Following presentation of the Report of the High Level Group on Travellers at Cabinet by Minister Frank Fahey, T. D., on Tuesday 21 March, 2006 the Government has approved its publication. The High Level Group was established in December 2003, to examine ways of improving service delivery and outcomes for Travellers.
 
The Report contains a total of 59 conclusions and recommendations across a number of sectors of Government activity. The major areas identified as priorities in the report are:

It is envisaged that the High Level Group will remain in place to oversee the establishment of the inter-agency approach to achieve better delivery by the State sector and better outcomes for Travellers. 

The Committee to Monitor and Co-ordinate the Implementation of the Recommendations of the Task Force on the Travelling Community, which published its Second Report on 13th December 2005, is in the process of being reconstituted. Given the need to promote tolerance and understanding between the settled and Traveller community, the replacement Committee will focus on this issue as one of its immediate priorities. Specific actions to promote tolerance and understanding may be developed within the framework of the county action plans recommended in the High Level Group Report. 
 
Commenting following the Government's endorsement of the Report Minister Fahey said, "It is clear from this Report and the last Report of the Monitoring Committee that the emphasis must be on effective implementation rather than new policy directions. There is a need for a sustained effort from the State sector together with Traveller Organisations and other social partners to achieve real improvements in the position of the Traveller Community in Ireland"

Report of the High Level Group on Traveller Issues (PDF – 228KB) 


27 March 2006

 

Executive Summary – Report of the High Level Group on Traveller Issues

This report summarises the current situation in relation to the provision of services to Travellers in the key areas of accommodation, health, education and employment. This Executive Summary gives the Conclusion and Recommendations of the High Level Group. These include general structural and strategic issues as well as matters specific to particular sectors.

The report examines the extent to which data on Travellers is available. The report also reviews the two local pilot projects operated in South Dublin County Council and Clare County Council. The objective of these projects was to bring all of the agencies working with Travellers together in partnership, to tackle local issues at a local level. It was envisaged that adopting an inter-agency approach would yield more focused results, whilst avoiding duplication of effort and resources. Effective consultation with local Travellers was essential to the success of these projects.

 

Priority Issues

PRT 1 To promote a coordinated interagency approach to the delivery of services and supports for Travellers. Integrated Strategic Plans for service delivery should be drawn up for all cities and counties with Traveller populations, following the recommendations derived from the Pilot Projects described in this Report.

PRT 2 To ensure effective consultation between Travellers, Traveller Organisations and statutory bodies to support the development of interagency cooperation and to facilitate improved communications, including conflict resoulution, at national, regional and local level.

PRT 3 To ensure that law enforcement is included as part of the proposed integrated approach.

 

General Conclusion and Recommendations

GEN 1 The High Level Group considers that to achieve successful outcomes for Travellers there is a need for institutionalised inter-agency co-ordination at national and local level. The positive experience of the pilot projects initiated by the Group and managed by Clare County Council and Dublin South County Council serve as a useful template for replication on a wider scale. There is also a need for continuing commitment at senior political and official level. The High Level Group notes that already many of the building blocks for the successful delivery of integrated strategies are now in place. In the area of accommodation, 2005 marks the beginning of the second local authority Traveller accommodation programmes (2005-2008). Annual targets for Traveller accommodation will be set. Preparation of a Traveller Education Strategy is at an advanced stage. The first period of the Traveller Health Strategy ends this year. A sub-committee of the High Level Group, under the leadership of the Department of Enterprise, Trade and Employment is working towards the preparation of an employment and training plan for Travellers.

GEN 2 The High Level Group recommends that a Traveller Data Collection Strategy is needed, to supply policy makers and service providers with the means of assessing need, future planning, bench-marking, target-setting and quantifying progress. The development of this Strategy should be embarked upon as soon as possible.

GEN 3 The High Level Group recommends that the structure of the Cabinet Committee on Social Inclusion, supported by the Senior Officials Group on Social Inclusion be used so that Ministers can monitor the implementation of strategies and plans for Travellers. The High Level Group is a useful forum for policy makers and service providers. It should continue in being as a sub-committee of the Senior Officials Group on Social Inclusion to

GEN 4 The existing Monitoring Committee on the Implementation of the Recommendations of the Task Force on the Travelling Community, chaired by the Department of Justice, Equality and Law Reform and made up of Government Departments, social partners and Travellers organisations has provided a useful forum for consultation at national level. That Committee is charged with monitoring the implementation of the 1995 Report of the Task Force. However, there is a need to review the effectiveness of this consultation particularly in light of the various sectoral consultative mechanisms (such as the National Traveller Accommodation Consultative Committee) established in the interim. The Monitoring Committee is aware of this situation and a review of it's role and structures is currently under way. The High Level Group will monitor progress on this review.

GEN 5 It is recommended that the High Level Group be maintained to oversee the implementation of the integrated strategies proposed in this Report, and to report periodically to the Cabinet Committee on Social Inclusion on progress made.

 

Pilot Projects – Conclusions and recommendations of the High Level Group (PLT)

PLT1 The High Level Group would first of all like to thank most sincerely the managers and staff of Clare and South Dublin county councils and the leaders and staff of the other agencies for their unstinting commitment to the delivery of better outcomes to Travellers in their areas. It is clear that without absolute commitment, firm leadership, staff and time resources, success in this endeavour cannot be achieved.

PLT 2 The High Level Group considers that these two projects in particular have confirmed their belief that the solution to the problem of securing better outcomes for Travellers lies locally. It is only by engaging all the relevant agencies in a focused way on the needs of individual sites, estates and even families, that the multiple disadvantages that many Travellers face can be overcome.

PLT 3 The High Level Group conclude that the strategic planning approach adopted in Clare, using the County Development Board structure, and making particular efforts to consult with the local Travellers themselves in a positive way is complementary to the systematic approach undertaken in South Dublin. All counties with a Traveller population should develop an inter-agency plan, in consultation with the local Travellers themselves. The implementation of such plans can profitably follow the site-focused approach piloted in South Dublin. These plans must set targets, costs, deadlines and expected outcomes. Specific responsibility for the implementation of each action under the plan must be assigned to the appropriate agency or agencies.

PLT 4 The High Level Group recognises that meeting the accommodation needs of Travellers is essential. It is clear, however, that accommodation provision is not some golden key which when turned will unlock all the barriers to Traveller social integration. Travellers in permanent accommodation, like those in unauthorised sites, can also have very limited education achievements, suffer poor health, and be in long term unemployment.

PLT 5 An integrated approach to the provision of services to Travellers occupying greenfield sites has been successfully piloted by South Dublin in the Kiltipper project. In it, the relevant agencies were able to line up services (GP, education etc.) for the Travellers in advance of their arrival. This model ought to be replicated nationwide. In addition, the project showed that the geographical integration of Traveller-specific housing with social and private housing can be achieved.

PLT 6 The need to integrate a law enforcement response with other regulatory and remedial responses to sites in difficulty was the main lesson from the Oldcastle Park project. Without tackling lawlessness, remedial expenditure would be in vain. It is clear that the primary victims of illegality and criminality in the Traveller community are Travellers themselves. Travellers have as much right to a safe, clean and law-abiding living environment as everyone else. All agencies need to co-operate in dealing with anti-social behaviour. While An Garda Siochana should continue to work to develop good relations with the Traveller community and support, in a planned way, the responses of other agencies, the law enforcement aspects of the issue cannot be ignored.

PLT 7 The local authorities, agencies and Government Departments themselves are in many cases ideally placed to provide training and employment opportunities to Travellers. All agencies should create work experience places for Travellers and take positive action to improve Traveller employment prospects. South Dublin County Council have researched best practice in devising selection and recruitment procedures which would not be a deterrent to Travellers. These could be copied elsewhere.

PLT 8 Consultation with Travellers has to be made more effective. It is necessary that Travellers be consulted so that their real needs are identified and addressed. However, consultation processes are not ends in themselves and consultation does not convey a veto over proposals. In both South Dublin and in Clare we have examples of effective consultation. In South Dublin, the design of service pods for the Oldcastle Park upgrading project was modified in the light of consultations with Travellers. In Clare, the use of local agencies supplying services to Travellers as a network for consultation with Travellers is innovative as is the Outreach programme to consult with Travellers in their homes.

PLT 9 There is a need to have relevant data to monitor progress in service delivery for Travellers. The two Local Authorities have tried to address the deficiency in data for their own areas. Clare is planning to hold a local census of Travellers, using Travellers as enumerators. However, a national strategy on data in respect of Travellers is necessary if proper monitoring is to be achieved. National standards in terms of definitions, privacy, data protection and the use of administrative records are needed urgently.

PLT 10 Integrated strategic plans for service delivery for Travellers should be drawn up in all counties.

PLT 11 The County Development Board structure, which has a statutory basis and on which the most relevant agencies are represented, is the most appropriate planning mechanism for this task.

PLT 12 The strategies should address needs in the following areas: health, education/training, income/employment/economy, accommodation, culture, law and order. They should also be closely aligned with local Traveller accommodation programmes.

PLT 13 All relevant agencies, statutory and voluntary, should be involved. Full meaningful consultation with travellers in the area must be part of the process.

PLT 14 The strategies must be based on meeting the identified needs of local Travellers

PLT 15 Co-ordination and monitoring structures should be established as an integral part of strategic plans.

PLT 16 A six month deadline for the drafting of the strategic plans should be set.

PLT 17 The Institute of Public Administration could be well placed to assist agencies in this initiative.

PLT 18 Periodic national seminars for exchanging experience and identifying best practice should be organised under the aegis of the Department of Justice, Equality & Law Reform.

 

Accommodation – Conclusions and Recommendations of the High Level Group (ACC)

ACC 1 The High Level Group welcomes the fact that all housing authorities have adopted with minimum difficulty their Traveller Accommodation Programmes for 2005 to 2008. The implementation of these programmes should be geared towards ensuring that the current needs of Travellers are met within the timescale of the programmes and that additional needs arising during the programmes are dealt with as quickly as possible.

ACC 2 The High Level Group also notes with satisfaction that the Department of the Environment, Heritage and Local Government requires annual targets for the implementation of these programmes.

ACC 3 The High Level Group considers that, in the light of experience with the South Dublin Kiltipper Project, all relevant agencies should assist the housing authority in planning and providing services for Traveller families moving into new accommodation.

ACC 4 The High Level Group notes the increasing trend of Travellers accessing private rented accommodation and the significant number of Travellers who meet their own accommodation needs privately.

ACC 5 The High Level Group would like to see more use being made of the Voluntary Housing model by Travellers and calls upon local authorities to work closely with the Irish Council for Social Housing and Traveller organisations, with a view to establishing a pilot scheme in this area.

ACC 6 The High Level Group notes that improved provision of transient halting sites is a matter of priority and this is being studied by the NTACC

 

Employment – Conclusions and Recommendations of the High Level Group (EMP)

EMP 1 Departments and State agencies should be directed to make work placement opportunities available for Travellers by the summer of 2006.

EMP 2 The Department of Finance should develop within one year, in consultation with Traveller organisations and the Public Appointments Service, initiatives to assist Travellers to obtain public service employment. The public service trade unions should co-operate in facilitating positive action measures to secure public service employment for Travellers. Such initiatives could encompass work experience opportunities, building on the model provided by the Department of Communications, Marine and Natural Resources.

EMP 3 Local Authorities, the Office of Public Works and other State employers of manual workers should pursue the possibility of employing Travellers and engage with FAS in relation to appropriate training programmes in manual skills. The work of South Dublin County Council would be of particular relevance in this regard.

EMP 4 Employer organisations should be approached with a view to developing initiatives for training, work experience and employment for Travellers. This should be done at local and national level. The Department of Enterprise, Trade and Employment and FAS would have an important role in this regard.

EMP 5 The work of the Sub-Group of the High Level Group on Employment and Training of Travellers will continue. It should be the focus for the development of interdepartmental co-operation on Traveller employment and training issues.

EMP 6 The State, as employer, is capable of making a significant impact on Traveller employment.

EMP 7 The Department of Communications, Marine and Natural Resources and South Dublin County Council are to be commended for their initiatives in providing training, work experience and employment opportunities for Travellers.

EMP 8 At a time of full employment, there are significant economic sectors with labour shortages, such as construction, transport, tourism, childcare, health services, where Travellers have relevant skills.

EMP 9 Travellers have had a traditional preference for self-employment and display entrepreneurial skills. The State agencies ought to develop programmes to enable Travellers to generate income from self employment in a manner compliant with regulations.

EMP 10 Travellers are discouraged from seeking mainstream employment by discrimination, hostility and the fear of rejection.

EMP 11 Apprehension about seeking employment is reinforced by the lack of personal experience of a wage economy among Travellers.

 

Education – Conclusions and Recommendations of the High Level Group (EDN)

EDN 1 The High Level Group welcomes the drafting of the Traveller Education Strategy. A number of factors extraneous to the education system can have a positive or a negative impact on educational attainment. These factors include cultural issues, housing standards, health, childcare and parental employment status.

EDN 2 The High Level Group notes that

EDN 3 The High Level Group recommends that Education should be part of the proposed integrated approach at local level, developing links between schools, training and employment opportunities

EDN 4 The High Level Group recommends that in the implementation of the Traveller Education Strategy, procedures for inter agency co-operation between the various actors in the education sector on the one hand and local authorities, health authorities, FAS, the Gardai and other agencies be developed.

 

Health – Conclusions and Recommendations of the High Level Group (HLT)

HLT 1 The High Level Group welcomes the forthcoming review of the outcomes of the key actions in the National Traveller Health Strategy.

HLT 2 The High Level Group fully supports the conduct of the Travellers' All-Ireland Health Study which is an essential mapping exercise to properly inform the future direction of health service provision for Travellers.

HLT 3 The implications of Health Service Reform for the provision of services to Travellers should be kept under review.

 

Law Enforcement – Conclusions and Recommendations of the High Level Group (LAW)

LAW 1 The High Level Group recommends that a pilot Youth Diversion Project aimed at young Travellers be specifically funded to identify the reasons why general projects are less effective with Travellers, and to propose amendments.

LAW 2 The Group recommends that the Department of Justice, Equality & Law Reform should initiate a process with An Garda Siochana, and where appropriate, the Department of Social & Family Affairs, and in conjunction with the relevant local authorities to identify sites/locations to which access by State agencies is problematic and to develop suitable responses.

LAW 3 The Group recommends that law enforcement actions be integrated in county strategies. The active involvement of Travellers and other agencies should be sought.

LAW 4 The Group recommends that early intervention approaches to lawlessness on Traveller sites be developed to prevent the emergence of "no-go areas".

LAW 5 The Group welcomes the integrated approach focused on the prevention of fraud and abuse of the social welfare system.  It endorses the need to ensure that Travellers are able to access the same level of service as other members of the community without fear or intimidation either to themselves or to the service providers.

 

Community Development – Conclusions and Recommendations of the High Level Group (CDV)

CDV 1 The High Level Group consider that targeted supports for the Travelling Community have an important role in ensuring that the Traveller interests and concerns have a voice with Government agencies. Representative organisations have an important role in ensuring Traveller rights are listened to and respected. However, the Group believes that the role of these groups needs to be more than just an advocacy role, particularly in view of the significant state funding which they receive. The Group believes that in addition to their role as advocates of the Traveller viewpoint it is desirable that these organisations play a more explicit role in terms of service delivery to Travellers in areas such as education, training, employment or childcare. These groups should also play an important role in facilitating conflict resolution in regard to Traveller issues, both in terms of improving state agency understanding of Traveller issues and concerns, and in terms of ensuring Traveller understanding of state agency concerns. The High Level Group will consider how best to pursue these matters.

 

Data Issues – Conclusions and Recommendations of the High Level Group (DAT)

DAT 1 Improved data on travellers is a key requirement for the future   development of policy and monitoring of progress.   In particular, it will inform the identification of target outcomes across a range of areas, progress against which can be monitored over time.

DAT 2 At a strategic level work is continuing, under the guidance of the Senior Officials Group on Social Inclusion (SOGSI) and the National Statistics Board to develop a comprehensive framework for social and equality statistics to respond to the evolving data needs of policy-makers. The Office for Social Inclusion is also working to address data gaps, focusing particularly on vulnerable groups, in the context of the development of a data strategy to underpin the National Anti-Poverty Strategy (NAPS).

DAT 3 Therefore the High Level Group proposes that a subset of this work might involve the establishment of a small working group comprising the CSO, the Department of Justice, Equality and Law Reform, the Office for Social Inclusion, and other relevant Departments to develop a Travellers' Data Strategy.  This should identify priority information gaps at national and local level and how to improve data availability in each case, drawing on existing and potential sources.