Mapping the Third Sector in Rural Scotland: An Initial Review of the Literature

2 Introduction

2.1 This review has been undertaken in response to recent Scottish Government research which found that there is a pronounced knowledge gap surrounding the nature and extent of the third sector in rural Scotland (Dachombe and Bach 2009).

2.2 This introductory chapter sets out the key aims of the review, the rationale, and the broader policy context within which this review takes place.

2.3 The aims of the review are to:

• Identify and review existing qualitative and quantitative research undertaken which can help inform our understanding of the nature and extent of volunteering and the third sector in rural Scotland, in particular with reference to public service delivery.
• Identify how far research suggests a distinct nature of volunteering and the third sector in rural Scotland, relative to more urban areas.
• Identify key research gaps in our understanding of volunteering and the third sector in rural Scotland.

Rationale

2.4 This report builds on the work of Dachombe and Bach (2009) which examined the ‘evidence base for third sector policy in Scotland’. They find a “formidable amount of material that references the third sector in Scotland” in terms of scholarly, ‘grey’ and public sector research (ibid: 11). Findings are grouped around the five ‘strategic objectives’ of the Scottish Government: wealthier and fairer, smarter, healthier, safer and stronger, and greener. The strength of the literature and the proportion from each source of relevance to each objective was found to vary.

2.5 Overarching gaps were identified across the objectives (ibid: 2). One such example is that of the rural third sector. Although there were “strong themes” (ibid: 1) running through the literature with evidence relating to the third sector and its impact in Scotland often cutting across a number of the strategic objectives, this knowledge was inconsistent. To take the example of the ‘wealthier and fairer’ objective, it was suggested that: “…there is a clear discrepancy between the attention spent on the economic contribution in more populous, urban areas and in rural areas of the country… with the economics of the third sector in rural Scotland largely absent” (ibid: 29).

2.6 Dachombe and Bach argue that relative to research concerned with the third sector in more urban areas, given that: “Rural Scotland suffers from a number of unique social problems related to inequality… the evidence relating to the impact of the rural third sector that is relevant to this (or indeed any) strategic objective was largely less extensive than the work dealing with the sector as a whole” (ibid: 30).

2.7 This is a finding supported by the Scottish Council for Voluntary Organisations (SCVO 2003a), who find that “research into the voluntary sector’s rural dimension… is particularly weak”. Yet Hall and Skerratt (2010: 47) argue that “the work of the voluntary sector, in all its guises, is essential to the sustainability and resilience of rural communities”.

2.8 This is not to say, however, that residents of rural communities should be seen as passive recipients of third sector support. The more accessible parts of rural Scotland are in fact experiencing “rapid population growth” (Thomson 2010: 9-10, on the basis of GROS (2010) data) whilst members of rural communities in Scotland appear to exhibit higher levels of formal voluntary activity than those living in more urban areas (Scottish Government 2011c: 17) and consistently so. Therefore rural patterns of volunteering, and perhaps the third sector more generally, may be particularly dynamic.

2.9 In light of the findings of Dachombe and Bach, the Scottish Government are keen to identify additional sources of literature to better understand the nature of the third sector in rural areas.

Broader policy context

2.10 There is a long history of the changing relationship between the state and the third sector¹, with the third sector playing an increasingly central role in the provision of public services² and receiving an increasing amount of its annual income from statutory sources across the UK (Clark et al. 2009), a pattern borne out in Scotland (SCVO 2010).

2.11 In Scotland, in 2005, the then Scottish Executive set out a ‘vision for the voluntary sector’ which highlighted four areas in particular which would be supported: 1) the third sector as a service delivery partner; 2) the contribution of the third sector to building communities; 3) the role of the third sector in advocacy and developing policy thinking and 4) as an agent of change (Scottish Executive 2005a). In the “Enterprising Third Sector Action Plan 2008 - 2011” (Scottish Government 2008a), there appears a movement towards a more market oriented, service provision role:

“The challenge to the third sector is to make the most of the opportunities that this presents. Firstly, to operate professionally, identifying markets or opportunities – for many organisations this will involve developing products and then competing for, and winning, contracts. Secondly, to demonstrate the unique contribution that the third sector provides. Thirdly, to develop better third sector organisations contributing to increased sustainable economic growth and a more successful country”. (Scottish Government 2008a: 3)”

2.12 The Scottish Government (2011b, e and f) continues to see the third sector as playing a key role in Scotland’s economic development and in contributing to the public service reform agenda. Further partnership working with the third sector and the continued development of an enterprising third sector remain strong focuses of ongoing policy. In the Government Economic Strategy (2011f) volunteering is positioned as a means of delivering services, strengthening communities and building skills and employability.

2.13 Across the UK and within Scotland the third sector and voluntary activity have received an increasing amount of attention. In England and Wales ‘Big Society’ discourse entails a combination of social action, public service reform and community empowerment (Cameron 2010), the discourse of which “includes a strong focus on the delivery of public services by the formal and funded voluntary sector but also in terms of communities, more informal third sector activities and individual citizens” (McCabe 2011: 1). Within Scotland, the Christie Commission on the future of the delivery of public services in Scotland (Christie 2011) envisages a more central role for communities and the third sector in shaping and delivering services.

2.14 There are some tensions inherent in this, however. In the context of public service provision in rural Scotland EKOS (2009: 4) find on the basis of a literature review, national level consultations and local workshops that “rural areas have been exposed to significant centralisation of public and voluntary sector services. This has meant the loss of vital services (such as hospitals and schools) to locations a considerable distance away”.

2.15 Further, Burt and Taylor (2009: 88) highlight that “being seen by service users to be independent of government is perceived to be important in engendering their trust in the organisation”. One of the key strengths of the third sector is accessing those members of the population who may be less likely to engage with more formal services. Indeed this independence is seen to be of “pivotal importance”.

2.16 Maintaining “independence” can be seen as challenging, and although it is not possible to review the range of discussions in the limited space available here, there exists a well developed body of literature which critically reflects on the relationship between, and positioning of, third sector organisations in relation to the state³.

2.17 In summary, the third sector has become increasingly high profile both across the UK and within Scotland. Some suggest there have been ever closer relationships forming between the third sector and the state, a process which appears to have accelerated significantly in recent times in light of economic and political conditions. This presents challenges and opportunities to the third sector.

2.18 Therefore, mapping the third sector in rural Scotland is important in understanding the contributions that the third sector and volunteers are already making to the delivery of services and the wellbeing of communities, the implications of an increased role for the third sector and communities in the public service provisioning process and the potential impacts of reduced public sector budgets on the abilities of third sector organisations to do this.

Structure of the report

2.19 Chapter three outlines the approach taken to identifying relevant literature, and includes discussion of the ways in which ‘third sector’, ‘volunteering’ and ‘rural’ have been understood in this context.

2.20 Chapter four offers some brief demographic context regarding rural Scotland. It then goes on to identify the higher rates of formal volunteering in rural Scotland (as opposed to urban areas) and also its potentially distinct character. Chapter five continues the review of existing research and demonstrates the greater number of registered charities in rural compared to urban Scotland, whilst chapter six examines how far existing research suggests the third sector in rural Scotland is distinct in its roles compared to urban Scotland.

2.21 Chapter seven briefly reviews how far it can be said that the economic downturn has impacted on the rural third sector, whilst chapter eight concludes by drawing out the key themes of the review.

Summary

2.22 This literature review aims to explore in more detail an apparent gap in our knowledge identified by previous Scottish Government research: the nature and extent of the third sector in rural Scotland.

2.23 The relationship between the state and the third sector is not new, however it could be argued that in light of current political and economic discourses it has received an increase in attention. This also requires an accompanying appreciation of the role of the individual volunteer in contributing to such activity.

2.24 This review therefore explores literature concerned with both volunteers in rural areas and the third sector, as well as examining what current research might be able to tell us about the implications of the economic downturn on such activity in the context of public service reform.