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2 RURAL DEVELOPMENT

Introduction

2.1 The Scottish Government Rural Affairs and the Environment portfolio encompasses policy development and delivery of programmes related to rural development, marine, food and environmental issues.

2.2 This section focuses on rural development and the ways in which the needs of disabled people in rural areas are being addressed by public authorities. It is based on an examination of publicly available material, including the disability equality schemes and annual reports of public bodies. Information from relevant research and policy documents is included where appropriate.

Background and policy context

Definition of rural

2.3 Rural development is a complex issue, which crosses all public and social policy and service sectors and it is important to understand how 'rural' is defined.

2.4 Scottish Government policy is to encourage the use of the Scottish Executive urban-rural classification. An eight-fold definition distinguishes between urban, rural and remote areas. Of interest to this report are accessible rural, remote rural and very remote rural (Scottish Executive 2006a).

2.5 The classifications systems recognise the importance of taking into account the diversity of rural areas and the specific challenges that may face very remote rural areas in particular. It is important to note that in a number of official documents the typologies used may vary according to the issue or policy being considered and the availability of data (Scottish Executive 2004a; 2006a). This makes it difficult to obtain disaggregated data on rural-urban which is consistent, and the challenges and importance of developing robust evidence for rural policy making is an issue that is continually be addressed.

Rural development: policy context

2.6 The UK National Strategic Plan, on which the Scotland Rural Development Programme ( SRDP) 2007-13 is based, is delivered through a single European Agricultural Fund for Rural Development ( EAFRD). Although EAFRD is one of a number of national and European funding streams relevant to rural areas, it is one that potentially brings together a variety of rural interests. EAFRD is used to support three strategic priorities representing Axes in Regulation 1698/2005, as follows:

"i. Improving the competitiveness of agriculture and forestry by supporting restructuring, development and innovation (Axis 1).

ii. Improving the environment and the countryside by supporting land management (Axis 2).

iii. Improving the quality of life in rural areas and encouraging diversification of economic activity (Axis 3)."

iv. In addition, there is also a fourth horizontal Axis - the use of the LEADER approach. It is "a bottom-up, locally-driven approach to innovation and development administered by local partnerships."
(Scottish Government 2007, p56)

2.7 A regional approach through the establishment of regional/local structures, reflecting the diverse rural areas and communities and a 'joined-up' approach which is in synergy with other relevant programmes are amongst the factors identified as crucial to delivering the outcomes of SRDP (Scottish Government 2008). For example, 20 Local Action Groups ( LAGs), representing local authorities, public agencies, enterprise agencies, business people and members of the community, covering 95% of rural Scotland have been established to distribute LEADER funding ( http://www.scotland.gov.uk/Topics/Rural/SRDP/LEADER).

2.8 SRDP is also establishing a National Rural Network in Scotland. This inclusive network will provide the appropriate tools for all rural stakeholders to share experience and information and to make connections in order to promote rural development. Women and young people are identified as priority groups for LEADER funding. In addition, LAGs have identified further target groups for their own areas. These include older people, under/un-employed people, disabled people, ethnic minorities and migrant workers. It includes a brief chapter on 'Equality between Men and Women and Non-Discrimination' (Chapter 15) and reports that an Equality Impact Assessment ( EQIA) was undertaken with regard to SRDP. While this is a step in the right direction, the results of the impact assessment were not presented in the document. It is also important to note that the SRDP consultation did appear to involve a small number of disability interest groups ( e.g. Fieldfare Trust). A summary of some of the responses on equality issues received when consulting on the plan suggested a mix of views; from those that felt the SRDP had no links with equalities to those who suggested that the SRDP was ' exclusive in terms of its language and target group' (Scottish Government 2008, Annex 7). However, the analysis of consultation responses did not clarify what respondents meant by 'exclusive'.

Research and statistical context

Diversity of rural areas

2.9 Rural Scotland accounts for 98% of the Scottish landmass, 21% of the population (Scotland's population is around five million) and 20% of employment (Scottish Executive 2007). It is widely acknowledged that rural Scotland is not a single entity and encompasses heterogeneous areas and experiences (Scottish Executive 2007). For example, the economic and social circumstances of the 'accessible' rural are different from those in the 'remote' rural areas, where social and economic problems caused by lack of economic opportunity and high costs of living and transport tend to be relatively severe. Such problems explain the very different demographic experience of 'accessible' and 'remote' rural communities - the former generally having a growing population which remains relatively young; the latter having a declining and ageing population (Bryden, 2003; Terluin et al. 1999). However, areas such as the Northern Highlands and Islands, the Central Highlands and the Southern Uplands, while diverse, also share some similar features. These are: low population densities, declining and ageing population in some areas, high levels of youth out-migration, sparse settlement patterns but also include natural heritage and cultural resources that are considered valuable.

Poverty and disadvantage in rural areas

2.10 Some of the key findings that emerge from studies on rural disadvantage and social exclusion in rural areas suggest a combination of variables ( e.g. age, gender, health, education and employment) as significant risk factors associated with household and individual disadvantage (Scottish Executive 2003, p37). A study by the Scottish Agricultural College Rural Policy Centre, commissioned by the Scottish Government, (McSorley, L (2008) Special Study on Living in Poverty in Rural Areas) reviewed the literature on poverty in rural areas. The particular focus was on exploring the characteristics of living in poverty in rural areas and how the experience is similar or different from that of living in poverty in urban areas. Based on findings, it then identified policy options and examples of good practice in moving people out of poverty in rural areas. The report also focused on the experience of poverty in rural areas over the lifecycle.

2.11 The SAC work recommended, based on the findings, that further work should be undertaken on perceptions and experiences of living in poverty in rural areas. That work is now being carried out by EKOS, commissioned by the Scottish Government in response to the recommendation. The decision was taken to focus on groups particularly vulnerable to poverty (including disabled people, people with mental ill health and single pensioners).

2.12 The SAC work, alongside other research, ( e.g. Chapman, et al 1998; Commission for Rural Communities, 2006; Rural Poverty and Inclusion Working Group 2001; and Shucksmith, 2000) has highlighted a number of specific factors giving rise to disadvantage in rural areas. These include:

• Low pay associated with limited employment opportunities generally, and the predominance of small work places and low wage sectors such as agriculture, food ( e.g. fish) processing and the tourism and hospitality sectors. In addition to low pay, employment in some sectors is characterised by seasonal work which can be insecure.
• Low uptake of benefits, reflecting a combination of poor access to advice and information, concerns about stigmatisation and a culture of independence and issues of eligibility as individuals move in and out of seasonal employment.
• Changing demography and the growth in particular of the older population, who are considered to be at risk due to lack of support either because they have recently moved into an area or because the younger members of their families have moved out of the area, resulting in isolation and little or no access to support.
• Rural areas tend to have poorer levels of access to services. For example, approximately 20% of people in remote rural areas are more than a 15 minute drive away from their medical General Practitioner and approximately 30% are more than a 15 minute drive away from a petrol station, compared to zero per cent in the rest of Scotland in each case. In addition although ownership of a car is higher in rural than urban areas, 17% of households in remote rural and accessible rural areas do not have access to a car. When this is considered alongside the poor provision of public transport, it makes it more difficult for rural residents to access services (Scottish Government 2007, p30-31).

2.13 As stated at para 2.10 more recent research on rural poverty and disadvantage commissioned by the Scottish Government is being undertaken by EKOS (report not yet published) aimed to increase understanding about the experience of poverty in rural areas in Scotland, specifically for particular groups, including people with mental ill health and disabled people. It will be important to take into consideration the findings in developing a more in-depth understanding of the impact of poverty on disabled groups in rural areas.

Disabled people in rural areas

2.14 The Social Focus on Disability, published by the then Scottish Executive in 2004, included for the first time, statistics on disabled groups drawing on a range of data sources which also included some rural-urban disaggregated data (Scottish Executive2004b). However, the growing research and debate on rural disadvantage and social exclusion has rarely included data or information on the extent to which disabled people in rural areas in particular are specifically disadvantaged.

2.15 Disabled adults were more likely to be living in large urban areas (44 %) compared to those without a disability (40%) (Figure 1.1 below). Ninety three per cent of disabled adults in accessible ¹ and remote areas ² lived within a 30 minutes drive of a settlement of 10,000 or more compared to 92% of all adults (Scottish Executive 2004b, p 11).

Figure 1.1: Adults with a disability by urban rural classification, 2001 and 2002 -Percentages

Source: Scottish Executive 2004b, Chart 1.2, p 11 Cited from Source : Scottish Household Survey.

2.16 Sixty-nine per cent of disabled households in remote rural areas were reported to have access to a car compared to 40% of disabled households in large urban areas (Figure 1.2, below). However, households with no disabled members were more likely to have access to cars across all area types (Scottish Executive 2004b, p 137).

Figure 1.2: Households with access to at least one car, 2001 and 2002 - Percentages

Source: Scottish Executive 2004b, Chart 8.2, p137 Cited from Source: Scottish Household Survey.

2.17 Drawing on some of the evidence presented to the Equal Opportunities Committee Inquiry (Equal Opportunities Committee 2005; 2006), rural disability interests identified some of the following barriers as impacting on their quality of life:

• Lack of easily accessed and affordable public transport was identified as a significant barrier to accessing employment, leisure and services in general, thus serving to reinforce the social isolation experienced by disabled people in rural areas.
• Accessibility issues in relation to ferries and airports were identified by those living on the Islands.
• Direct payments (now self-directed support) did not take into account the travel time that may be required in rural areas and the islands.
• Social stigma associated with mental ill health and the lack of privacy in small communities at times militated against use of local services, and compounded the isolation experienced by those with mental health problems.
• Lack of a voice for disabled people living in rural areas was an issue, especially due to the difficulties experienced in getting organised because of their dispersion and travel distances.
• Broadband access was identified as being patchy in some rural areas.
• The ability of small local businesses in some rural areas to be flexible and responsive was emphasised as being a positive factor leading to the employment of disabled people. By contrast, in other areas, small businesses felt that they did not have the resources (human and capital) to employ people with disabilities.
• Difficulties for people who live in dispersed communities to access a wide range of services as well as the challenges for services providers in providing services in rural area as they have to be more multi-skilled.

2.18 However, the evidence to the Equal Opportunities Committee Inquiry also highlighted that the picture with regard to disabled people can be complex. For example, in oral evidence given by Riddell (Equal Opportunities Committee 2005), it was reported that the employment rate among disabled people was higher in rural areas than in urban areas and there were a lower proportion of people on incapacity benefit, despite fewer support services, such as employment and advice services.

Reporting on Progress - areas where progress is evident

Introduction

2.19 The following areas of progress are considered in this section:

• Establishing the evidence base and determining actions
• Diversity of rural areas
• Delivery of services to disabled people in rural areas
• Staff training

Establishing the evidence base and determining actions

2.20 A number of the schemes and annual reports of the rural public authorities drew on relevant demographic data based on the 2001 Census and mid year population trends produced by the General Register Office for Scotland ( GROS) for their area, in order to identify general population trends as well as providing some specific information on disability groups within their areas. However, some public authorities appeared to have included more detailed information than others and identified regional patterns more clearly. Notable amongst these were NHS Tayside, NHS Ayrshire and Arran, and Highland Council. In some instances ( e.g.NHS Ayrshire and Arran) the demographic information was also supplemented by a needs survey into the barriers that disabled people faced. A number of public authorities ( e.g. Aberdeenshire Council, Argyll and Bute Council and The Highland Council) referred to surveys and consultations that had either been conducted or were underway to identify the specific issues that affected disabled people in their areas. Conversely there were some rural public authorities that included little demographic information (national and/or regional) by way of background to their schemes ( e.g.NHS Western Isles, NHS Orkney, Scottish Borders Council and Moray Council). It is also worth noting that overall there appeared to be little association between the size of public authority or its geographical location and the quality of its efforts and plans to improve accessibility and develop disability equality. For example, NHS Western Isles had a lack of detail and of plans which contrasted with NHS Shetland's detailed demographic work and plans.

2.21 In the Scottish Government's Disability Equality Scheme 2008-2011 the Rural Affairs and the Environment action plan identifies the steps to be taken to improve the evidence base. This includes a commitment to undertake equality impact assessments, establishing appropriate consultation mechanisms and using the services of the Rural and Environment Research and Analysis Directorate and the Equality Unit in developing their action plans.

Delivery of services to disabled people in rural areas

2.22 In the majority of documents examined, reference to the ways in which living in a rural area might impact on disabled people's lives was cited primarily as part of setting the context. In general, the issue of ensuring equitable access to services across the different types of rural areas was identified as a challenge for all those living in rural areas, and it was often difficult to get a sense of the specific challenges faced by a variety of disabled people from the documents.

2.23 The most common challenges facing disabled people identified across the documents included, for example:

• A growing older population with disabilities.
• Small numbers of disabled people and even smaller numbers of people with particular impairments, who may be scattered over a wide geographical area.
• Limited or no access to transport and long distances resulted in a number of challenges: dependence on family members for providing transport; social isolation; being unable to participate in leisure activities; and difficulties in attending meetings.
• The potential impact of closure of facilities such as shops and post offices and services (this tended to be non-specific).

2.24 There have been some examples of positive initiatives in tackling these issues cited in the Equal Opportunities Committee Reports (2005; 2006); for example, Highlands and Islands Enterprise referred to their support for Community Opportunities for Participation in Enterprise ( COPE) in Shetland. In addition some examples of rural Demand Responsive Transport initiatives were mentioned by a number of local authority schemes and reports ( e.g. Aberdeenshire, Argyll & Bute (Campbeltown & Tiree), Fife and Highland and Angus).

2.25 The issue of accessible public transport was identified as a challenge in rural areas and a number of rural local authorities were involved in an ongoing programme of upgrading buses to make them compliant with legislative standards and accessible for disabled people. In addition, for example, Perth and Kinross Council reported that it had started increasing the number of bus shelters with lighting, including the use of solar powered lights in rural areas and four of its main rural bus routes including those linking rural areas of Perthshire with Perth City were converted to buses which were accessible to wheelchair users.

2.26 In the context of health, some of the best developed schemes and plans appeared to have linked access to services for patients, staff and physical access together. Three rural Health Boards had plans which had been well developed in this regard. For example, NHS Highland, NHS Grampian and NHS Tayside which had sought to link disabled people's experiences with their service plans. It is noteworthy that these three had also undertaken good involvement work with disabled groups which may explain the links between experiences and service plans.

2.27 The Scottish Government Rural Affairs and the Environment Scheme 2008-2011 (p258) acknowledges that the Divisions and Agencies within its portfolio may be at different stages with regard to being aware of the impact of their work on disability in the service delivery context.

2.28 The Marine Directorate identified a need to consult across its divisions in order to identify impact and actions. It has also taken steps to ensure that disability-related action features in the Strategic Framework for Scottish Freshwater Fisheries published in July 2008. Intrinsic in development of the Framework was the principle of extending access to freshwater fisheries of all kinds to a wider section of society. Implementation of the strategic vision with regard to disabled people has seen the formation of a disability working group charged with reviewing access provision, development of facilities ( e.g. wheelchair adapted boats) and specialised coaching.

2.29 And the Rural Directorate identified three areas for action:

i. ' Rural Communities/Agriculture & Rural Development: Listening to the voice of disabled people in rural areas.

ii. Animal Health and Welfare/Veterinary: Interaction with assistance dogs and riding for the disabled.

iii. Landscapes and Habitats: Provision of equal access and assisted access to the natural environment.'

2.30 It is also worth noting that some of the actions ( e.g. improving access to the natural environment) identified by the Rural Directorate are already being progressed through agencies such as SNH and the National Park Authorities discussed in this report (Section 3).

Staff training

2.31 Some Rural Health Boards appeared to have given considerable thought to staff training and disability awareness, presumably because of the challenges of distance. There were a number of e-learning initiatives aimed at reaching the considerable number of NHS staff in remoter areas ( e.g.NHS Borders and NHS Highland), and a broad programme by Dumfries and Galloway NHS to reach 1800 staff.

2.32 To sum up, the disability equality duty has been in force for less than 2 years and is still in the early stages of implementation. Clearly, there is a lot still to be done. But examination of the first round of disability equality schemes and annual reports is already showing areas where progress is being made and revealing good practice which can be built on in future. Areas of progress include:

1. Improving the evidence base to help underpin actions by drawing on demographic information and undertaking needs surveys and consultations.

2. Developing a better understanding of the diversity of rural areas and the potential impact for rural residents including those who are disabled.

3. Addressing some of the rural challenges that impact on rural disabled groups, e.g. transport, health and employment.

4. Ensuring that equalities (including disability) was included in the Scottish Government Environmental and Rural Affairs activities, particularly with regard to access to issues related to rural, marine and the environment.

5. E-learning initiatives in relation to staff training to overcome the issue of distance in rural areas.

Reporting on Progress - Areas where progress is less evident

Introduction

2.33 The material in this section is based on consideration of the disability equality schemes and annual reports of relevant public authorities. No interviews with public authorities were undertaken in the preparation of the report. The following areas of progress are considered in this section:

• Evidence base on the needs and experiences of disabled people in rural areas
• Clarity on actions related to addressing the needs of disabled people in rural areas

Evidence base on the needs and experiences of disabled people in rural areas

2.34 While identifying the challenges that face particular groups in rural areas is an important starting point, more detailed information and analysis on different groups of disabled people and the specific challenges they face did not appear to be consistently present in the majority of documents examined. There appeared to be little if any reference to the range of research about the experiences of disabled people in rural areas. However, recent research commissioned by the Scottish Government (McSorley, L (2008) Special Study on Living in Poverty in Rural Areas) and the study currently being undertaken by EKOS, which is focussing on groups particularly vulnerable to poverty (including disabled people, people with mental ill health and single pensioners), will help to inform the next round of disability equality schemes.

2.35 It is also important to acknowledge that the Scotland Rural Development Programme ( SRDP) national and regional structures are very recent and it is too early to comment on progress with regard to disability equality. As stated previously (paragraph 2.7) the SRDP 2007-2013 (Scottish Government 2008) includes a chapter on 'Equalities between Men and Women and Non-Discrimination' (Chapter 15). This is an important starting point.

Clarity on actions related to addressing the needs of disabled people in rural areas

2.36 There is a need for greater attention in social policy delivery to be given to teasing out the specific consequences of an ageing population in rural areas and its impact on disability with a view to converting these into specific actions where relevant. Additionally, it is important that the specific experiences of disabled people (taking into account their diversity) in rural areas are clearly identified, in order to develop a more in-depth understanding of the impact of population sparsity and rural service delivery on their lives and help address the specific consequences of rurality by identifying actions to address disability equality in rural areas.

2.37 In summing up, it is important to acknowledge the early stage of the disability equality duty, which has been in place for less than 2 years. Progress reflects the early stage at which some schemes and action plans are at.

Categories of impairment

2.38 Measuring improvements requires clear baseline information about people and their specific disabilities. With the exception of a brief mention of people who are blind and deaf in relation to assistance dogs in one of the public authority schemes, in general, references, or targets for individuals in specific categories of disability were relatively rare. There appeared to be little use made of available evidence in developing specific actions. For example, in relation to particular concerns about people with mental health problems experiencing stigma in rural communities, addressing rural transport issues with regard to specific disabled groups and the potential impact of poor access to broad band on disabled people in rural areas. Many public authorities were reviewing and or putting in place global procedures with little reference to the diversity of disabilities experienced by individuals and the extent to which rurality might impact on these individuals in specific ways.

Consulting and Involving Disabled People

2.39 It will be important in future for public authorities to demonstrate how disabled people have been involved in the preparation of their disability equality schemes. In general public authorities have tried hard to involve disabled people in the design of their current schemes and action plans, although it wasn't always clear how issues raised by surveys, interviews and focus groups are reflected in schemes.

2.40 The Scottish Government identified in their scheme, actions that had been taken in relation to consulting with disabled people. For example, a first meeting between a Rural and Environment Director and a disability interest group was mentioned in the 2008-2011 schemes. And the involvement events that the Scottish Government held with disability groups during March 2008, as the scheme was being developed, had clearly identified a number of rural and environmental issues.

2.41 There were also some notable examples of involvement of disabled people in developing a disability equality scheme in rural public authorities. For example, rural health boards - including NHS Highland, NHS Grampian and NHS Tayside - had undertaken involvement work which was then used to underpin their schemes and plans which linked disabled people's experiences with their service plans. In addition there were examples of local authorities ( e.g. Comhairle, Shetland Island Council and The Highland Council) collaborating with other public sector agencies in their regions in undertaking consultation and fact finding strategies; thus helping to avoid potential consultation and research fatigue, especially where disability interest groups may be small in number.

2.42 Overall, given the early stage of delivery of the duty and the fact that the involvement of disabled people in the development of a disability equality scheme was a new requirement, the picture was mixed. While some authorities had clearly shown how they had undertaken effective involvement, others had not. Exploring more innovative approaches ( e.g. video and tele-conferencing) to engage with disabled people who may be geographically scattered and for whom conventional approaches ( e.g. meetings) may pose barriers especially in rural areas, may be beneficial for the next round of schemes.

Summary and Conclusion

2.43 This report is based on consideration of the disability equality schemes and annual reports of relevant public authorities. No interviews with public authorities were undertaken in the preparation of the report. An examination of documents revealed substantial evidence of good intentions, and evidence of considerable activity, much of which has been started, and even more is planned. There were some noteworthy examples of public authorities taking steps to specifically address the rural context in relation to addressing disability issues; for example in relation to staff training and transport.

2.44 The specific needs of disabled people in rural areas were mentioned by public authorities predominantly in the introduction/context setting sections of their documents. But there was often an absence of actions and targets which could be identified as specifically addressing the needs of disabled people in rural areas. It was also often unclear how equality proofing the delivery of sectoral policies in rural areas would be achieved.

2.45 Given the early stage of implementation of the disability equality duty, the growing availability of research and data for urban and rural areas, and the quality of baseline data which many institutions are currently seeking to improve, further progress should be apparent in the next round of schemes.

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