Report on the launch of the Pat Niner research on the Accommodation needs of Gypsy Travellers in Wales, Llandrindod Wells, 25 th September 2006

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1 1 Report on the launch of the Pat Niner research on the Accommodation needs of Gypsy Travellers in Wales, Llandrindod Wells, 25 th September Purpose This report provides a summary of the event to launch Pat Niner s report on the Accommodation needs of Gypsies and Travellers in Wales, in the Metropole Hotel, Llandrindod Wells, on the 25 th September The primary focus of this report is to provide a summary of the speeches and feedback from the workshops. The purpose of the launch was to provide an opportunity for service providers to consider the report, its recommendations and conclusions in both plenary and workshop sessions. Participants came from local authorities across Wales, the Police forces, the Voluntary sector, Cardiff Gypsy and Traveller project, housing associations, WLGA, Race Equality Councils and other relevant organisations. A list of participants is included at appendix Background to the Niner report In December 2004 the Welsh Assembly Government commissioned Pat Niner of the University of Birmingham to establish the accommodation needs of Gypsies and Travellers in Wales. The purpose of the study was to inform the development of the Welsh Assembly Government s policy on Gypsies & Travellers by providing information on the number, location and condition of Gypsy and Traveller sites in Wales. The project arose from a series of recommendations in the National Assembly s Equality of Opportunity Committee report Review of Service Provision for Gypsies and Travellers which highlighted the need to resolve the lack of adequate Gypsy and Traveller accommodation, including that there should be an audit of existing site provision to identify the demand for further sites and gather good information on good site design, facilities and location which will inform future site development. The study examined permanent and transit sites, temporary stopping places, the availability of housing for Gypsies and Travellers, and whether the number of places on existing authorised sites was sufficient to meet the present and likely future levels of demand for accommodation. The study also provides an indication of the need for new site provision with the estimated costs. The report provides an indication of the obstacles to new site provision, the contribution of the planning system to the promotion of Gypsy and Traveller accommodation and good practice in site provision.

2 2 The research project was overseen by a steering group which comprised representatives from the WLGA, Flintshire Local Authority, Cardiff Gypsy Traveller Project, the Community Law Partnership, the Gypsy Traveller Law Reform Coalition Project, and Welsh Assembly Government officials. Two members of Cardiff s Gypsy Traveller community also attended meetings of the steering group. 3. Introduction to the Launch The event was chaired by Professor Eric Sunderland, former Vice-Chancellor of the University of Wales, and chair of the steering group which oversaw Pat Niner s research project. Presentations were made by Jake Bowers, Britain s only Romani journalist, Pat Niner, Senior Lecturer in the Centre for Urban and Regional Studies at the University of Birmingham, Councillor Aled Roberts representing the WLGA and Chris Myant, head of the CRE in Wales. The report was launched by the Minister for Assembly Business, Equalities and Children, Jane Hutt AM. 4. Speech/Talk highlights Jane Hutt AM, Minister for Assembly Business, Equalities and Children Announced the setting up of a dedicated Gypsy and Traveller unit. Made a case for funds for a refurbishment grant Reintroduced the Gypsy and Traveller Caravan Count Survey Enacting sections 225 and 226 of the Housing Act 2004 Currently preparing a replacement circular Planning for Gypsy and Traveller Caravan sites Welsh Assembly Government will develop a national strategy for Gypsy and Traveller accommodation provision. Will develop a model site license agreement Welsh Assembly Government has commissioned an in-depth research report in to Gypsy and Travellers children s experience of learning in Wales. Welsh Assembly Government welcomes the CRE report Common Ground Jake Bowers, Romani Journalist Gypsy Traveller community live between the cracks in society Private sites are a preference of the Gypsy and Traveller community Going through the process of gaining planning permission is stressful There is usually fierce local opposition. Public sites do not have security of tenure There can be environment hazards Conditions can be overcrowded Roadside accommodation means no security, no running water

3 3 There is limited access to education or healthcare when on the roadside Leads to further marginalisation and increased attacks Gypsies and Traveller have the worst health in the UK Difficulty accessing primary care Issues around diet and exercise and drugs and depression Media perpetuate conflict around accommodation Media reinforces stereotypes Biased report leads to racial hatred Ignore cultural and historical context Gypsies and Travellers have many values such as recognising the importance of family, respect for elders, children first, community before career and demonstrate compassion and passion. Gypsies and Travellers are model Europeans as they adapt to shifting economies and changing cultures. Pat Niner, Senior Lecturer University of Birmingham Research commissioned in 2004 to provide reliable up-to-date information on - number, size and condition of sites - extent and location of unauthorised encampments - adequacy of supply and estimate of current and future site provision need - obstacles to site provision and overcoming them - good practice on site provision, management and design Research methodology involved a literature review and scoping interviews, e- mail survey of LAs re site provision, general policy survey of LAs and site provision and management questionnaire survey. Little information on Gypsies and Traveller as they are not included in the Census, few ethnic records and no caravan count since Education sources suggest at 2,000 Gypsy-Travellers in Wales which is a small proportion of the population and they are concentrated in the same areas as whole population. They are ethnically diverse Research revealed there is no overall strategy for Gypsy-Traveller accommodation in Wales 19 sites, providing 404 pitches (including closed pitches) in Wales Welsh sites have larger pitches and amenity units than England, but have poorer environment. Repair backlog around 3 million over next 5 years 10 million over 10 years to bring to standard and maintain standards Need for more pro-active approach to site provision at both national and local levels Need to consider site extensions in high demand areas and identify site locations in Local Development Plans Consider variety of provision: public and private, small sites; group housing as in Republic of Ireland.

4 4 Cllr. Aled Roberts WLGA spokesman on housing Welcomed the Niner report and the establishment of a Gypsy and Traveller team. Pump priming monies from needed from the Assembly if real progress is to be made. Looked forward to continuing discussions with the Assembly on the financial implications and how we can work together to improve accommodation provided for Gypsies and Travellers and wider service issues. Local leadership would be needed from all politicians at the local level as this is not an easy issue. Need awareness raising of the issues within the WLGA. All councils should discuss the report at Cabinet/Executive level. Committed to placing this issue on the next agenda for the Housing Members Network the WLGA has established. In the past some members had opposed development of sites due to local opposition from the community. This is not an easy issue for councils to address. Many challenges to be faced which the Niner report will give added impetus to address these challenges. It is important to share information and learning from best practice. It is important to involve Gypsy and Traveller communities in this work. Will require open and frank discussion at all levels. With 22 local authorities and the close relationship with the Assembly believe there is an opportunity to lead to positive outcomes as a result of this report. Important to maintain the momentum and find a way forward to address these issues across Wales. Requested officers present at the launch to ensure that the report and recommendations are brought to the attention of their elected members and that they continue to raise the issue higher up the political agenda Chris Myant, Commission for Racial Equality Wales If public bodies do not work to meet the needs of Gypsies and Travellers then they cannot claim to be fulfilling their duty to deliver race equality CRE Wales will be setting out to all relevant bodies this autumn the kind of steps they need to be taking over the coming period to emulate the initiatives taken by the Assembly There will be no successful change without the involvement of, and consultation with Gypsies and Travellers Leadership at the practical level, community level and political level needs to be demonstrated Strategic approaches must guide action rather than piecemeal one off activities Organisations must start taking responsibility

5 5 CRE Wales is setting up a network to exchange best practice 5. Workshop Feedback (i) Housing (facilitated by Paul Webb, Welsh Assembly Government) - The workshop addressed the Welsh Assembly Government's response to the recommendations of the 'Niner' report which fall within the housing function. In discussion of these, the workshop provided an opportunity to feedback on the Assembly Government's policy position, and an opportunity to discuss the barriers and opportunities presented by the implementation of these policy responses. Announcements of new unit and proposed grant are an indication of the Welsh Assembly Government s commitment. Partner agencies to take up the operational responsibilities. Inclusion of substantive guidance on Local Housing Market assessments and enactments of section 225 and 226. New coordinating unit will ensure a cohesive response and improved internal communication from within the Assembly. Engagement with the Gypsy Traveller community will be conducted through partnership organisations. Proposed site refurbishment grant does not lend itself to establishment of new sites. Welsh Assembly Government policy on unauthorised sites is not to encourage them. LHMA guidance Annex F provides detailed guidance on engagement with Gypsies and Travellers The surveyor s assessment of sties was similar to those of the residents Local authorities without site provision would need to evidence any decision not to develop a Gypsy and Traveller strategy. The WLGA will have a role in ensuring responsibilities were undertaken. Cross border issues with England need consideration Dangers of double marginalisation needed consideration, particularly in respect of Irish Travellers. Participants felt there was little evidence of consultation with Romany Gypsies. (ii) Planning (facilitated by Neil Hemmington, Welsh Assembly Government) Objective of the workshop was to discuss key recommendations, possible solutions, monitoring and overcoming barriers. Planning division currently revising the Planning for Gypsy and Traveller Caravan Sites circular Barriers identified were: - Long waiting periods on planning decisions

6 6 - High costs - Local communities blame Gypsies and Travellers for fly tipping - Not known where suitable land is Gypsies and Travellers need to be engaged in the process to take recommendations forward. The National Policy Framework allows local planning authorities to identify sites and makes decisions on individual planning application locally. Welsh Assembly Government Planning Division is reviewing the type of information collected from local planning authorities, including the need to collect information on planning applications submitted by the Gypsy and Traveller community. Responsibility of local authorities to identify sites through the PDP preparation process. Delegate views and suggestions Suggestion of a statutory provision for sites. Family sites would be preferable to sites for a group of Gypsies and Travellers. Gypsies and Travellers are different and should not be treated the same. Suggestion of providing sites on a probationary basis Terminology is misleading, Gypsies and Travellers are distinct ethnic groups and should not be confused No available data on the number of planning applications by Gypsies and Travellers. System is designed to exclude Gypsies and Travellers Low literacy levels is a barrier Unclear as to who has responsibility to identify locations for sites. (iii) Engagement Support body (facilitated by Jake Bowers, Gypsy Media Company and Tim Wilson, Cardiff Gypsy and Traveller Project) The objective of the workshop was to primarily discuss and consider how best to develop a support body (or bodies) to work with and for Gypsies and Travellers across Wales as well as considering other non-housing and non-planning recommendations. Support Body Need for a unified, democratic voice with a Welsh identify, could be based on local residents associations. Need to review and monitor site management systems and contracts tenure Capacity building needed for existing site managers Consultation needs to be wider than the usual tick box exercise Who will investigate site complaints? Need for decent sire standards Independent monitoring of where money is spent. Site managers should be accountable for their actions

7 7 Suggestion of a joint police/wag/wlga event (iv) Engagement - Public bodies engaging with Gypsies and Travellers (facilitated by Susan Alexander, Travellers Aid Trust) The aim of the workshop was to help service providers consider the options for engaging and consulting effectively with members of the Gypsy and Traveller community. Practical advice and guidance was available during this workshop, with time for delegates to ask any questions. Discussion Communication an issue as often Gypsy and Traveller males do not engage with site visits Secrecy is a requirement for the community to survive but is a barrier. Prescriptive style of policy not welcome. Gypsies and Traveller do not live by conventional time patterns. Systems are run to timescales and to access requires literacy which the community have very low levels. Gypsies and Travellers are always grouped as the same which leads to feelings of resentment. There is perceived criminality within the Gypsy and Traveller community. Honesty in debates was highlighted as the way to address this. Drug misuse and depression is on the increase among the community. This is only following trends of any historically deprived community. Addressing deprivation will and other issues should be alleviated. Group response Perceived over consultation promises but not actions Prejudice from both sides preventing a good working relationship Little understanding of the actual needs of Gypsies and Travellers Lack of debate by Local Authorities funding spent on consultation and not on implementation Structures are too restrictive for a nomadic community Limited resources prevents service providers from building relationships to gain insight Poor practice has resulted in little inter-agency working Lack of information on Gypsy and Traveller communities in Wales. 6. Lessons Learned A number of key learning points emerged from the speeches and the workshops for the Welsh Assembly Government and service providers to take on board. These can be summarised as follows: There is a need for better consultation with, and participation in, decision making by Gypsies and Travellers. Adopting new methods of consultation and engagement suitable for Gypsies and Travellers will help this process. For example putting consultation documents on audio format.

8 8 Work with Gypsies and Travellers to help them overcome their suspicion of the establishment. Gypsy Traveller communities can through literacy gain skills to access resources traditionally denied to them due to their lack of literacy skills. A need to preserve the nomadic and migratory way of life. Ensure delivery of regular and positive services to Gypsies and Travellers. Remove focus from criminalisation of the Gypsy and Traveller way of life through the use of public order and anti social behaviour law and focus on provision. Policy initiatives have up to now ignored the needs of Gypsies and Travellers Legal protection against discrimination provided by Race Relations legislation Training/workshops on Gypsy Traveller issues should include Gypsy- Travellers as facilitators. Local Authorities should use the Race Relations (Amendment) Act 2000 to promote equality of opportunity for Gypsy Travellers in Wales. Work with Gypsy/Traveller groups in developing opportunities for raising wider public awareness of their needs and concerns. 7. Next Steps The Welsh Assembly Government has begun the recruitment process to set up the dedicated Gypsy and Traveller team announced by the Minister at the launch. The unit will be based in the Housing Directorate of the Department for Social Justice and Regeneration and will report regularly to the Minister for Social Justice and Regeneration, Edwina Hart AM. The Minister for Finance, Local Government and Local Services published the draft budget on the 17 th of October. The proposal for the refurbishment grant is 1 million per year from to The budget is still subject to plenary debate and once the budget has been agreed we will update you further. The Welsh Assembly Government has developed a communication toolkit for Assembly Government staff and other public bodies in Wales, with information, advice and guidance for communicating with minority ethnic communities. This document can be used by service deliverers to develop consultation methods that will enable Gypsies and Travellers to engage with them and contribute to policy development. The Welsh Assembly Government is currently working to enact sections 225 and 226 of the Housing Act At present the Welsh Assembly Government encourages the inclusion of Gypsy and Traveller needs when local authorities create housing strategies. Enacting these sections will ensure that it is a statutory requirement for local authorities to carry out an assessment of the accommodation needs of Gypsies & Travellers as part of their review of the housing needs of their area. Proposals to meet identified needs should be incorporated in their local housing strategy.

9 9 The Welsh Assembly Government has committed to developing a national strategy for Gypsy and Traveller accommodation provision in Wales. A draft Assembly Government replacement circular "Planning for Gypsy and Traveller Caravan Sites" is currently being prepared and is expected to issue for public consultation purposes this Autumn. The Circular will outline how housing and planning departments should work together to ensure that an adequate supply of sites comes forward. The Assembly's Race Equality Scheme (RES) sets out our commitment to becoming the exemplar public authority in Wales in developing long-term positive change which will eliminate unlawful racial discrimination, promote race equality, and promote good race relations. The Scheme reflects the significant amount of consultation that we ve undertaken with groups and individuals that have an understanding of race equality matters. The RES is very comprehensive and details how we will develop policies and deliver services in a way that addresses the needs of different ethnic groups in Wales and does not racially discriminate; promotes equal opportunities for all ethnic groups; promotes good race relations in Wales; and builds the capacity of minority ethnic groups so that they have the confidence to engage with the Assembly and gain access to services and information with ease. Our Scheme recognises that like many minority ethnic groups, Gypsies & Travellers are one of the most disadvantaged groups in society. Our Departmental Action Plans for Local Government, Education, Health and Social Care and Social Justice and Regeneration Departments sets out specific actions for improving services for this group. We have made progress toward delivering many of our commitments but much work is still needed. We continue to work with our partners in delivering our objectives. 8. Conclusion Living on the periphery of society has severe implications for Gypsy and Traveller communities in Wales and their way of life. The Gypsy and Traveller way of life has traditionally been migratory, but over time this intrinsic feature of the culture has been compromised by successive policies and legislation, which have made the nomadic way of life increasingly difficult to follow. The delivery of culturally sensitive services to a marginalised ethnic group with a nomadic lifestyle presents a challenge to service deliverers. We need to ensure our services are flexible enough to meet the needs of this unique community in Wales. However the Welsh Assembly Government should not do this on its own.

10 10 Local Authorities need to take more responsibility and be proactive in developing decent standards of accommodation for Gypsies and Travellers in Wales. The Welsh Assembly Government will support its partners to deliver a more coherent approach to policy development around Gypsy and Traveller issues. The Welsh Assembly Government would like to thank you for your engagement and participation in helping to make the launch a success. Your contribution will help to shape future progress in this area.

11 11 Appendix 1 Delegate List: Speakers: Professor Eric Sunderland, Chair Jane Hutt AM, Minister for Assembly Business, Equalities and Children Pat Niner, Senior Lecturer in the Centre for Urban and Regional Studies at the University of Birmingham. Jake Bowers, Romani journalist, Gypsy Media Company Chris Myant, Director of Operations at CRE Wales. Cllr Aled Edwards, WLGA Housing spokesperson. Delegates from Local Authorities Blaenau Gwent David Cooke Andrew Long Hayley Selway Bridgend Cllr Peter Folley Gerald A Hulin Elaine Williams Lyndon Ross Caerphilly Gareth HH Jones Victoria Phillips Lyndon Ross Cardiff Caryle Alleyne John Gorwill Calre Keane Andy Lucas Mike Murphy Carmathenshire Val Brown Ian Harries Jonathon Morgan Ceredigion Fabian Jones

12 12 Denbighshire Clare MacFarlane Monmouthshire Shirley Wiggam Neath Port Talbot Clare Jones Allan Stonehouse Newport Sandra Batten David Collins Pembrokeshire Lyn Hambidge Powys Robert Beardall Cllr Lesley Davies Ian Fraser Martin Gregory Keith Philbrick Anjuli Quartermaine David Tomlinson Nigel Vaughan Rhondda Cynon Taff Virginia O'Reilly Swansea Ken Mason Torfaen Anne Garret Vincent James Cllr Lewis Jones Robert Murray Laurence Sturgress Wrexham Cllr Aled Roberts (Speaker/spokesperson for WLGA) Malcolm Russell Delegates from other Organisations

13 13 Assembly Member Mark Isherwood AM for North Wales Black Voluntary Sector Network Wales Andree Morgan Andrews Marjit Mahir Cardiff Gypsy & Traveller Project Tim Wilson (workshop) Children s Commissioner for Wales Joanne Sims CIH Cymru Alison Clements Commission for Racial Equalty Wales Steve Bennett (North Wales Office) Diversity Unit, North Wales Police Geoff Richardson Gypsy-Traveller Community Fred Evans Mario Evans Henry Price John Rolfe Patricia Smith Llanion Communities First Mike Odlin Sarah Payne Merthyr Tydfil Housing Association Lianne Howells Monkton Communities First Elizabeth Cook North Wales Race Equality Council Mary Homes North Wales Police PC Andrea Pashley PC Carol Owen

14 14 Planning Aid Wales Marika Fusser Elwyn Thomas Plus Property Soloutions - Property consultants Dennis Lally Race Equality First (Cardiff) Fairba Dashtgard Simon Pathe Save the Children Anthony Edwards South Wales Fire and Rescue Service Shaun Doyle South Wales Police PC Richard Paines Alex Chad Swansea Bay Racial Equality Council Taha Idris Tai Pawb Ranjit Ghosal The Traveller's Aid Trust Susan Alexander Wales and West Housing Association Kevin Howells WLGA Naomi Alleyne Assembly Officials Neil Cane Dan Finch Mo Haire Neil Hemmington Lisa Hughes Mike Keoghane Carol Mooney Steve Palmer

15 15 John Paxton Emyr Roberts Helen Thomas Paul Webb