Report_on_Social_Policy_in_Action_-_Gypsies_and_Travellers

REPORT ON SOCIAL POLICY IN ACTION COMMUNITY CARE POLICY AND PRACTICE: GYPSIES AND TRAVELLERS COMMUNITY CARE POLICY AND PRACTICE: GYPSIES AND TRAVELLERS INTRODUCTION Gypsies and Travellers are an ethnic minority group who have suffered and continue to suffer complex and extensive forms of inequality and exclusion within British society. The central recurring themes that can be identified in respect of Gypsies and Travellers include prejudice and discrimination, negative public perception and stereotyping (especially through the media), lack of cross-cultural understanding and intolerance from the wider community, barriers to housing, employment and social services, including welfare benefits and health provision. This report will examine each of these themes together with the government policies that seek to address them. Accommodation At the heart of the conflict between residents of the wider ‘settled community’ and Gypsies and Travellers lies an insufficient supply of suitable sites and the subsequent use of unauthorised encampments for accommodation. Gypsies and Travellers are often caught in a cycle of evictions and are constantly forced to relocate from one unauthorised site to another (EHRC, 2009a). Current planning policy proposes that Gypsies and Travellers purchase private sites themselves and apply for permission to develop the site as an authorised encampment. These planning applications frequently lead to conflict with neighbouring ‘settled community’ residents, usually because of misconception and fear of the group’s traditions and culture (EHRC 2009a). In respect of social housing, Gypsies and Travellers are often excluded due to the nomadic nature of their lifestyle. Generally, Gypsies and Travellers do not to qualify for social housing due to being deemed ‘intentionally homeless’ (EHRC, 2009a). Most Gypsies and Travellers live on rural sites and usually reside in mobile vehicles. Although few have to meet traditional domestic housing bills, most Gypsy and Traveller families own more than one vehicle for transport and accommodation and must contend with high vehicle-related costs, including MOT, fuel, insurance, repairs and vet bills (for horse-drawn vehicles) (EHRC 2009a). Employment The typical negative stereotype of Gypsies and Travellers is of a group of marauding criminals who spend their time sponging off the wider society and enjoying welfare handouts. Research undertaken in respect of Gypsy and Traveller work habits and household income levels (Webster and Millar, 2001) has revealed that this is not the case for the majority of the community. The report also highlights the problems that Gypsies and Travellers face in finding and keeping continuous casual or permanent employment. In most cases, those residents who have a more settled existence (for example, residents who live on an authorised site or on dedicated land at their place of work) were more easily able to maintain long-term employment. Conventional employment was usually “only available to Travellers who possessed both a mobile phone and bank account... Moor doors were open to participants with these facilities than those who did not have them.” (Webster and Millar, 2001, p14). For those residents who are largely nomadic, the common alternative is short-term seasonal or casual employment, with regular eviction from illegal sites being cited as a significant factor in the cessation of employment. The report further notes that the main sources of income for Gypsies and Travellers is acquired through work in agriculture, festivals, horticulture, building and art (Webster and Millar, 2001). ACCESS TO GOVERNMENT AND OTHER WELFARE SERVICES As Gypsy and Traveller communities are typically established in rural locations and away from the wider society, encampment sites are often located long distances from services and facilities and, as a consequence, many residents face barriers in accessing welfare, medical practitioner and dental services. Accordingly to the JRF report (Webster and Millar, 2001), the main benefits claimed by Gypsies and Travellers are Income Support and Jobseekers Allowance. For those claiming government benefits, it was reported that some benefits offices made it compulsory for Gypsy and Traveller residents to physically attend their offices to sign on each day. Residents involved in the case study emphasised that the main problem with this requirement was the cost of travelling long distances to and from the benefits office, as well as a reduction in the amount of time that could be used to find another job (Webster and Millar, 2001). A further obstacle encountered by Gypsy and Traveller residents who claimed housing benefit was the contrast in rules and criteria that exists between benefit agency offices. Different offices have different methods of classifying Gypsies and Travellers, especially when it comes to categorising their housing situation. The nature of Gypsy and Traveller society means that some of the community are classified as having ‘no fixed address’ or as being ‘without accommodation’ and current legislation does not recognise alternative forms of housing. The report states that the “system tends to classify Travellers as being ‘without accommodation’. This has an impact on the frequency of signing-on days, the amount of benefit paid and payment methods.” (Webster and Millar, 2001, p23). Many residents do not own or have access to a bank account and are at a disadvantage when it comes to the receipt of benefits (Webster and Millar, 2001). POSITION IN MAINSTREAM SOCIETY The Gypsy and Traveller community remains on the fringes of society in Britain and although the ethnicity of this group has increased and become more diverse over time, much of the culture, traditions and values remain unchanged. A lack of understanding of the Gypsy and Traveller culture has led to prejudice, discrimination and social exclusion (Richardson, 2007). Negative perceptions and deep-seated hostility directed towards Gypsies and Travellers from the wider ‘settled community’ is frequently demonstrated through residents’ reasons for objecting to planning applications for authorised Gypsy and Traveller encampments and, perhaps most visibly, through unfair or biased newspaper and television reports. The group is frequently misrepresented and stereotyped by the media, usually without any awareness of Gypsy and Traveller history or culture. Paradoxically, although historical discrimination and injustices against other minority groups in Britain are no longer considered acceptable, vilification of the Gypsies and Traveller community remains pervasive and commonplace (EHRC, 2009). Largely due to marginalisation and social exclusion, Gypsies and Travellers live in some of the most impoverished and deprived conditions in the country. A report by the Equality and Human Rights Commission (2009a) noted the following issues faced by those living on Gypsy and Traveller sites: limited availability of clean water, lack of adequate sanitation and refuse collection, unsafe environment (especially for children) and poor health. NEEDS OF GYPSIES AND TRAVELLERS In 1960, the Caravan Sites (Control of Development) Act came into effect and many of the stopping places used by Gypsies and Travellers were closed to them. Since that time, additional legislation has attempted to provide alternatives for stopping places, however, none of these has proved successful. Up until recently, the housing and accommodation needs of Gypsies and Travellers have been overlooked partly due to the lack of a precise legal definition as to who the group were and how their communities were constructed. In 2006, a definition for the term ‘Gypsies and Travellers’ was applied by Statutory Instrument No. 3190 (2006) to provide clarity for the purposes of development control policies and the application of section 225 of the Housing Act 2004. Often in the past, Gypsies and Travellers have been ‘invisible’ in respect of the provision of dedicated needs services. Underpinning this ‘invisibility’ is a lack of census data on the Gypsy and Traveller population due to the group not having been identified in any previous census as a separate ethnic race. Historical research which relates solely to members of the Gypsy and Traveller community is rare and difficult to find and although central government does conduct a count of families, caravans and sites bi-annually, it is estimated that up to 50% of the Gypsy and Traveller population is excluded from these figures (DCC, 2003). The absence of census data has meant that the specific needs of the community have largely gone unnoticed. There are, however, preparations currently taking place for the review of the next census and the House of Lords (HL Deb 2003-04 and HL Deb 2007-08) have discussed the inclusion of a Gypsy and Traveller ethnicity box in the 2011 census. IMPACT OF GOVERNMENT POLICIES Planning Circular 01/2006 In 2006, the Government issued Circular 01/2006 – Planning for Gypsy and Traveller Caravan Sites (ODPM, 2006), the key purpose of which was to promote the assessment, evaluation and allocation of suitable authorised Gypsy and Travellers sites in all local authority’s Local Development Frameworks to meet requirements as identified in their respective Regional Plans by 2011. However, a recent survey of authorities in England showed that most were far from meeting Government targets for Gypsy and Traveller accommodation provision as outlined in their Gypsy and Traveller Accommodation Needs Assessment documents and that in order to reach these targets before 2011, councils would need to double their current rate of development (EHRC, 2009b). Since the release of the national policy a number of further documents and consultations have been published and while this does go some way in bringing Gypsy and Traveller needs to the forefront of policy-making, there still remains an issue of considerable social exclusion. Social Exclusion Task Force The implementation of a Labour Government policy to tackle social exclusion led to the creation of the Social Exclusion Unit and subsequently, to the Social Exclusion Task Force. The main objective of the Task Force is to promote inter-agency cooperation in working towards the reduction and elimination of deprivation and exclusion throughout the country. However, Webster and Millar (2001) highlight a potential danger in singling out certain groups in society that require help to tackle social exclusion, stating that the identification often leads to stigma and a negative view of members within that group. THE ROLE OF STATUTORY AND VOLUNTEER SECTOR SERVICES STATUTORY Local Authorities In line with Planning Circular 01/06, local authorities are required to implement a Gypsy and Traveller policy and provide a dedicated point of contact to provide information and advice to their local Gypsy and Traveller residents. Each council is working towards providing sufficient authorised accommodation and sites within their area and should be developing a strategy which can be managed collaboratively across various services, including legal, environmental, housing, development control planning and enforcement. Police Gypsies and Travellers are subject to the same laws as residents in the wider ‘settled community’ and the principle role of the police remains as instruments of preserving the peace and preventing crime. In terms of forcing Gypsies and Travellers to move on from unauthorised encampments, the police and the local authorities can encounter difficultly in relocating the residents due to a lack of available and authorised sites. The police should follow best practice guidance in respect of dealing with Gypsy and Travellers and, in all cases, the welfare needs of the residents must be taken into account before any action can be taken. NHS Theoretically, primary health care services is available to all citizens, however, one of the greatest impediments for Gypsies and Travellers in accessing medical treatment is the lack of a permanent address. Without the stability of a fixed address, Gypsies and Travellers are usually only provided limited services, faced with complex patient registration procedures or, in some cases, even refused registration and treatment altogether (EHRC, 2009a). Other barriers to accessing GPs, dentists and opticians may include cultural factors, the significant distance to services and, as some studies have shown, “fear of hostility or prejudice from healthcare providers” (EHRC, 2009a, p53). Social Services Government and local authorities need to more actively engage in consultation with Gypsy and Traveller communities in order to tailor services that best meet the needs of the group. As a result of both their way of life and isolation from wider society, Gypsy and Traveller communities often only have access to limited information regarding welfare benefits and other social services and are therefore at further disadvantage in society. A report by Communities Scotland (2002) revealed that services information is usually provided verbally by a site manager, local authority housing officers or by one of the limited number of other organisations that have contact with residents on authorised sites. Social service policies should seek to improve communication with Gypsies and Travellers and support culturally appropriate services, in particular, the provision of on-site facilities as a means of improving access to these services (CS, 2002). VOLUNTARY Shelter Shelter is a charity providing advice, assistance and information to empower and assist people to escape homelessness or address other related housing issues. In addition to providing direct assistance, the scheme also has broader links to housing aid centres and the Citizens Advice Bureau. Shelter offers training courses and conferences to facilitate an understanding of the Gypsy and Traveller culture and to inform professionals about laws that are pertinent to the group. In addition, Shelter has published a good practice guide and encourages government and local councils to address inequality in provision of advice and support services to the Gypsy and Traveller community. Citizens Advice Bureau The Citizens Advice Bureau provides free and independent advice to all members of the public and works in partnership with Shelter to provide the National Homelessness Advice Service. Many bureau offices have a Gypsy and Traveller Liaison Officer and also provide an advice line specifically dedicated to community members who either reside or are passing through particular areas of the country and require information on Gypsy and Traveller services. The Children's Society The Children’s Society is a national charity whose chief objective is to provide a better childhood for all children throughout the country. The Society campaigns for change where necessary and has published an extensive report (Ureche and Franks, 2007) on the experiences of young Travellers which offered recommendations for improving the lives of Gypsy and Traveller children. The relationship between the statutory and voluntary sectors is becoming increasingly better connected as all organisations gain an understanding of the value of cross-agency partnerships and ‘joined up’ efforts. Previous strategies have not had adequate grounding in research into the true needs and preferences of Gypsies and Travellers but were based on what was believed to be required from an ‘outsiders’ point of view. Monitoring, research and direct Gypsy and Traveller community participation will be necessary in order to improve access to services and actual services themselves to meet the aspirations of this group (CS, 2002). Conclusion The Gypsy and Traveller community has been in Britain for hundreds of years and yet is only now becoming highly visible and vocal about their rights and needs as citizens. The provision of adequate and secure accommodation will go some way in addressing the disparity with respect to access to essential services and employment, however, prejudice and discrimination must be challenged, starting with the highest government offices in order to initiate necessary social change. Social inclusion policy should concentrate on systems which support and enrich the chosen lifestyle of Gypsies and Travellers rather than attempting to assimilate it into the mainstream. There are many reasons for the government to implement positive changes, not least of all in finally empowering the Gypsy and Traveller community. 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