community engagement in rural development in...
TRANSCRIPT
Community engagement in rural development in Scotland
1999 - 2009
Norman MacAskill
Head of Rural Policy, SCVO
Outline
SCVO and its Rural Team
Rural development in Scotland after devolution
Politics and the policy landscape
Documents
Programmes and funding
Initiatives
Players
Community engagement
Thoughts and conclusions
SCVO
National body representing the Scottish Voluntary Sector
45,000 voluntary organisations
130,000 paid staff
1.3 million volunteers
Income of £4.1 billion
Around 120 staff
Main offices in Edinburgh, Glasgow, Inverness
Seeks to advance the values and shared interests of the voluntary sector.
SCVO Rural Team
Based in Inverness, but covers all rural Scotland
90% of land and 20% of population (1m) is rural
Rural policy and information work
Consultation and lobbying on rural community issues
Campaigns, events and research on village halls and other community facilities
Rural Direct service – helping rural communities to access funding
Scottish National Rural Network – website and events
Rural Equalities Network
Politics
1999: Scottish Parliament is established
Labour/LibDem coalition is first administration
Rural Affairs Department established
Rural and agricultural policy devolved
Administration of European programmes devolved, but representation remains with UK government
Scottish Parliament Environment & Rural Affairs Committee
Commitment to „mainstreaming‟ rural policy NOT ruralproofing
Partnership approach – national and local
Documents
Towards a Development Strategy for Rural Scotland Rooted in successful policies FOR rural areas,
especially Highlands & Islands
Cross-party recognition of need for rural policy, partly driven by CAP reform
Built on Labour policy development over several years, although Labour identified as urban party
Emphasis on sustainable development, community empowerment, services, partnership, local decision-making
Land reform clearly signalled as flagship for new Parliament
Documents
2000: Rural Scotland: A New Approach
Created by Labour/LibDem coalition administration
“Our vision is of a rural Scotland where everyone matters: every community, every family, every rural Scot”
“We want to . . . create a rural Scotland:
Integral to Scotland's success, dynamic in harnessing its traditional strengths, and with an appetite for change.
Providing opportunity for our young people - so they don't have to leave to get on.
Offering a high quality of life to all its citizens, with access to services.
Sustaining and making the most of its natural and cultural heritage.”
Documents
Rural Scotland: A New Approach
“The steps we take towards this vision in rural Scotland will often differ greatly from what is needed in urban Scotland.”
“. . . while the principles behind our policies apply across Scotland, the means we use must be tailored to meet the needs of local communities.”
Commitment to rural development policy as a distinctive, integrated and dynamic part of the new Scottish devolved politics
But mechanisms to deliver this bold ambition across diverse sectors and geography were in short supply
Documents
2001:A Forward Strategy for Scottish Agriculture
Clear action plans and working groups established to take them forward
Emphasis on change and diversification – eg tourism, agri-environment
“Farming is part of rural development, not separate”
“Farming is only part of the rural economy, but a healthy rural economy needs a healthy farming industry”
Therefore - no challenge to dominance of agriculture in rural policy
Rural Partnerships
Scottish National Rural Partnership
Inherited from pre-devolution Scottish Office
Representation from public, voluntary and private sectors
Advised on rural issues across the policy landscape
Influential report on Rural Services, sharpened focus on the subject and led to several new initiatives –website, regular conference
Series of research publications on good practice
Wound down and was last seen being evaluated and reviewed
Rural Partnerships
Local Rural Partnerships 60 established
At their best, provided a genuine opportunity for local influence and action
Challenge of power imbalance in partnerships
Conference in 2003 was last attempt at joining up
Executive appeared to lose interest
Some faded, some remain in name only
Some survive and thrive as a vital element in the rural community landscape, with varied sustainable funding
Separate evolution and complete lack of connection
The Players
Land-based sector: NFU Scotland and others (SRPBA, QMS, SCF, Countryside Alliance etc)
Environmental Sector: Scottish Environment Link as high impact umbrella group with 30+ members
Public sector: Small department in SEERAD, COSLA, Highlands & Islands Enterprise, Scottish Enterprise, Scottish Natural Heritage, Forestry Commission
Community sector: CVSs, SCVO, Scottish Consumer Council, Development Trusts Association – and various sectoral groups at different times: health, transport, care etc – but no Link equivalent
Local community-based organisations at different times
The Players
Rural Forum Established in the early 1980s
Alliance of organisations across all rural sectors
Aimed to promote dialogue, lobby policymakers, gather and disseminate information and support local development initiatives
Research and consultation role
But…
Perceived loss of credibility among some stakeholders
Crashed and burned in 1999 with debts of half a million pounds
Demise cast a long shadow over moves to develop a new collective body for rural Scotland
Follow-up research showed little appetite for successor
Rural Programmes and funding
Scottish Rural Development Plan 2000-2006 Limited input from community interests in its
development “An instrument of agricultural policy” Funding for agriculture and agri-environment No community element at all
LEADER+
Not full coverage of rural Scotland Little awareness outwith the community sector Networking element seen as key, but subject to
criticism Variation in delivery – from very council-controlled
LAGs to fiercely independent ones Very successful in many places, and built
capacity for rural community development
Rural Programmes and funding
Scottish Rural Partnership Fund
Funded Rural Partnerships, community facilities, policy interventions
Limited but successful fund
Evaluation strongly recommended continuation
Scottish Land Fund
Administered by Highlands & Islands Enterprise
Package of funding and support for community land buyouts
Dedicated funding for economic development, rural housing, transport, health, etc
Policy landscape
CAP Mid-term Review
Greater involvement of community-based stakeholders
Issue of modulation up for debate
Some challenges to dominance of agri- and agri-environment interests
SNRP and SRPF – evaluated, reviewed, vanished
32 Community Planning Partnerships established
Rural Service Priority Areas – choice based on Index of Multiple Deprivation
Consultation on new SRDP begins, with stated intention to include domestic community funding as well as LEADER
New initiatives
Rural Community Gateway website
One-stop-shop for news, info, networking and events
Well regarded and well used by community sector
Evaluation recommended continued support
Rural Services Conference
Different service-related theme each year
Mix of politics, new policy thinking and good practice
Rural Voices Action Research Programme
Support for community participation in research on local services funded 26 local projects
Pilot was ended after two rounds despite success
Community engagement
National groupings
Civic Forum
SCVO/CVS rural networks
DTA Scotland
Rural Dialogue Group
Scottish Rural Community Network
Consultation fatigue – Community Councils
Volunteer fatigue - hall committees
Sense that rural was dropping down the agenda
But – fantastic, inspiring examples of local community development initiatives
Land reform
Land Reform Policy Group established in 1997
Land Reform (Scotland) Act passed in 2003
Inspiration from community land buyouts such as Assynt Crofters in 1992
Overtly intended to empower communities
Community Right To Buy – when Landlord decides to sell
Crofting communities have right to buy any time
Support from Scottish Land Fund, then Big Lottery Growing Community Assets
Inspiring examples – Isle of Gigha, North Harris, Assynt, Rum, Eigg, South Uist
Land reform
Communities face serious challenges of sustainability, support and community cohesion
Take-up of CRB has been disappointing
Lack of dedicated funding and support is seen as a disincentive
Perceived loss of political interest and support
Need for review and assessment of impacts
Alternative models such as Southern Upland Partnership‟s Communities on the Edge project challenge over-riding importance of ownership
Land remains a potent political force in Scotland with resonance well beyond rural areas
Documents
Scottish Forestry Strategy 2006
Aim to increase community involvement in forestry and increase access to woodlands
2007: Rural Scotland: Better Still Naturally
Major refresh and restatement of rural policy
Based on consultation and Futures work
Ranges across sectors
States need to improve engagement and knowledge exchange; promote shared vision; build evidence base for policy
Overtaken by change of government
Documents
Rural Advocacy in Scotland
Commissioned by Scottish Consumer Council (who had set up Rural Forum)
Draws on social capital model – identifies deficit in bridging capital
Recommendations include increased community involvement in Community Planning; capacity building for community engagement; funding for a grassroots network of rural community groups; stronger Community Councils; effective rural-proofing
Influenced by Scandinavian model, particularly Swedish Village movement
Documents
OECD Review of Scottish Rural Policy
Scotland‟s rural policy is “innovative and rapidly evolving”
But . . .
Complex sectoral approach
Weak integration of policy design
Over-complex delivery mechanisms (more than 100 agencies involved in rural development)
“Modest” local participation in adaption of SRDP to local situations
Documents
OECD Review of Scottish Rural Policy “It is recommended that Scotland aim for a distinctive
vision of policy for all rural areas . . . that is comprehensive and integrated, capable of mixing sectoral and territorial approaches and developing linkages, exchanges between the agricultural sector . . . and the other sectors of the rural economy.”
“The convergence of sectoral policies in a coherent policy for rural areas can be realised over time.”
Documents
Royal Society of Edinburgh Inquiry into the Future of Scotland‟s Hills and Islands
Major report giving comprehensive overview of landbased policy in Scotland
Consulted with dozens of organisations and individuals
Made 66 recommendations, including the need for a Strategic Land Use Policy Framework and less fragmentation and more coherence in rural policy
Unfortunately, failed to consult with the community-based voluntary sector
Brief mentions of LEADER and community empowerment
Politics
New SNP minority administration elected in 2007
Hit the ground running and reshaped structure and policy goals of Scottish Government
Strategic Objectives, National Outcomes and Performance Framework
Includes sustainability, resilient communities and quality services
Single Outcome Agreements with Councils and soon Community Planning Partnerships
Singleminded emphasis on improved economic performance
Criticism of reduced funding for HIE
Politics
SNP rooted in rural Scotland – perception that they are identified with farming interests
Inherited SRDP from previous administration – and have taken flak for elements of its delivery
Stated desire to get “rural Scotland under one roof”
Positive response to SCVO‟s campaign on village halls
Funded support for communities to engage with SRDP
Serious, target-driven commitment to sustainable development
Documents
Community Empowerment Action Plan
Jointly published with Convention of Scottish Local Authorities (COSLA)
Commitment to highlight examples, beef up Community Councils, support engagement and capacity building, pilot participatory budgeting
But no substantial funding behind it
Document springs to life in the examples it gives
New initiatives
Rural Development Council
Individuals appointed by invitation of the Cabinet Secretary
“a broad range of expertise on rural matters with the aim of developing policy and advising the Scottish Government on how rural communities can contribute to Scotland's sustainable economic growth”
“A forum where the rural voice can be heard at the heart of government”
Deliberations include Land Use and Community Empowerment
New initiatives
Scottish National Rural Network
Requirement under the RDR, part of UK Network
Genuine ambition to be more than that – evolve into Rural Parliament model
Website, national rural gathering and series of regional events
Closely linked to LEADER and driven by Community Empowerment agenda
SCVO has contract for delivery of main elements
Challenge is to engage all rural sectors, particularly land-based sector –what‟s in it for them?
Thoughts and conclusions
Many of Scotland‟s rural communities provide fantastic examples of community development, effective partnership working and empowerment
LEADER groups, Rural Partnerships, community planning partnerships, voluntary sector, Development Trusts, Hall Committees, community associations, community councils – all are highly effective in different places
But all face partnership challenges of power imbalance and dependence on effective participation.
There is a powerful feeling of disengagement from policy decisions – “insultation not consultation”.
But little evidence of grassroots demand for a “rural voice” – and doubt that such a thing is possible.
Thoughts and conclusions
Rural Policy is still dominated by the land management mindset
Resistance to rural-proofing needs to be challenged more effectively
No-one apart from professionals and activists gathers under the banner RURAL
It is a legitimate policy ambition to try to create the circumstances where rural communities can increase engagement and power over their own futures
It is legitimate, but more aspirational, to explore the creation of a unified rural voice
Policy response has too often been to add new layers and elements to an already busy landscape
Thoughts and conclusions
“The convergence of sectoral policies in a coherent policy for rural areas can be realised over time.” OECD Report
“The lack of a coherent rural policy [in Scotland] may not be a policy oversight but reflect a lack of group agreement on problem definitions and solutions” Jordan and Halpern 2006
Community ambitions for greater engagement may gain strength from increased convergence of their interests with land management interests . . .
. . . or it may be that “the farmers will eat your lunch”!
Thank you
www.scvo.org.uk
www.ruralgateway.org.uk
www.villagehalls.org.uk
www.ruraldirect.org.uk