Gypsy/Travellers - accommodation needs: evidence review

5. Key issues in the literature

The barriers that Gypsy/Travellers experience in accessing culturally appropriate accommodation can be broadly divided into the following categories:

• barriers to site development,
• inadequacy of current site and stopping place provision
• lack of access to services.

5.1 Barriers to site development

As previously noted, Gypsy/Travellers experience significant barriers in accessing the planning process. In 2006, PAS conducted a study into barriers to Gypsy/Travellers engagement with the planning system, which identified several key issues. These included: a lack of understanding and awareness, or negative views of the system, cultural difficulties in accessing information due to technical language and jargon, the prevalence of tokenistic consultation with lack of feedback and a lack of Gypsy/Traveller representation (PAS 2006). Such barriers were viewed as discouraging Gypsy/Travellers from applying for planning permission and preventing them from being fully aware of their rights. Some studies have also cited the low levels of literacy and lack of educational attainment within the community as contributing to the lack of understanding around the planning process (EOC 2013). This has particular relevance for the appeal process, which has been described as lengthy, costly and complicated (Greenfields et al. 2007).

It is clear from the literature that public opposition is also a major barrier to site development (Niner 2003). In the EHRC's report Developing Successful Site Provision for Scotland's Gypsy/Traveller Communities^[19] the levels of opposition from the public were seen to have a direct impact on the number of sites that had planning permission approved (EHRC 2015). A more recent study in Aberdeenshire, which surveyed the views of the settled community, found that although a majority were in favour of increasing site provision for Gypsy/Traveller communities, when they were asked about site provision in the local area, a majority of comments were negative or stated that Gypsy/Travellers should meet the cost of further sites themselves (GREC 2017). Reasons behind these views seem to draw on stereotypical tropes, with reference most commonly made to increased levels of mess; crime (GREC 2017; Amnesty International 2012a) and doorstep selling (GREC 2017). These negative perceptions were also reinforced in language used by many local politicians (Amnesty International 2012a) and were seen to prevent the identification of land for future site provision (Amnesty International 2012b).

Levels of funding and uncertainty about the level and nature of need were also raised by some studies as barriers to developing new site provision (EHRC 2015; Niner 2003).

5.2 Inadequacy of current site and stopping place provision

The inadequacy of current site provision for Gypsy/Travellers is well documented in the literature, and it is widely accepted that there is a chronic shortage of pitches in Scotland (PAS 2019; EHRC 2015, EOC 2013). This shortfall can be divided into two types: a shortage of permanent sites for long-term settlement and a lack of suitable stopping places for those who travel seasonally or maintain a permanently nomadic lifestyle. This shortfall in site provision has been suggested as one factor behind a rise in unauthorised encampments in an area (Richardson & Codona 2016; EHRC 2015). Put simply, as one study states, if sufficient provision does not exist then Gypsy/Travellers have neither the option of site-based living which is an integral part of their culture nor the ability to move on and travel (Craigforth 2007). Transit and stopping places have been recognised as significant in allowing Gypsy/Travellers to maintain the emotional affiliations of travelling, such as movement motivated by attendance at weddings, births, funerals and religious festivals (Shubin & Swanson 2010). A lack of such places, as well as their closure along traditional travelling routes mean that Gypsy/Travellers are left with little option but to camp on unauthorised sites if they wish to maintain their transient lifestyle (EOC 2013; Amnesty International 2012b; Home & Greenfields 2006).

Several participants in the studies made reference to the poor quality of existing sites (SHR 2019; SHR 2018; Scottish Government 2015c; EOC 2013). For example, participants in the Craigforth (2007) study indicated that key drivers of dissatisfaction were poor quality sites (amenity blocks in particular), poor site layout and design, overcrowding and disruptive behaviour, problems with rats and drainage, arrangements for mail delivery and problems with electricity supply. Poor site conditions were also recognised to have an effect on the health outcomes of Gypsy/Travellers (PAS 2019). This confirmed previous research carried out by Parry et al. (2004), where accommodation, particularly low site standards and poorly located sites, was mentioned by every respondent in the context of health effects. However, a study in Cambridge found that wider accommodation issues, such as the impact of increased evictions, restricted access to healthcare, education and a loss of social and community networks can also impact on the health of Gypsy/Travellers (Home & Greenfields 2006). Health considerations were also found to be a contributing factor behind a move into settled housing in a number of studies (Craigforth 2007; Home & Greenfields 2006; Parry et al. 2004). For example, one participant in the Grampian study moved the family into housing due to the effect of site-living on their child's asthma (GREC 2017).

A UK wide study found that multiple layers of conflict surrounding the delivery and management of Gypsy/Traveller sites contributed to the inadequacy of current provision. This included internal conflict between different departments of a council and external conflicts between neighbours, the wider community and politicians. The study concluded that effective management of sites, using conflict resolution and negotiation approaches, played a key role in resolving conflicts, and ensured that resident's needs are met and standards are maintained. Well-managed sites were also found in large part to be self-financing and sustainable, and that where Gypsy/Traveller sites are managed well, there was less likelihood of objection to proposals for new sites. In particular, a proactive approach to site management, referred to in the study as 'grasping the nettle', was identified as crucial to achieving positive outcomes (Richardson & Codona 2016).

5.3 Lack of access to services

Evidence suggests that Gypsy/Travellers can experience a number of difficulties in accessing services which the settled community take for granted. Across the literature, accommodation was found to play a significant role in the extent to which services can be accessed. Due to site locations, local amenities can be hard to get to and a transient lifestyle can make it difficult to access consistent support, while the stigma of living on a site can lead to discrimination (GREC 2017; EOC 2013). Barriers to accessing health care include the reluctance of some GPs to register Gypsy/Travellers or visit sites, and more practical problems of mobility – either as a cultural lifestyle pattern or being "moved on" through enforcement (Parry et al. 2004). This can be exacerbated by a lack of understanding among professionals of the specific needs and culture of Gypsy/Travellers. Some studies have found that because of this, individuals are often willing to travel long distances to access a GP or support worker that they particularly like or trust (MECOPP 2015; Craigforth 2007).

A number of studies also made reference to a cultural pride in self-reliance within the community, described variously as a "making do" (MECOPP 2015), or a "make do" attitude (Craigforth 2007). This sense of stoicism has been described as being a contributory factor behind a tendency to be in denial about health care needs and a delay in accessing health care services (Parry et al. 2004).

Some studies noted that similar issues are experienced by Gypsy/Travellers in accessing education. Explanations given for this were varied but included cultural motivations, for example relating to roles within the family (Craigforth 2007), and the experience or anticipation of racism. One participant specifically referred to this, stating: "The minute anyone sees your address is a caravan site they treat your children different." (Home & Greenfields 2006). The transient lifestyle was again seen to be a major factor in this respect, as children's schooling was routinely disrupted through enforced movement (GREC 2017). For example, in one study the largest percentage of Gypsy/Traveller children attending school were those in housing, whereas only 15% of eligible children from local authority sites were attending and no 'roadside' children were attending school (Home & Greenfields 2006).

Findings from the literature indicate that there is a lack of recognition and understanding of Gypsy/Traveller culture across services, which can result in inadequate policy responses. In research carried out by MECOPP (2015), families often felt like they were being blamed for their own problems on the basis of their ethnicity, rather than due to the fact the service itself was inappropriate or inflexible. Some studies also made reference to a perceived pressure to keep their ethnicity hidden for this reason (MECOPP 2015; Shelter 2008).

For housed Gypsy/Travellers in particular, the availability of responsive advice and information services has been identified as important in providing them with the knowledge to navigate the complexities of the housing system, and to access appropriate support and maintain their tenancies (Shelter 2008). In research carried out by Shelter, statutory and voluntary organisations were viewed as an invaluable resource for Gypsy/Travellers, providing them with the information they need to move into the accommodation of their choice, find out about benefit entitlements, and find schools for their children (Shelter 2008). This suggests a clear need for a range of services to provide support which is responsive to the cultural needs of Gypsy/Travellers and flexible enough to serve a transient population.