National Assembly for Wales

RDC(3) P&D3

Rural Development Sub-Committee

Inquiry into Poverty and Deprivation in Rural Wales

Response from Angelsey County Council

CWO/LLYTH110308
752561

The Clerk of the Committee
Rural Development Sub-Committee
National Assembly for Wales
Cardiff Bay
Cardiff
CF99 1NA

11 March 2008

Dear Mr. Davies,

The Welsh Assembly Government’s Rural Development Sub-Committee Scrutiny Inquiry into Poverty and Deprivation in Rural Wales: Evidence submission to inform the inquiry proceedings and recommendations by the Isle of Anglesey County Council

Thank you for your recent correspondence (dated 22nd January 2008) which notified the County Council of the opportunity to submit evidence to inform the above outlined inquiries proceedings. The importance and severity of the challenge currently being experienced by rural areas who are encountering considerable change (i.e. social, economic, and technological) should not be underestimated, and we welcome the Sub-committee’s associated interest in the causes and impacts of rural poverty and deprivation.

The overall vitality, prosperity, well-being, and sustainability of the country’s rural areas have, and are continuing to be dramatically altered as the effects of increased globalisation are experienced. Unfortunately, the declining fortunes of our traditional rural industries, coupled with market failure, and high income/ production costs (when compared to other parts of the World), has generated prevalent numbers of people experiencing poverty and deprivation.

This is characterised on the Island, where the effects of rurality, together with the impacts of peripherality combine to impact negatively upon overall standards of living and quality of life. The principal determinant, which directly impacts upon standards of living, is accessibility to opportunities (employment, services, health, care, recreation etc). This therefore immediately places rural, and to a greater extent peripheral rural areas under greater threat of widespread poverty and deprivation. It is against this backdrop that this County Council submission is presented.         

This response, which is formatted in full accordance with the specific questions outlined in your initial correspondence, is based upon the knowledge and experience of County Council officers involved in formulating policies and delivering services which meet the needs of a rural, peripheral area. The area is characterised by an under-performing economy, a high quality natural environment, and a population which is gradually getting older. However, the effects of peripherality severely enhance the underlying causes of poverty and deprivation.       

The nature, character, causes, and effects of rural areas and communities experiencing poverty and deprivation across Wales can be characterised on the Island. As a result, I would like to invite, and offer our facilities to the Welsh Assembly Government’s Rural Development Sub-Committee, to convene a future meeting on Anglesey. This could coincide with appropriate field trips, giving the Sub-Committee Members an opportunity to experience at first hand communities and individuals suffering from rural poverty and deprivation, together with the impacts of National policies, and locally implemented programmes, to tackle the underlying causes and effects.     

I hope that the submitted information is of relevance and assistance to the Sub-Committee’s scrutiny inquiry into poverty and deprivation in rural Wales. Please do not hesitate tot contact me if you require further information. I would be grateful if you could ensure that we receive a copy of the final scrutiny enquiry report.

Yours sincerely

Derrick M Jones
Managing Director

The Welsh Assembly Government’s Rural Development Sub-Committee Scrutiny Inquiry into Poverty and Deprivation in Rural Wales: Evidence submission to inform the inquiry proceedings and recommendations by the Isle of Anglesey County Council

1. What are the poverty/deprivation problems faced by rural areas? What are the specific needs of rural areas in relation to this issue?

The poverty / deprivation problems faced by Anglesey and other rural areas across Wales can be summarised as:

  • Ensuring equality of accessibility by all members of society to relevant services and opportunities to achieve fairness to everyone;
  • Providing and developing reliable infrastructure which reduces the negative impacts of peripherality (primarily transport and communications);
  • Utilising unique and valuable local assets (including the environment) to generate positive economic and social impacts;
  • Generating high quality employment opportunities to replace those in declining traditional industries and sectors;
  • Reducing reliance and dependency upon the social benefits system;
  • Meeting the leisure and recreation expectations of young people;
  • Valuing and enriching social capital and well being; and
  • Sustaining pride and emotional equity in our changing communities to preserve the unique culture, identity and distinctiveness;   

Whereas the causes and effects of poverty are similar in both urban and rural areas, the impact of rurality can impose additional costs on individuals and families which can result in marginal individuals being pushed into poverty. As a result, the specific needs of rural areas are focused upon overcoming the problems and difficulties associated with providing access to services and opportunities in dispersed communities, whilst reducing the negative impacts of peripherality.

2. Are anti-poverty/deprivation activities best dealt with by the Welsh Assembly Government or by Local Authorities? Why?

The creation of a strategic direction and identification of associated intervention areas to reduce poverty and deprivation in all areas of Wales should be driven by the Welsh Assembly Government. This is because the underlying causes and impacts are consistent, with the need for integrated policies and programmes across a number of areas being a necessity if the current situation is going to improve.  

The role of local authorities should focus upon influencing the content and direction of those policies and interventions, together with the co-ordination, priority, and delivery of local services and interventions to meet local needs.

This will ensure there is clear direction and consistency at National level, whilst providing flexibility to ensure services and interventions are delivered in a way which meets differing local needs.

This approach is already happening, and the value and benefits created by interaction, communication and joint working by relevant organisations at different levels should not be underestimated. However, enhanced co-ordination between activities and services provided by different sectors and programmes could generate increased impacts to redress and alleviate poverty and disadvantage.

We would, however, question our collective understanding of how to overcome poverty and deprivation in peripheral rural areas, where opportunities and positive impacts generated by neighboring urban settlements do not reach or influence quality of life. The approach, policies, programmes, and delivery mechanisms need to be different in communities which are both rural and peripheral.

3.i What anti-poverty/deprivation initiatives (Welsh Assembly

Government or Local Authority) are you aware of?

3.ii. Do these anti-poverty/deprivation policies adequately address the needs of rural areas?

We believe that all public sector initiatives and activities impact (directly and/ or indirectly) upon poverty and deprivation. As a result, the response to this question is confined to those policies and intervention areas where we feel further consideration is required if they are going to redress and alleviate poverty and disadvantage in rural areas.

Wales Spatial Plan - The potential long term positive impacts of the WSP (specifically on poverty and deprivation) should not be underestimated as it co-ordinates policy and intervention in different areas. However, the current focus on investment and opportunity creation in the 'hubs’ is unlikely to impact positively upon poverty and deprivation levels in the peripheral rural areas. The mechanisms in place, and indeed required to ensure the 'spread of prosperity into the rural areas’ need to be defined, identified, and progressed (as is highlighted above).  

Recent Spatial Plan meetings have been focusing on the EU Rural Development Plan (RDP) as the principle mechanism for creating employment and enabling community development activities in rural areas (with EU Convergence capital funds being focused on strategic initiatives and the larger settlements). There is not enough financial capacity within the RDP to progress the required interventions across rural Wales. This must be recognised, and additional means of supporting rural areas to alleviate poverty and disadvantage identified.    

Communities First - This WAG Programme targets the areas where large concentrations of poverty and deprivation are prevalent. Based upon the WIMD, the designated wards are those in the large settlements, and not truly rural/ peripheral areas because of the low population density and their dispersed nature. As a result, we would suggest a similar mechanism/ model needs to be piloted in a defined rural/ peripheral area to identify means of assisting those disadvantaged individuals.

We would welcome the opportunity to discuss this further, with a view to working collaboratively to develop a 'pilot’ programme in North Anglesey. This rural and peripheral area of Wales faces further negative impacts on quality of life when the Wylfa nuclear power station is decommissioned. A potential pilot could be developed and implemented as part of the Môn Menai Porgramme, targeting economically inactive and disengaged individuals, innovative means of delivering local services, and optimising the value of local assets. The 'pilot’ could also identify appropriate indicators to recognise the impact of rural peripherality.

Welsh Quality Housing Standard (WHQS) -  This on-going improvement programme represents a substantial investment to enhance the overall quality of  mainly public and social housing across the country by 2011. The improvement activities across rural Wales should make a substantial contribution towards enhanced fuel efficiency (by reducing home energy costs), improving quality of life for numeorus individuals living in poverty. The introduction of this standard, which is being achieved with local authorities progressing/ intiatiating lcoal improvement programmes is a suitable exmaple of co-operation which impacts positively upon the lives of many (in both rural and urban environments acorss the country).

Children’s Plan - Reducing child poverty is a key aim Of the 7 Core Aims, one is specifically on Child Poverty and in Ynys Mon this is predominantly Rural Poverty.

Key National initiatives such as Genesis, Cymorth, Dechrau’n Deg and Cychwyn Cadarn are delivered locally to meet specific local needs. This approach enables, as highlighted earlier, national priorities to be achieved by enabling local delivery and ownership.

Overall, we believe that National policies recognise and give adequate priority to reducing National levels of poverty and deprivation. However, the implementation mechanisms, and especially the resource required to ensure effective delivery (i.e. human resource and financial resource), in peripheral rural areas is not recognised within the WAGs planning mechanisms. Faced with dispersed communities and residents with varying needs and requirements, organisations active in rural areas still have to ensure there is adequate service provision and opportunities for everyone. Within the peripheral areas there are also increased levels of 'market failure’, minimising opportunities and accessibility. These issues should be recognised when planning mechanisms and initiatives to improve quality of life in peripheral rural areas.      

4. What specific measures would you like to see implemented by the Welsh Assembly Government to deal with poverty/deprivation issues in rural Wales?

Measures which we would like to see the WAG considering further as a means of alleviating poverty and disadvantage in rural Wales can be summarised as:

  • Incorporating rural and poverty proofing mechanisms/ techniques in to all policy formulation processes (could be incorporated into existing impact assessment tools and techniques);
  • There should be recognition that the needs and requirements of rural areas differ from those which are both rural and peripheral (where the problems associated with poverty and deprivation are more deep rooted);
  • 'Rural peripherality’ needs to be defined and recognised, whilst identifying appropriate indicators which can be incorporated into the WIMD;
  • Developing and implementing a pilot initiative, based upon Communities First, but with different interventions/ implementation model to target a specific area which is both rural and peripheral (and suffers from poverty and deprivation), as a means of informing future Programme development;
  • Prioritising infrastructure enhancement programmes in rural areas to overcome existing market failure. This relates specifically to the transportation network, utilities infrastructure, and ICT infrastructure. Without considerable investment programmes, the divide and gap between prosperous areas and the rural peripheral locations will only grow - creating greater levels of poverty and deprivation;
  • Recognising the importance and negative impact created by 'fuel poverty’ in peripheral rural communities;

5. What examples of good practice are you aware of in Wales/ other parts of the UK/overseas?

We are aware that all major relevant policies in England are being subjected to a rural proofing exercise whilst in Ireland relevant policies are submitted to the poverty proofing tool.

There are also examples, across the UK and in Wales of successful asset transfers from public sector to community ownership - ensuring their long term future is sustained to contribute towards vitality and vibrancy. Although desirable, this approach has to be considered within the continued environment of increased pressures to deliver efficient and effective local services with reduced budgetary capacity.   

A number of the activities which we believe are required to tackle the issues of rural deprivation and poverty have been outlined in the Island’s Rural Development Plan (RDP) application. These have been based on successful past local interventions via numerous other funding measures, and have been combined to create a coherent plan to combat the plethora of issues which contribute towards rural deprivation and poverty. The proposed activities (if supported) will undoubtedly have a positive impact, but the amount of available funding limits their overall scale and nature. Further information on the proposed package of interventions can be provided upon request.

There are a number of innovative ways of sustainably providing services in rural areas that we are aware of ranging from community owned village shops; mobile shops serving a number of communities; part time satellite post offices in neighbouring villages; and initiatives such as "The pub is the Hub”. The WAG should consider the introduction of support programmes that would make such developments more common place.

6. To what extent are these groups living in poverty / deprivation in rural Wales?

The extent of poverty / deprivation in rural areas is difficult to quantify because of the indicators included within the WIMD. This is because of the low population density levels in rural communities. The nature of rural areas mean the very rich and the very poor reside in close proximity to each other, masking the pockets of poverty and deprivation at super output level. The following provides an insight into the extent of the problem.

a) Children and young people

  • Of the 10 counties in Wales listed as being 'rural’, eight of them are among the nine worst performing counties in terms of school absenteeism, correlating strongly with an equally high level of free school meal claimants;
  • The lack of variation and high quality employment opportunities and the high cost of living (e.g. housing) has resulted in demographic changes and a reduction in the number of people in the area of working age;  
  • The cost of transport to and from leisure facilities, societies and community activities prevents children and young people who reside in peripheral rural communities from participating;  
  • Car ownership in a rural area is essential but maintenance costs and increased fuel prices reduce available disposable income.  

b) Economically Active

  • The GVA figure for Anglesey at 64% of that for the EU (1995) reflecting the low quality employment opportunities which exist on the Island;

c) Economically inactive

  • Anglesey has a higher than average level of inactivity and a higher than average number of long term unemployed. This reflects the lack of opportunities and the additional barriers which face the economically inactive in peripheral rural areas;  
  • Lower paid jobs prevent people from coming off benefits.

d) Older People

  • The low income levels in peripheral rural areas during working life create lower pension entitlements, thus increasing the likelihood of suffering from poverty and disadvantage.

7. What poverty/deprivation issues are experienced by these population groups that are specific to rural areas?

a) Children and young people

  • Transportation limitations, costs and availability;
  • Accessibility to community, sport, leisure and recreation resources;
  • Lack of opportunities for personal development;
  • Reduced permanent employment opportunities with fair pay;
  • High cost of housing and the lack of opportunities to buy /rent houses;

a) Economically Active

  • High dependence on the public sector, small local businesses and the declining agricultural sector, resulting in generally low wage levels.
  • Car ownership is essential, not a luxury for most people to access work, opportunities and services. The increasing cost of fuel exacerbates the causes of poverty and deprivation;
  • Young people tend to move away from peripheral rural areas to secure employment - contributing to a vicious cycle of demographic change that exacerbates the problems of rural deprivation and poverty;
  • Lack of affordable housing, but also don’t qualify for social housing or benefits.

c) Economically Inactive

  • Low population density means that private transport is generally required to access, not only training, jobsearch and work, but also essential services such as childcare, bank/post office, food/shopping, as well as healthcare. This requirement, particularly with the increasing cost of fuel places additional burdens on those least able to cope with them. The existence of public transport does not necessarily mean that its timing and frequency is appropriate.
  • Lack of affordable housing, limited social housing.

d) Older People

  • Fuel poverty - high fuel prices resulting in increased cost of commodities and heating bills;
  • Limited transport services resulting in reduced access to local facilities, health services and primary care services;
  • Housing stock generally ageing (with high maintenance cost);
  • Reduced rural services (e.g. closure of rural post offices);
  • Isolation and loneliness, the length of time a person has lived in an area impacts upon the number and quality of relationships and networks.

8. How do the problems of the 4 population groups differ across rural Wales (for example between areas in West Wales and East Wales)?

We do not feel that we are best placed to comment on differences between specific areas of Wales. However, we feel strongly that the deep rooted problems being experienced in rural West Wales (i.e. social and economic) are related to the areas rural and peripheral nature. Residents and communities face additional barriers to accessing services and opportunities due to overall remoteness and population sparseness.

9. In what ways are any sub groups within the population particularly affected by rural poverty / deprivation?

a) Children and Young people:

  • Children with physical learning disabilities have to travel 25 miles a day to attend a Special School;
  • Homeless young people live over 30 miles from the nearest hostel;
  • Children with Autism being isolated more than necessary due to the rural nature of their districts;
  • Childcare being more expensive because people have to travel further to reach child minders and nurseries;
  • Young criminals imprisoned in Liverpool or Stoke Heath and consequently their families having problems travelling to visit them from rural areas;

b) Economically Active

  • Childcare being more expensive because people have to travel further to reach child minders and nurseries.
  • Homeworkers may be particularly affected by the erosion of local services e.g. banks and post offices.
  • Rural businesses are at a disadvantage because of uneven and inferior ICT provision, particularly broadband internet access.

c) Economically Inactive

  • Increased likelihood of social and economic inactivity;
  • The low and dispersed nature of rural populations mean that access to support (peer or otherwise) is more difficult.

c) Older People

  • Isolation and loneliness with reduced social networks;
  • People aged between 50-65 face difficulties in returning to work - lack of appropriate skills for modern business;
  • Fewer than a third of women who are already retired are entitled to the full basic state pension. Women are being penalised for choosing to look after their children.

10. What are the most effective ways of tackling poverty/deprivation for individuals from these groups living in rural parts of Wales?   

There is no one programme or policy which can tackle the underlying causes of poverty and deprivation across Wales (those living in rural, peripheral, and urban areas). We believe that all the WAG’s policies and programmes impact upon poverty and deprivation in some form or another.

The essential components of tackling poverty and deprivation is to have a clear sense of direction, inter-related policies (and implementation activities), and flexible local delivery, enabling interventions to be tailored to meet specific local needs.

One intervention area which has made a measurable difference to poverty in rural areas is the Working Tax Credit plan which enables people to return to work whilst at the same time helping them to pay for child care. This is the type of methodology to be welcomed.

To reinforce some key points which have already been expressed, we strongly believe that the required programmes and interventions to alleviate poverty and disadvantage in peripheral rural areas need to be reconsidered (because of their deep rooted nature). We would welcome the opportunity to consider undertaking pilot initiative on the Island.

The importance of enhancing overall infrastructure capacity in peripheral rural areas should not be underestimated. Current barriers and lack of capacity are constraining economic growth and the modernisation of services (e.g. care) to comply with today’s standards and expectations.   

11. How can these problems be addressed by the Welsh Assembly Government?

We are of the opinion that the comments and suggestions made to date in this submission can assist the WAG to develop policies, and implement programmes and initiatives (in partnership with relevant local organisations) to alleviate poverty and disadvantage in both rural and peripheral areas of Wales.

[NB: Angelsey County Council received the following links from Angelsey Local Health Board and have forwarded them as the may be of interest to others
http://www.socialinclusion.ie/pia.html
http://www.adb.org/Documents/Handbooks/PIA_Eco_Analysis/default.asp
http://www.dfid.gov.uk/mdg/aid-effectiveness/newsletters/poverty-impact-assessment.pdf]