© Equality and Human Rights Commission 2009
First published Winter 2009
ISBN 978 1 84206 088 9
Research report: 12
Inequalities experienced by Gypsy and Traveller communities: A review
Sarah Cemlyn, Margaret Greenfields,
Sally Burnett, Zoe Matthews and Chris Whitwell
University of Bristol, Buckinghamshire New University, Friends Families and Travellers
EXECUTIVE SUMMARY
Gypsy and Traveller communities in Britain experience wide-ranging inequalities.
These are familiar to the communities themselves and to those working with them.
However, published research evidence does not address all the problems in equal
depth. The aim of this report is to draw together the evidence from across a wide
range of Gypsies' and Travellers' experiences in order to set out clearly the full extent
of the inequalities and discrimination. The review and evaluation of existing evidence
in turn provide a basis for action to address the inequalities, including on issues
which the policy agenda often neglects.
Formal evidence on some aspects of inequality and exclusion is lacking. The study
also involved a consultation with experts from both within and outside Gypsy and
Traveller communities: this supplemented the review of published research.
The review covers Romany Gypsies, Irish Travellers, Welsh Travellers, Scottish
Gypsy / Travellers, New Travellers and Occupational Travellers (including
Showpeople). For ease of reference, the report will hereafter refer to these groups as
'Gypsies and Travellers'. Case law has established that the Race Relations Acts and
Race Equality Duty cover the majority of these groups. The legislation does not
protect New Travellers or Occupational Travellers in the same way, although they
experience many of the same inequalities and much of the planning guidance applies
to them too. Equality legislation in Wales applies to all citizens, without reference to
membership of specific groups: this ensures the inclusion of all groups. Throughout
Britain, the inclusion of a Gypsy / Traveller category in the 2011 Census will both
provide important data and highlight their ethnic identity.
The review evaluates and discusses the available evidence on a range of subjects.
These include: economic inclusion and access to employment; relationships with and
experiences of accessing healthcare, social care, education and other public
services; experiences of the legal and criminal justice systems; racism and
discrimination; the situation of Gypsies and Travellers in housing; political
participation; religious organisations' work with members of the communities; and
experiences across the lifecourse, including those of young people and older people.
One core theme which arises across all topics is the pervasive and corrosive impact
of experiencing racism and discrimination throughout an entire lifespan and in
employment, social and public contexts. Existing evidence, including from the
consultation, highlights high rates of anxiety, depression and at times self-destructive
behaviour (for example, suicide and / or substance abuse). These are, on the face of
the evidence, responses to 'cultural trauma' produced by the failings of 21st century
British society and public bodies' failure to engage in an equitable manner with
members of the communities. Having reviewed the strength of the evidence of the
prejudice and discrimination faced by Gypsies and Travellers, the authors of the
report were surprised that more members of the Gypsy and Traveller communities
had not succumbed to negativity, and remained resilient in the face of what are often
multiple and complex forms of exclusion.
This summary presents only an outline of some of the key topics: the full report sets
these out in more detail.
Accommodation
The lack of suitable, secure accommodation underpins many of the inequalities that
Gypsy and Traveller communities experience. Planning policy has shifted away from
publicly owned sites, which local housing authorities administer, to self-provision by
the communities themselves. Disputes arise though, often utilising explicitly racist
discourse, when Gypsies and Travellers apply for planning permission to develop a
site on land they have purchased privately. Opposition from local residents frequently
leads to local authorities turning down planning applications, though many are
successful on appeal. In addition to private site development, the Government has
allocated substantial sums to local housing authorities to develop new sites or
refurbish old ones; however, the extent to which local authorities and registered
social landlords access such grants, varies considerably across areas and is often
dependent upon political will and changing local circumstances. Evidence is now
available about the extent of provision and unmet need, as a result of the
requirement for housing authorities to carry out formal accommodation assessments.
These highlight a considerable shortfall in the quantity of residential and transit
accommodation available to Gypsies and Travellers who do not wish to reside in
conventional housing.
Provision on a minority of sites is of good quality. On others however, the location of
sites can be poor (for instance, under motorways or next to sewage works). Other
problems include health hazards (such as contamination by vermin), decayed
sewage and water fittings, poor-quality utility rooms, and failings in fire safety.
Many Gypsies and Travellers are caught between an insufficient supply of suitable
accommodation on the one hand, and the insecurity of unauthorised encampments
and developments on the other: they then face a cycle of evictions, typically linked to
violent and threatening behaviour from private bailiff companies. Roadside stoppingplaces,
with no facilities and continued instability and trauma, become part of the way
of life. Health deteriorates, while severe disruptions occur to access to education for
children, healthcare services and employment opportunities.
In order to avoid the eviction cycle or to access vital services, many families
reluctantly accept the alternative of local authority housing. They are however,
typically housed on the most deprived estates, sharing the wider environmental
disadvantages of their neighbours and exposed to more direct and immediate
hostility focused on their ethnicity or lifestyle. This also involves dislocation from their
families, communities, culture and support systems, leading to further cycles of
disadvantage.
Racism and discrimination
Racism towards most ethnic minority groups is now hidden, less frequently
expressed in public, and widely seen as unacceptable. However, that towards
Gypsies and Travellers is still common, frequently overt and seen as justified.
Abusive media coverage and overtly racist statements from local and national
politicians add to the ignorance and prejudice of many members of the settled
population, while those in authority frequently fail to challenge them. Complaints
abound from members of the communities included in this review: of services being
not welcoming or refused; of employment offers being withdrawn; and of people
being harassed in or dismissed from employment. While Gypsies and Travellers
have experienced such hostility for centuries, what is remarkable – and shameful – is
that this continues in the present day, despite a wealth of legislation to promote
equality and human rights and protect against discrimination.
Inequalities and problems
The following points highlight a few key areas of concern from among the severe,
wide-ranging and mutually reinforcing inequalities and problems faced by members
of the communities that are the focus of this report. It is by no means an exhaustive
list.
• Gypsies and Travellers die earlier than the rest of the population.
• They experience worse health, yet are less likely to receive effective,
continuous healthcare.
• Children's educational achievements are worse, and declining still further
(contrary to the national trend).
• Participation in secondary education is extremely low: discrimination and
abusive behaviour on the part of school staff and other students are
frequently cited as reasons for children and young people leaving education
at an early age.
• There is a lack of access to pre-school, out-of-school and leisure services for
children and young people.
• There is an unquantified but substantial negative psychological impact on
children who experience repeated brutal evictions, family tensions associated
with insecure lifestyles, and an unending stream of overt and extreme
hostility from the wider population.
• Employment rates are low, and poverty high.
• There is an increasing problem of substance abuse among unemployed and
disaffected young people.
• There are high suicide rates among the communities.
• Within the criminal justice system – because of a combination of unfair
treatment at different stages and other inequalities affecting the communities
– there is a process of accelerated criminalisation at a young age, leading
rapidly to custody. This includes: disproportionate levels of Anti-Social
Behaviour Orders against Gypsies and Travellers, instead of the use of
alternative dispute resolution processes; high use of remand in custody, both
because of judicial assumptions about perceived risk of absconding and lack
of secure accommodation; prejudice against Gypsies and Travellers within
pre-sentence reports, the police service and the judiciary; and perpetuation of
discrimination, disadvantage and cultural dislocation within the prison system,
leading to acute distress and frequently suicide.
• Policy initiatives and political systems that are designed to promote inclusion
and equality frequently exclude Gypsies and Travellers. This includes political
structures and community development and community cohesion
programmes.
• There is a lack of access to culturally appropriate support services for people
in the most vulnerable situations, such as women experiencing domestic
violence.
• Gypsies' and Travellers' culture and identity receive little or no recognition,
with consequent and considerable damage to their self-esteem.
Other equality areas
Many of the inequalities which Gypsies and Travellers experience relate to their
ethnicity or nomadic lifestyle. In addition, the review considers other equality issues
in relation to gender, disability, age, religion and sexual orientation, focusing
particularly on the extent to which these interweave with the wider inequalities
community members face. Where information exists, it highlights further difficulties,
such as those of older or disabled people who may need support to live
independently, yet receive little other than a place on a waiting-list for bricks and
mortar housing. In other instances, evidence about the experiences of different
groups within the Gypsy and Traveller population is not available, and indicates a
need for further research.
The lack of systematic ethnic monitoring of Gypsies and Travellers who use public
services, often underpins the lack of hard evidence about the nature and extent of
the problems they face. Within the education sector, the introduction of specific
monitoring categories has enabled the Government to identify inequalities, and to
impress upon local education authorities the need to address these concerns. The
Race Equality Duty similarly requires public sector organisations and services to
monitor the impact of their policies to identify: how their policies affect racial groups;
the extent of satisfaction of people from all groups with the way they are treated;
whether the provision of services is effective for all communities; and whether the
design of services is suitable to meet different needs.
Combating the problems
Many members of the communities are striving to address their problems and stand
up for their rights. For instance, a number of examples exist of initiatives to: provide
children with a better education; enable them to take part in enjoyable and
constructive leisure activities; maintain their cultural heritage and identity; ensure
accessible and appropriate health and social care services; develop training
provision and employment opportunities; and support political and community
engagement among Gypsy and Traveller communities. Gypsy and Traveller
organisations themselves are responsible for instigating and undertaking many such
initiatives, sometimes in partnership with statutory agencies or voluntary bodies.
Members of the communities who are active in national or international
organisations, or who have attained prominent positions within the wider community
(for instance, as county councillors) can be particularly influential in highlighting the
need for the wider community to work together to address problems, for the benefit of
all. Some local authorities have worked together with Gypsy and Traveller
communities to produce 'myth-busting' information in order to provide the general
public with more accurate information about the lifestyles and needs of the
communities, and to combat ignorance and hostility.
Nonetheless, the problems are immense, and continue to have a direct detrimental
impact on the quality of life of Gypsies and Travellers in Britain today. Public
authorities, a range of public and private organisations with which Gypsies and
Travellers have contact, and the wider public, all need to take urgent action to ensure
that Gypsies and Travellers have access to the same services and can exercise the
same rights as the rest of the population. The broadcast and print media too, have an
important role in combating racism and discrimination against Gypsies and
Travellers, as well as reviewing their own approaches to reporting issues relating to
members of these communities.
The authors of this report and the Equality and Human Rights Commission, welcome
feedback and comment on this review and productive proposals from stakeholders
and community members on how best to address the issues it highlights as needing
urgent action.
