RDC(3) P&D16
Rural Development Sub-Committee
Inquiry into Poverty and Deprivation in Rural Wales
Response from Cymorth Cymru
7th March 2008
Cymorth Cymru is the representative body for providers of housing related support and homelessness services in Wales and as such has two overarching objectives:
To improve the links between policy and practice by ensuring those working in front line service delivery understand the wider policy context, and those working in policy development understand and are influenced by the experiences and knowledge of those working on the ground.
To ensure that supported housing maximises its contribution to the lives of service users and the communities in which they live by helping to build and develop the sector’s capacity and professionalism.
Background
Cymorth consulted widely with its members from across Wales and has provided answers for most of the questions put forward in the inquiry.
1. What are the poverty/deprivation problems faced by rural areas? What are the specific needs of rural areas in relation to this issue? & 7) What poverty/deprivation issues are experienced by these population groups that are specific to rural areas? Please highlight any relevant evidence or research that you are aware of.
An overarching problem driving rural poverty and deprivation in Wales is the lack of visibility of the problem. As there are some relatively affluent people in rural Wales, it is not necessarily widely recognised that poverty and deprivation is so severe. It is not necessarily the case that those suffering poverty and deprivation are concentrated in specific areas, instead they are dispersed amongst people not necessarily experiencing poverty and deprivation.
Feedback from our members seems to place poverty and deprivation in three quite broad categories, which fit well with Shaw’s model of rural deprivation (1) of household deprivation (low incomes), opportunity deprivation (jobs, education, health, recreation) and mobility deprivation (transport costs and inaccessibility).
Areas of rural Wales experience an average household income lower than all other areas, with the exception of some South Wales valleys(2). This study is concerned with the economically active as one of the four population groups and it is the case that many economically active people in rural Wales remain in poverty because employment opportunities in rural Wales often do not provide adequate income. Work is often seasonal and does not provide long-term career prospects. Moreover, traditional rural employment markets such as farming continue to decline. It is also difficult to replace large employers once they have left the area.
Cymorth’s members identified that for many rural communities, it was necessary to get to towns to find adequate employment and this requires access to a car or public transport. Access to a car and the opportunity to learn to drive require money, and this can often be a barrier to the young, who are very much deprived of adequate employment opportunities in the rural areas they live in. This problem also affects people in the housing related support sector. With limited opportunities to obtain employment, even on a voluntary basis, a key stepping stone to obtaining as independent a life as possible for service users in the housing related support sector, is often unavailable in many rural communities.
Further to this, consistent fuel cost increases affect those in rural areas more significantly because people in rural communities have to travel further to access employment. This is indicative of a wider problem that low incomes causes, a lack of access not only to employment, but public transport services, local amenities, health and social care and to society in general. The impact of this will become more significant as local post offices and schools close in rural Wales.
Isolation can be a problem in urban areas, and it is compounded hugely in rural areas where public transport is often expensive and infrequent, services are centrally located in towns, and access to amenities as commonplace for some as internet, digital TV and mobile phones are difficult to attain. This significantly affects older people, but also has an impact on young people, as well as the economically active and inactive. Rural areas need technological investment in schools and housing in order to remove digital barriers to access.
In terms of housing and housing related support, our members have communicated to us that people in social housing tend to be long-term tenants, often older people, who are simply unable to move out of the social housing sector due to affordability. In terms of older people, across Wales demographic forecasts predict that the population of older people will continue to increase and subsequently the pressures of poverty and deprivation will only be exacerbated. Access to housing related support is especially difficult as the rural counties cover large geographical areas in Wales and clearly the sector cannot provide adequate opportunities widely across rural Wales with the resources it is currently afforded.
This is indicative of a problem of access that all rural service providers face. They are simply unable to access all those who require long-term support to promote independence, health and wellbeing, or intervention services to prevent homelessness. The feasibility of providing floating support in remote rural areas of Wales to sufferers of mental health or people with learning disabilities for instance is very limited, because there are not the available resources to do so.
The unfortunate alternative outcome to people simply suffering with no support at all, is that people have to migrate out of the rural communities that they live in so that they can obtain the support that they are entitled to. This is also the case with regards to accessing adequate employment opportunities and in some cases education opportunities. Cymorth’s sustainable procurement agenda seeks to pursue quality local jobs so that people in rural Wales are able to remain in the area they live in, with adequate employment opportunities, investing in and sustaining their communities.
Relevant research:
The Wales Rural Observatory (http://www.walesruralobservatory.org.uk/eng/pub-e.html) has produced a number of recent, in depth studies into rural issues in Wales. Studies such as 'Living and working in Wales’, 'Poverty and social exclusion in rural Wales’ and 'Homelessness in rural Wales’, amongst others, provide in depth information and analysis regarding rural issues in Wales.
ESYS consulting Ltd. Response to 2005 Welsh index of multiple deprivation (WIMD 2005)
2. Are anti-poverty/deprivation activities best dealt with by the Welsh Assembly Government or by Local Authorities? Why?
For rural poverty to be tackled as efficiently as possible, a multi-level approach would be most effective as opposed to a centralised or subsidiarity approach. The key role for the Welsh Assembly Government is formulating national strategies and providing specific funding to address needs identified locally. There is a need for local commissioning by Local Authorities as they have a superior local knowledge and consequently are able to identify specific needs of their local community, as needs will differ across different rural areas in Wales. Local Authorities should also have in place an anti-poverty plan to provide a bottom-up approach.
However, Cymorth would also recommend the involvement of local third sector bodies to target those experiencing rural poverty and deprivation. These third sector bodies have specialised knowledge on the target groups that suffer from rural poverty and may provide a more localised service than local authorities who are spread across wide geographical areas in rural Wales. Moreover, since the Welsh Assembly was established, it has become clear that there is a tension between local democracy and national prioritisation. The Welsh Assembly needs to be clear about what its priorities are and ensure that they are not undermined at the local level. Many of our members feel that the Assembly needs to be more directive and prescriptive over meeting the needs of vulnerable people across Wales.
3.i) What anti-poverty/deprivation initiatives (WAG or LA) are you aware of? &
3.ii) Do these anti-poverty/deprivation policies adequately address the needs of rural areas?
The Wales spatial plan focuses investment on 'hubs’ with the assumption that generated prosperity from investment will spread to outlying rural areas. This however does not directly support rural areas and so the benefit to those suffering from rural poverty and deprivation can be very limited.
Cymorth is aware of the work that Local Authorities have done within wider European initiatives to tackle rural poverty and deprivation. Objective One programmes as well as Communities First and Rural Community Action have provided significant funds for social and economic regeneration in some areas. The Communities First programme does not give full consideration to the difference between rural and peripheral areas though. Whilst poverty can be the same in rural and urban areas, deprivation can be far worse in peripheral areas and Welsh Assembly Government policies must acknowledge this and address pockets of deprivation hidden in what appear to be prosperous areas (see first answer).
There are examples of many rural Local Authorities in Wales providing support for community transport schemes, which helps to promote social inclusion. Importantly Local Authorities have also targeted vulnerable groups in rural areas, and have worked strongly in partnership with the voluntary sector to do so.
Cymorth strongly urges that the Welsh Assembly continue to work with the third sector in tackling poverty and deprivation in rural Wales. The third sector contributes significant expertise to the housing related support sector and it’s role is vital in reaching vulnerable people in rural Wales. Further to this, Cymorth is keen to see Local Authorities continue to partake in partnership working across different Authority departments, in particular with Supporting People teams, to provide services to people requiring long-term support.
Cymorth and it’s members are aware of the Welsh Assembly Government scheme of offering free rural rail passes on stretches of the Heart of Wales and Conwy Valley line. This scheme was piloted in 2007 and we are hoping that this initiative will be extended to other rural rail lines across Wales, and that the Welsh Assembly might also consider extending the policy to other groups unable to access cars, such as those with disabilities.
We are however pleased that there has been recognition that older people are a significant group that suffer from rural poverty and deprivation, and it is important to recognise that a proportion of older people are unable to drive, may have better access to rail services than bus services, and would be unable to afford to use public transport at all without subsidisation or free travel.
Cymorth recognises the Welsh Assembly Government’s commitment to rural access through the European funded LEADER + programme, and community transport schemes funded through Rural Transport Grant Schemes. This forms part of the Welsh Assembly Government’s strategy for older people in Wales, and Cymorth would urge the Assembly to strongly concentrate on rural issues within this strategy as problems of social isolation, fuel poverty and a lack of heating are key issues that older people are specifically susceptible to in rural Wales.
Cymorth is keen for the LEADER + programme to continue as our understanding is that funding ran until 2006. In Wales’ Strategy for Older People the Assembly outlines its aim to use the LEADER + programme to create access opportunities to retail and other services and this is highly valuable in drawing older people out of isolation. Furthermore, applying the scheme to Welsh speaking communities and under-employed groups creates sustainable communities and Cymorth is in full support of this.
4. What specific measures would you like to see implemented by the Welsh Assembly Government to deal with poverty/deprivation issues in rural Wales?
Cymorth is a key supporter of sustainable procurement and ethical commissioning. It is crucial that the drive for value for money in the commissioning and provision of services fully understands the value of quality services and jobs, and is not purely driven by costs. Although Cymorth recognises that purchasers of services have tight budgets, a sustainable procurement and ethical commissioning standardisation would encourage sustainable rural communities in Wales and reduce the need for people to migrate out of the community they grew up in purely to obtain suitably paid employment.
By recognising the quality element that local providers can provide, and not being driven by reduced prices that large outsider companies can offer, there will be far more local job opportunities across the whole of Wales. With this comes the opportunity for people to stay in their local communities, the communities they grew up in and are proud to be part of, and secure a quality job providing a quality service for people across a number of sectors in Wales, including the housing related support sector.
This will mean people are investing back into their local community and local services, obtaining sustainable employment, being able to support the long-standing traditions of their local area including the Welsh language in many instances, instead of being forced to migrate out of their communities to seek employment. Sustainable procurement and ethical commissioning promote all of this at the benefit of service users, local service providers and the Welsh nation.
Within Assembly policies there needs to be an appreciation of the difference between peripheral areas and rural areas as poverty and deprivation is often different in each. Cymorth would urge the Assembly to adopt a national plan to tackle poverty and deprivation in geographically peripheral areas such as North Anglesey and the Lleyn Peninsula.
5. What examples of good practice are you aware of in Wales/other parts of the UK/overseas?
On a broad scale, the use of rural proofing on policies in England or a poverty proofing tool such as that used in Ireland, would benefit Assembly rural policy.
Specifically in Wales, Cymorth is very satisfied with the Welsh Assembly Government’s decision to offer free bus travel and limited free rail travel to older people and disabled people in Wales. This is a huge benefit to these groups living not just in rural Wales, but across Wales as a whole.
Cymorth is aware of the rural transport scheme that was initially piloted in Carlisle and South Lakeland, and has since been extended to Eden in Cumbria. This scheme provides a bus or car service to isolated people, providing them access to amenities such as job centres, health facilities and employment schemes, as well as to bus stops and train stations. Cymorth recognises that this scheme is one of many, including community transport schemes funded via Rural Transport Grants.
Adopting this scheme or one similar in some of the significantly excluded areas in rural Wales would promote inclusion and importantly it would provide access possibilities to health services and employment support for vulnerable people. This particular scheme has not been feasible unless people pay for the service but very low prices, and the ability to top up a 'smartcard’ at local shops have contributed to the scheme’s success and subsequent extension. Cymorth would strongly recommend that the Welsh Assembly investigate adopting this scheme in areas most affected by rural poverty and deprivation, where the opportunity to obtain Rural Transport Grant funding is not possible.
Cymorth is aware of the 'Community Land Trusts’ policy, where a community democratically decides what happens to a certain area of land, as opposed to it being sold on the private market. Consequently, it can choose to have affordable housing and affordable workspaces built on the land or useful community amenities, as opposed to it being sold off to private developers who build on the land for profit.
Cymorth believes this would be a potential pathway to encourage more supported housing or local amenities for vulnerable people to be developed in rural areas of Wales. Some of our members have expressed views based on personal experience which suggest in some very remote rural areas there is a significant lack of supported housing and services for vulnerable people, and consequently an initiative such as 'Community Land Trusts’ would be an effective way to tackle this problem on a very local level, as opposed to on a wider regional level. Naturally, this needs to be backed up by capital and revenue funding.
9) In what ways are any sub-groups within the four population groups particularly affected by rural poverty/deprivation?
Significant concern was raised by Cymorth’s members about access problems that certain sub-groups faced in rural Wales. Specifically, those with long-term support needs such as learning disability, mental health problems and drug and alcohol abuse problems, experienced significant disadvantage in rural Wales.
For instance, our members have communicated to us that in North Wales mental health services are situated in the bigger towns such as Llandudno. Moreover, the services located in these towns are designed to cover very large geographical areas. Although there are instances of community mental health teams working within General Practice surgeries, they often only offer initial stages in diagnosis and support and those who require comprehensive long-term support must rely on being able to get to the bigger towns such as Llandudno.
Similar concerns have been brought to us regarding recovery services. The ability to live independently in appropriate housing and undertake paid or voluntary work to steadily improve confidence and gradually encourage as independent a lifestyle as possible are vital to recovery programmes for mental health sufferers. In rural areas this is very difficult due to the inadequate provision of social housing, and a lack of diversity in the job opportunities available.
For those people in supported housing who might be unable to drive, and cannot afford or access public transport, they are unable to access the support they require, and are entitled to, as mental health sufferers. This undoubtedly contributes to the problem of an unidentified service user, who because they have been unable to access support services, are never registered or recognised as being in need of support.
An example of good practice in providing employment support for economically inactive people with learning and physical disabilities and mental health in rural Wales is run by Agoriad in Gwynedd and Anglesey. This charitable company help vulnerable people to become more independent at work by offering work placements with staggered levels of support. To become part of the scheme however, you have to be referred by their Jobcentre Disability Employment Advisor. However, as with the previous example, Job centres are mainly situated in the big towns in rural Wales. Therefore if you live in Pentrefoelas just beyond Betws-y-coed in Conwy borough, your nearest job centre is 30 miles away in Llandudno. The public transport links to Llandudno from this area are expensive and infrequent, consequently the likelihood of someone with learning disabilities being able to access the job centre in order to be referred onto the Agoriad programme for instance are very remote.
10) What are the most effective ways of tackling poverty/deprivation for individuals living in rural parts of Wales?
Cymorth recognises significant improvements have been made with public transport, via increasing frequency of bus services and opportunities for more affordable or free travel for vulnerable members of society such as older people. However, were these services to continue to improve, it would still leave some people unable to access the support they are entitled to.
Consequently Cymorth would strongly encourage the wider use of outreach services. By moving across community centres in rural Wales, outreach services could provide valuable support to vulnerable service users, providing people with the skills to live more independently, access and sustain employment and move out of social isolation.
Cymorth fully recognises the sensitivity of taking vulnerable people out of the communities that they are familiar with and away from the support they may receive from friends and families. Therefore it is vital to the health and wellbeing and independence of vulnerable people that they are supported to remain in the communities that they are familiar with and that they do not have to migrate out of rural areas and into urban areas purely so that they can access the services that they are entitled to regardless of where they live in Wales.
As mentioned previously, Cymorth strongly promotes the concepts of sustainable procurement and ethical commissioning. Ethical Commissioning and Sustainable procurement increases investment back into local communities by providing quality local jobs and quality local services and consequently vulnerable subgroups within the four population groups identified in the study will enjoy much easier access to the support services that they require and are entitled to.
11) How can these problems be addressed by the Welsh Assembly Government?
The Welsh Assembly Government can address these problems by:
Adopting sustainable procurement and ethical commissioning principles as a statutory responsibility for all purchasers of services in Local Government and the Welsh Assembly. There is widespread support for this not just amongst Cymorth members, but across many other voluntary bodies and networks, all of which recognise the wider social benefits that local services provided by local organisations offers.
Increasing investment in outreach services in rural Wales, targeting those people unable to access services that they need to secure employment or support services to promote health, wellbeing and independence.
Ensuring policies can tackle the hidden and scattered nature of rural poverty and deprivation, making sure funding mechanisms are capable of targeting people in need, rather than targeting places.
Investing heavily in community transport schemes to connect people with long-term support needs to the services that they require to maintain their independence, health and wellbeing. Importantly, the Assembly should ensure they do not have to migrate out of their communities to access these services.
Establishing clinics within General Practice Surgeries, set up specifically to offer support for sufferers of enduring mental health, learning disabilities and drug and alcohol abuse problems. Where possible, users of this service should also have access to community transport schemes or affordable public transport.
For further information on this response please contact Mike Vigar, Long-term support Policy and Campaigns Officer.
Cymorth Cymru
Norbury House
Norbury Rd
Fairwater
Cardiff
CF5 3AS
Tel (029) 2055 3687
michaelvigar@cymorthcymru.org.uk
References:
(1) Cloke, P, Goodwin, M et al. (1995) Deprivation, Poverty and Marginalization in Rural Lifestyles in England and Wales, Journal of Rural Studies, Vol. 11, No. 4, pp 351-365.
(2) Milbourne, P and Hughes, R. (2005) Poverty and Social Exclusion in Rural Wales,
Wales Rural Observatory
