsof the organisationStaff who work with target groups,including RAPID co-ordinators, CEDOsstaff of the Social Inclusion Unit,Traveller accommodation workers and

estate management workersSenior and middle managersElected representativesRepresentatives/members of StrategicPolicy CommitteesRepresentatives/members ofCounty/City Development BoardsRepresentatives/members of SocialInclusion Measures Working groups(SIM groups)Representatives/members of RAPIDArea Implementation Team.

External StakeholdersExternal stakeholders must also beinvolved so that target groups themselveshave a say in the development of theLAPS. They should include the following:

People who work on issues of povertyPeople who themselves experience


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Those who are likely to be affected bythe LAPSThose who are most likely to dependon the services, policies or prioritiesof the local authority

Community and Voluntary ForaThose responsible for the delivery ofother services locally, e.g. HealthBoards, VECs.

At times the target groups may not havean organised voice or may not beaccessible. In such cases, it may bepossible to consult with groups oragencies who work with those targetgroups or who support them directly.

How to Involve PeopleHaving identified the target groups whoshould be involved in shaping the LAPS, itis necessary to consider how they will beinvolved. They may be involved throughtheir participation in the Steering Group,or they may be consulted as externalstakeholders through certain consultation

exercises. What is the best way to engagewith excluded groups to address poverty?This Guide advocates using a communitydevelopment approach, based oncommunity development principles. (seeAppendix 3)

Community DevelopmentApproachesCommunity development is a

process whereby those who aremarginalised and excluded areenabled to gain in self-confidence, tojoin with others and to participate inactions to change their situation andto tackle the problems that face theircommunity. (Craig, S. (2000) InvolvingCommunities in Local Government: A Guide to

Participation)

In an anti-poverty context, communitydevelopment is about enabling andempowering those who are disadvantagedto participate in issues, decisions andstrategies that affect them.

A Community development approachhelps people to identify and voice theirneeds and to influence decision-makingprocesses and structures that affect themtheir communities and wider society.

The successful use of communitydevelopment approaches to help excludedgroups play their part in the LAPS will

result, in time, in identifying needs andgaps in services for particular excludedgroups and in action being taken toaddress them through the LAPS.

Some of the basic principles of communitydevelopment can be applied to thedevelopment of the LAPS. These include:

Promoting empowerment

Emphasising the importance ofprocess (as well as the task)Focusing on disadvantagedindividuals, groups and communitiesEmphasising participation, opennessand inclusion (see NAPS principles,Appendix 1).

In facilitating the use of communitydevelopment approaches, the localauthority will play a key role but should

draw on expertise from within both thelocal authority and the broader community

Community development groups andgroups working for the marginalised andexcluded may need particular supports toempower them to play a full role in theLAPS, whether it is through the SteeringGroup or other working groups, inconsultation exercises and in making


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Within the Steering Group or workinggroups, a partnership approach will beneeded to ensure that there is equalityamong stakeholders. These approacheswill help to empower those who take part.

They will encourage open, trusting andproductive work relationships withexcluded groups.

Principles of Good Consultationand ParticipationThe following guidelines will help indesigning the process for consulting withstakeholders. (see Appendix 3).

Decision principleClearly define expectations andboundaries.Design the consultation so that it willinform a decision that is to be made.Make clear to the people you areconsulting what they can change byresponding to the consultation.Tell them clearly when they can

expect to receive feedback on theconsultation.

Competent and Inclusive ConsultationDesign the consultation exercise in away that is statistically valid. Prior tothe consultation identify the minimumsample return needed for theparticular exercise.Make a systematic appraisal of all the

consultation options available.Make sure that the method ofconsultation does not exclude relevantgroups in the community.When planning for the sample ofpopulation to be selected, make surethat the sample contacted is not biasedand that it represents the make-up ofthe population or service users.Hold a review after the consultation to

returned. This is to ensure that theresponses are as representative asthe sample planned and that there areenough responses. Take follow-upaction where necessary.

Consider what alternative methods ofconsultation can be used to cater forgroups who find it more difficult toparticipate, for example by publishingwritten material in Braille, byproducing audio tapes, by translatingdocuments if necessary, or by othermeans, working through groups whowork with the most marginalised. Onestandard approach may not suit all

target populations.

Using the Results of the ConsultationAnalyse the results of theconsultation.Report internally and write up theconclusions and actions resultingfrom the exercise.Let the people you consulted knowhow their views were taken into

account.

Communicating with the PublicEffective consultation demands clarity incommunication with the public. Peopleneed to know about the local authorityscommitment to participation and aboutthe opportunities and options forparticipation open to them.

When considering how to invite people toparticipate, think how you can make itmeaningful and manageable from theirviewpoint. At the same time, be carefulnot to give them false expectations.

Be prepared to move away from moretraditional forms of public meetings andconsultative leaflets towards a range ofother techniques.


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The local authority must provide clear,concise information on the following:

The purpose and aims of consultationThe status of the consultation whatcan be changed as a result

The background to the issue beingdiscussedWhen they will consult and with whomA consultation code of practiceHow the process of consultation willbe monitoredWho is responsible for theconsultationHow the processes work wheredecisions are made

How feedback will be givenWhat will happen after theconsultation exercise is completedThe decisions that have been takenand on what grounds.

It is vital to give participants feedback onthe results. Having got people involvedand obtained their views, it is essential toorganise some form of reporting back so

that they can see that their thoughts andideas have been taken seriously.

Avoid Jargon and Encourage OpennessWhether launching a participationinitiative, providing background materialor giving feedback, communicate in a waythat removes barriers rather than raisesthem.

Make sure that all the written materialprovided as part of a participationexercise is in plain English. Do not useunnecessary jargon. Explain technicalissues as clearly as possible. Recognisethat all cannot be reached through thewritten word.

These same issues should be consideredwhen planning meetings with the public.Meetings that are too formal and full of

through the chair, making points of order,resolutions and amendments suchformality should be avoided.

Using Different Media

Always tailor the method ofcommunication to the needs of theaudience. If they are disabled, elderly,members of an ethnic minority, youngpeople, ask what their particular needsare. It may be necessary to reach out tothem in a particular way.

Dealing with ConflictConflict can arise as a normal part of

participation. Disagreement is to beexpected and should be planned for. Butthere are no easy answers. Conflict variesfrom situation to situation. It takes

judgement and skill to deal with it.Here are some guidelines to consider:

Listen give all people theopportunity to put forward their pointof view regardless of differences of

opinion.Try to anticipate how people will reactto a proposal.Tell people clearly and honestly thepurpose, and the limitations, of theparticipation initiative you are offeringTry to give a balanced view that fairlyreflects the opinions of others and thedifferent views expressedBe careful to separate out statementsof fact from judgements and

opinions.

If a particularly contentious issue is onthe agenda, in which there are knownconflicts of interest within the community,it may be worth using consensus-buildingor conflict-resolution tools as part of themeeting or exchange. Engaging anindependent/external facilitator may beuseful in some instances.


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Putting Resourcein Place

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2 PUTTING RESOURCES INPLACE

IntroductionIt is essential for the success of the LAPSto plan for and put in place all theresources that are needed at every stepalong the way. From framing the overallvision to implementing the specific tasksrequired to achieve the targets, right up tothe final review of how well the LAPS metthose goals, time, skills, training, physicalfacilities and money will be needed.

At certain times, intangible yet vitalelements, like trust, creativity, staffknowledge, networking contacts orgoodwill may be critical to success. Planfor them and train for them if necessary.

While it would be ideal if dedicated staffwere available (e.g. through a socialinclusion or research unit), the reality on

the ground makes that unlikely for manylocal authorities. However, by providingappropriate training, it will be quitepossible to develop a strategy through thefocused work of existing personnel.Time will be the resource most needed.Consultation with certain stakeholderswill be time-consuming. Changing howthe local authority deals with clients, tobetter meet their needs, may have time

implications. Training for staff andstakeholders will demand time.

However, providing resources for theLAPS should not be viewed as anunnecessary expense or a drain on thecoffers of the local authority. Developing aLAPS will reap several benefits over thelonger term. With training, staff willbecome more skilled, more experienced,better practised at goal setting or

strategic planning. This will enhance thetalent bank available to the localauthority. One significant payback maycome in the form of a more efficient andeffective targeting of existing resources. It

may even help in identifying wherepotential savings might be made.

ResourcesTo draw up and implement an effectiveLAPS the following resources will beneeded:

Human resources to drive the LAPSinternally and to mobilise external

stakeholdersTimeInformation and data that can besourced internally within the localauthority, or externally throughcollaboration with other agenciesPhysical resources and facilitiesFinancial resources.

The remainder of this section addresses

each of these resources in turn.

Human ResourcesStaff knowledge is one of the principalresources at the disposal of the localauthority in the development of a LAPS.The Steering Group set up to co-ordinatethe LAPS will rely, to a great extent, onthe knowledge, experience, community

links or networking contacts of differentstaff members, or different work areaswithin the local authority. As discussed inSection 1, the Steering Group should beas broadly based and as representative ofkey sections within the local authority aspossible. Stakeholders should includesenior management, electedrepresentatives and as many externalinterests as possible.


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It is very likely that the lead in facilitatingthe development of the LAPS will be takenby personnel either within the Communityand Enterprise section or through theSocial Inclusion Unit, if the local authority

has one.

It is vital that the strategy is not drafted ina vacuum. Whether it is done throughthese specialist units or based elsewherein the council, the staff responsible for theLAPS should be able to tap into a networkof contacts, both internally within differentsections of the council, and externally inthe community. They should report directly

to the director of services or the City/County manager and should have strongliaison with the Corporate Policy group.

From an external point of view, the linksmade by the Community and Enterprisesections with other organisations andinterests represented on the County/CityDevelopment Board, Strategic PolicyCommittees, and the Community andVoluntary Fora will also be particularlyuseful.

TrainingSpecial training on areas such asconsultation techniques, communication,strategy planning, communitydevelopment processes or how to present

information to the general public in aneasy-to-understand way may benefit staffwho deal directly with the public.

Local community groups can oftencontribute to the training process, and byso doing, deepen their own relationshipwith the local authority.

Raising awareness of the LAPS process

among elected members is particularlyimportant to ensure involvement andownership of the process.

Pilot projects have shown that the LAPSmay have an impact at different levelswithin the local authority. It may influencethe following:

The council as a whole (with a view to

bringing about an attitudinal changetowards anti-poverty measures)Council policy


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Specific staff such as area engineers,planning officials or front-line staffActions within the LAPS that arespecifically led by the council.

TimePilot projects show that time is theresource most in demand whendeveloping and implementing the LAPS.The county/city manager and seniormanagement team need to be prepared toallow staff to engage in training andawareness-raising on social inclusionissues. This may include site visits, in

order to build up a shared understandingwithin the local authority of the issues tobe tackled.

If the LAPS seeks to make changes in theway local authorities carry out theirbusiness or do their work, this will alsohave time implications. For example, ifthe LAPS envisages targeting traditionallyexcluded groups that have not tended to

participate in consultation exercises in thepast, this process will be more time-consuming, and this needs to beacknowledged up front. Similarly, ifconsultation documents or other localauthority publications are to be madeliteracy friendly, this will have resourceimplications.

Collecting Information and DataIt will be necessary to devote a lot of timeto researching community needs andidentifying particular social inclusionissues to be tackled at local level. Itshould be possible to source a good dealof information at the start of the processthrough desk research. This will haveconsiderable time resource implications.

Physical Resources and FacilitiesThe LAPS may have implications for theuse or arrangement of council facilities.For example, there may be a need for aseparate room close to reception areas or

near front desks, for private meetingsbetween customers and officials, or forhelp with filling forms. A room-sharingarrangement may be needed andnegotiated with other staff or sections.

When meeting partners from externalorganisations about the LAPS, considerusing facilities belonging to communitygroups where possible, rather than

private enterprises or hotels. This helpsto build up links and allows thecommunity groups to contribute theirknowledge and expertise. It also helpsbreak down the sense that the localauthority is a distant organisation thatdoes not understand their problems.

Financial Resources

This is perhaps a particularly challengingissue in the development of a LAPS.Discretionary funds are scarce in localauthorities at estimates time, with manycompeting demands. Given the limitedcapacity of most local authorities to raisetheir own finance, some discretionaryfunding for social inclusion/anti-povertyinitiatives should be provided. A dedicatedbudget line should be provided for, in the

yearly estimates process.

Some local authorities have tried to ring-fence a percentage of each departmentsbudget for social inclusion actions, e.g. aportion of the roads budget set aside forappropriate consultation and involvementof end-users in the road planning,which essentially is part of thepoverty/rural/equality proofing process.


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Although time represents the mostsignificant investment in resources, out-of-pocket costs do occur, for example, theneed to advertise public consultations.Currently these costs may need to be

covered through existing budgets.

Most actions arising from a LAPS willtake the form of joint initiatives with otherpartners, state agencies, localdevelopment groups or communitygroups. Funding may be sourced for jointinitiatives on behalf of these partnerships.For example, a council working with aresidents association to re-develop or

upgrade a housing estate may be in aposition to allocate a house within theestate for community facilities.

However, it would be important to workwith a steering group or residentscommittee to build their capacity tomanage the facility. A local partnership orcommunity group is likely to have the skillsand experience to facilitate this process.

With regard to resources for raisingawareness within the local authority, theseshould be planned for within the trainingbudget, and money should be ring-fencedfor specific training in social inclusion.


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The Importanceof Training

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3 THE IMPORTANCE OFTRAINING

IntroductionIn Section 1, Starting Out, the importanceof establishing an in-house SteeringGroup to take forward the development ofa LAPS was emphasised. So too was theneed to identify and involve a wide rangeof stakeholders. It is very unlikely that allthese people will understand or be awareof what poverty and social exclusion are;of how they are present in Ireland today;

and of how they might be tackled.

It is vital to develop that awareness, inorder to build a LAPS that is bothmeaningful and effective. That is wheretraining comes in. Training is aboutmaking people fit for the task.

As well as straining stakeholders, it isequally vital to train staff. If staff are not

trained, the quality of work falls and/orthe organisation has to buy in or recruitnew people who have the knowledge andunderstanding that is needed. Trainingshould also be available to elected

representatives on an on-going basis at atime and location that is appropriate totheir needs.

The same logic applies to anti-poverty

work and training. Ongoing anti-povertyand exclusion training is essential andshould be included as a core part of acouncils corporate training programme.Training helps to make the best use ofpeoples skills, aptitudes and capacityand, in turn, of the organisationsresources, services and programmes.

Staff training will frequently reveal

hitherto unknown skills andunderstandings that the council can takeon board. However, in training, as ineverything else, a one-size-fits-allapproach can actually be harmful in anti-poverty and social exclusion work.

This section does not provide a tailor-made, comprehensive suite of trainingmaterials, or a blanket approach totraining. It does not tell you what to doevery step of the way. Instead it offers atemplate that will help shape theapproach to training. It is thus developedto reflect the model below:

Getting Fit for Purpose: Anti-Poverty Training

What should be in it?

And what then...? Who should beinvolved?

When should itbe rolled out?

How should it bedelivered?

Whytrainingat all?


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Getting Fit for Purpose:Anti-Poverty TrainingTraining formed a very substantive part ofCombat Poverty Agencys Local

Government Programme. This section isbased on the significant experiencedeveloped as part of that programmeduring the period 2001-2004. Inelaborating on the template, it isindicative rather than prescriptive.

Why Bother about Training?If one wishes to do something about a

particular topic, issue or problem, then anunderstanding of that topic, issue orproblem is necessary. There are nodifficulties, for example, about traininghousing staff on housing issues; librarystaff on library issues; or planning staffon planning issues. In the same way, allstaff should be trained on cross-cuttingissues such as equality and socialinclusion.

Including staff members in carefullyconsidered training gives them a clearmessage regarding the following:

Anti-poverty work and thedevelopment of LAPS are important.Their role within such work or theirinput to that work is also important.The development of LAPS is part ofnational government policy and of EU

policy.Staff can contribute to efforts torevitalise local democracy.

Training Needs AnalysisBefore developing a training programme,it is good practice to carry out a TrainingNeeds Analysis (TNA) not just for localauthority staff but for all stakeholders in

Looking at how/where anti-povertyand social exclusion training fits interms of helping the organisationachieve its strategic goalsFinding out what the key people

already know about poverty and socialexclusionChecking the level of understanding ofand value in the role of civil society,especially organisations representingthe interests of the disadvantagedAsking them what their own trainingpriorities areLooking at what is already included inthe organisations training plan and

deciding whether any elements can beused for this purpose.

What Should the TrainingAchieve?In addition to the results of the TNA,training should aim to leave key peoplebetter placed in terms of some or all ofthe following:

What is meant by poverty and socialexclusionHow they are manifest in Ireland todayHow they are present in and across aparticular county or cityThe dynamics or underpinningreasons for poverty and exclusionThe key anti-poverty strategies,policies and approaches already in

place (for example, the NAPS)What local authorities are alreadydoing by way of their mainstream,day-to-day work to address povertyand social exclusionWhat a LAPS actually isWhat else needs to be done and bywhomUnderstanding and valuing the role ofcivil society, especially organisationsrepresenting the interests of the


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The power of individual/organisationalattitude in deepening or addressingsocial exclusion.

Well-designed, strategic anti-poverty and

social exclusion training would leaveparticipants with, at a minimum, a goodunderstanding and analysis of the basicpoverty issues highlighted in the revisedNAPS Building an Inclusive Society. Thatmeans it would cover:

Consistent PovertyIncome adequacyEmployment

EducationHealthHousing and accommodationVulnerable groups including Children and young people Women Older people Travellers People with disabilities Migrants and ethnic minorities

Urban poverty and Rural disadvantageAccess to servicesDeveloping a collective vision andanalysisAgreeing targets and indicators.

Training might also cover the following:

What a poverty profile is; why it isimportant; and how to construct oneWhat poverty proofing means

The importance of and differencebetween consultation andparticipation and how to do themThe role of community developmentand citizens organisations (civilsociety) in tackling povertyInstitutional and individual change forsocial inclusion.

Who Should Be Involved inTraining?At an absolute minimum, the trainingtargets should comprise members of theLAPS Steering Group and the other keystakeholders identified earlier. But trainingshould go beyond those who are directlyinvolved in developing the LAPS. Given thenew and expanded role of local authoritieswith regard to social inclusion, all staff

should be provided with basic awarenesstraining on poverty and social inclusion.

To help develop such an agenda it can beuseful to use a training matrix. Thisbreaks down the training into, on the onehand, lower-level awareness raising and,

Basic awareness Who? Who?What? What?How? How?

Deeper understanding/ Who? Who?specialist knowledge What? What?

How? How?

Training Matrix

Strategic level Operational level


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on the other hand, the transfer of specificknowledge and/or skills. Equally, trainingcan be geared to the strategic oroperational contexts and staff are thentargeted accordingly. The resultant matrix

emerges as follows:

Striking the right balances within thematrix helps to avoid giving training on alowest common denominator basis, i.e.aiming it at the least well-informedmembers of the group or audience. Suchapproaches make poor use of the time ofthe better-informed people, and may beboring and off-putting for them.

Elected RepresentativesIt is very important to include electedrepresentatives in the training agenda.However, when considering their training,it is necessary to take into account theirparticular circumstances. Here are somepoints to consider:

A key joint priority should be raisingcouncillors awareness of poverty andhighlighting its relevance to thecouncils mainstream activities andcore business.Councillors are busy people and theirtime constraints need to be respected.Strategic Policy Committees can be auseful and focused setting withinwhich to deliver training for elected

representatives.Many councillors experience ofpoverty and social exclusion comesfrom dealing with problems or issuesraised by their constituents. Suchexperience provides very valuableinsight. However, councillors need tointerpret these one-off cases within amore strategic context.

Who Should Deliver theTraining?Broadly the options are as follows:

In-house staff that are well placed todo this work, e.g. people in Communityand Enterprise; Social Inclusion Units;and/or RAPID teams. While this islikely to be the cheaper and morepreferred option it may not necessarilybe the best one. Training capacity maybe limited therefore an on-goinginvestment in training and perhaps ina training for trainers programme inthis area is likely to have long-termbenefits for the local authority.Guest speakers from relevantorganisations such as anti-povertygroups, Combat Poverty Agency,government departments or agencies,local development organisations witha social inclusion remit andcommunity or voluntary bodiesPeople from outside contracted todeliver the training.

It is absolutely vital that the trainers:Know their subject and have specificexpertise on poverty and socialinclusion issuesHave an understanding of what localgovernment is and how it worksHave proven records as goodcommunicators and trainers.

Attention to detail here will ensureeffective outcomes.

How Should Training BeDelivered?Anti-poverty awareness training can andshould be delivered in a variety of ways.These can include:


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The written word, for example,features in in-house or staffmagazinesOne-off events or part of a longerterm, structured programme.

It may also be possible to tweak existingtraining to include a poverty and socialexclusion element. For example, existingcustomer care training programmes couldbe revised to include a specific focus onthe customer care needs of disadvantagedor marginalised groups. Another waycould be to introduce a social inclusionmodule into any induction training that

councils already have in place. A moduleon poverty and poverty impact assessmentin general service training will help to givethe analytical skills needed for povertyproofing (see Section 7: Poverty Proofing).

The most effective training interventionstend to be those that actively involve anddraw from existing understanding andexperience of the trainees. Sessions

should be interactive and shouldencourage participants to relate what theyare learning to their own workenvironment. Half-day training sessionsrepeated over time tend to be the mostefficient, effective and popular.

The training should aim to get people tocontinually ask: What does all this meanfor me and my team in our workenvironment?

When Should Training BeDelivered?Two dimensions are involved here: Before,and After.

Training that has to do with the mechanicsof developing a LAPS needs to be delivered

Training should not be seen as a once-offinput. After the LAPS is in place, the needfor training should still be considered.

It is also essential to have anti-poverty

and social exclusion training as anongoing, core element of the councilsinternal training programme and to buildin space for reflection and monitoring.

Where Should Training BeDelivered?The normal criteria regarding training

venues should also be applied here.Venues should be:

AccessibleSpaciousComfortableProperly laid out and equipped.

Moving part of the training sessions to alocation in-the-field can be very effective.

Bringing council staff out to adisadvantaged area, community or localproject can make issues and points thatmight otherwise be academic seem realand alive for many participants. It can alsohelp the council to showcase what it isdoing or bring home to participants thepotential for partnership and joint working.

When arranging training sessions, it is

also normal practice to provide at leastbasic catering or refreshments and out-of-pocket expenses, if required.

What Then?Good training isnt over when its over!Carry out a basic evaluation at the end ofevery session. This need not be asophisticated exercise. But it should look


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The ContentThe Process.

ContentDo people now have a better

understanding of the topic area?Was the knowledge imparted usefulfor peoples day-to-day work in thecouncil?Did the training meet the identifiedneed?What was positive and what wasnegative?What areas do people think should beaddressed in future?

What more help do they need?

ProcessDid the session work well in terms ofvenue, timing, materials, style etc?Was the performance of thetrainer/speaker(s) effective?What was positive and what wasnegative?


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Developing a Loca

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4 DEVELOPING A LOCALPOVERTY PROFILE

IntroductionTo frame a Local Anti-Poverty Strategy(LAPS), a full and accurate picture of thenature and extent of poverty in the area isneeded. This is where the local povertyprofile comes in. A local poverty profileinvolves systematically identifying,gathering and mapping information onsocial and economic need in your area. Itshould clearly identify the areas and

communities that experience the highestlevels of disadvantage, and the nature ofthat disadvantage. This will provide thefactual breakdown that enables thefollowing identification: These are theareas of greatest need, this is how theservices are addressing it, and this iswhere the gaps are.

An accurate and comprehensive local

poverty profile will be a powerful tool indevising anti-poverty strategies andpolicies that meet the needs of people andcircumstances in your particular area. Itwill give the factual basis for your LAPS.

By identifying local poverty issues, it canhelp:

Draw up a local needs appraisal

Target resources in the most effectivewayCarry out follow-up action andevaluationAdd to needs appraisal at national level.

As a first step find out as much aspossible about any work already done andstate the objectives of data collection. Thiswill not only avoid duplicating effort butwill also better peoples understanding of

the issues involved. It can be done in anumber of ways:

Consult relevant research andstatistical databases either within thelocal authority or available to the local

authority.Scan relevant publications.Speak to colleagues in different areas(for example those responsible forforward planning in the planningdepartment).Conduct an information trawl.Search the Internet.

Key source materials are likely to include:

Official and other statistics (publishedand unpublished)Research reports, registers, reviews,abstracts and summariesArticles and working papers inacademic, professional, trade andother journalsWebsite and other electronicmaterials

Combat Poverty Agency and otherspecialist libraries and resourcematerials.

When trawling for information, keep anumber of questions in mind regardingthe quality or relevance of the information

Is the material valid and based onverifiable research?Is the material inaccurate orinconsistent?Are there gaps in the datasets?Is the same definition being applied toparticular terms or different terms?Are the research findings statisticallyreliable?Can the statistics or research resultsover time or between differentgeographical areas be compared?


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On the basis of desk research, theadequacy or inadequacy of existinginformation should be known, and otherinformation or data to be gatheredthrough the poverty profile will be

identified. It is important that local effortis matched by increased availability oflocal data from government departments.

At times, community and voluntary groupsand statutory agencies may be reluctantto give the local authority information thatthey hold. There may be various reasonsfor this reluctance:

They invested a lot of time andresources in collecting theinformation, and are reluctant to handit over.There may be a fear that theinformation will be usedinappropriately, or will not be used atall.There may be a fear that inappropriate

judgements may be made on certain

information.

To overcome such a problem there may beneed to explain why the information isbeing sought and to clarify how it will beused. This may call for tact on the part ofthe researcher.

It is clear that information that can beused in developing the LAPS does notneed to come solely from within the local

authority but can be sourced from a widevariety of other organisations andinterests with a broad social inclusionremit and/or policy brief. Relationshipsestablished through the CountyDevelopment Board, Strategic PolicyCommittees and the Community andVoluntary Fora would be helpful in thisrespect.

When putting a poverty profile together,the information gathered should be as IT-friendly as possible, so that it can beintegrated into the local authoritysGeographic Information System (GIS) and

used for measurement and assessmentpurposes. It should be possible to updateit regularly as information is gathered.For this reason, it may be useful to havean IT staff member involved in theSteering Group.

When carrying out a poverty profile, choosecertain themes or headings under which toorganise the information gathered. These

themes will relate to policy areas, e.g.housing or health. Themes may reflectnational policy priorities but should alsoreflect local needs. The key themes andvulnerable groups identified in the NAPSprovide a good starting point forconsideration, but issues of specificconcern in the area should be identifiedand prioritised. The themes chosen shouldaddress key local poverty issues and begrounded in experience, local knowledgeand relevant research.

At every stage in the development of theLAPS you should work with or consultother stakeholders in national and localorganisations. This will also apply to thepoverty profile stage. Many stakeholdersand organisations will have expertiseacross a number of themes and may bekey sources of data. Be prepared to involve

these groups in identifying, gathering andanalysing data. It can greatly improve theprocess of building the local povertyprofile and increase its usefulness.

It is also important to draw on the adviceand expertise of outside groups whenanalysing the data that have beengathered. Data analysis is a technicalprocess and staff may not have all the


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included in the local poverty profile. Itmay be useful to tap into locally basedresources such as research consultantsor educational institutions.

Whether selecting themes, deciding onindicators or interpreting the datagathered, the work should be informed bya combination of local knowledge,common sense and statistical accuracy.

Poverty profiling is a dynamic process thathas an ongoing role in framing policy andallocating resources. All aspects of theprocess should be reviewed regularly

because new poverty and social inclusionissues will emerge, priorities will changeand new data will become available.

Themes and indicators should be re-assessed over time to ensure that theycontinue to reflect priorities. Examinedata sources regularly to ensure that theyare the most relevant and up-to-date.When designing the local poverty profile,build in a review process so that thisimportant exercise is not left out. Decide

how often to review the poverty profile andits different parts, depending on howoften updated information becomesavailable and policy changes occur.

Steps in Developing a LocalPoverty Profile

This section discusses the various stepsin developing a local poverty profile. Thekey steps are:

Selection of themes

Selection of indicatorsData identification and gatheringBasic data analysisMapping, preferably using aGeographic Information System (GIS)Presentation and review.

The order of some of these may vary. Forexample, indicators could be selected firstand then arranged in groups or themes,or choose to identify themes first and

then select indicators for these.

Indicators: Indicators are statistics that illustrate the presence, absence, degree orseverity of a particular event, situation or condition. For example, inadequateincome is an indicator of poverty. Indicators in this sense are measures chosen bythe individual local authority and are not the Service Indicators for Social

Inclusion as discussed in Section 5 of the guide.

Themes/Domains: These are subjects or headings, e.g. Housing, EducationalDisadvantage or Health, under which indicators (figures) are grouped.

Datasets: These are collections of recorded figures on a range of issues (relatedto poverty, deprivation and social exclusion). Datasets are typically held inspreadsheet or database form on computer.

Geographic Information System (GIS): GIS is a specialised computer package usedto analyse and map data. Leading GIS packages include Arcview and MapInfo.

Before starting, here are some key terms in local poverty profiling


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Themes and IndicatorsThemes are the broad headings, policyareas or function areas that are used toorganise information for the povertyprofile (they are sometimes calledDomains). They typically include:

HousingHealthWelfare dependencyEducational disadvantage.

They may also include:

Transport

Community amenitiesQuality of life.

Themes may also include specific targetgroups such as:

WomenOlder people

Traveller communityEthnic minoritiesChildren.

An indicator is most commonly a numberpercentage, rate or ratio that shows theextent to which an event or phenomenonis present or is absent. Indicators in dailyuse include age, which is used as anindicator of capacity to work, and the

amount of waste that is recycled, which isused as an indicator of our concern forthe environment.

Theme Indicator

Unemployment Unemployment RateYouth Unemployment Rate

Welfare Dependency Number of recipients of UnemploymentAssistanceNumber of Recipients of Lone Parentpayment

Educational Disadvantage Percentage of population with no secondlevel qualificationsNumber of early school leavers

Housing and Accommodation Number assessed by the local authority asbeing in housing needPercentage of population who are localauthority tenants

Health Percentage of population holding medicalcardsNumber of General Practitioners per 1,000population

Examples of Themes and Indicators


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Selecting IndicatorsIndicators for use in a Local PovertyProfile may draw from a number ofsources. These include:

National policies and indicatorsincluding: The NAPS and those indicators

identified under the seven themesin the revised NAPS1 (see Appendix1)

Those identified by the NationalEconomic and Social Council2

Indicators and targets set down inthe Programme Complements ofthe National Development Plan

and reported on in variousevaluation and progress reports3

Local authority databasesDatabases held by other national,regional and local organisations(Appendix 4: Potential stakeholdersand sources of data)Previous local research studiesNational and international publicationsconcerned with indicators and data

relating to poverty and social exclusion.These include publications of: The Central Statistics Office (CSO) The Department of Social and

Family Affairs, other Governmentdepartments and agencies

The Organisation for Economic Co-operation and Development (OECD)

The European Union (EU) The United Nations (UN)

The International LabourOrganisation (ILO).All of these organisations have websitesfrom which much information is available(see Appendix 5: some useful websites)

Brainstorming sessions with relevantlocal authority staffPublic consultationsContact with experts and organisationsat local and national level

Social and economic indicators usedby EU institutions including the EUCommission and the Council of theEuropean Communities.

Choosing the Right IndicatorsGathering information from all thesources can lead to a long list ofindicators being identified. It is necessaryto choose which are best suited to yourparticular purpose or theme. Below aresome criteria to assist the decision.Select indicators that are:

Easily understood: They should be

simple, clear and easy to interpret.Addressing priority issues: This is toensure that key issues and prioritiesare included. Leave out less importantissues.Conceptually valid and analyticallysound: Indicators should actuallymeasure the concept or theme beingexamined, e.g. housing. They shouldstand up to scientific scrutiny. They

should make logical sense in terms ofwhat is being done. For example, apoverty profile must have indicatorsthat measure poverty. This means thatthe indicator must show that thosewith low incomes have or experiencemore or less of something.Measurable: Indicators should bebased on available, good quality andregularly collected data. However, doplan ahead and consider using

indicators for which data canreasonably be expected to exist in thefuture.4

Available for the specific area: If datafor an indicator is not available on asmall-area basis, e.g. a DistrictElectoral Division (DED), Health BoardArea or county, it is of little use indeveloping a local poverty profile.


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The Appropriate Number of IndicatorsIt is not possible to say here how manyindicators will be best. That will dependon the needs and the issues being workedon. Generally, it is necessary to strike a

balance between having too few, whichwill give you an oversimplified analysis, ortoo many, which will result in a povertyprofile that is unwieldy and unhelpful. Allindicators should be reviewed regularly inthe light of changing priorities andcircumstances and the availability of data.

Identifying and Gathering DataFinding and gathering appropriate data isone of the key tasks in building a localpoverty profile. It takes a lot of time andshould be planned. For example, allowenough time between the initial requestfor data from various sources and actuallygetting the data.

It may be necessary to examine, andreject, many sources of data before you

find ones that are suited to your needs. Ifa source is insufficient, of poor quality ordifficult to collect, it might have to betaken out of the profile. In Ireland, there isa lack of uniformly and systematicallycollected data at the local level.

Where direct data are not available, usebest estimates but show clearly that thereis a sound reason for using them. Most of

the data used in mapping will bequantitative. However, where available,qualitative data should be used to supportand add to this.

Sources of DataCheck out the most obvious sources ofdata on poverty and social exclusion first.These include the following:

The data held by the council itself.

sources you examine. They mightinclude data on housing and the builtenvironment drawn from informationgathered on the number ofhouseholds accommodated, housing

lists and surveys of homelessness.Useful information may be found instudies or plans developed by localinitiatives such as Partnershipcompanies, LEADER programmes,RAPID and the County or CityDevelopment Boards.GAMMA LtdThe Central Statistics Office (CSO) is asource of information for a number of

indicators. Useful CSO publicationsinclude the Census of Population,Small-Area Population Statistics(SAPS), and the Quarterly NationalHousehold Survey (QNHS).Government departments andagencies can be valuable sources ofdata. Information can be found inreports, websites and informationunits.

International reports to which Irelandcontributes information are alsovaluable sources of data. Identify theagency that supplies the data. In somecases data that appear in internationareports are not reproduced in nationalreports, but the relevant datasets exisand can be accessed on request.Contact national, regional and localstate, community and voluntaryorganisations to see what data they

hold.Contact other local authorities thatare also in the process of developing alocal poverty profile.

What Geographic Area Should DataCover?When identifying and gathering data,consider which geographic level is mostappropriate. Use of data at the level of the


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which census data are routinely madeavailable. If using a bigger area than this,e.g. at county level, the broader figuresmay hide important details anddifferences between areas. Data on areas

smaller than this may be hard to come byand may raise issues of confidentiality.

Alternatively, use the Geo-Directorydeveloped by the Ordnance Survey Officeand An Post. This uses geo-coding, theprocess of assigning and recording theprecise geographic co-ordinates or gridreferences for each individual householdor street address. Such information can

be used to map any geographic areairrespective of size or shape. However, itis expensive and may not be feasible foreach individual local authority.

Basic Data AnalysisThe information gathered now needs to beanalysed. Begin by grouping it into therelevant categories. Much of the data used

in a local poverty profile will already begrouped. In these cases, make sure thatthe categories or groups used arerelevant. For example, a dataset oneducational attainment grouped by gendertells little about poverty unless it is alsogrouped by the socio-economic status ofparents or the labour market experienceof the individuals. Where original datasetsare either generated or acquired by the

council, data may need to be regrouped.

Too many categories will result in apicture that is unwieldy and difficult tointerpret. Too few categories willoversimplify the matter in hand. Theseissues are important not only in dataanalysis, but also in mapping andpresenting data. When choosingcategories and interpreting data, draw onlocal knowledge and common sense as

What Are You Measuring?The data used in a poverty profile willlargely consist of numbers, percentages,rates and ratios, e.g. the number ofindividuals, households or cases in

various categories or groups. It may alsobe expressed in terms of averages. Inusing any of these measures, use thecorrect denominator or population. Takecare to state clearly what this populationor denominator is.

Example:The data say there is a 20 per cent

male unemployment rate. What doesthis 20 per cent mean in terms ofproportion? Is it 20 per cent of allmen in the area? Is it 20 per cent ofall men of a particular age? Is it 20per cent of all men who haveprevious work experience?

What Are the Figures Describing?The basic unit of analysis should bedecided upon and clearly stated. It shouldbe clear whether the data and statisticsrelate to individuals, households, streetsetc. If relevant, show clearly the level ofdisaggregation. For example, are thefigures relating to individuals of aparticular age, or households with aspecific composition or tenure? Whenthese points are shown clearly, it is easierto interpret the data. It also helps to keep

the data analysis focused.

Mapping DataWhen the right data are included, mapshave a number of advantages in a localpoverty profile.

They can give a clear picture of localconditions based on the input and


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are visual or pictorial, they may havemore of an impact. They also may bemore easily understood than tables orgraphs.Using a Geographical Information

System (GIS) it is possible to map avariety of datasets simultaneously.This will clearly identify areas that areexperiencing multiple deprivations.Data at almost any area level,including streets, neighbourhoods andDistrict Electoral Divisions, can bemapped. Mapping of servicestherefore provides a more exactpicture of the needs of small areas.

Physical barriers, such as mountains,rivers and lakes, can all be shown inorder to help better inform decisionson local issues.Mapping can combine different typesof data local and national, point andarea based to build a morecomprehensive picture of localconditions. (Point data is often used toshow where points of service delivery,

such as schools and hospitals, arelocated.)

Mapping may provide very differentinformation, depending on whetherabsolute numbers or percentages, ratesetc. are used. It is useful to map both andassess which gives the more accuratepicture of the issue in question. Manymaps used in local poverty profiling maypresent a composite picture of a number

of themes, such as Unemployment,Welfare Dependency and EducationalDisadvantage. Attach a table to the map,showing the data in relation to each ofthese themes, so that discrete data arealso made available.

Presenting and Reviewing aLocal Poverty ProfileWhen reporting and presenting your localpoverty profile, keep it clear and relevant.

Use some or all of the following headingsThey will help to ensure that enoughinformation is given to support the use ofthe profile:

Description of the themeDescription of the indicators and thereason for choosing themSource and regularity of dataBaseline data collected

Key issues or trends emergingGaps in information.

Local Deprivation Index for Sligo


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Things to DoIn presenting information, rememberthese points:

Include a written interpretation of the

findings with all tables, graphs andmaps.Number all tables, graphs, maps etc.Give each one a clear title thatprovides a concise description of whatit contains.Acknowledge clearly where there areweaknesses in the data.Explain clearly and concisely anytechnical data used.

Involving StakeholdersLocal authorities do not work alone, butas part of a larger network of national andlocal organisations. Many organisationswill either have data they can share orexpertise on particular themes orindicators, e.g. the number of homelesspeople. Their expertise will help inanalysing data or qualitative information

and in considering how a particular themeor aspect of poverty affects people on theground.

To work effectively with other agencies orcommunity organisations, involve themfully in the process and explain clearly theaims of the poverty profile and how it willbe used as part of the overall LAPS.


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Local SocialInclusion Indicators

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5 LOCAL SOCIALINCLUSION INDICATORS

IntroductionThis section identifies social inclusionindicators which, if adopted by a particularlocal authority, would enable it to moreeffectively monitor its role and performancein relation to social inclusion. As these arespecifically social inclusion indicators theydiffer from the more general indicatorsdiscussed in the previous section.

The use of social inclusion indicators forlocal authorities is part of a wider series ofchanges that have taken place in the publicservice and local government in the last 10years. Performance Management andDevelopment Systems (PMDS) have beenintroduced to measure individual staffprogress on stated objectives. The role oflocal government has been extended underlegislation and the NAPS. strategic

planning and development, andimplementing NAPS targets at local level,are now part of the role of local authorities.

In 1996, Better Local Government: AProgramme for Change set out four keyprinciples for local government:

Enhancing local democracy andwidening participation

Serving the customer betterDeveloping efficiency in localgovernmentProviding proper resources to allowlocal government fulfil the roleassigned to it.

The principles of serving the customerbetter and developing efficiency in localgovernment involved improving the

quality of services provided. Performanceindicators were to be used to monitor this

In 2001 the Local Government Actintroduced a formal strategic

management process in local authoritiesthat involved the use of indicators. As partof this process, local authorities wererequired to produce corporate plans.

Another change came in the shape of theNational Anti-Poverty Strategy in 1997and the revised NAPS in 2002. The revisedNAPS set out the key role of localauthorities:

To set strategic developmentobjectives across the full range ofpublic servicesTo take account of the principles,targets and objectives set out in theNAPSTo develop appropriate socialinclusion strategies at local level tounderpin and strengthen the national

actions on the NAPS.

Other changes spurred the use ofPerformance Management andDevelopment Systems. These includedsocial partnership and the concept ofbenchmarking; the introduction ofperformance-related pay for senior grades;and the piloting of PMDS (for measuringstaff performance) in local government.

Monitoring MechanismsCertain mechanisms are used to monitorlocal authority performance. They include

Forty-two National Service Indicators.These were first produced by theDepartment of the Environment,Heritage and Local Government in 2000and amended and increased in 2004


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Annual operational plans/BusinessplansCorporate plansCounty Development Board strategiesSocial Inclusion Measure (SIM) groups

Performance-related pay at seniorstaff levelThe PMDS5 pilot in local authorities.

Out of the 42 national indicators, only fouror five are relevant for measuringprogress on social inclusion. However,local authorities were encouraged todevelop their own local indicators, someof which could be used to monitor the

social inclusion remit.

Work was undertaken by Combat Povertyin 2004 to support local authorities indeveloping their social inclusionindicators, as this would enable them tomonitor their progress on social inclusionand implementing the revised NAPS.

This was done in three ways.

1. The existing 42 indicators wereexamined to see if some could beadopted to be more effectivemeasures of social inclusion.

2. Additional local social inclusionindicators were developed that couldbe applied by local authorities. Theseindicators were identified after areview of existing social inclusionindicators in Ireland and Europe and astudy of UK performance indicators.Some were identified throughdiscussions at the Local GovernmentAnti-Poverty Learning Network. Thisproduced a comprehensive list ofsocial inclusion indicators. Themajority of these measured outputs,i.e. the direct and immediate effects ofa particular action.

3. From the full list, six to eight key localsocial inclusion indicators wereidentified. These would allow localauthorities to recognise and capturetheir social inclusion role in a

structured way.

This section looks specifically at theseeight key local social inclusion indicators.Additional social inclusion indicators arelisted by function area in Appendix 6.These could be of help in capturing thecouncils broader performance on socialinclusion.

Not all of the indicators listed in Appendix6 should be used. It is advisable to adoptthe eight key social indicators identifiedbelow as core local social inclusionindicators. These indicators will be auseful tool for ensuring that socialinclusion is embedded as a core principleacross all council activities andprocedures.

Within the council, staff in specificsections are advised to examine theindicators identified for their particularsection and, where useful, adopt some ofthem for use with their annualoperational/business plans.


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Key Local Social Inclusion Indicators

Housing

1 Local Authority Housing Unit starts

Number of new local authority housing unit starts

This links directly to the key Housing and Accommodation targets in the NAPS, i.e.to deliver 41,500 local authority housing unit starts (including acquisitions) between2000 and 2006 (NAPS 2002, p. 13).

2 Social HousingPercentage of the Housing Strategy implemented

Type of Housing Unit/s Number of New Units Number of Refurbished/Renewed Units

One BedroomTwo BedroomThree Bedroom

Hostel/s(Number of Beds)Housing Units for TravellersTransient sitesHalting baysOther (please specify)

This list could be adapted by a local authority for local circumstances.

Roads

3 Catering for Vulnerable Road Users

Percentage of the total City/County Councils non-national roads budget spent onworks pertaining specifically to the needs of vulnerable road users (for example,tactile paving, dished kerbs, etc.)

Vulnerable road users include: disabled people; older people; children; mothers withsmall children; etc.


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Planning and Building Control

4 Social Housing

Total Number of Soci

Documents

DevelopingALocalAnti-PovertyStrategy_2005