2015

Local authority approaches to meeting the accommodation needs of Gypsy/Travellers

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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